Foreign Relations of the United States: Diplomatic Papers, The Conferences at Cairo and Tehran, 1943

J. C. S. Files

Memorandum by the United States Chiefs of Staff

secret
C. C. S. 406

[Cairo,] 23 November 1943.

Combined Chiefs of Staff—United Chiefs of Staff

Reference: CCS 127th Meeting, Item 4¹

1. The discussion in the C. C. S. 127th Meeting concerning the Chinese military representatives meeting with the Combined Chiefs of Staff was the first of a series of such problems which will arise, particularly as our cooperation with the Soviets and Chinese develops. It would seem highly desirable to find a solution which will permanently (a) maintain the exclusive American-British character of the Combined Chiefs of Staff while avoiding these embarrassing complications and (b) furnish adequate and satisfactory machinery for discussions by the principal Allies at the Chiefs of Staff level, as military problems arise or political considerations make such meetings desirable.

2. As a solution it is suggested:

a. That the Combined Chiefs of Staff be recognized as an exclusive American and British Body, and

b. That a “United Chiefs of Staff” be set up at the Chiefs of Staff level to include the principal Allies—that is, for the present, the four “Moscow” powers.²

3. The United Chiefs of Staff would function only when necessity arose, and would provide for attendance either by all members or by only those concerned in the problems to be discussed. This arrangement would give an “out” to China or Russia as the case might be. The proposed United Chiefs of Staff should consist of a single representative of the Chiefs of Staff of each nation. This representative would not necessarily have to be the same official at all meetings. Our Allies could not complain of being left out of Combined Chiefs of Staff discussion, since in theory, at least, the Combined Chiefs of Staff would be the lesser of the two bodies.

4. Such a “United Chiefs of Staff” should be considered as a flexible organization designed to meet situations as they develop, including possible inclusion of other Allies at a later date, on the same basis of participation when concerned.

1. See ante, p. 305.
2. Parties to the Declaration of Four Nations on General Security, signed at the Moscow Conference on October 30, 1943, and issued November 1, 1943, i. e., the United States, the United Kingdom, the Soviet Union, and China; Decade, p. 11.