711.93/380½
Memorandum by the Secretary of State to President Roosevelt81
Referring to your memorandum of October 2, relative to the published statement of Admiral Yarnell82 as to policy in China, the simple facts are as follows:
The Navy Department received, on a certain afternoon, a telegram from Admiral Yarnell giving the text of the statement under reference. Admiral Leahy promptly called Mr. Hornbeck on the telephone and read to Hornbeck the text. The statement was in fact an instruction which Admiral Yarnell had issued to officers of the Asiatic Fleet. It was so phrased, however, as to serve for purposes of a public statement and had apparently been made public in China. Admiral Leahy stated that he did not understand Admiral Yarnell’s having uttered a statement of policy, but that, inasmuch as it was known in China that he had done so, the press correspondents here would in all likelihood soon be asking about the matter; and he inquired what action the Navy Department should, in that event, take. After some conversation, Admiral Leahy and Mr. Hornbeck came to a meeting of the minds to the effect that, if correspondents here inquired with regard to the matter, there would be no use in making a denial and no useful purpose would be served by declining to give them the text; that, in fact, inasmuch as Admiral Yarnell’s statement began, “The policy of the Commander-in-Chief of the Asiatic Fleet is …,”83 it would be better to give out a text than to withhold a text and leave [Page 364] it to the newspapers to write that this was a statement of American governmental policy.
While that conversation was being held, copies of Admiral Yarnell’s telegram reached the Department. Mr. Hornbeck called my attention to the text and informed me of the conversation between himself and Admiral Leahy. I discussed the matter with Mr. Wilson84 and Mr. Wilson discussed it with Mr. Hornbeck. It was felt that the matter was one into which, the action already having been taken by Admiral Yarnell, this Department should not intrude; that the matter lay on the one hand between the Navy Department and Admiral Yarnell and on the other hand between the Navy Department and the President as Commander-in-Chief of the Armed Forces. Thereafter, thirty-six hours went by without event. Then, on the morning of the third day, press correspondents did address inquiries to the Navy Department and the Navy Department did give out the text. I understand that this was done without comment. Shortly thereafter, the correspondents asked me to make comment, and I withheld comment: I simply said, “I have nothing new in mind as to the policy of our Government relative to the protection and evacuation of Americans in China.”
I then had Judge Moore,85 Mr. Wilson and Mr. Hornbeck take the matter up with Admiral Leahy. It was agreed that the Navy Department would send Admiral Yarnell an instruction that he was not to make statements of policy without first having consulted the Navy Department; and Admiral Leahy voluntarily stated that when any such matter came up the Navy Department would consult this Department. The Navy Department then sent Admiral Yarnell an order reading:
“Reference your 1422–1830 regarding ‘policy of Cincaf during the present emergency’ it is desired that hereafter any statement regarding ‘policy’ contemplated by the commander in chief Asiatic Fleet be referred to the Secretary of the Navy for approval.”