800.796/10–2644
The Acting Secretary of State to the Soviet Ambassador (Gromyko)
Excellency: I have the honor to acknowledge the receipt of your note of October 26, 1944 informing this Government that in conformity with the decision of the Presidium of the Supreme Soviet of the U.S.S.R. the Soviet Union will be unable to participate in the Conference on Civil Aviation to be held in Chicago on November 1 in view of the fact that Switzerland, Spain and Portugal, countries with which the Soviet Union does not have diplomatic relations, are to participate in this Conference.
I need hardly point out that, while the considerations set forth in Your Excellency’s note are fully appreciated, the decision of the Soviet Government not to participate in this Conference is received with the greatest regret by my Government.
In extending the invitation to the European neutral countries including the three mentioned in Your Excellency’s note this Government [Page 573] was guided by the obvious fact that, in view of the geographic location of these neutral nations, it would have been impossible adequately to discuss at an international conference matters relating to air routes and civil aviation in Europe without their participation. Since the invitation extended to the Soviet Government to participate in this Conference, which was delivered by the American Ambassador in Moscow to the People’s Commissariat for Foreign Affairs on September 12, 1944 and conveyed to Your Excellency by a note dated September 13, 1944, stated that invitations were being extended to the Governments of “the European and Asiatic neutral nations in view of their close relationship to the expansion of air transport which may be expected along with the liberation of Europe” and that in the letter of acceptance of October 19, 1944, transmitted to the United States Ambassador in Moscow the People’s Commissar for Foreign Affairs took note of the fact that such neutrals would be present, it was of course assumed that the Soviet Government was fully aware of the fact that the three nations in question would be represented at this Conference. Furthermore, the press release of the Department of State which appeared in the American press on September 12, 1944 listed by name the countries which had been invited to participate in the Conference in Chicago.
If your Government finds it impossible to reconsider its decision not to participate in this Conference, I venture to suggest that the group of Soviet experts on civil aviation now in the United States be instructed to remain in order to maintain liaison, without participation directly or indirectly in the work of the Conference, with officials of this Government and with those of the other United Nations on the subject of postwar civil aviation.
I trust that Your Excellency will not fail to communicate the foregoing views of this Government on the subject to the Soviet Government.
Accept [etc.]