Foreign Relations of the United States: Diplomatic Papers, 1944, The British Commonwealth and Europe, Volume III

740.00119 EAC/9–1244: Telegram

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

London, September 12, 1944—11 p.m.
[Received 11:59 p.m.]

7503. Comea 84. At today’s meeting of the EAC, Russian delegation presented amendments and additions to Bulgarian armistice terms. The British asked for a discussion of them, the Russians agreeing. I explained that I was without instructions as yet from my Government in reply to Ambassador Gousev’s letter of September 9⁷⁹ (my 7428, September 9, 9 p.m.⁸⁰), but that I was willing, in order to save time, to sit in during the presentation of the Soviet proposals, but would not enter into the discussion. Discussion was prefaced by British statement that Mushanov was awaiting Allied terms in Cairo, according to report of Bulgarian Foreign Minister’s interview of September 10. Gousev reported that Bulgaria had asked the Soviet authorities for armistice terms and pointed out that since Bulgaria had declared war on Germany the original terms no longer reflected the present situation and required modification. We had before us the slightly revised British draft (see my 7474, September 11, 11 p.m.⁸¹) for comparison.

A new preamble was proposed by Soviet delegation as follows: “The Bulgarian Government accepts the armistice terms presented by the Governments of Great Britain, Soviet Union and USA acting in the interests of all the United Nations. Accordingly, the representative of the Allied (Soviet) High Command, duly empowered by the Governments of Great Britain, the Soviet Union and the USA acting in the interests of all the United Nations, on the one hand, and the representatives of the Bulgarian Government, being furnished with the necessary full powers, on the other hand, have signed the following conditions.” Strang questioned whether the three Governments could act in the interests of United Nations not at war with Bulgaria, and noted that the assent of those United Nations at war with Bulgaria had already been received. Strang also noted that it was now proposed to substitute a Soviet general for SACMED as signatory and recalled that Gousev’s letter of September 9 (my 7428, September 9, 9 p.m.) proposed that negotiations with the Bulgarians be conducted in Moscow or Ankara. He reported that British Ambassador had been instructed today to tell Soviet Government that United Kingdom prefers Cairo since British, United States and Bulgarian Plenipotentiaries are already there and that it considers Ankara, as neutral territory, unsuited to such negotiations. United Kingdom Government prefers signature of Bulgarian terms by SACMED acting for Allied Governments, including Soviet, as Soviet commander is signing Rumanian terms on behalf of United Kingdom Government.⁸² Gousev pointed out that Moscow was the headquarters of the Allied troops which are now in Bulgaria.

In place of articles I and II Soviet delegation proposed one new article as follows: “Bulgaria has ceased hostilities completely as of (blank) date 1944 and has withdrawn from the war against the United Nations, has severed relations with Germany and her satellites, has gone to war and will wage war on the side of the Allied Powers against Germany and her satellites for the purpose of restoring her independence and sovereignty, for which purpose she puts in the field not fewer than (blank) number divisions together with necessary reinforcements. The military action of the Bulgarian Armed Forces including the fleet and air forces against Germany will be carried on under the general direction of the Allied (Soviet) High Command.” British pointed out they did not know whether Bulgaria had stopped fighting the United Kingdom and had severed relations with the satellites.

Article III approved by Soviet delegation. It proposed a new article IV: “The Bulgarian Government will assure to the Soviet and other Allied Forces free movement across Bulgarian territory in every direction, if required by the military situation, the Bulgarian Government to furnish every assistance to such movement by its means of communications and at its expense, on land and water and in the air.” British noted similarity of this provision to one article of the Rumanian draft. Soviet delegation proposed omission of article V as inappropriate in view of Bulgarian participation in the war. Article VI was approved by the Soviet delegation. It proposed omission of article VII since its content is covered in Soviet’s new draft of article IV. British delegate pointed out that new article IV would cover only military movements, while article X. of Rumanian armistice also covers nonmilitary movements. Gousev proposed new article VIII: “The Bulgarian Government will liberate immediately all persons, regardless of citizenship and nationality, who are under confinement in connection with their activity in favor of the United Nations or for their sympathies for the cause of the United Nations or because of their racial origin, and will likewise repeal all discriminatory legislation and all restrictions derived therefrom.” Strang noted that this provision was identical with a provision of the Rumanian terms.

