740.0011 Moscow/340
Protocol, Signed at Moscow, November 1, 1943
Secret Protocol
of the Conference attended by the Secretary of State of
the United States of America, Mr. Cordell Hull, the Secretary of State
for Foreign Affairs of the United Kingdom, Mr. Anthony Eden, and the
People’s Commissar of Foreign Affairs of the Union of Soviet Socialist
Republics, V. M. Molotov, which was held in Moscow from the 19th to the
30th October, 1943.
[Page 750]
The following took part in the Conference:
- U.S.A.
- Mr. Harriman
- Major General Deane
- Mr. Hackworth
- Mr. Dunn
- Mr. Bohlenand experts
- U.K.
- Sir A. Clark Kerr
- Mr. Strang
- Lieutenant General Sir Hastings Ismay
- Mr. Wilsonand experts
- Soviet Union
- Marshal Voroshilov
- Mr. Vyshinski
- Mr. Litvinov
- Mr. Sergeyev
- Major General Gryzlov
- Mr. Saksin
- and experts
|
agenda
|
|
1. Consideration of measures to shorten the duration of the
war against Hitlerite Germany and her Allies in
Europe.
(Proposed by U.S.S.R.) |
See the Most Secret Protocol of the Conference.12
|
2. (a) Four-Nations Declaration
concerning general security.
(Proposed by U.S.A.) |
(a) The text of a declaration was
agreed. The Declaration was signed on October 30th. (see annex
1). |
(b) The establishment of a Commission
of the three Powers.
(Proposed by U.S.S.R.) |
(b) It was recognised as desirable that
representatives of the United States of America, the United
Kingdom and the Soviet Union should conduct, in a preliminary
fashion, an exchange of views on questions connected with the
establishment of an international organisation for the
maintenance of international peace and security, the intention
being that this work should be carried out in the first instance
in Washington, and also in London and Moscow.12a
|
[Page 751]
3. The setting up of machinery for dealing with questions
requiring current and close collaboration, with particular
reference to the functions and scope of the Politico-Military
Commission in Algiers.
(Proposed by U.K.) |
(a) It was decided to set up a European
Advisory Commission in London (see annex 2).
(b) It was decided to set up an Advisory
Council for Italy (see annex 3). |
4. Exchange of views on the situation in Italy and the
Balkans.
(Proposed by U.K.) |
|
| (a) Information about the position in
Italy and the Balkans. |
(a) A written and oral exchange of
information took place. |
| (b) Proposal of the U.S.S.R. about
policy in regard to Italy. |
(b) The text of a declaration was
adopted (see annex 4). |
| (c) Proposal of the Soviet Government
as regards the transfer to the Soviet Union of part of the
Italian Navy (one battleship, one cruiser, eight destroyers,
four submarines) and of the Merchant Fleet (to a total of 40,000
tons) which was at the disposal of the Anglo-American forces as
a result of the capitulation of Italy. |
(c) Mr. Eden and Mr. Hull did not raise
any objection to the proposal of the Soviet Government but
reserved their final answer. |
5. Methods of dealing with current political and economic
issues and those which may arise as the war
progresses.
(Proposed by U.S.A.) |
See the (decision under point 3(a). |
6. Attitude towards the French Committee with special
reference to its position in Metropolitan France and the
establishment of eventual French government.
(Proposed by
U.K.) |
An exchange of views took place upon the document presented to
the Conference by the Governments of the U.S.A. and the U.K.:
“Basic scheme for Administration of liberated France” (see annex
5).*
In connection with questions put by the Soviet Delegation
and observations made by them, the
[Page 752]
document in question was referred for
examination to the European Advisory Commission. |
| 7. A. Treatment of Germany and other enemy countries in
Europe. |
An exchange of views took place, which showed identity of view
on the main questions. |
| (a) International military, political,
and economic control over Germany during the armistice
period. |
The question was referred for detailed study to the European
Advisory Commission. |
(b) Steps toward ultimate settlement of
future status of German Government, frontiers and other
questions, length of armistice period.
(Proposed by
U.S.A.) |
|
| B. Agreement in principle in regard to treatment of Germany
and other enemy countries in Europe. |
|
| (a) During the armistice period, e.g.
control commission, etc. |
|
(b) At peace settlement, e.g.
frontiers, military occupation, disarmament, reparations,
decentralization of the German Government etc.
(Austria)
(Proposed by U.K.) |
(b) The text of a declaration about
Austria was adopted (see annex 6). |
8. Question of agreements between the major and minor Allies
on post-war questions.
