841.796/10–2844
The Ambassador in Canada (Atherton) to the Secretary of State
[Received November 1.]
Sir: I have the honor to report the convening of a conference to discuss civil aviation matters attended by representatives of certain countries of the British Commonwealth at Montreal on October 23 preceding the international civil aviation conference at Chicago on November 1. Delegates totaled approximately fifty, and represented the United Kingdom (headed by Sir Arthur Street, permanent Undersecretary for Air), Australia (headed by A. S. Drakeford, Minister for Air and Civil Aviation), New Zealand, Newfoundland, India, South Africa, and Southern Rhodesia. Members of the Canadian delegation were reported in my telegram No. 50 of October 21.1 In a press report from London it was stated that Eire was not invited because that country is neutral, and since wartime air routes would be under discussion representation by that country might be embarrassing to it. The presence of high ranking Air Force officers on some of the delegations led to the report that the conference would have a dual purpose—Air Force activities in the European and Far Eastern theaters of war, as well as post war civil aviation planning. It was explained, however, by one of the delegates that these officers were present only as advisers and that matters of a military nature would not be discussed.
It was reiterated that the conference was to be on a technical level. C. D. Howe, Minister of Reconstruction, who will lead the Canadian delegation at the Chicago meeting, did not attend the conference at Montreal. His place was taken by H. J. Symington, president of the Trans-Canada Air Lines, who was elected chairman of the meeting. In his address at the first plenary session, Mr. Symington remarked that the discussions were to be of technical problems at the “official” level and were for the purpose of exchanging views and agreeing upon recommendations relating to the operation of air services within the Commonwealth. He declared that “whatever may be agreed upon here must of course take its place within the framework of whatever organization may be agreed upon by the forthcoming international conference on civil aviation” and that no position would be taken [Page 577] “which might prejudice accomplishments in the larger field of a complete international authority”.
The conversations have been clothed in strict secrecy. The report persisted that they dealt with the formulation of plans for an Empire air route. The Montreal press, in speculating on the general course of negotiations, forecast the achievement of two positive results: the recommendation by the delegates to their governments of the creation of a British flag air route to go into early operation and agreement upon definite plans for a consolidated Empire Air Transport Command absorbing the present military air routes, which, upon the termination of the war would be turned over to civilian use. It further reported that it was unlikely that Canada would participate in the agreement for a Dominion air service reached by her sister Dominions in view of the close relations with the United States in air matters and its unwillingness to enter any non-American bloc for any purpose or to give the appearance of entering such a group.
This report drew a denial from the Minister of Reconstruction that there has been any difference of opinion between the Canadian and other officials. He again emphasized that the conference was simply a meeting of experts, that the governments as such were not represented, and that matters of Empire air policy were not within the province of the meeting. His remarks that the central task of the conference was consideration of what routes were to be operated in the Empire, who was to operate them and under what conditions they were to be operated was, however, taken as confirmation that an Empire air route was being blueprinted. It was pointed out that while Canadian aspirations for an air service to the West Indies and thence to South America, where Canada hopes to expand her trade, would be dealt with at Chicago, the question of the operation of a North Atlantic service and of a joint route with Australia and New Zealand across the Pacific might properly be subjects for consideration in the conversations at Montreal. Likewise, the press reported that despite protests to the contrary there appears to be little doubt that an Empire Air Transport Command is being planned for immediate military purposes and as a basis perhaps for a post-war civil air route.
The foregoing presents in part certain speculation indulged in by the press during the course of the closely guarded conversations. The conference closed on October 27. Reports of the committees appointed at the first session were submitted to the final plenary session and were unanimously adopted; they go to the respective governments for study and review. A formal statement, the text of which is enclosed,2 was issued to the press at the conclusion of the meeting.
[Page 578]According to this communiqué, agreement was reached on the following points: (1) the importance of joining other nations in the immediate creation of an effective international air authority operating by means of permanent international air convention, (2) the desirability of the establishment of air services on routes connecting the various parts of the Commonwealth and Empire, charts for which were prepared, and (3) the desirability of establishing a standing Commonwealth air transport council for purposes of consultation and exchange of views among the various members of the Commonwealth. It was added that nothing done at this meeting would impair the freedom of action of the respective governments at the Chicago conference.
Judging from the text of this statement, there was no compromise reached between the various points of view represented at the conference; presumably New Zealand and Australia at Chicago will press for a strong international air authority to own and operate all main air routes, Great Britain for the principles set forth in its recent White Paper, and Canada for its more rigid draft convention. Agreement upon the desirability of setting up an international air authority was never in doubt, and in substance the situation appears to be that existing prior to the opening of the conference. The value, however, of these preliminary exchange of views between the nations of the Commonwealth should not be minimized, although the Montreal Gazette states that in view of the lack of concrete results it is difficult to see just what purpose the conference served.
The alternative proposal by Australia and New Zealand for the creation of an Empire air route was reduced to a unanimity of view regarding the desirability of establishing air services connecting the Commonwealth. The press reports one real achievement: the often expressed fear that the Commonwealth and the Empire were “ganging up” as a bloc to present a positive united point of view at Chicago was dissipated entirely. Nevertheless, the course of action to be followed at Chicago remains to be seen.
In the face of reported American reluctance to endow an international air organization with powers considered to be adequate by certain of the Dominions, it appears that Canada has again exercised its traditional role of intermediary between the American and Commonwealth points of view. In this instance Canada’s position is a difficult one, for it finds that its developing aviation interests as a country secondary in importance in this sphere requires certain protection from unrestricted competition. It prefers the international rather than the imperial approach in resolving these matters [Page 579] while recognizing that insistence upon bilateralism at Chicago would serve to reduce its importance in Empire councils.
Respectfully yours,
First Secretary of Embassy