740.0011 Moscow/9–1443

Memorandum by the Secretary of State to President Roosevelt

In response to your request I am transmitting herewith draft suggestions for an agenda for the Tripartite Conference.

This matter requires some rather careful consideration.

It seems to me that it would be well not to be too detailed in suggesting items for discussion but try to keep the exchange of views on the broad basis of general world security within which framework, if the Soviet Government is willing to cooperate, many of the detailed questions would be more easily solved.

It might be well to have the question of the Soviet attitude toward the Pacific war situation come up, but I question the advisability of including any such item in a proposed agenda.

C[ordell] H[ull]

Draft Agenda for Tripartite Conference

1. General security (four-nation declaration).

As a basis for the maintenance of peace and security in the world after the end of hostilities, it is suggested that the United States, Great Britain, the Soviet Union, and China enter into a four-nation arrangement which would provide for consultation and cooperation in carrying out the responsibilities of those four nations for the maintenance of peace by continuing after the war the present collaboration in the prosecution of the war.

A tentative draft of such declaration is attached hereto.

2. Treatment of Germany and other enemy countries in Europe.

During armistice period, international military, political, and economic control over Germany.
Steps towards ultimate settlement:—length of armistice period, future status of German Government, frontiers, and other questions.

3. Economic matters for reconstruction.

Question of reparations.
Cooperation in rehabilitation of war damage in U. S. S. R.
Joint action for assistance to other countries.
Collaboration on an international basis dealing with matters such as food and agriculture, transport and communications, finance and trade, and I.L.O.24
Any specific matters either of the other Governments wishes to raise.

4. Methods of dealing with current political and economic issues and those which may arise as the tear progresses.

Our proposal is that matters on which it is found desirable for the three Governments to consult should be dealt with in Moscow, London, or Washington as may be most appropriate on an ad hoc basis by the permanent diplomatic representatives in each capital. Experts could be sent if desired to participate depending upon the character of the subjects under discussion. This is not intended to preclude the holding of international or tripartite conferences as occasion may make desirable.

We will be prepared to discuss at the October Moscow Conference any current issues proposed by either of the other two Governments on which it may be found timely to consult.


Annex No. 125

Tentative Draft of a Joint Four-Power Declaration

The Governments of the United States, Great Britain, the Soviet Union and China:

united in their determination, in accordance with the Declaration by the United Nations of January 1, 1942, and subseuent declarations, [Page 523] to continue hostilities against those Axis powers with which they respectively are at war until such powers have laid down their arms on the basis of unconditional surrender;

conscious of their responsibility to secure the liberation of themselves and the peoples allied with them from the menace of aggression;

recognizing the necessity of ensuring a rapid and orderly transition from war to peace and of establishing and maintaining international peace and security with the least diversion of the world’s human and economic resources for armaments;

jointly declare:

That their united action, pledged for the prosecution of the war, will be continued for the organization and maintenance of peace and security.
That those of them at war with a common enemy will act together in all matters relating to the surrender and disarmament of that enemy, and to any occupation of enemy territory and of territory of other states held by that enemy.
That they will take all measures deemed by them to be necessary to provide against any violation of the requirements imposed upon their present enemies.
That they recognize the necessity of establishing at the earliest practicable date a general international organization, based on the principle of the sovereign equality of all nations, and open to membership by all nations, large and small, for the maintenance of international peace and security.
That for the purpose of maintaining international peace and security pending the reestablishment of law and order and the inauguration of a general system of security, they will consult and act jointly in behalf of the community of nations.
That, in connection with the foregoing purpose, they will establish a technical commission to advise them on the military problems involved, including the composition and strength of the forces available in an emergency arising from a threat to the peace.
That they will cooperate with each other in bringing about a practicable lightening of the burden of armaments for themselves and for the world.
That they will not employ their military forces within the territories of other states except for the purposes envisaged in this declaration and after joint consultation and agreement.

  1. International Labor Organization.
  2. This is the first of two drafts for a Joint Four-Power Declaration prepared on August 11, the second being a slight revision of this one. The only changes were that paragraph 8 in this draft was changed to paragraph 7 in the new draft, while paragraph 7 in this draft became paragraph 8 and was changed to read: “That they will confer and cooperate to bring about a practicable general agreement with respect to the regulation of armaments in the postwar period.”

    The two drafts apparently became confused. The first draft attached to the file copy of the memorandum to President Roosevelt of September 14, here printed, is the draft sent to Moscow in telegram No. 874, September 18, 7 p.m., printed on p. 528, and is also the draft filed with the Moscow Conference records as “Conference Document No. 3” (see bracketed note, p. 705).

    The second draft is printed in Department of State, Postwar Foreign Policy Preparation, 1939–1945 (Washington, 1949) p. 553, and is there described as “Document as taken by Secretary of State (Hull) to First Quebec Conference and the Moscow Conference, 1943.” (Documentation on the First Quebec Conference, August 17–24, is scheduled for publication in a subsequent volume of Foreign Relations.) This draft was apparently the one given to the British Secretary of State for Foreign Affairs (Eden) at Quebec and is the one upon which the amendments presented in British Embassy Note No. 612, September 28, printed on p. 531, were based. It is also the draft which was revised by the “Tentative Draft of a Joint Declaration” presented at the Moscow Conference by Secretary Hull on October 21 and printed on p. 600.