810.20 Defense/9–2044
Memorandum by the Acting Secretary of State to President Roosevelt 48
Subject: Forthcoming Bilateral Staff Conversations.
I am reluctantly compelled to refer to you for settlement a serious difference of opinion involving the respective jurisdictions of the State [Page 127] Department on one hand and the War and Navy Departments on the other.
The immediate issue relates to the role which our chiefs of diplomatic mission in the other American republics should play in connection with military and naval staff conversations which are shortly to be held in all the republics except Argentina in order to lay the groundwork for future military collaboration.
In essence the position of the War and Navy Departments appears to be that these conversations are military and technical, and therefore the role of the chief of diplomatic mission should be limited to (1) making the necessary preliminary and protocolary arrangements, (2) being kept informed of the progress of the talks, (3) giving guidance on political questions which may be interjected and being consulted in case of an impasse, and (4) expressing his views when agreement is reached or at the conclusion of the talks.
This Department on the other hand is firmly convinced that its responsibilities and those of the chief of mission in the field of foreign policy require that the latter should be entirely free to decide, after consultation with the United States officers who will participate in the talks, how they should be conducted and what part he or members of his staff should take in them. The basis of this position is (1) that, although preliminary and technical, the staff conversations involve political questions of the highest order; and (2) that only the chief political officer on the spot can determine the most effective way to guard against the possibility of political issues imperilling the success of the talks; and (3) that as a matter of principle all conversations, negotiations and other activities of official United States personnel in a foreign country outside of active theaters of military operations should be conducted by or under the direction of the Ambassador, who as your personal representative, is the supreme responsible representative of this Government. (This last appears to be in accord with the general principles laid down by you on May 20, 1942,49 in clarification of Executive Order No. 9125 [9128] of April 13, 1942,50 relating to the Board of Economic Warfare.)
It is highly desirable that these conversations should begin in the near future. It is impossible to proceed with any country except Brazil until this question is settled.
If you concur in the views of this Department, I should appreciate receiving your permission to communicate your decision to the Secretaries of War and Navy.
I have sent copies of this memorandum to the Secretaries of War and Navy and there are attached for your convenience copies of the pertinent correspondence.51