800.85/7–2044: Telegram

The Acting Secretary of State to the Ambassador in the United Kingdom (Winant)

5944. Your 5764, July 20, 1944, 9 p.m. The concern expressed by Belgian, Netherlands and Norwegian representatives in regard to “non-essential services” and “non-essential cargoes” referred to in paragraph 3 of the Memorandum of Principles appears not to be well-founded. The Department assumes that determination of these matters will be a function of any shipping control authority which may be established under the Memorandum of Principles.

Paragraph 1 of the Memorandum of Principles, reportedly agreed upon, should cover this point completely, namely, the Governments concerned undertake as a common responsibility to provide shipping for both military and civilian requirements. It is firmly believed here that the ability to meet civilian requirements of the liberated areas will largely depend upon the willingness of all countries concerned to continue to pool their shipping, subject to a mutually agreeable control.

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In the case of conflict between military aims and civilian supply needs of the liberated areas, such conflict will no doubt be resolved by the Combined Chiefs of Staff in consultation with interested civilian agencies.

It is impossible to give assurances to the Netherlands and Norwegian representatives that essential civilian requirements can be fully met. The requirements of any of the liberated countries can be met only in the proportion that it is possible to meet the total requirements of all liberated countries.

It is assumed that “civil supply” neither includes nor excludes requirements inherent to trading operations. For example, it may be found necessary to supply Norway with fuel essential to mobilize its fishing fleet. While the result of such determination would mean food for Northern and Western Europe, it would by its very nature mean trade for Norway. It is impossible to draw any fine definition at this point as to what constitutes civilian supply per se and supply which includes trading operations.

For your strictly confidential information, it is reported that Belgian representatives here, in conversations with Government agencies, have been saying that they expect their fleet will be released for commercial operations when war conditions in Europe end.

Stettinius