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

Bohlen Collection

Bohlen Minutes²

November 29, 1943, 4 p.m.

secret

The President said that since there was no agenda for the conference he thought it would be a good idea to have a report from the military staffs who had met this morning,³ and if there was no objection they might hear from General Brooke, Marshal Voroshilov and General Marshall.

General Brooke said that the committee had not finished its work and had merely made a survey of the various operations mentioned, and had also examined the operation Overlord, taking into account the period of time which must elapse before Overlord was put into effect. He said that the committee considered the fact that if active operations were not undertaken in the Mediterranean during this period it would provide the Germans with an opportunity to remove their forces from that area either for the Soviet front or for the defense against Overlord. The committee also examined the advantages of continuing the operations up the leg of Italy until they had brought the Germans to a decisive battle. The committee briefly reviewed the question of providing the Partisans in Yugoslavia with aid and supplies in order to assist them in containing German forces. The advantages of Turkey’s participation in the war from the point of view of opening up the Dardanelles, the supply route to Russia and its effect on the Balkans was [were] also considered. The possibility of an operation in southern France in connection with Overlord was also briefly discussed. The effect of the air attacks on Germany was outlined to the committee by Air Marshal Portal, and General Marshall provided the figures of the United States build-up in England, and General Brooke himself had described the changeover from the defense to offensive preparations in England. General Brooke concluded that Marshal Voroshilov had put forth a number of questions and had received answers.

General Marshall said he had little to add to what General Brooke had said and he did not intend to go into any detail. He said that the chief problems were landing craft and suitable airfields to afford fighter protection for any operation. He emphasized that the question of adequate landing craft came first in importance, and added that by landing craft he meant those capable of carrying 40 tanks. He said that he had endeavored to make clear to the committee the manner in which preparations for Overlord were proceeding; that the flow of troops from the United States were [was] on schedule and that one million tons of material had already been shipped to England. He repeated that the variable factor was production of landing craft and that the schedule of production had been stepped up. He said that some veteran divisions had already been transferred from the Italian theater to England.

Marshal Voroshilov said that the answers which he had received to his questions at the committee meeting had been confirmed here at the conference by General Brooke and General Marshall. He added that the questions of Yugoslavia and Turkey mentioned by General Brooke had not been considered in detail.

Marshal Stalin then inquired who will command Overlord.

The President replied that it had not yet been decided.

Marshal Stalin said that nothing would come out of the operation unless one man was made responsible not only for the preparation but for the execution of the operation.

The Prime Minister said that General Morgan had been in charge of the preparatory work for some time but that the actual Commander had not yet been appointed. He said the British Government was willing to have a United States General in command in view of the fact that from the United States would come the bulk of the troops, and that possibly the Commander-in-Chief in the Mediterranean would be a British General. He suggested that the question of who should command Overlord had best be discussed between the three of them rather than in the large meeting.

The President said that the decisions taken here will affect the choice of the particular officer to command Overlord.

Marshal Stalin stated that the Russians do not expect to have a voice in the selection of the Commander-in-Chief; they merely want to know who he is to be and to have him appointed as soon as possible.

