740.00112 European War 1939/8268: Telegram

The Secretary of State to the Minister in Switzerland ( Harrison )

978. Reference your 2258, April 10 [9], and 2525, April 22. Your views have been most carefully considered. The recent turn in Swiss [Page 831] affairs has been discussed here with the Board of Economic Warfare, the British and in particular with Mr. Riefler, the head of the Economic Warfare Division of our Embassy in London. All agree with the statement in your 2258 that the Swiss must be deterred by fear of unfavorable action on our side from making concessions to the Germans in the course of the negotiations in Berlin.

I believe that the following course of action will meet your views. This proposed action has been agreed upon between the British and ourselves in Washington and has been approved in London. If you also approve, I request you to present a close paraphrase of the following note to the Swiss Government. Your British colleague will be requested to present an approximately identical note and I request that you collaborate with him in its presentation and to the end that the text of the two notes shall be approximately identical.

“The Government of the United States appreciates the frankness shown by the Swiss Government as to its intentions with reference to the negotiations now taking place in Berlin between the Swiss and German Governments. The Government of the United States must express, however, in the most explicit terms, its profound concern over the course of action which the Swiss Government apparently intends to take in these negotiations. It will be recalled that during recent months the representatives of the United States and British Governments have called to the attention of the Swiss Government their unwillingness to assist, by facilitating imports into Switzerland, the economic contribution made by Switzerland to the Axis. During the recent negotiations which have taken place in London the Swiss representatives have indicated their willingness to consider the establishment of a formula which would result in an effective reduction in exports from Switzerland to the Axis of arms, munitions, and machinery. It now appears, however, that the Swiss Government, during the current negotiations in Berlin, is about to permit a situation to be created whereby there is every reason to expect that there will be a substantial rise in exports of the above undesirable items, from Switzerland to Germany. The Government of the United States finds itself constrained to express its great concern over this proposed action of the Swiss Government. Moreover it finds it difficult to understand how such action, which will tend directly to strengthen the military potential of the Axis and thereby prolong the war, can be regarded as consistent with the interests of Switzerland. Consequently the Government of the United States is forced to inform the Swiss Government that it has been compelled reluctantly to reconsider its attitude with respect to facilities for imports to Switzerland pending a satisfactory clarification of the Swiss attitude with respect to the Berlin negotiations.”

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In presenting this note to the Swiss you are requested to inform them orally as follows:

1.
As a result of the reconsideration of our attitude towards Swiss imports we shall, pending a satisfactory clarification of the Swiss attitude, suspend for the present and subject to consideration of special cases, all navicerts and export licenses covering imports into Switzerland. It is not intended that this suspension should apply to existing navicerts or export licenses in respect of goods shipped within a period of 14 days from the date of presentation of the note; nor would it apply to shipments under the Compensation Agreement nor to special shipments of medical products and other goods intended for specific humanitarian purposes.
2.
Pending the desired clarification of the Swiss attitude we regard ourselves as free to give consideration to other measures that we might take for our own protection. For your information and such use as you may wish to make of it, the other measures referred to might take the form of, as examples, a resumption of pressure on industrial firms and a reduction of the permitted enemy content of Swiss exports.
3.
It is the earnest hope of this Government that the desired clarification of the Swiss position will be obtained at the earliest possible moment so that a resumption of facilities for imports into Switzerland may take place.

You will observe that this course of action does not specify any particular measure which we require the Swiss to take and does not necessarily involve more than a temporary policy on our part. Our primary objective is to secure a reduction in undesirable Swiss exports to the enemy but it is our intention to maintain as flexible a position as possible and to leave the Swiss free to choose their own means of bringing about the results desired by us. We desire to leave the Swiss in no doubt as to the concern we feel at the steps they appear likely to take, but equally we do not intend to commit ourselves, other than temporarily, to any definite future course of action until we have a clear view of the Swiss attitude.

The note also appears to meet your suggestion that it be general in terms and leave you to explain orally the steps we propose to take. The BEW,16 the British and Mr. Riefler strongly advise immediate and definite action since they believe that this, rather than a general threat, is essential if we are to convince the Swiss that we are in earnest and give them the necessary incentive immediately to modify their proposals. You will appreciate that the effect of air attacks and the manpower shortage in Germany will make the Swiss contribution of arms, munitions and machinery of greater importance than ever to the Axis and we feel that we should take every possible step to prevent an increase in their contribution.

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I hope that the action now suggested will meet with your approval but if it does not, please wire urgently. The fact that the Swiss German negotiations have been in progress for over a week makes it essential that we should take action with the least possible delay.

Hull
  1. Board of Economic Warfare.