740.00119 European Advisory Commission/11–1144
Memorandum by the Acting Secretary of State to President Roosevelt 63
The following paragraphs present an outline of the present status of plans for Germany and Austria.
1. The instrument of unconditional surrender for Germany64 recommended by the European Advisory Commission has been approved by the American, British and Soviet Governments without reservation.
2. A protocol delineating the three zones of occupation in Germany coinciding with your memorandum prepared on the basis of the Quebec agreement65 has been tentatively agreed upon in the European Advisory Commission. Final agreement awaits the clearing up of certain minor points between the British and the Americans, principally in connection with the ports of Bremen and Bremerhaven and is expected momentarily.
3. Agreement is anticipated by the end of this week on a plan for tripartite control machinery and military government of Germany to be submitted to the three Governments. The plan contemplates the establishment of a Supreme Authority, consisting of the Commanding Generals of the U.S., the U.K., and the U.S.S.R. forces, which would coordinate allied control of Germany and supervise such centralized administrative functions and economic activities as the three Powers deemed essential. A Control Council, composed of [Page 396] representatives in equal numbers from each of the three Allied Governments, would be established by the Supreme Allied Authority and would coordinate the administration of military government throughout Germany.
4. Mr. Robert D. Murphy has been appointed with the personal rank of Ambassador as Political Adviser for Germany to General Eisenhower and is now dividing his time between London and Versailles. A staff of experts to assist him is now being built up.
5. A directive outlining the policies to be followed in German territory during the period prior to surrender or the collapse of armed resistance was transmitted to General Eisenhower some time ago by the Combined Chiefs of Staff.67
6. An interim directive for the post-hostilities period, designed for use pending agreement with the Russians and British on the policies for the period of tripartite control, was approved by the Joint Chiefs of Staff and, after receiving the concurrence of the State Department, was informally brought to the attention of the Combined Chiefs of Staff. Acting upon instructions from their Government the British members thereof declined to consider formally this directive on the ground that the policies set forth therein were subjects for tripartite negotiation in EAC and that it was in many respects incompatible with the program contained in a series of British draft directives already submitted to EAC.
7. The Joint Chiefs of Staff and the Department of State have approved a number of United States draft proclamations and general orders to the Germans and directives to the Allied Commander. These papers have been submitted to Ambassador Winant to be placed before the European Advisory Commission. The subjects dealt with include among others the following: Control of Merchant Shipping; Administration of Justice; Religious Affairs; Control of Public Information; Control of Inland Transport; Prohibition of Military Training; Control of Communications; Censorship; Disposition of Aircraft and Aeronautical Equipment; Disposition of Naval Vessels and Equipment.
Further directives are under study for submission to EAC.
8. No international agreements have been made respecting the postwar economic treatment of Germany, beyond the “basket clause” in the agreed surrender terms committing Germany to “any further requirements” the Allies may decide to impose.
[Page 397]British policy has been formulated to a considerable degree in directives which have been placed before EAC for consideration not yet concluded.
No U.S. draft directives on economic matters have been submitted to the EAC pending clarification of the views of this Government on the economic treatment of Germany. The initiative with respect to these matters therefore remains in the hands of the British and the Russians.
The present stage of U.S. policy is represented primarily by Secretary Hull’s memorandum of September 29, 1944, outlining the views of the Department of State, and your memorandum of October 20, 1944 in reply, copies of which are attached for your convenience.68
A memorandum setting forth suggestions for American economic policy is being submitted separately.69
9. Austria: The tripartite Moscow Declaration of November 1, 1943,70 expresses the intention of the three Powers to reestablish an independent Austria, whose eventual treatment by them will take account of the Austrians’ own contribution to their liberation from Germany.
The Combined Chiefs of Staff have instructed the Supreme Allied Commander, Mediterranean, pending agreement among the three Governments, to make his own plans for occupation and military government of as much of Austria as his forces may take, including all of Austria if necessary, and to make appropriate arrangements direct with the Soviet Commander if both British and Soviet forces should take parts of Austria initially.
The United States with your approval has expressed in EAC its agreement in principle to tripartite occupation and control of Austria provided the United States contributes only token forces, to be stationed in Vienna. EAC is now working towards agreement on control machinery for Austria on this basis, and an early recommendation is expected. Vienna would be occupied by British, Soviet, and (token) American troops; the Gaus of Upper and Lower Danube would be occupied by Soviet troops; and the rest of Austria (the southern provinces) by British troops. Control and administration machinery of Austria would be tripartite, with full participation by the United States.
British personnel is already being assembled and prepared for this in London and in Italy. The War Department has been informed of this in connection with its plans for military personnel, and plans will now be initiated for American civilian personnel pursuant to [Page 398] your memorandum of November 4 approving the designation of Mr. Erhardt71 as Political Adviser to the American Commanding General in Austria.
- Not signed, but a covering memorandum is signed by Acting Secretary of State Stettinius.↩
- Ante, p. 256.↩
- For the agreement reached at the Second Quebec Conference regarding the zones of occupation in Germany, see telegram 7670, September 20, to London, p. 340.↩
- “Directive for Military Government in Germany Prior to Defeat or Surrender” was approved by the Combined Chiefs of Staff and dispatched to the Supreme Commander, Allied Expeditionary Force, on April 28, 1944. The directive was annexed to a memorandum (E.A.C. (44) 18) dated May 15, circulated in the European Advisory Commission jointly by the United States and United Kingdom representatives, ante, p. 217.↩
- Ante, pp. 344 and 358, respectively.↩
- Dated November 11, 1944, infra. ↩
- Foreign Relations, 1943, vol. i, p. 749.↩
- John G. Erhardt.↩