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–184a

[Washington,] June 28, 1944.

Papers Concerning Military Government in Formosa

The Inter-Divisional Area Committee on the Far East has prepared fourteen papers on military government in Formosa to answer twenty-eight questions submitted to the Department by the Civil Affairs Division of the Army and the Occupied Area Section of the Navy.⁵⁷ These answers are based on the conditions which it is believed will probably exist in Formosa during the period of military government. It is realized that new conditions may arise which will cause the Department to revise these papers or to issue new suggestions as to political aspects of military government in Formosa. The main points of the papers which contain recommendations as to policy, as distinct from details of administration, are as follows:

1. Transfer of Formosa to China

It is recommended that the planning for military government in Formosa proceed on the assumption that Formosa and the Pescadores will be returned to China without reservations, that is, without any condition that China shall grant rights for bases on Formosa (PWC–185⁵⁸). It is envisaged that American military administration of Civil affairs in Formosa will continue until such time as Chinese sovereignty in Formosa is restored.

2. Military Government

It is assumed that a military government will be established in Formosa by the United States (PWC–190⁵⁹). It is recommended that, even if the Japanese Government should capitulate before a forcible occupation of Formosa becomes necessary, the United States forces should, nevertheless, occupy the island, and establish a military government (PWC–197⁶⁰). The military authorities will retain sole responsibility and authority for civil affairs administration (PWC–195,⁶¹ questions 1, 9 and 12).

3. Chinese Participation

It is recommended that Chinese participation should be sought in both the planning and administration of civil affairs in Formosa. This participation, however, should not in any way restrict the exclusive authority of the American military government. If the occupation of Formosa should be aided by Chinese forces operating from the mainland, if feasible there should be provision for Chinese representation on the civil affairs staff. (PWC–190 and 195.)

In the administration of Formosa, Chinese-Formosans should be used as fully as possible; American citizens and Filipinos of Chinese race should be employed on the same basis as other Americans; Chinese citizens, residing in China or in the United States, should be employed only with the approval of the Chinese National Government. All persons employed by the Civil Affairs Administration should be subject to the direct orders of the American military government. As a general rule, short-term administrative acts of the military government in Formosa should be designed to meet the immediate needs of Formosan interests as distinct from interests of the Chinese National Government; and administrative acts designed for operation over a comparatively long term, such as acts in respect to the educational system, should accord with Chinese Government policies in so far as those policies are consistent with American ideals and international law (PWC–195).

4. Treatment of the Inhabitants of Formosa and the Japanese Mandated Islands

a. Japanese Residents

The military government, in its treatment of Japanese civilians in Formosa and the Japanese Mandated Islands (1) should be guided by international law, (2) should undertake no mass segregation, internment or removal not required by military necessity, and (3) should not attempt to anticipate a decision as to the disposition of Japanese civilians after the war (PWC–198⁶²).

b. Non-Japanese Inhabitants of Formosa

Although Chinese-Formosans and the aborigines, in a legal sense, are enemy nationals, in a political sense, the Chinese-Formosans should be treated as “liberated peoples”, and the tribal aborigines as wards of the military government (PWC–194⁶³).

5. Treatment of Japanese Property

The military authorities in their treatment of Japanese property in Formosa, both Government and private, should apply the Rules of Land Warfare of the Hague Convention of 1907.⁶⁴ Private Japanese interests should be respected. The military government should assume stewardship of all Japanese Government properties pending final settlement. (PWC–187, 188, 196).⁶⁵ It is recommended that in principle the Japanese Imperial Household properties be treated as though they were Japanese Government property (PWC–191⁶⁶).

6. Laws Under the Military Government

Laws in force in Formosa at the time of military occupation should be regarded as continuing except as superseded by proclamation having the force of law issued under the authority of the military government. As to existing ordinary civil and criminal law, no attempt should be made to substitute Chinese law. With existing land-ownership rights and tenancy contracts the military government should interfere as little as possible. It will probably be necessary to replace the Japanese judges in the courts. (PWC–186 and 193.)⁶⁷

7. Currency

It is recommended that, in determining the currency to be used in Formosa, primary consideration be given to the provision of a stable medium of exchange adapted to the needs of the military authorities and the civil population within Formosa, and that such a currency be distinct from and independent of the present Chinese currency (PWC–192⁶⁸).

57. PWC–199, letter of March 27 from Major General Hilldring and Captain Pence, and PWC–200, questionnaire of June 2 on “Political and Policy Questions Bearing Upon Civil Affairs Planning for Formosa”, not printed.
58. CAC–152, April 20, not printed.
59. CAC–161, April 24, not printed, but see PWC–190a, June 28, infra.
60. CAC–186, May 8, not printed.
61. CAC–177, May 15, not printed.
62. CAC–187, May 11, not printed.
63. CAC–174, May 11, not printed.
64. Signed October 18, 1907, Foreign Relations, 1907, pt. 2, p. 1204.
65. CAC–156, May 11; CAC–157, April 26; and CAC–178, May 11; none printed.
66. CAC–162, May 9, not printed.
67. CAC–153, May 8, and CAC–173, May 5; neither printed.
68. CAC–166, April 25, not printed.