(Proposed by U.K.) |
An exchange of views took place. Note was taken of Mr. Eden’s
statement that he had no objection to the conclusion of the
Soviet-Czechoslovak Treaty, the draft of which had been
communicated to him. |
9. Common policy towards Turkey.
(Proposed by U.K.) |
The question was considered in the discussion on point
1. |
10. Common policy in Persia.
(Proposed by U.K.) |
The following proposal, which was worked out by a committee
appointed by the Conference, was accepted: “(a) After an exchange of views, the Committee detects
no fundamental difference in the policy towards Iran of any
[Page 753]
of the three
Governments; (b) the Committee was unable
to reach agreement on the expediency of making any immediate
declaration or declarations with regard to Iran; and (c) the issue of such a declaration or
declarations might be further considered by the representatives
of the three Governments in Tehran, with a view to the three
Governments coming to a decision about the expediency of issuing
such a declaration or declarations after the signature of the
proposed Irano - American Agreement13 and after
appropriate consultation with the Government of Iran.” |
11. Relations between the U.S.S.R. and Poland and policy in
relation to Poland generally.
(Proposed by U.K.) |
An exchange of views took place. |
12. Future of Poland and Danubian and Balkan countries,
including the question of confederations.
(Proposed by
U.K.) |
An exchange of views took place. Note was taken of the
statement of the Soviet Delegation (see annex 7). |
13. Peace feelers from enemy states.
(Proposed by
U.K.) |
An exchange of views took place. The following resolution was
adopted on the line to be taken in the event of peace-feelers
being received from enemy countries:
“The Governments of the
United Kingdom, the United States of America and the Soviet
Union agree to inform each other immediately of any
peace-feelers which they may receive from the Government of, or
from any groups or individuals in, a country with which any one
of the
[Page 754]
three countries
is at war. The three Governments further agree to consult
together with a view to concerting their action in regard to
such approaches.”13a
|
14. Policy regarding Allied territory liberated through the
advance of the Allied forces.
(Proposed by U.K.) |
An exchange of views took place. The question was referred to
the European Advisory Commission. |
15. A. Post-war economic cooperation with the
U.S.S.R.
(Proposed by U.K.) |
It was considered necessary to continue the examination of the
questions raised. |
B. Economic matters for reconstruction.
(Proposed by
U.S.A.) |
|
| (a) Cooperation in the rehabilitation
of war damage in the U.S.S.R. |
(a) It was considered desirable to
start conversations between the People’s Commissariat for
Foreign Affairs and the United States Embassy in Moscow. |
| (b) Joint action for assistance to
other countries. |
(b) The statement of the United States
Secretary of State on paragraph (b)
“Joint action for assistance to other countries” is attached to
this Protocol (see annex 8). |
| (c) Collaboration on an international
basis dealing with matters such as food and agriculture,
transport and communications, finance and trade, and the
International Labor Office. |
(c) The memorandum of the United States
Secretary of State on paragraph (c)
“Bases of our program for international economic collaboration”
is attached to this Protocol (see annex 9). |
| (d) Questions of reparations. |
(d) An exchange of views took place in
the course of which there was some difference of opinion on some
points in the memorandum which had been put forward. |
16. Common policy towards resistance movements in
Yugoslavia.
(Proposed by U.K.) |
This question was removed from the Agenda of the Conference at
the suggestion of Mr. Eden. |
[Page 755]
17. Question of joint responsibility for Europe as against
separate areas of responsibility.
(Proposed by U.K.) |
This was dealt with under point 12 of the Agenda. |
18. Declaration about the responsibility of the Hitlerites for
atrocities.
(Proposed by U.K.) |
The text of a declaration was adopted (see annex 10). |
19. Mutual exchange of military information.
(Proposed by
U.K.) |
The following resolution was adopted: “It is agreed that in
order to ensure that all information regarding the common enemy
is available to all the Allies engaged in his destruction, the
Allies should keep each other mutually and constantly informed
of all technical military information reaching them regarding
the German Army, Navy and Air Force, the fighting value of enemy
formations and the tactics used.” |
| 20. Publication of Conference documents. |
It was decided to publish the documents reproduced in annexes
1, 4, 6, and 10 to the present Protocol. |
Signed at Moscow,
November 1,
1943.
Cordell Hull
V. Molotov
Anthony Eden
ANNEX 1
Declaration of Four Nations on General
Security
The Governments of the United States of America, the United Kingdom,
the Soviet Union and China;
united in their determination, in accordance with the Declaration by
the United Nations of January 1, 1942, and subsequent declarations,
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;
[Page 756]
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:
- 1.