The Prime Minister expressed agreement and said that he thought the appointment could be announced within a fortnight. He then went on to say that he was a little concerned at the number and complexity of the problems which were before the conference. He said many hundreds of millions of people are watching this conference, and he hoped that it would not break up until an agreement had been reached on big military, political and moral questions. He said that the British Staff and himself had given prolonged thought to the Mediterranean theater and that they were most anxious to have the armies there fight against the enemy and not have them stripped of essential elements. He stated that their Soviet allies had now had an opportunity to survey the scene and that he would appreciate learning their views as to the best [use?] which could be made of the British forces in the Mediterranean area. He said the question of what help could be given from the Mediterranean theater to Overlord and the scale and timing of such help was of great importance. The operation into southern France from northern Italy had been mentioned but not studied and should, therefore, be explored more fully between the United States and British Staffs. Mr. Churchill said that Marshal Stalin had correctly stressed the value of pincers movement but that the time element was important and a premature subsidiary attack might be wiped out. He went on to say that personally all he wanted was landing craft for two divisions in the Mediterranean and that with such a force many operations would be feasible, for example, it could be used to facilitate the operations in Italy or to take the island of Rhodes if Turkey will enter the war, and could be used for these purposes for at least six months and then employed in support of Overlord. He pointed out that this force of landing craft could not be supplied for the forces in the Mediterranean without either delaying Overlord six to eight weeks or without withdrawing forces from the Indian theater. That is the dilemma. He said he would appreciate the views of Marshal Stalin and his military aides on the general strategy. The Prime Minister continued that the questions of Yugoslavia and Turkey were more political than military. He said that there are now in the Balkans 21 German Divisions and 21 Bulgarian Divisions, a total of 42. He added that there were 54,000 Germans scattered around the Aegean islands which would be an easy prey. If Turkey came in, the nine Bulgarian Divisions from [in?] Yugoslavia and Greece would be withdrawn, thus endangering the remaining German Divisions. No important operations were envisaged for the Balkans but merely supply and commando raids to assist Tito and his forces to contain the German forces there. Mr. Churchill added that Great Britain had no ambitious interests in the Balkans but merely wanted to pin down the German Divisions there. With regard to Turkey Mr. Churchill said that the British Government as allies of Turkey had accepted the responsibility to persuade or force Turkey to enter the war. He would need, and he hoped to obtain, help from the President and Marshal Stalin in his task in accordance with the agreement reached at Moscow.⁴ He added that the British Government would go far in pointing out to the Turks that their failure to respond to the invitation of our three great powers would have very serious political and territorial consequences for Turkey particularly in regard to the future status of the straits. He said this morning the military committee had discussed briefly the question of aid to Turkey, but it appeared to be more political than military, and there was no thought of using a major army, and that at the most two Divisions apart from the air and anti-aircraft forces would be sent to Turkey. Mr. Churchill proposed that the two foreign secretaries and the representative of the President meet to discuss the political aspects of the Turkish question as well as other political questions involving the Balkans area.⁵ Mr. Churchill said that he had asked some questions yesterday regarding Bulgaria, in particular if Bulgaria attacked Turkey would the Soviet Government consider Bulgaria as a foe.⁶ The Prime Minister concluded that if Turkey declared war on Germany it would be a terrible blow to German morale, would neutralize Bulgaria and would directly affect Rumania which even now was seeking someone to surrender unconditionally to. Hungary likewise would be immediately affected. He said that now is the time to reap the crop if we will pay the small price of the reaping. He summed up the task before the conference as: (1) to survey the whole field of the Mediterranean, and (2), how to relieve Russia, and (3), how to help Overlord.

Marshal Stalin said that Mr. Churchill need have no worry about the Soviet attitude toward Bulgaria; that if Turkey entered the war the Soviet Union would go to war with Bulgaria, but even so he did not think Turkey would come in. He continued that there was no difference of opinion as to the importance of helping the Partisans, but that he must say that from the Russian point of view the question of Turkey, the Partisans and even the occupation of Rome were not really important operations. He said that Overlord was the most important and nothing should be done to distract attention from that operation. He felt that a directive should be given to the military staffs, and proposed the following one:

(1). In order that Russian help might be given from the east to the execution of Overlord, a date should be set and the operation should not be postponed. (2). If possible the attack in southern France should precede Overlord by two months, but if that is impossible, then simultaneously or even a little after Overlord. An operation in southern France would be a supporting operation as contrasted with diversionary operations in Rome or in the Balkans, and would assure the success of Overlord. (3). The appointment of a Commander-in-Chief for Overlord as soon as possible. Until that is done the Overlord operation cannot be considered as really in progress. Marshal Stalin added that the appointment of the Commander-in-Chief was the business of the President and Mr. Churchill but that it would be advantageous to have the appointment made here.

The President then said he had been most interested in hearing the various angles discussed from Overlord to Turkey. He attached great importance to the question of logistics and timing. He said it is clear that we are all agreed as to the importance of Overlord and the only question was one of when. He said the question was whether to carry out Overlord at the appointed time or possibly postpone it for the sake of other operations in the Mediterranean. He felt that the danger of an expedition in the eastern Mediterranean might be that if not immediately successful it might draw away effectives which would delay Overlord. He said that in regard to the Balkans, the Partisans and other questions are pinning down some 40 Axis Divisions and it was therefore his thought that supplies and commando raids be increased to that area to insure these Divisions remaining there. The President then said he was in favor of adhering to the original date for Overlord set at Quebec,⁷ namely, the first part of May.

Marshal Stalin said he would like to see Overlord undertaken during the month of May; that he did not care whether it was the 1st, 15th or 20th, but that a definite date was important.

