Office of the Historian

740.0011 European War 1939/17085: Telegram

The Secretary of State to the Ambassador in the United Kingdom (Winant)

Washington, December 5, 1941—6 p.m.

5682. With reference to your 5876, please read the following cable to Eden personally but leave no text of the message:

1.
As proof of American policy of aid to Russia, this Government recently sent representatives to the Soviet Union in order to discuss the furnishing of supplies to the Soviet Union to assist it in its struggle against the Nazi invasion. These representatives entered into an agreement with the Soviet Government as to supplies; an agreement which was coordinated with a similar effort by the British Government.
2.
It is our conviction that the test of our good faith with regard to the Soviet Union is the measure to which we fulfill the commitments our representatives made in Moscow. We are exerting every effort to carry out these obligations and will continue to do so until the final victory.
3.
In so far as our post war policies are concerned, it is our belief that these have been delineated in the Atlantic Charter which today represents the attitude not only of the United States but also of Great Britain and of the Soviet Union.
4.
In view of this fact in our considered opinion it would be unfortunate were any of the three governments, now on common ground in the Atlantic Charter, to express any willingness to enter into commitments regarding specific terms of the postwar settlement. Discussions between the several governments looking toward fullest possible agreement on basic policies and toward later arrangements at the proper time and with full public knowledge will of course be expected to continue. Upon the conclusion of hostilities those nations contributing to the defeat of the Hitler forces will join in an effort to restore peace and order. The participation at that time of the Soviet Government will be no less than that of Great Britain and our own. In order not to jeopardize the aims we shall all share in common looking [Page 195] to an enduring peace, it is evident that no commitments as to individual countries should be entered into at this time. It would be unfortunate if we should approach the peace conference thus hampered. Above all there must be no secret accords.
5.
Our basic policy of aid to England is no less strong than that of aid to Russia and we are confident that there is no doubt in the British mind as to our good faith in carrying out our policy. It was in this spirit the Atlantic Charter was conceived, to which the Soviet Government has now given its adherence.76 Given the limitations of this Government, it would be difficult if not impossible for us to implement this common understanding by agreements of a more detailed nature at this time. Furthermore, the constitutional limitation to which this Government is bound must be kept in mind.

We have very frankly indicated our position in order that in view of the short time before Mr. Eden’s departure he may have no misunderstanding as to the general lines of our position.

As to numbered paragraph 7 of your telegram we abstain from comment because of uncertainty as to its meaning. In the event that further discussions on this are contemplated we would like to have fuller information.77

Hull
  1. See bracketed note, p. 378.↩
  2. At the end of this telegram there is a notation by Ray Atherton, Acting Chief of the Division of European Affairs: “This text has been approved by Mr. Hull.” President Roosevelt has also initialed: “OK FDR”. Ambassador Winant told the views expressed in this telegram to Secretary Eden before he left for Moscow on the evening of December 7, 1941, who “expressed his complete agreement with them.”↩