Article IX was accepted by Soviet delegation. In article X it proposed omission of rest of sentence following “war damage”. British commented that omitted words were important (1) to prevent disposal of Bulgarian external assets (2) to prevent sale to other nationals of Bulgarian domestic assets. Gousev felt this point was covered by an additional paragraph on property, but I do not find this in any of his proposed terms. Soviet delegate proposed omission of article XI as ineffective now that we want Bulgaria to wage war on our side. For article XII he proposed new version: “Bulgaria shall regularly pay such monetary sums in Bulgarian currency and furnish such commodities (fuel, foodstuffs, et cetera), facilities and services as may be required by the Allied (Soviet) High Command for the performance of its functions”. British noted resemblance of this draft article to article XIV of Rumanian terms. For article XIII Gousev proposed a new version, “there will be established an Allied Control Commission which shall undertake to regulate and control the execution of the present conditions under the general direction and according to the instructions of the Allied (Soviet) High Command”. Strang noted similarity of this draft to Rumanian article XII, but pointed out that a proposal to place the Control Commission for Bulgaria under the Soviet Supreme Command raises a question of principle; also new draft omitted provision of article XIII which enabled Allies to issue additional instructions.

Soviet delegation then presented six additional articles, apparently based on articles XVI, XVII, XII, VIII, IX and X of the Rumanian draft armistice.

(1) “The Bulgarian Government undertakes to dissolve immediately all pro-Hitlerite (Fascist in type) organizations located on Bulgarian territory, political, military, militarized, and likewise any other organizations carrying on propaganda hostile to the United Nations and, in particular, to the Soviet Union, and henceforth not to permit the existence of such organizations.”

(2) “The publication, importation and distribution in Bulgaria of periodical and nonperiodical literature, the presentation of theatrical performances and cinema films, the operation of radio stations, posts, telegraph and telephone, will take place by agreement with the Allied (Soviet) High Command.”

(3) “The Government of Bulgaria undertakes to return to the Soviet Union, in time-limits to be set by the Allied (Soviet) High Command, and in good condition, all valuables and materials removed by Germany from Soviet territory during the war and belonging to state, public and cooperative organizations, enterprises and institutions or to individual citizens, such as: equipment of factories and plants, locomotives, railway cars, tractors, automobiles and trucks, historical monuments, museum pieces and every other kind of property.” Strang inquired whether such rights should not be extended to Greece and Yugoslavia.

(4) “The Government of Bulgaria undertakes not to permit the exportation or expropriation of any kind of property (including valuables and currency) belonging to Germany, Hungary or Rumania or to their citizens or to persons residing on their territories or on territories occupied by them, without the permission of the Allied (Soviet) High Command. It will safeguard this property in accordance with arrangements to be laid down by the Allied (Soviet) High Command.”

(5) “The Government of Bulgaria undertakes to deliver to the Allied (Soviet) High Command all ships belonging to the United Nations and located in the ports of Bulgaria, regardless of whose disposition these ships are found in, for use by the Allied (Soviet) High Command during the war against Germany and Hungary in the common interests of the Allies, these ships to be returned later to their owners. The Bulgarian Government will bear full material responsibility for any damage or destruction done to the above-enumerated property prior to its delivery to the Allied (Soviet) High Command.”

(6) “The Bulgarian Government will, in case of need, assure the use, on the territory of Bulgaria, of industrial and transport enterprises, and also of means of communication, power stations, public service enterprises and facilities, stores of fuel and other materials, in accordance with instructions issued during the armistice period by the Allied (Soviet) High Command.”

The Commission will meet to discuss Bulgarian armistice terms as soon as the delegations have been able to communicate with their Governments.

Winant

79. Ante, p. 405.
80. See footnote 72, p. 405.
81. Not printed; the British draft was a revision of terms as set forth in telegrams 6928, August 25, midnight, from London, p. 367, and 6930, August 29, 7 p.m., to London, p. 378.
82. For text of the armistice agreement with Rumania, signed at Moscow September 13, 1944, at 5 a.m., see Department of State Executive Agreement Series No. 490, or 59 Stat. (pt. 2) 1712. For correspondence regarding negotiations, see vol. iv , section under Rumania entitled “Negotiations leading to signing of armistice …”