Foreign Relations of the United States, The Soviet Union, 1933–1939

760p.6111/83

Memorandum by the Assistant Chief of the Division of European Affairs (Henderson)

[Washington,] December 20, 1939.

The Latvian Minister told me this morning that so many misrepresentations, some of which seemed inspired, regarding the present international situation of the Baltic States (Latvia, Estonia and Lithuania) have appeared recently in press despatches or have been made over the radio, that he feels he should give the Department in confidence a description of the situation as it exists.

The Minister said that unfortunately many of these misstatements seemed to come from Scandinavian sources, and were probably made not for the purpose of doing injury to the Baltic States, but rather to portray in exaggerated form the difficulties of these states in order to demonstrate that Finland had acted properly in refusing to agree to Soviet demands. He said that his country and the other Baltic States had the utmost sympathy for Finland and that they certainly had no reason to criticize Finland for resisting any demands which the Finnish Government believed would impair the sovereignty of Finland. It was the hope of the Baltic States that Finland would be successful in maintaining its independence. Nevertheless, these states could not afford to ignore propaganda to the effect that they were now merely Russian satellites since if the impression should exist throughout the world that they had lost their independence it would be much easier for the Soviet Union to take them over.

The Minister pointed out that during the last twenty years against tremendous odds the three Baltic States had made valiant efforts to raise the standards of living of their people and to make themselves creditable members of the family of nations. An enormous amount of sacrifices had been made in order to go forward in this direction. In view of the geographic position of these countries they had had no choice except to endeavor to remain neutral as between their three grasping neighbors—Germany, Poland, and the Soviet Union. Following the German-Soviet agreement and the destruction of Poland they were forced, in order to preserve the accomplishments of their work of the last twenty years, to enter into mutual assistance alliances with the Soviet Union and to permit the Soviet forces to occupy certain bases on their territories. In return, the Soviet Government has promised not to interfere with their national life and their political independence. There is no doubt that their situation is precarious. It is important that the Governments of these countries and the representatives of these Governments abroad conduct themselves in such a manner that they cannot be charged by the Soviet Union with failing to live up to the spirit of their agreements with the Soviet Government. In the field of foreign affairs, therefore, these three countries are compelled to act with great caution. Nevertheless, they have not given up their independence or their hopes for retaining their independence. The Soviet Government thus far had not interfered with the internal life of these countries. The Latvian Government would not accede to any Soviet demands the acquiescence to which would mean the eventual sovietization of the country or the reduction of the country to a mere Soviet appanage.⁶⁸

The Minister stated that the American Government and the American people had thus far shown real friendliness towards Latvia and an understanding of its problems. He hoped that during these trying days when emotions run high the American Government and the American people would not forget that Latvia continues to be one of the outposts of Western civilization and although in its present position it is not as articulate as a country which might be engaged in actual war with the Soviet Union, it nevertheless was struggling with all the resources at its disposal against being swallowed up by its great neighbors.

The Minister referred in particular to an Associated Press report which was published in the Washington Star of December 15. This statement was in general to the effect that the Baltic States were already merely Soviet satellites and that the American Government was giving consideration to the advisability of withdrawing its diplomatic representation from them at some time in the future. He said that he hoped that this report did not represent the views of the American Government.

I told the Minister that I had seen the report in question and that I could assure him that it did not represent the views of the American Government; that this Government understood the position in which the three Baltic States found themselves; and that it was not considering the advisability of withdrawing its diplomatic and consular representatives from the Baltic States.

The Minister thanked me for this statement and said that it had greatly relieved his mind.

68. During 1940 in a series of ultimatums, the Soviet Union enforced new demands upon Lithuania (June 12–16), Latvia (June 16–20), and Estonia (June 16–22), culminating in virtual Soviet military occupation. Following what were called elections on July 14 and 15, and unanimous votes in the new assemblies for union with the Soviet Union on July 21, the Supreme Council of the Soviet Union resolved to admit Lithuania on August 3, 1940; Latvia, on August 5; and Estonia, on August 6. By the law of August 7, 1940, the necessary constitutional changes were made Whereby these countries became the 14th, 15th, and 16th constituent republics in the Soviet Union.