Foreign Relations of the United States: Diplomatic Papers, 1945, The Near East and Africa, Volume VIII

881.00/5–1245

The British Embassy to the Department of State

Aide-Mémoire

His Majesty’s Government consider that the present illegal occupation of the International Zone of Tangier by the Spanish Government should be terminated as soon as possible. Thereafter they are of the opinion that an international regime should be restored in Tangier and that appropriate steps should be taken to eliminate from the new regime the defects of the old regime set up by the 1923 Convention. In the view of His Majesty’s Government the new regime should be more truly international and there should be greater equality of status among the Powers concerned.

2. His Majesty’s Government consider, moreover, that under the new regime the Tangier Zone should not be entirely demilitarised, as was the case under the old regime, but that arrangements should be made to enable radar and airfield facilities in the Zone to be available for the defence of the Straits area in times of crisis.

3. Subject to these changes His Majesty’s Government consider that the new regime should, generally speaking, follow the main lines of the 1923 Convention; i.e., an Administration with an administrative staff appointed in accordance with an agreement between the Powers concerned, a Committee of Control consisting of the diplomatic or consular representatives of these Powers, and also, possibly, a Legislative Assembly. (If, however, the Legislative Assembly is to be retained, His Majesty’s Government consider that it will be necessary to ensure that it functions in a more satisfactory manner than in the past, and that to this end it may be desirable that its powers should be reduced, or at least more strictly defined and controlled).

4. His Majesty’s Government realise that it will not be possible to introduce a new regime immediately, since it will first be necessary to reach agreement by negotiation among the Powers concerned regarding the precise form that this new regime should take. For this reason they propose that in the meantime, on the termination of the present occupation of the Zone by the Spanish forces, the former international regime as laid down in the Convention of 1923 should be provisionally restored, subject to such few amendments and changes as may be considered essential and to which general agreement can be quickly obtained. This will entail, in the first place, agreement between the Powers principally concerned on these amendments and subsequently their communication to and acceptance by the other Powers parties to the 1923 Convention. It will also be necessary to work out in detail the arrangements which will have to be made on the termination of the Spanish occupation for the re-establishment of the various administrative services—e.g., police—of the restored international regime.

5. His Majesty’s Government earnestly hope that the United States Government will be prepared to associate themselves actively in the future administration of the Zone, both in the interim period, when it is suggested that the 1923 regime be reintroduced pending the negotiation of a new agreement, and later on when the new and permanent regime has been established. His Majesty’s Government are confident that such participation by the United States Government would be of great assistance in building up a strong and stable regime and would do much to ensure the smooth running of the international administration.

6. As a first step it will, of course, be necessary to require the Spanish Government to give up the control which they have illegally assumed over the Zone. His Majesty’s Government, looking beyond their present relations with the existing Spanish Government and taking account not only of their long-term desire to establish friendly relations with the Spanish nation but also the need to ensure the willing collaboration of Spain in the maintenance of the security of the Straits area, consider that the representations to the Spanish Government should not be framed in such a way as clearly to humiliate Spain or cause lasting resentment among the Spanish people. For this reason His Majesty’s Government consider that every effort should be made to arrange for the transition to a restored international regime to take place peacefully and with the full consent of the Spanish Government. His Majesty’s Government are of the opinion that the best method of achieving this object would be for a joint approach to be made to the Spanish Government by the United States Government, the French Government and His Majesty’s Government as soon as possible after the conclusion of hostilities in Europe.

7. The three Governments should first make it plain that they cannot acquiesce in any continuance of the Spanish occupation of the Zone, and should point out that in any case the circumstances in which the Spanish Government claimed that for practical reasons it was necessary for them to intervene in the Tangier Zone, ostensibly in order to protect its neutrality, no longer exist. Thereafter, provided the Spanish Government agree to abandon their occupation, the latter should be invited to cooperate in the immediate restoration of the 1923 regime on a temporary basis and amended where necessary, pending the negotiation of a fresh agreement.

8. In this connexion it should be pointed out that the Spanish authorities have more than once recently raised the question of Tangier with His Majesty’s Embassy in Madrid. From their attitude it would seem that the Spanish Government realise quite well that they will have to abandon their present position in Tangier as soon as the war in Europe is over, and that they would be quite prepared to see an international regime revived, provided that reasonable consideration was paid to the interests of Spain in the Zone, and especially that France was not allowed to acquire a more favoured position than Spain.

9. His Majesty’s Government consider that, in order to ensure a peaceful transition without the danger of civil disturbances, a temporary military occupation of the Zone will almost certainly be necessary. While there would be obvious advantages in a purely Anglo-American occupation, His Majesty’s Government feel that, in order to avoid friction with either France or Spain, both countries should be invited to associate themselves with the United States and the United Kingdom in carrying out the occupation. The number of troops required to maintain order would in any case be small and it should be possible to arrange for the supply of equal contingents by Great Britain, the United States, France and Spain. In the view of His Majesty’s Government the importance of avoiding offending the susceptibilities of either France or Spain and—what is equally important—of securing their genuine co-operation in the re-establishment of the international regime, outweighs the local inconvenience which this arrangement might be likely to cause.

10. His Majesty’s Government are anxious to reach broad agreement with the United States Government on the policy to be pursued as soon as possible. Once such agreement has been reached the two Governments should then, it is suggested, initiate discussions with the French Government with a view to securing their agreement in principle and concerting a line of joint action. This action would take the form in the first place of a joint communication in the name of the United States, the United Kingdom and French Governments to the Spanish Government requiring the latter to terminate their occupation of Tangier and setting out the views of the three Governments as to the future of the Zone. If the Spanish Government agreed in principle to these points, they should then be invited to discuss with the United States, the United Kingdom and French Governments:—

(a) How best and most rapidly to end the Spanish occupation of the Zone and replace it by an Anglo-American-Franco-Spanish occupation.

(b) What changes should be made in the 1923 Convention before it is restored as in [an?] interim regime and how could the consent of the other signatory Powers most rapidly be obtained.

(c) What other steps should be taken in connexion with the restoration of the 1923 regime.

(d) What action should be taken to summon an international conference to determine the final form which the eventual permanent regime should take.

Washington , May 12, 1945.