835.34/575a Suppl.: Telegram

The Acting Secretary of State to the Ambassador in Argentina ( Armour )

387. Since my telegram no. 305 of March 4, midnight, there have been several developments of which I think you should know in the event that during the next 2 or 3 days you are engaged by the Argentine authorities in conversations on this subject.

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The plan of military and naval cooperation between the United States and Argentina as developed by the military and naval authorities of the two Governments was premised upon Argentine entry into the war on the side of the United Nations. This premise, although wholly acceptable for the purposes of developing a plan of military and naval collaboration, is wholly unrealistic from the standpoint of political actualities, since the Argentine Government does not have the slightest present intention of entering the war. The Argentine naval authorities and Espil have shown an intense desire that the agreement be signed and approved by the two Governments. In addition to the reason they give for signature, namely, the desirability of maintaining cordial technical relations between the military and naval arms of the two Governments, in my judgment there are two important advantages which would accrue to Argentina without any corresponding benefit to this country. In the first place, Argentina would soon maintain before this Government that the agreement contained a moral commitment on our part to provide armament so that Argentina could be in a position to fulfill its obligations in the event that it were to enter the war. It would request the negotiation of a Lend-Lease agreement and the immediate delivery of the armament set forth in the report to be delivered provided Argentina enters the war. In the second place, Argentina would make it appear to Argentine public opinion that signature of the agreement was positive proof that Argentine policy at the Meeting of Foreign Ministers in Rio was not out of harmony with the policy of the United States and the other American republics.

In order to remove this one-sided aspect of the agreement and to secure from Argentina some positive contribution to the maintenance of the security of the Hemisphere, the Argentine Delegation was informed of the desire of the United States Delegation to add certain paragraphs to the agreement reading as follows:

“3. The Argentine Government recognizes the necessity of maintaining uninterrupted sea communications between the United States and Argentina. The United States Committee and the Argentine Delegation agree that the provisions of Annex 4—the Control and Protection of Shipping—should become effective immediately. The High Command of the two navies will immediately make necessary agreements for the control and protection of shipping. The principles and instructions necessary for the control and protection of shipping are attached hereto.

4. In case the Argentine Government agrees to the above cooperative measures while remaining in a non-belligerent status, the Government of the United States will immediately enter into negotiations with the Argentine Government for the purpose of making a Lend Lease contract. This contract will provide for the procurement of the materials and facilities listed in Annex 5—Section 3 which have been recommended to be undertaken in the year 1942.”

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Annex 4 mentioned in paragraph 3 reads as follows:

Annex IV, Control and Protection of Shipping.

1.
United States authorities will issue directions for the control and protection of shipping of the Associated Powers within the areas in which United States authorities assume responsibility for the strategic direction of Military forces. Argentine authorities will issue directions for the control and protection of shipping of the Associated Powers within the areas in which Argentine authorities assume responsibility for the strategic direction of Military forces.
2.
United States and Argentine shipping scheduled to pass from an area assigned to one Power into an area assigned to another Power, will be controlled and protected by agreement between the respective Naval authorities. The United States Navy Department is the highest authority in the control of shipping in the South Atlantic bound to and from the United States. It is understood that, in this case, control means the coordination of the shipping routes.
3.
The United States Naval Control Service Organization will arrange for the control and protection of shipping of the United States registry or charter within United States areas. Requests from the United States Naval Control Service for protection by Argentine forces within the Argentine zone of Responsibility will be made to the Chief of Staff Argentine Navy.”

The Argentine Delegation replied in writing that this proposal “is a political matter, therefore it is outside the orbit and attributes of this Delegation for consideration. It is to be regretted that this Delegation is unable to enter in discussions regarding this added plan of cooperation”.

I thereupon made the proposal to Espil who has now informed me that his Government cannot accept it since it would involve his country in the war. He has been instructed to present to the President his Government’s views in the premises. As a first step, he is preparing a memorandum setting forth these views which he expects to give me tomorrow afternoon.

I will keep you fully posted of developments.

Welles