Foreign Relations of the United States, Diplomatic Papers, 1945, General: The United Nations, Volume I

RSC Lot 60–D224, Box 28: SWNCC 27/1

Memorandum by the Chairman of the State–War–Navy Coordinating Committee⁷⁰ (Dunn) to the Secretary of State

[Washington,] 26 February, 1945.

Subject: International Trusteeships

Reference is made to your identical letter of 30 December 1944 to the Secretaries of War and Navy⁷¹ on the subject of international trusteeships, setting forth developments in this regard since the letters exchanged last August between the Joint Chiefs of Staff and yourself.

In their letter of 3 August 1944,⁷² the Joint Chiefs of Staff expressed the opinion that:

“From the military point of view, it is highly desirable that discussions concerning the related subjects of territorial trusteeships and territorial settlements, particularly as they may adversely affect our relations with Russia, be delayed until after the defeat of Japan.”

The Department of State now proposes that preparations be made to discuss the general principles of international trusteeships and the appropriate machinery therefor, leaving for future discussions all questions of specific territories. In support of this proposal it is stated:

a. That the Soviets, British and Chinese desire and will press for such discussions.

b. That the question will have to be discussed at the general conference, and that in all likelihood a chapter on general principles and machinery will have to be included in the final charter of the United Nations.

c. That it is entirely possible in dealing with this subject, to separate the formulation of general principles and of provisions for machinery from consideration of specific territories, the latter subject to be left for future determination.

Upon receipt of your letter, the proposal was submitted to the Joint Chiefs of Staff by the Secretary of War and the Secretary of the Navy. The Joint Chiefs have again considered the matter and have expressed the opinion that there is no objection, from the military point of view, to the proposed discussion of international trusteeships, provided such discussions:

a. Give full consideration to the future defense needs of the United States.

b. Exclude direct or indirect discussion of the disposition of any territory under the sovereignty of the United States, or any Japanese territory occupied by United States forces.

c. Consider no agreement that may eventually give to any foreign nation claim to any control of the “Japanese Mandated Islands” north of the Equator.

The Joint Chiefs of Staff further emphasize the fact that all studies and discussions of this subject should give full consideration to the policy, approved by the President 23 November 1943, that the Bonins and all Japanese Mandated Islands lie in the “Blue Area” described as “Required for the direct defense of the United States …”⁷³

It is understood that, since the receipt of your letter, there has taken place within the State Department consideration of draft proposals, for possible discussion by the United States, Great Britain, Russia and China, relating to the general principles of international trusteeships and the machinery for their effectuation. It is further understood that appropriate military and naval representatives are taking part therein.⁷⁴

The Secretaries of War and Navy are in accord with the desirability of endeavoring to formulate at the earliest possible moment proposals of this character which will recognize the basic military and political factors involved and are satisfactory to this Government as a basis for discussion with the other Dumbarton Oaks powers. If there are to be no direct acquisitions of security outposts by the United States or the other principal powers, such proposals should include a type of trusteeship, in respect to all or any part of these areas, which will assure the security interests of the several agreeing nations. As you point out, it is not unlikely that we shall be obliged, sooner or later, to enter into a discussion of this matter with other nations, and it is imperative that this Government explore the subject thoroughly among ourselves before considering it with others. It is hoped, therefore, that this work will proceed expeditiously, and the War and Navy Departments stand ready to be of any assistance that they can. You are assured that, when it has reached a point where there is a draft—or perhaps alternative drafts—suitable for submission as a basis for discussion within this Government, the War and Navy Departments and the Joint Chiefs of Staff will promptly supply their suggestions and recommendations covering the security interests of the country.

Until this project has advanced to a stage where it is possible to say that this Government has formulated its own position in reasonable detail, it seems to be premature to attempt to decide finally whether or not we shall institute discussions with other nations in this regard. If we are able to agree within our own Government upon proposals which we would be willing to discuss with other nations, then in the opinion of the Secretary of War and the Secretary of the Navy such discussions should be limited to the principal powers which took part in the Dumbarton Oaks conversations, and only after full examination and complete agreement among those powers should the subject be opened for consideration by a general conference of the United Nations.

In accordance with the views expressed above, it is suggested that the State Department proceed as promptly as may be possible with the drafting of its proposed paper on territorial trusteeships for possible discussion with the principal powers. As soon as this paper is received, arrangements will promptly be made whereby you will receive the views of the Secretary of War, the Secretary of the Navy, and the Joint Chiefs of Staff.

James Clement Dunn

70. This Committee was established in December 1944 to reconcile and co-ordinate the views of the State, War, and Navy Departments in matters of common interest and to establish policies for these Departments on politico-military questions referred to it.
71. Foreign Relations, 1944, vol. i, p. 922.
72. Ibid., p. 700.
73. Omission indicated in the original memorandum.
74. An Interdepartmental Committee on Dependent Areas, composed of representatives of the State, War, Navy, and Interior Departments was set up in response to a request by President Roosevelt that the Department of State work out its own ideas about an international arrangement for dependent territories.