- That their united action, pledged for the prosecution of
the war against their respective enemies, will be continued
for the organization and maintenance of peace and
security.
- 2.
- 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.
- 3.
- That they will take all measures deemed by them to be
necessary to provide against any violation of the terms
imposed upon the enemy.
- 4.
- 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 peace-loving states, and open to membership
by all such states, large and small, for the maintenance of
international peace and security.
- 5.
- That for the purposes of maintaining international peace
and security pending the reestablishment of law and order
and the inauguration of a system of general security, they
will consult with one another and as occasion requires with
other members of the United Nations with a view to joint
action on behalf of the community of nations.
- 6.
- That after the termination of hostilities 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.
- 7.
- That they will confer and cooperate with one another and
with other members of the United Nations to bring about a
practicable general agreement with respect to the regulation
of armaments in the post-war period.
ANNEX 2
European Advisory Commission13b
- 1.
- The Governments of the United Kingdom, United States of
America and the Soviet Union agree to establish a European
Advisory Commission composed of representatives of the three
Powers. The Commission will have its seat in London and will
meet as soon as possible. The presidency will be held in
rotation by the representatives
[Page 757]
of the three Powers. A joint secretariat
will be established. The representatives may be assisted where
necessary by technical advisers, civilian and military.
- 2.
- The Commission will study and make joint recommendations to
the three Governments upon European questions connected with the
termination of hostilities which the three Governments may
consider appropriate to refer to it. For this purpose the
members of the Commission will be supplied by their Governments
with all relevant information on political and military
developments affecting their work.
- 3.
- As one of the Commission’s first tasks the three Governments
desire that it shall as soon as possible make detailed
recommendations to them upon the terms of surrender to be
imposed upon each of the European states with which any of the
three Powers are at war, and upon the machinery required to
ensure the fulfillment of those terms. The Commission will take
into account, as part of the material for its study of these
matters, the memorandum of July 1st,14 circulated by the
United Kingdom Government to the Governments of the United
States of America and the Soviet Union, regarding the principles
which should govern the conclusion of hostilities with European
enemy States. The Commission will also take account of the
experience already gained in the imposition and enforcement of
unconditional surrender upon Italy.15
- 4.
- Representatives of the Governments of other United Nations
will, at the discretion of the Commission, be invited to take
part in meetings of the Commission when matters especially
affecting their interests are under discussion.
- 5.
- The foregoing terms of reference will be subject to review by
the three Governments if circumstances should arise which call
for an extension of the membership and competence of the
Commission.
- 6.
- The establishment of the Commission will not preclude other
methods of consultation on current or other issues which the
three Governments think it desirable to discuss. There may for
example be questions calling for special consideration. These
questions may be handled by tripartite discussions in one or
other of the three capitals (Washington, London, or Moscow, as
may be found most convenient) between the head of the Foreign
Ministry and the permanent diplomatic representatives of the
other two Governments.
- 7.
- There may also be questions calling for international or
special tripartite conferences.
[Page 758]
ANNEX 3
Advisory Council for Italy
- 1.
- An Advisory Council for Italy will be established forthwith,
composed in the first instance of Representatives of the United
Kingdom, the United States of America, the Soviet Union and the
French Committee of National Liberation. Representatives of
Greece and Yugoslavia will be added as full members of the
Council as soon as practicable, in view of the special interests
of these two countries arising from the aggressions of Fascist
Italy upon their territory during the present war.
- 2.
- Each Representative will be assisted, where necessary, by a
small staff of technical advisers, civilian and military. The
Council will establish itself as soon as possible in Italy at
the same place as the Headquarters of the Allied
Commander-in-Chief.
- 3.
- The Council will keep itself closely informed of current
Italian affairs and advise the respective Governments and the
French Committee of National Liberation in regard to problems
relating to Italy, other than military operational questions.
The members of the Council will be supplied by the respective
Governments and by the French Committee of National Liberation
with all relevant information on political and military
developments affecting their work. They will make joint or
several recommendations to their Governments or to the French
Committee, but will not have power to take final decisions. They
will not, of course, concern themselves with the military
functions of the Allied Commander-in-Chief.
- 4.
- The Council will have the duty in particular of watching the
operation of the machinery of control in Italy which will be
enforcing the terms of surrender.
- 5.
- The Council will advise the Allied Commander-in-Chief in his
capacity as President of the Allied Control Commission on
general policy connected with the work of control. For this
purpose it will maintain close touch with the Allied
Commander-in-Chief as President of the Control Commission and
will have the right to ask him for information or explanations
on matters affecting the Council’s work. It will maintain close
touch with such other technical inter-Allied bodies as may be
established in Italy and will be entitled to obtain information
and explanations from them on matters affecting its work.
