500.CC/12–1544: Circular airgram
The Secretary of State to Diplomatic Representatives in the American Republics
The Department has recently received reports from the field indicating that there are misunderstandings in certain quarters concerning the provisions in the Dumbarton Oaks Proposals relating to the position of the General Assembly73 in the general international organization. [Page 950] For example, the statement has been made that the General Assembly is subordinate to the Security Council74 both in matters relating to security and in those relating to general political, economic and social interests. The opinion has also been expressed that in the field of economic and social cooperation the General Assembly can make recommendations only to the Security Council. It is apparent that the central position given to the General Assembly in the Dumbarton Oaks Proposals is not well understood. Since it is vitally important to correct any misconception which impairs an adequate understanding of the proposed General Organization, the following points are suggested for your guidance:
(1) According to the Proposals, responsibility for promoting international cooperation in political, economic and social fields and of adjusting situations likely to impair the general welfare would be vested in the General Assembly only. The Security Council would not be charged with functions in this field. The Economic and Social Council75 would be elected by the General Assembly alone and would be under the sole authority of that body. The General Assembly would be free to make recommendations in this field directly to states and to specialized organizations.
Your attention is called to the statement in the British Government’s Commentary76 on the Dumbarton Oaks Proposals for the Establishment of A General International Organization that “generally speaking …77 the General Assembly would be given, through the Economic and Social Council elected by it and responsible to it, complete control of all the Organization’s activities in questions other than the maintenance of international peace and security.”
The procedures and powers of the Security Council could be invoked only in disputes or in situations which might lead to international friction or give rise to a dispute, or in the event of threats to the peace or breaches of the peace. In such cases, the Security Council could take action whether the situation resulted from economic, social, political, or military conditions.
(2) Moreover, the General Assembly is by no means excluded from participation in security matters. Your attention is called particularly to Chapter V, Section B, par. 1 of the Proposals. The General Assembly would be empowered to discuss both general principles and particular questions relating to the maintenance of international peace and security. It would be empowered to make recommendations [Page 951] directly to states on any such principles or questions. The two restrictions on these particular powers of the Assembly are (1) that any such questions on which action is necessary should be referred to the Security Council by the General Assembly either before or after discussion, and (2) that the General Assembly should not on its own initiative make recommendations on any matter relating to the maintenance of international peace and security which is being dealt with by the Security Council.
It is to be noted that at no time could the Security Council prevent the General Assembly from discussing any question relating to the maintenance of international peace and security brought before it by any member or members of the Organization. Moreover, when the Security Council has determined that its action is not required in any situation and the matter no longer requires handling by the Security Council, the General Assembly would have the right to make recommendations with regard to the situation.
(3) In addition to these important responsibilities the General Assembly would be the one organ representative of the entire membership of the Organization. Also it would be empowered to apportion the expenses of the Organization among the members, and to approve the budgets of all the organs and agencies of the Organization, including the Security Council. Furthermore, the General Assembly would elect not only the members of the Economic and Social Council but also the six non-permanent members of the Security Council. The General Assembly would be empowered, upon recommendation of the Security Council, to admit states to membership in the Organization, to suspend states from the rights and privileges of membership, to expel states, and to elect the Secretary-General.
Since it is a matter of utmost importance to the Department that inter-American understanding and support of the Dumbarton Oaks Proposals be enlisted, every opportunity should be taken to correct misconceptions that arise and also, as far as possible, to prevent their arising. The Department will be glad to give you whatever assistance is necessary in explaining and interpreting the provisions of the Proposals.
Add the following for Argentina and El Salvador:
These matters should not of course be discussed with any officials of the Government, but every opportunity should be taken to correct misconceptions of private individuals in your conversations with them.