756D.94/193
Captain Roscoe E. Schuirmann, of the Office of Naval Operations, to the Secretary of State
November 22nd the Special Naval Observer London informed the Chief of Naval Operations that Vice Admiral Furstner, Minister of Marine of the Dutch Government in London and Commander in Chief of All Dutch Naval Forces had received information that the Japanese were concentrating an expeditionary force in the Pelew Islands and that the Dutch Government were considering what it should do in case a Japanese expeditionary force should cross the Davao-Waigeo line or the equator east of that line, and that the Dutch Government were inclined to regard such a movement as a direct threat to the territories and interests of Great Britain and the United States, which should immediately be countered by force. The Dutch stated that before making up their minds they would like the views of the Chief of Naval Operations.
The Chief of Naval Operations replied that he discounted the information as to the assembly of an expeditionary force in the Pelews. That he was not in a position to offer advice as the question asked involved political questions, but authorized the Naval Observer London to express his views as to the importance of the Pelews for the protection of the Mandates and for an offense against the Philippines or the Netherlands East Indies.
December 3 the Special Naval Observer London reported that he has kept the British Admiralty informed of the above as the same subject has been discussed by the Dutch with the British. He suggested to the British Admiralty that it might be necessary for the Dutch to declare the area south of the Davao-Waigeo-Equator line an area dangerous to shipping, in order that Dutch forces might be free to take prompt action against suspicious vessels crossing from the North and from the East. The British Admiralty concurred that this would constitute a useful defense measure from the naval point of view. However it was essential for political reasons that the zone should be declared in as unprovocative a manner as possible and should be represented as a defense zone rather than as a dangerous zone.
The British Admiralty informed Furstner that they also doubted the accuracy of his information and suggested the Dutch take the matter up with the Foreign Office.
When the Dutch Foreign Minister visited Eden his proposal went beyond that of Furstner as it invited a joint declaration of a defense zone by the United States or Great Britain. After consulting the Admiralty, Eden replied to the Dutch Foreign Minister as follows: (A) That during the continuance of the present negotiations between [Page 718] Japan and the United States, it was undesirable that any declaration be made unless there was the plainest evidence that the Japanese were preparing an expedition against the Netherlands territory, and that until more definite evidence becomes available that Japanese concentrations are threatening Dutch territory no declaration should be made. (B) That Great Britain recognizes the military value the declaration of a defense zone would have, but that it considers it would be less provocative to Japan and less prejudicial to the Washington negotiations if it were confined to a unilateral declaration by the Netherlands East Indies of a zone manifestly designed as a defense measure for their own shores. (C) That in similar circumstances His Majesty’s Government had been compelled to make a unilateral declaration of a defense zone on the open seas off the coast of Johore when the Japanese concentrations on the border of Indo China began to constitute a threat to Malaya; the declaration of this zone in waters adjacent to British territory was plainly a measure of defense and at the time was accepted as such by Japan without serious criticism.
Mr. Eden therefore suggested that if a declaration should prove necessary the Netherlands Government should declare that certain military and naval defense measures have been taken in the area south and west of the Davao-Waigeo-Equator line and that accordingly all vessels intending to enter this zone must notify the Netherlands Naval authorities of their intention and call at specified ports for routing instructions. Such a declaration would be analogous to that made by His Majesty’s Government off Johore and would not be likely to increase existing tension.
On December 4 the Chief of Naval Operations directed the Special Naval Observer in London to transmit to the Dutch and British Admiralties in London, the following views on the military aspect of this subject.
While the Chief of Naval Operations believes the November reports of a concentration in the Pelews were unfounded, the possibility of a Japanese attack from that region against the Philippines or Netherlands East Indies cannot be ruled out.
In regard to the Dutch project to declare areas south and west of the Davao–Waigeo–Equator line dangerous to shipping in order that Dutch Forces may attack suspicious vessels entering from the North and East, if this were done it would apply to all merchant shipping regardless of nationality and to British and United States Naval vessels as well as those of Japan. It is doubtful if the Dutch could establish promptly a control system which would not cause excessive delay to shipping important to the United States particularly to the shipping carrying reinforcements to the Philippines as all United States shipping between the United States and the Far East is routed via Torres Straits.
[Page 719]The declaration of this large area as a defense zone would hardly be analogous to the British declaration of the Johore area, as the latter area is a small one. The declaration of a large area of the high seas as a defense zone would create a precedent for Japan to close the Okhotsk Sea, Sea of Japan, the western part of the South China Sea, and the Gulf of Siam. If the United States acquiesced in the Dutch declaration, it would be difficult to object to similar declarations by the Japanese.
At present aid to Russia is being shipped via the Okhotsk Sea and Sea of Japan. The Dutch, British and United States are taking reconnaissance measures to cover areas considered dangerous. Shipments to Siberia and patrol measures should continue. The Chief of Naval Operations is convinced that the closing of the area west and south of the Davao–Waigeo–Equator area by the Dutch would be prejudicial to the naval and military interests of all three powers.
If the Dutch desire to give a warning to the Japanese the Chief of Naval Operations believes it should be in the form of a declaration to Japan, that if during the current situation Japanese Naval vessels or expeditionary forces cross the Davao–Waigeo line it would be considered a hostile act and the forces crossing this line would be attacked.
Ambassadors Winant and Biddle have been informed by the Special Naval Observer London of the contents of the memorandum.
By Direction