- 6.
- The Allied Commander-in-Chief will continue as in the past to
receive instructions from the United Kingdom and the United
States Governments through the Combined Chiefs of Staff in
Washington.
- 7.
- When, in the opinion of the Allied Commander-in-Chief, it is
possible to bring direct military control of the Italian
administration
[Page 759]
to an
end, the Commander-in-Chief will relinquish the presidency of
the Allied Control Commission. The Advisory Council for Italy
will thereupon assume the direction of the work of the Allied
Control Commission.
ANNEX 4
Declaration Regarding Italy
The Foreign Secretaries of the United States of America, the United
Kingdom and the Soviet Union have established that their three
Governments are in complete agreement that Allied policy towards
Italy must be based upon the fundamental principle that Fascism and
all its evil influences and emanations shall be utterly destroyed
and that the Italian people shall be given every opportunity to
establish governmental and other institutions based upon democratic
principles.
The Foreign Secretaries of the United States of America and the
United Kingdom declare that the action of their Governments from the
inception of the invasion of Italian territory, in so far as
paramount military requirements have permitted, has been based upon
this policy.
In the furtherance of this policy in the future the Foreign
Secretaries of the three Governments are agreed that the following
measures are important and should be put into effect:—
- 1.
- It is essential that the Italian Government should be made
more democratic by the introduction of representatives of
those sections of the Italian people who have always opposed
Fascism.
- 2.
- Freedom of speech, of religious worship, of political
belief, of the press and of public meeting shall be restored
in full measure to the Italian people, who shall also be
entitled to form anti-Fascist political groups.
- 3.
- All institutions and organisations created by the Fascist
regime shall be suppressed.
- 4.
- All Fascist or pro-Fascist elements shall be removed from
the administration and from the institutions and
organizations of a public character.
- 5.
- All political prisoners of the Fascist regime shall be
released and accorded a full amnesty.
- 6.
- Democratic organs of local government shall be
created.
- 7.
- Fascist chiefs and other persons known or suspected to be
war criminals shall be arrested and handed over to
justice.
In making this declaration the three Foreign Secretaries recognize
that so long as active military operations continue in Italy the
time at which it is possible to give full effect to the principles
set out above will be determined by the Commander-in-Chief on the
basis of instructions
[Page 760]
received through the Combined Chiefs of Staff. The three Governments
parties to this declaration will at the request of any one of them
consult on this matter.
It is further understood that nothing in this resolution is to
operate against the right of the Italian people ultimately to choose
their own form of government.
ANNEX 5
Civil Affairs for France
The primary purpose of the Allied landing in France will be the
defeat of Germany. Subject only to this, it will be the object of
the Allied forces to bring about the earliest possible liberation of
France from her oppressors, and the creation of conditions in which
a democratically constituted French authority may be able to assume
the civil administration. The ultimate aim of the Allies is the free
and untrammelled choice by the French people of the form of
Government under which they wish to live. Meanwhile and until this
stage is reached, the largest measure of personal and political
liberty compatible with military security shall be restored to the
French people. As far as the over-riding interests of military
operations allow, there shall be freedom of speech, of opinion, of
the press and of correspondence. The French flag shall be used on
French public buildings.
With these considerations in mind, the following principles may be
laid down as governing the civil administration of liberated French
territory on the mainland during the period of hostilities.
- 1.
- In all liberated areas the Supreme Allied Commander must, so
long as and in so far as military necessity requires, have
supreme authority in order that the prosecution of the war
against Germany may continue unhampered.
- 2.
- The civil administration under the Supreme Allied Commander
shall, as far as possible, be conducted by French citizens. The
Director of Civil Affairs must be a French officer appointed by
the Supreme Allied Commander from the French contingent or
French Liaison Mission connected with the military operations in
France.
- 3.
- The two Governments will inform the French Committee of
National Liberation that the Supreme Allied Commander will
invite the French military authorities to appoint a military
mission on civil affairs to his headquarters. The Supreme Allied
Commander shall in the planning of civil affairs consult the
French military authorities appointed to assist in this work and
give consideration to the policies recommended by them. When
operations start, the French Military Liaison Mission shall be
associated in the direction of civil affairs.
- 4.
- Military control of civil affairs will be of as short duration
as is practicable. The time of termination of military control
will be decided by C.C.S.16 on the recommendation of the Supreme
Allied Commander.
- 5.
- If circumstances permit, the transfer of civil responsibility
to French hands may be progressive.
- 6.
