840.811/9–2745
Memorandum by Mr. Norman J. Padelford, Special Adviser to the Secretary of State, to the Secretary of State16
At an informal meeting held on September 26 in London representatives of the Governments of the United Kingdom, France, Belgium and the Netherlands expressed the desire that the United States participate in an Interim Rhine Commission which it is hoped may be assembled at an early date.
This commission will be a provisional form of the Central Rhine Commission which has existed since 1868. Its functions will be to regulate navigation, and to draw up engineering plans for the improvement of the river.
The commission will be composed of representatives of the United Kingdom, France, the Netherlands, Belgium, Switzerland, and it is hoped, the United States.
It has not yet been decided in what manner Germany, or rather the Allied Commanders-in-Chief in Germany will be represented. The French have urged that the British, French and United States zonal commanders on the Rhine appoint liaison officers to sit with the commission but not vote.
I believe, as do the American and British representatives on the Transport Directorate of the Control Council in Berlin, that this is not an appropriate solution. The Control Council has ultimate authority over all transportation in Germany. Therefore it should not only know what is going on in the Rhine Commission but should have a distinct representation and vote in the commission. The representative of the Control Council might be a British, French or American officer, as the Council would determine. He would speak for the Council and for German interests.
It is recommended that the United States be represented on the Interim Rhine Commission in its own capacity. Large quantities of military supplies will have to be transported on the Rhine to our armed forces during the period of occupation. The Rhine will also be used extensively for the transportation of relief supplies sent from the United States. Therefore, the United States will have a direct interest in navigation regulations. Moreover, the United States at the Council of Foreign Ministers has expressed its interest in the establishment of international organizations for all of the main European waterways, as a constructive step toward political stability and the improvement of economic conditions in Europe.17 It should [Page 1369] support such agencies by its own voice, at least during the transition period.
The United States would have one representative on the Commission. He might be accompanied by such technical experts as the Government may see fit to attach to him. Decisions of the Commission will be taken by a majority vote, with each country having an equal voice in the decisions.
No figure has been fixed for the expenses of the Interim Rhine Commission. Based upon the pre-war expenses of the Commission, the total budget should not exceed $25,000 a year. Each participating government will bear an equal share of the expenses. Contributions from the United States would therefore probably not exceed $3,500 a year. In addition, the United States would bear the expenses of its own representatives.
It is anticipated that the Interim Rhine Commission will enter into arrangements with the European Central Inland Transport Organization which has just been established for the coordination of the movement of traffic and the allocation of any shipping captured from the enemy which may be made available for this purpose by the military authorities. The Commission will also be expected to be brought into relationship with the Economic and Social Council of the United Nations in accordance with the terms of the Charter.
The Interim Rhine Commission will remain in existence until the interested governments conclude a convention establishing a permanent regime.
It is recommended that the United States participate on a basis of full equality in this Commission. This will be a definite step in the direction urged by the United States at the Council of Foreign Ministers. The position of the United States with respect to participation in any permanent commission may be reserved for later decision.