Foreign Relations of the United States: Diplomatic Papers, 1944, The Near East, South Asia, and Africa, The Far East, Volume V

Lot 122, Box 53

Memorandum Prepared by the Inter-Divisional Area Committee on the Far East

PWC–136a
CAC–119a

[ Washington ,] May 9, 1944.

Manchuria (“Manchukuo”): Government During Period of Military Occupation

I. The Problem

The problem as set forth in the questionnaire⁴⁶ is as follows:

“9. Manchukuo

a. Will Chinese sovereignty be immediately reestablished or will there be an interim CAA?

b. If the latter, will this be American or United Nations?

c. What nations will participate? And, what will be their degrees of participation?

d. Will China and/or the Soviets (if the USSE joins the Far East War) have a paramount interest and participation?[“]

II. Basic Factors

“Manchukuo” includes in addition to the “Three Eastern Provinces” which comprise Manchuria (Heilungkiang, Kirin and Liaoning) the Province of Jehol. It does not include Kwantung Leased Territory.

“Manchukuo” has never been recognized by the United States and the United States considers that Jehol and Manchuria are still parts of China and the question of reestablishing Chinese sovereignty, therefore, does not arise.

Although the Kwantung Leased Territory is in Manchuria its legal status is different from the rest of Manchuria. This territory was leased by China to Russia in 1898⁴⁷ for a period of twenty-five years. In 1905, with the consent of China, the lease was transferred to Japan.⁴⁸ The duration of the lease was extended to a period of 99 years by the Sino-Japanese Treaty of May 25, 1915.⁴⁹ The validity of this action has been contested by China.

III. Recommendations

1. It is recommended that full political control in Jehol and Manchuria (excluding Kwantung Leased Territory) should be turned over to the Chinese as soon as and wherever military operations permit. There should be no interim CAA. In combat zones administration of civil affairs will be the responsibility of the commanders of such zones and to the extent that such commanders may be American the United States military authorities must be prepared for such responsibility.

2. Final disposition of the Kwantung Leased Territory has not been determined. Unless or until a further statement of policy is made by the State Department with regard to such territory, American military or naval authorities should—if they occupy the territory—be prepared to continue such occupation and to assume responsibility for administration of civil affairs until the lawful transfer of such territory is effected. Chinese personnel, however, should be utilized in such administration to the fullest extent possible and it should be clearly understood that such occupation and administration is only temporary.

3. Should the forces of the Soviet Union enter Manchuria during the war against Japan, or should there occur new developments changing substantially the present political or military situation in the Pacific theatre of war, the problem may require reconsideration and the military authorities should consult with the Department of State.

Prepared and reviewed by the Inter-Divisional Area Committee on the Far East.

CA:	OEClubb (drafting officer)	FE:	JWBallantine
	JCVincent  “  “	JA:	ERDickover
LA:	ALMoffat  “  “		BRJohansen
TS:	GHBlakeslee	ME:	MBHall
	HBorton	FMA:	CFRemer
	RAFearey	FSO:	EHDooman
	PRJosselyn

46. Ante, p. 1190.
47. Convention signed March 27, 1898; John V. A. MacMurray (ed.), Treaties and Agreements With and Concerning China, 1894–1919 (New York, 1921), vol. i, p. 119.
48. Treaty signed at Peking, December 22, 1905; ibid., p. 549.
49. Foreign Relations, 1915, p. 171.