- In order to achieve the eventual aim of free and untrammelled
choice by the French people of the form of government under
which they wish to live, the Supreme Allied Commander shall do
his best to hold the scales even between all French political
groups sympathetic to the Allied cause.
- 7.
- One of the first tasks of civil affairs staff of the Supreme
Allied Commander on entering French territory will be to
establish relations with resistance groups within France and to
secure their cooperation in civil matters.
- 8.
- The Supreme Allied Commander shall have no dealings or
relations with the Vichy regime except for the purpose of
liquidating it. He will not retain or employ in any office any
person who has wilfully collaborated with the enemy or who has
deliberately acted in a manner hostile to the Allied
cause.
ANNEX 6
Declaration on Austria
The Governments of the United Kingdom, the Soviet Union and the
United States of America are agreed that Austria, the first free
country to fall a victim to Hitlerite aggression, shall be liberated
from German domination.
They regard the annexation imposed upon Austria by Germany on March
15th, 1938,17 as
null and void. They consider themselves as in no way bound by any
changes effected in Austria since that date. They declare that they
wish to see reestablished a free and independent Austria, and
thereby to open the way for the Austrian people themselves, as well
as those neighboring states which will be faced with similar
problems, to find that political and economic security which is the
only basis for lasting peace.
Austria is reminded, however, that she has a responsibility which she
cannot evade for participation in the war on the side of Hitlerite
Germany, and that in the final settlement account will inevitably be
taken of her own contribution to her liberation.
[Page 762]
ANNEX 7
The Future of Poland and Danuubian and Balkan
Countries, Including the Question of Federations18
The Soviet Government consider the liberation of small countries and
the restoration of their independence and sovereignty as one of the
most important tasks in the post-war arrangement of Europe and in
the creation of lasting peace. For this purpose the defeat of
aggressive force, as a result of the victory of the Allies and the
removal of the threat of new aggression, at any rate in the first
years after the war, will create favorable conditions. The Soviet
Government consider that the small countries will require some time,
which cannot yet be definitely calculated and which will not be the
same for all of them, to enable them fully to orientate themselves
in the new situation created as a result of the war and in the
re-created relationships with neighboring and other States, without
being subjected to any outside pressure to join this or that new
grouping of states. The premature and possibly artificial attachment
of these countries to theoretically planned groupings would be full
of danger both for the small countries themselves, as well as for
the future peaceful development of Europe. Such an important step as
federation with other states and the possible renunciation of part
of their sovereignty is admissible only as a result of a free,
peaceful and well-considered expression of the will of the people.
It is to be feared that neither the existing émigré governments nor even the governments which will be
set up immediately after the conclusion of peace under conditions
still not sufficiently normal, will be able fully to ensure the
expression of the real will and permanent aspirations of their
people. The creation of such federations by the decisions of émigré governments, which, in virtue of their
special situation, cannot be closely bound with their people, might
be interpreted as imposing on the people decisions not in conformity
with their wishes. It would be particularly unjust if countries
which had become satellites of Hitlerite Germany should at once be
placed, as equal members of any such federation, in conditions as
favorable as those of other small states which had been the victims
of attack and occupation at the hands, among others, of those same
satellites, and thus freed from the consequences of their part in
the Hitler-Mussolini crimes.
Moreover, some of the plans for federations remind the Soviet people
of the policy of the “cordon sanitaire”, directed as is known,
against the Soviet Union and therefore viewed unfavorably by the
Soviet people.
For these reasons the Soviet Government consider it premature from
the point of view of the interests both of the small countries
[Page 763]
themselves, and of the
general post-war settlement of Europe, now to plan and thus
artificially to encourage combinations of any states in the form of
federations and so forth. They will in due course be ready to
re-examine this question in the light of the experience of post-war
cooperation with other United Nations and of the circumstances which
may arise after the war.
ANNEX 8
Joint Action for Assistance to Other
Countries19
- 1.
- In the immediate post-war period, the most urgent matters of
relief and rehabilitation in third countries presumably will be
taken care of on a cooperative basis, mainly through the United
Nations Relief and Rehabilitation Administration.
- 2.
- We believe that it would be desirable to have the longer-range
work of reconstruction dealt with on a cooperative, joint-action
basis. In this connection, economic and financial experts of the
United States have given preliminary study to the possibility of
setting up an international lending agency which would
supplement the facilities which may be offered by private
investors, private financial institutions, and governmental
lending agencies.
- 3.
- The important question of the amount of aid for rehabilitation
from the long-range viewpoint will of course have to be
determined, from time to time in the future, by each Government
in the light of developments relating to the ability of a given
nation to render material aid, while at the same time receiving
the necessary support of public opinion.
