740.0011 Mutual Guarantee (Eastern
Locarno)/21
The Ambassador in Germany (Dodd) to
the Secretary of State
No. 1067
Berlin, July 24,
1934.
[Received August 3.]
Sir: Referring to despatches Nos. 1025 and
1032 of July 13 and 16 respectively,28 I have the honor to enclose further data in
regard to the proposed Eastern Pact. From this it will be seen that the
[Page 499] Germans object to the
proposals, though apparently they are in no hurry to reply and seem to
be waiting for other countries to make smoother the path of German
rejection.
- Enclosures 1 and 2 consist of the English text of the proposals as
delivered to the German Foreign Office by the British Embassy. The
first document is the original French proposal, and the second the
British amendments accepted by the French, which the former held
would place Germany on a basis of equality with France.
- Enclosure 3 consists of a confidential memorandum of conversation
between Dr. Meyer, Chief of the Eastern Division in the Ministry for
Foreign Affairs, and the Counselor of the Embassy,29 in which the former set
forth the German objections to the proposals.
- Enclosure 430
comprises German press comment.
Respectfully yours,
[Enclosure 1]
French Proposals Regarding a Treaty of Regional
Assistance To Be Signed by Poland, Russia, Germany,
Czechoslovakia, Finland, Estonia, Latvia, Lithuania
1.Treaty of Regional Assistance
to be signed by Poland, Russia, Germany, Czechoslovakia,
Finland, Estonia, Latvia, Lithuania
Part I
- (a)
- These countries would bind themselves in conformity with
Covenant immediately to lend assistance to one another in the
case of attack by one contracting state on another.
- (b)
- No support would be given by any of signatories to an
aggressor country not a party to treaty.
Part II
- (a)
- In the case of attack or threatened attack by a contracting
country, the other parties would consult together with a view to
avoidance of a conflict and in order to promote a return to
peace.
- (b)
- The signatories would undertake the same commitment in the
case of attack or of threatened attack by a Power which is not a
signatory against a signatory Power.
- (c)
- The consultations referred to in paragraphs (a) and (b) of Part II could
extend to other interested Powers or to Powers entitled to
participate in them by virtue of other treaties.
- (d)
- Where one contracting country could benefit from provisions of
Article 10 and Article 16 of Covenant of League, the other
signatories [Page 500] would
undertake to secure a complete application of such provisions by
League of Nations.
2. Agreement between France and
Russia
- (a)
- As towards France, Russia would accept obligations arising
from Treaty of Locarno as though Soviet Union were a signatory
of that treaty on same footing as Great Britain or Italy.
- (b)
- As towards Russia, France would accept Commitments which would
arise for her under Part I, paragraphs (a) and (b), of Regional Treaty if
she were a signatory, in cases where it is a question of action
in fulfilment of Article 16 of Covenant or decisive action taken
by Assembly or Council or in fulfilment of paragraph 7 of
Article 15 of Covenant.
- (c)
- France would be invited if case arose to participate in
consultations provided for in Treaty of Regional Assistance
under terms of Article (a) of Part
II.
3. A General Act, Signatories: All
States signatories of Treaty of Regional Assistance and in
addition France
- (a)
- The two preceding treaties are recognized as being of a
character to contribute to maintenance of peace.
- (b)
- They are without prejudice to obligations and rights of
contracting parties as members of League of Nations.
- (c)
- Entry into force of three acts is subject to their
ratification and to entry into League of Nations of
Russia.
[Enclosure 2]
British Counterproposals Accepted by the French,
Regarding a Treaty of Regional Assistance To Be Signed by
Poland, Russia, Germany, Czechoslovakia, Finland, Estonia,
Latvia, and Lithuania
- (1)
- In the view of the French Government Russia ought to be
prepared to give Germany as well as to France the same
guarantees against non-provoked aggression as those which she
would be bound to give if she were a signatory to the Treaty of
Locarno,
- (2)
- In regard to the proposed Eastern Pact France would be
prepared to give the same guarantees to Germany and
Russia.
- (3)
- The French Government agrees with His Majesty’s Government in
holding that the conclusion of such a pact and Germany’s
participation in the system of reciprocal guarantees now
contemplated would afford the best ground for the assumption of
negotiations for the conclusion of a convention such as would
provide a reasonable application of the principle of German
equality of rights in a régime of security for all
nations.
[Page 501]
[Enclosure 3]
Memorandum by the Counselor of Embassy in
Germany (White) of
a Conversation With the Chief of the Eastern Division in the
German Ministry for Foreign Affairs (Meyer)
I asked Dr. Meyer as to what he could tell me of the so-called
Eastern Locarno proposals in addition to what he had previously
communicated.
Dr. Meyer proceeded to give me the text in English of the original
French proposals and of the modifications suggested by the English
and accepted by France. Both of the documents had apparently been
given out by the British Embassy. Dr. Meyer said that although the
matter was still being considered with a view to seeing what the
attitude of the other powers was, and no immediate answer was
contemplated, yet the following objections might be raised: 1) the
Germans did not wish to have the Russian or French armies march in
through their country with a view to carrying out the clauses of the
treaty; 2) the treaty was based on a military alliance between
Russia and France which would give those two countries the principal
say in carrying out the terms of the proposed pact. Asked whether a
military alliance already existed between Russia and France, Dr.
Meyer replied that he thought not; Russia had made the proposal for
such an alliance and France had endeavored to turn this into a pact
for regional security; 3) the pact would work in favor of the
stronger powers against the weaker; among the latter was Germany, by
reason of her armament situation, and Russia and France were among
the former; 4) Germany might be drawn into quarrels or wars between
the signers and have to supply troops; 5) Germany might be called
upon to take up arms against non-signing powers. Particularly did
this apply in case of war in the Far East, when this country would
have to support Russia against Japan, a commitment which the British
were very careful to avoid for themselves. Dr. Meyer stated that the
members of the Little Entente—other than Czechoslovakia—had not been
proposed as signers so far, though they might come in later.
Another objection of the German Government to the proposed pact,
mentioned by Dr. Meyer, was that Germany considered that the Russian
guarantees proposed for the existing Pact of Locarno would not be a
source of additional strength, but rather the reverse.
He considered that the British had endorsed the Eastern Pact because:
1) it would relieve the British of the continuous pressure from
France for further guarantees in favor of the latter; 2) in the hope
that it might keep things quiet in the east of Europe; 3) it would
be a means of getting Germany back into the League. In this last
connection, however, Dr. Meyer held that the English were mistaken,
as [Page 502] nothing was said about
the changes which Germany desired in the League and—more
important—nothing was said in regard to the equal treatment (Gleichberechtigung) of Germany in armaments.
At this point naturally Dr. Meyer alluded to the speech of M.
Barthou at Bayonne.
Dr. Meyer agreed that the Finnish Government had definitely rejected
the proposals. He said the Scandinavian countries were also opposed
to the pact although they had not been urged to join; further, that
he had had no conversation with the Poles on the subject.
