Foreign Relations of the United States, Conference at Quebec, 1944

J.C.S. Files

Memorandum by the United States Chiefs of Staff

top secret
C.C.S. 654

[Washington,] 22 August 1944.

Basic Policies for the Next United States-British Staff Conference

Reference: C.C.S. 426/1¹

The United States Chiefs of Staff recommend that the Combined Chiefs of Staff approve these basic policies for the next United States-British staff conference:

1. The Combined Chiefs of Staff agree that the following statement of basic strategy and policies will be used as a basis for the next United States-British staff conference.

i. over-all objective

2. In conjunction with Russia and other Allies, to bring about at the earliest possible date the unconditional surrender of the Axis Powers.

ii. over-all strategic concept for the prosecution of the war

3. In cooperation with Russia and other Allies, to bring about at the earliest possible date the unconditional surrender of the Axis in Europe.

4. Simultaneously, in cooperation with other Pacific Powers concerned, to maintain and extend unremitting pressure against Japan with the purpose of continually reducing her military power and attaining positions from which her ultimate surrender can be forced. The effect of any such extension on the over-all objective to be given consideration by the Combined Chiefs of Staff before action is taken.

5. Upon the defeat of the Axis in Europe, in cooperation with other Pacific Powers and, if possible, with Russia, to direct the full resources of the United States and Great Britain to bring about at the earliest possible date the unconditional surrender of Japan.

iii. basic undertakings in support of over-all strategic concept

6. Whatever operations are decided on in support of the over-all strategic concept, the following established undertakings will be a first charge against our resources, subject to review by the Combined Chiefs of Staff in keeping with the changing situation:

a. Maintain the security and war-making capacity of the Western Hemisphere and the British Isles.

b. Support the war-making capacity of our forces in all areas.

c. Maintain vital overseas lines of communication.

d. Continue the disruption of Axis sea communications.

e. Continue the offensive against the Axis Powers in Europe.

f. Continue to aid the war effort of Russia.

g. Undertake such measures as may be necessary and practicable in order to aid the war effort of China as an effective Ally and as a base for operations against Japan.

h. Continue assistance to the French and Italian forces to enable them to fulfill an active role in the war against the Axis Powers.

i. Reorient forces from the European Theater to the Pacific and Far East as a matter of highest priority as soon as the German situation allows.

j. Continue operations leading to the earliest practicable invasion of Japan.

1. “Report of the Combined Chiefs of Staff to the President and the Prime Minister”, December 6, 1943. For text, see Foreign Relations, The Conferences at Cairo and Tehran, 1943, p. 810.