ANNEX 9
Bases of Our Program for International Economic
Cooperation19
The basic objective of our economic policy is to help create
conditions which would enable each country after the war to restore
its economic activity as rapidly and as effectively as possible, and
thereafter to improve progressively its production, distribution,
employment and living standards. All this requires a large measure
of international cooperation in many directions.
The first obvious steps, some of which will need to be undertaken
even before the attainment of complete victory, relate to
international cooperation in providing relief and to cooperative
arrangements for the handling of economic problems involved in the
occupation of
[Page 764]
enemy
territories and operations in liberated countries. Arrangements
required for these purposes are now under way through the
negotiations looking to the convocation of a United Nations
Conference on Relief and Rehabilitation and through such measures as
the creation of the Mediterranean Commission.
Beyond these steps, international cooperation in the economic field
will be indispensable for the following purposes:
- 1.
-
Bringing about an expansion of
international trade on a nondiscriminatory basis.
To this end we believe that consideration needs to be given
to the following:
- The conclusion of a general convention to which all of the
important countries of the world would be parties, which
would lay down the rules and principles that should govern
trade relations between nations. Such a convention would
contain provisions whereby each country would abstain from
practices such as nations in the past have adopted in a
futile attempt to benefit themselves at the expense of world
trade and the welfare of other nations. It would make
provision for concrete steps whereby the participating
countries would abandon preferences and discriminations,
reduce their trade barriers and refrain from export dumping
practices. The agreement or agreements would be so drawn as
to enable a state-trading country to adhere on an equitable
basis.
- 2.
-
The orderly regulation and ultimately the
elimination of arrangements, public or private, to
restrict production and trade in individual
commodities. To this end we believe that
consideration should be given the following:
-
a.
- The conclusion of special international agreements
relating primarily to the marketing of commodities
in chronic over-supply or subject to extreme
variation in prices.
-
b.
- International arrangements for the regulation of
cartel activities.
- 3.
-
The establishment of stable foreign
exchange rates and of the inter changeability of
currencies. To this end discussions are now in
progress among the United Nations looking to the creation of
an International Stabilization Fund.
- 4.
-
Promotion of the development of resources
and industries where-ever international assistance is
necessary for this purpose. To this end
consideration is being given to the possibility of creating
appropriate international investment agencies and other
improved facilities for international investment and for
exchange of technical information and personnel.
- 5.
-
Improvement of facilities for shipping,
air traffic and other means of transportation. This
will involve:
-
a.
- International consideration of the reestablishment
of the merchant fleets of the world, the adjustment
of ship-building activity, and related
topics.
-
b.
- International agreement on all aspects of
commercial aviation, including passenger and freight
traffic arrangements, landing rights, rights of
transit, exchange of technical information questions
of subsidization.
-
c.
- Similar international discussions regarding
problems involved in the improvement of other
transportation facilities.
- 6.
-
Improvement of means of
telecommunication. This will require the extension
of international collaboration already existing in this
sphere.
- 7.
-
Improvement of nutrition and consumption
in general. The United Nations Conference on Food
and Agriculture, held at Hot Springs, Virginia, May 18 to
June 3, 1943,20 laid the
foundation for international collaboration in this field
with regard to the consumption of agricultural products.
This work is being carried forward by the Interim Commission
on Food and Agriculture. It looks forward to the promotion
of appropriate domestic policies for each country and to the
establishment of a permanent international organization in
this field.
- 8.
-
Improvement of labor standards and
conditions. This involves; primarily development of
the work which has been well carried on by the International
Labor Organization.
It is clear that in connection with most of these subjects there will
be need for organized discussions among the United Nations, both
informal and in formal conferences. We believe that the time has
come for the establishment of a Commission comprising
representatives of the principal United Nations and possibly certain
others of the United Nations for the joint planning of the best
procedures to be followed in these matters. Such a Commission might
consist of technical economic experts of the United States, the
United Kingdom, Soviet Union, China, and possibly certain other
countries such as Canada, the Netherlands and Brazil.
Even before the establishment of such a Commission we believe it to
be of the greatest importance that our government and the
governments of each of the major United Nations should confer with
each other on the technical level as freely and as promptly as
possible with the view to exploring the problems which are bound to
confront them and the world.
The Government of the United States has recently addressed an
invitation to the Government of the Union of Soviet Socialist
Republics to send to Washington a group of economic experts to
engage in discussions with our experts of matters relating to
Article VII of the Mutual Aid Agreement. Similar invitations were
extended to the Governments of the United Kingdom and of China.