The Prime Minister said it did not appear that the points of view were as far apart as it seemed. The British Government was anxious to begin Overlord as soon as possible but did not desire to neglect the great possibilities in the Mediterranean merely for the sake of avoiding a delay of a month or two.

Marshal Stalin said that the operations in the Mediterranean have a value but they are really only diversions.

The Prime Minister said in the British view the large British forces in the Mediterranean should not stand idle but should be pressing the enemy with vigor. He added that to break off the campaign in Italy where the allied forces were holding a German army would be impossible.

Marshal Stalin said it looked as though Mr. Churchill thought that the Russians were suggesting that the British armies do nothing.

The Prime Minister said that if landing craft is [are] taken from the Mediterranean theater there will be no action. He added that at Moscow the conditions under which the British Government considered Overlord could be launched had been fully explained,⁸ and these were that there should not be more than 12 mobile German divisions behind the coastal troops and that German reinforcements for sixty days should not exceed 15 Divisions. He added that to fulfill these conditions it was necessary in the intervening period to press the enemy from all directions. He said that the Divisions now facing the allies in Italy had come from the most part in France [for the most part from France?], and to break off the action in Italy would only mean that they would return to France to oppose Overlord. Turning again to the question of Turkey, The Prime Minister said that all were agreed on the question of Turkey’s entrance into the war. If she refused, then that was the end of it. If she does enter, the military needs will be slight, and it will give us the use of Turkish bases in Anatolia, and the taking of the island of Rhodes which he felt could be done with one assault Division. Once Rhodes was taken the other Aegean islands could be starved out and the way opened to the Dardanelles. Mr. Churchill pointed out that the operation against Rhodes was a limited operation and would not absorb more effectives, and that in any case the troops for this purpose would come from those now used for the defense of Egypt. Once Rhodes was taken these forces from Egypt could proceed forward against the enemy. All he wanted was a small quantity of landing craft. He then said that he accepted Marshal Stalin’s suggestion that terms of reference be drawn up for the military staffs.

Marshal Stalin interposed to ask how many French Divisions were being trained in North Africa.

General Marshall replied that for the present there were five Divisions ready and four in training, and that one of these five was in Italy with the American Fifth Army and another was en route. He said that from the battle experience gained it would be possible to decide how best to utilize the other French Divisions.

The President then proposed that instead of three directives to the three Staffs⁹ that one directive be agreed upon here. He then proposed a joint directive as follows: (1). That the military staffs should assume that Overlord is the dominating operation. (2). That the Staffs make recommendations in regard to other operations in the Mediterranean area, having carefully in mind the possibility of causing a delay in Overlord.

Marshal Stalin said he saw no need for any military committee here, that the questions involved should be decided at the conference. He also saw no need for any political sub-committee. Marshal Stalin then said he wished to ask Mr. Churchill an indiscreet question, namely, do the British really believe in Overlord or are they only saying so to reassure the Russians.

The Prime Minister replied that if the conditions set forth at Moscow were present it was the duty of the British Government to hurl every scrap of strength across the channel. He then suggested that the British and American Staffs meet tomorrow morning in an endeavor to work out a joint point of view to be submitted to the conference.¹⁰ It was further agreed that the President, Marshal Stalin and the Prime Minister would lunch together at 1:30,¹¹ and that Mr. Eden, Mr. Molotov and Mr. Hopkins would likewise lunch together separately.¹²

The meeting adjourned until 4 P.M., November 30, 1943.

2. See ante, p. 514.
3. See Harriman’s telegram of November 2, 1943, to Roosevelt, ante, p. 147.
4. For the minutes of the luncheon meeting of Hopkins, Eden, and Molotov, November 30, 1943, see post, p. 568.
5. See ante, p. 492.
6. The records of the Roosevelt–Churchill conference held at Quebec in August 1943 are scheduled to be published subsequently in another volume of the Foreign Relations series.
7. See ante, p. 140.
8. This is apparently a reference to Churchill’s suggestion on the subject, which is reported in the Combined Chiefs of Staff minutes (see post, p. 549) but not in the Bohlen minutes.
9. For the minutes of the meeting referred to, see post, p. 555.
10. For the minutes of the meeting referred to, see post, p. 565.
11. For the minutes of the meeting referred to, see post, p. 568.
12. For editorial annotations, see also the Bohlen minutes of this meeting, supra.