740.00119 Control (Japan)/11–845
Report by the State-War-Navy Coordinating Subcommittee for the Far East12
Policy With Respect to Relief in Japan
the problem
1. To determine the policies with respect to relief which should be followed by the Supreme Commander in Japan.
facts bearing on the problem
2. See Appendix “A”.13
discussion
3. See Appendix “B”.13
conclusions
4. It is concluded that:
- a.
- The objectives of the relief policy of the United States are to prevent such starvation and widespread disease and civil unrest as would (1) clearly interfere with military operations or endanger the occupying forces, and (2) permanently obstruct the ultimate objectives of the occupation.
- The problem of relief, in the sense of imports to supplement Japanese resources, is an integral part of the general problem of supervising or directing the economy of Japan. Relief should be accomplished with a maximum of Japanese responsibility and a minimum of imports.
- b.
- Widespread publicity should be given to the general policy that, the Supreme Commander should assume no obligations to maintain, or have maintained, any particular standard of living in Japan; and that the standard of living will depend upon the thoroughness with which Japan redirects the use of its human and natural resources wholly and solely for purposes of peaceful living, administers adequate economic and financial controls, and cooperates with the occupying forces and the governments they represent.
- c.
- Initially imported supplies may be provided only when it is clear that maximum Japanese efforts cannot produce or have not produced materials essential to a standard of physical well-being below which there would be such starvation, widespread disease or civil unrest as would clearly endanger the occupying forces, or interfere with military [Page 732] operations. Imported supplies may also have to be provided to prevent such widespread starvation or disease as would permanently obstruct the ultimate objectives of the occupation. The burden of proof rests on those who present a plea for imports.
- d.
- Disease rates may be used as an indication of the adequacy of living conditions in terms of danger to the occupying forces and the objectives of the occupation; but in such case should be independently verified by the Supreme Commander. In the absence of a pronounced increase in disease rates, a state of physical hardship should not for the present be construed as endangering the occupying forces or the objectives of the occupation.
- e.
- Distribution of supplies should be made through Japanese public supply agencies or such other consignees as are acceptable to the Supreme Commander and under his direct supervision or control. In the event that, as a matter of military necessity, relief supplies are issued by the occupying forces, the cost of such issues should be paid for by the Japanese Government.
- f.
- The Supreme Commander should immediately undertake a survey to determine the average caloric content required for two basic standards of diet, (1) that adequate to prevent, under present conditions in Japan, such widespread disease or civil unrest as would endanger the occupying forces; and (2) that adequate to prevent interference with attainment of the general objectives of the occupation. The results of such survey should be promptly reported to the Joint Chiefs of Staff as a basis for further planning. In the determination of such average caloric content it should be considered that variations in diet may be made according to age and work required, and that it is preferable to begin low and to increase as circumstances clearly permit rather than risk failure to maintain a standard once established. Meanwhile, the Supreme Commander should not provide relief supplies unless it can be shown that a balanced diet of 1500 calories of rationed and non-rationed items is not available for urban consumption.
- g.
- The existing dispersion of persons from food deficit areas to food surplus areas should be prolonged, exceptions being made for people of needed special skills. In the discretion of the Supreme Commander voluntary movement of persons from food deficit areas to food surplus areas may be encouraged.
- h.
- Special attention should be given to encouraging production and sale of incentive goods to induce farmers and other food producers to move their produce to market.
5. The Japanese authorities should be required immediately to restore such public health services as water and sewage disposal systems, particularly in congested urban areas. Imports requested for this [Page 733] purpose must be justified as necessary relief measures before being approved. This is not to be construed as an authority to import supplies for housing, communications or other facilities necessary to restore the economy of Japan. Economic rehabilitation is a responsibility of the Japanese Government.
recommendations
6. It is recommended that:
- a.
- This report be referred to the Joint Chiefs of Staff with a request for their comments from a military point of view; and
- b.
- Upon approval by the SWNCC of the “Conclusions”:
- (1)
- this report be transmitted to the Joint Chiefs of Staff, and to the State, War and Navy Departments for their guidance and, where appropriate, for proper implementation, and
- (2)
- no part of this paper be either communicated to our Allies or released to the press at present.