In response to this invitation, the British Government has sent such
a group of experts to Washington, and as a result a most fruitful
informal interchange of views has taken place between us on many
topics of basic importance in the fields of monetary stabilization,
international investment, commercial policy, commodity arrangements
[Page 766]
and related
questions.* These
conversations provided an opportunity to discover the extent to
which there is common ground and the extent to which there are
differences of importance in the points of view of those whose
expert advice may frequently be utilized in the formulation of
policy.
It is particularly important that similar conversations be arranged
soon between Soviet and American experts. It is our earnest hope,
therefore, that the Soviet Government, which participated in the Hot
Springs Conference and is now participating in the work of the
Interim Commission and in the discussions relating to relief, will
find it possible to arrange for such an interchange of views in the
near future.
[Attachment]
Memorandum Concerning the Washington Meeting
Between British and American Economic Experts With Reference to
Article VII of the Mutual-Aid Agreement
In the informal discussions which ended on October 18 in Washington
between United States and United Kingdom economic experts the
following general topics were explored:
- 1.
- Commercial Policy.
- 2.
- International Commodity Arrangements.
- 3.
- Cartels.
- 4.
- Coordination of measures to promote employment.
Parallel with these discussions further exchanges of views took place
at the Treasury with regard to monetary stabilization. There was
also a preliminary exchange of views on the subject of promotion of
international investment.
The following are brief summaries of the topics discussed under each
of the four headings listed above. It will be noted that in each
case no attempt was made to reach definite conclusions but rather to
prepare an orderly agenda for further study by each of the
respective governments and for possible further informal joint
conversations.
1. Commercial policy.
Consideration was given to the relative effectiveness and feasibility
of the multilateral as compared with the bilateral method for
bringing about a reduction of tariffs. In this connection a number
of formulas were examined and compared without, however, at this
stage attempting a selection. Consideration was also given to the
substantial abolition of preferences and discriminations and the
question of the relation of action in this field to the reduction of
tariff barriers.
[Page 767]
The need for and feasibility of the abolition on a multilateral basis
of quantitative restrictions on trade were examined. The question of
abolishing export taxes and restrictions was similarly considered as
was the general question of subsidies.
The subject of state trading of various types and the need for
harmonizing the interests of countries employing such a system with
those of other countries was examined. Although no attempt was made
to reach definitive conclusions it was apparent from the discussions
that this problem should present no great difficulties.
Finally, provisional consideration was given to the need for creating
some international body to facilitate the application of such basic
principles of commercial policy as may be developed.
2. International Commodity Arrangements.
The problems discussed were:
- (a)
- Short-term price fluctuations in primary products.
- (b)
- Periodic slumps in demand and in prices as related to the
business cycle.
- (c)
- Excess capacity in relation to past stimulation of
high-cost production and to special war-time measures
affecting production.
Methods of dealing with these problems were considered, having regard
to securing efficient production and, at the same time, to
mitigating the hardship on producers in making adjustments to
conform to demand.
The methods included:
- (a)
- Buffer stocks.
- (b)
- Quantitative regulation schemes.
The discussion included the possibility of stating principles which
might govern arrangements for dealing with commodity problems and
the possible relation of such arrangements to existing
inter-governmental and private international commodity schemes and
to other parts of the international economic system, including
commercial policy agreements.
3. Cartels.
Consideration was given to problems likely to arise in the post-war
world from the activities of international cartels. The interchange
of views was not so extensive as in the case of the other topics
discussed. It was agreed that much further discussion was needed.
The officials recommended that each group separately should examine
the problems arising from international cartels and appropriate
measures, national and international, to solve them with a view to
joint discussion at some future date.
Preliminary views were presented by the United States officials on
the possible consequences of international cartels in obstructing
production and trade and in endangering national and international
security.
[Page 768]
The United States officials proposed that further consideration
should be given to the possibility of intergovernmental
undertakings:
- (a)
- To register all non-governmental international agreements
for the establishment of enduring relationships between
private business enterprises;
- (b)
- To introduce measures to make information about registered
agreements available to governments or to international
institutions;
- (c)
- To prohibit practices by international cartels inimical to
the expansion of production, trade and consumption
including, inter alia, price fixing
and restrictions on the exploitation of inventions.
4. Employment policies.
The problems discussed under the foregoing three heads relate to a
wide complex of policies which influence the level of employment in
individual countries and in the world as a whole. Some of these
policies are of a domestic nature, but facilities should be provided
for consultation and for the exchange of information between
governments on these matters as well as on matters of a more
directly international nature with a view to the harmonization of
policies.
The experts therefore discussed:
- (a)
- The desirability of establishing an international advisory
economic staff charged with the study of international
economic questions with particular reference to the
harmonization of measures, national and international, for
the maintenance of high levels of productive
employment.
- (b)
- The functions and organization of such a staff.
- (c)
- The character of the governing body to which it should be
responsible.
ANNEX 10
Declaration of German Atrocities21
The United Kingdom, the United States and the Soviet Union have
received from many quarters evidence of atrocities, massacres and
cold-blooded mass executions which are being perpetrated by the
Hitlerite forces in the many countries they have overrun and from
which they are now being steadily expelled. The brutalities of
Hitlerite domination are no new thing and all the peoples or
territories in their grip have suffered from the worst form of
government by terror. What is new is that many of these territories
are now being redeemed by the advancing armies of the liberating
Powers and that in their desperation, the recoiling Hitlerite Huns
are redoubling
[Page 769]
their
ruthless cruelties. This is now evidenced with particular clearness
by monstrous crimes of the Hitlerites on the territory of the Soviet
Union which is being liberated from the Hitlerites, and on French
and Italian territory.
Accordingly, the aforesaid three allied Powers, speaking in the
interests of the thirty-two United Nations, hereby solemnly declare
and give full warning of their declaration as follows:—
At the time of the granting of any armistice to any government which
may be set up in Germany, those German officers and men and members
of the Nazi party who have been responsible for, or have taken a
consenting part in the above atrocities, massacres and executions,
will be sent back to the countries in which their abominable deeds
were done in order that they may be judged and punished according to
the laws of these liberated countries and of the free governments
which will be created therein. Lists will be compiled in all
possible detail from all these countries having regard especially to
the invaded parts of the Soviet Union, to Poland and Czechoslovakia,
to Yugoslavia and Greece, including Crete and other islands, to
Norway, Denmark, the Netherlands, Belgium, Luxemburg, France and
Italy.
Thus, the Germans who take part in wholesale shootings of Italian
officers or in the execution of French, Dutch, Belgian or Norwegian
hostages or of Cretan peasants, or who have shared in the slaughters
inflicted on the people of Poland or in territories of the Soviet
Union which are now being swept clear of the enemy, will know that
they will be brought back to the scene of their crimes and judged on
the spot by the peoples whom they have outraged. Let those who have
hitherto not imbrued their hands with innocent blood beware lest
they join the ranks of the guilty, for most assuredly the three
allied Powers will pursue them to the uttermost ends of the earth
and will deliver them to their accusers in order that justice may be
done.
The above declaration is without prejudice to the case of the major
criminals, whose offences have no particular geographical
localisation and who will be punished by the joint decision of the
Governments of the Allies.
Roosevelt
Stalin
Churchill
[Editor’s Note: Two versions of the
Secret Protocol exist in the Department’s files. The first is a
copy of the signed ribbon copy on file in the Office of the
Assistant Legal Adviser for Treaty Affairs, where it was
deposited by Mr. Cecil W. Gray upon his return from the
Conference. Fifteen copies of this document were charged to
President Roosevelt; Secretary Hull; Mr. Stettinius, the Under
Secretary;
[Page 770]
Mr.
Hackworth, the Legal Adviser; Mr. Pasvolsky, Special Assistant
to the Secretary of State; Mr. Dunn, Adviser on Political
Relations; and Mr. Geist, Chief of the Division of
Communications and Records.
On November 11, 1943, Mr. Dunn informed the Secretary that copies
of a revised Secret Protocol had been made available to Messrs.
Harriman, Kirk, Murphy, Wilson, Winant, Phillips, Biddle, and
Atherton. He suggested that additional copies be made available
in the Department to the Under Secretary, the Assistant
Secretaries, the Legal Adviser, the Political Advisers, Chiefs
of Geographic Divisions, and the Special Assistants to the
Secretary. Approximately twenty copies of this document were
circulated.
Apparently the revised edition was authorized for two reasons: to
omit any reference to the existence of a “Most Secret Protocol”,
and to prevent any indication of the nature of those matters
discussed by military and naval representatives.
The following variations appear on the revised text:
|
Agenda
|
|
Item 1
(Same) |
This matter was discussed by the military
experts. |
Item 4(c)
Omitted |
Omitted |
Item 7(a)
(Same) |
(See Annex 7) added. |
Item 12
(Same) |
“Note was taken of the statement . . .”
omitted. |
Annex 7 (“Future of Poland and Danubian and Balkan countries,
including the question of Confederations”) was omitted from the
revised versions, and Conference Document No. 20 (“The Treatment
of Germany”), page 720, was
substituted. The reason for this substitution is not clear.]
