IO Files: USMS/46
The United States Representatives on the Military Staff Committee to the Joint Chiefs of Staff 60
Basic Principles Governing the Organization of the United Nations Forces
the problem
1. To determine the advisability of resuming subcommittee discussion of the basic principles governing the organization of the United Nations Forces.
discussion
2. The trend of developments within the Subcommittee on a Standard Form of Agreement has demonstrated that considerable progress is possible in the work of the Military Staff Committee even though one of the national Delegations does not participate in the discussion. Recent incidents within the Military Staff Committee clearly indicate that the Soviets not only have no intention of participating in substantive work of the Military Staff Committee but also that they are committed to a policy of obstructionism.
3. In view of the foregoing, it is evident that if there is not to be a complete breakdown in the function of the Military Staff Committee, some constructive action must be taken. It is proposed that the resumption of the work of the Subcommittee on Basic Principles Governing the Organization of United Nations Forces would serve as a means to further progress of the Military Staff Committee.
4. At its meeting in London on 16 February 1946, the Security Council directed the Military Staff Committee as its first task to examine, from the military point of view, the provisions in Article 43 of the Charter and to submit the results of the study and any recommendations to the Council. As a method of accomplishing this task, the Military Staff Committee, at its 5th Meeting on 27 March 1946, by resolution, established a subcommittee with terms of reference directing it to study Article 43 of the Charter and to formulate recommendations to the Military Staff Committee as to the basic principles which will govern the organization of the United Nations forces.
5. At its first meeting on 28 March 1946, this subcommittee adopted a resolution that: “Each national Delegation shall, not later than 3 April, furnish each of the other national Delegations, in writing, a [Page 931] statement of the principles which shall govern the organization of the United Nations forces, and that this subcommittee shall meet on 5 April to consider these several statements.” Four members of the subcommittee complied with the aforementioned resolution. Since all members had not complied therewith, the second meeting of the subcommittee was postponed indefinitely. The fifth member has not been able to indicate to the subcommittee a definite foreseeable date on which a statement of the principles which shall govern the organization of the United Nations forces may be expected.
6. While subcommittee discussion on a five-Power basis is preferable, it is evident that it will be necessary to proceed, at least initially, on a four-Power basis as has the subcommittee discussion on the Standard Form of Agreement. Further delay in meeting this issue plays squarely into the hands of the Soviets and contributes to their policy of obstructionism.
7. Several advantages would accrue by pursuing the action outlined above. In the first place, it would lead to a showdown in the Military Staff Committee and possibly within the Security Council, and would contribute to a showdown in the General Assembly. It is possible that it would force the Soviets into acting in concert with the other four Powers. On the other hand, if it should force an open break, as long as the action is that of the Soviets, such a break might be preferable to the present condition of stalemate.
8. Assuming that the Soviets will enter into the discussion within the reasonably foreseeable future, initiating the discussion on a four-Power basis would have the effect of disclosing and solving many minor but troublesome points as in the case of the Standard Form of Agreement. Thus much preliminary work will have been accomplished by the time the Soviets see fit to participate.
9. Assuming that the Soviets will indefinitely delay their participation, four-Power discussion nevertheless will be of value, inasmuch as it will have produced prior agreement between the United Kingdom, China, France, and the United States on principles which are likely to be required in the event of a complete breakdown of the United Nations organization.
10. Furthermore, although the proceedings of the Military Staff Committee are restricted, should information reach other nations, through the Security Council or the General Assembly, as to the work in progress, it is considered that it would have the effect of pointing up the attitude of the Soviets and its deleterious result in implementing the Charter of the United Nations.
11. There are certain unfavorable factors to be considered. It may be objected that by four-Power discussion with Soviet observation [Page 932] we disclose our position. However, the plane of the discussion and the general terms involved are such that no information of substantive value accrues to the Soviets. This is borne out by the proceedings of the Subcommittee on a Standard Form of Agreement. In addition, the United States, along with three other national Delegations, have submitted written statements (MS/28, MS/29, MS/30, MS/31/Rev. 1) on the basic principles.61
12. Another objection might be that without Soviet participation no substantive action is possible. Here again experience with the Standard Form of Agreement indicates that considerable progress is possible. Furthermore, should an open rupture occur, considerable advantage in time required for organization will have accrued.
conclusion
13. It is concluded that it would be advisable to resume subcommittee discussion in the Military Staff Committee of the basic principles governing the organization of the United Nations forces.
recommendation
14. That the U.S. Representatives on the Military Staff Committee forward a proposal in substance as attached as the Enclosure to the four other Delegations of the Military Staff Committee, to be placed on the provisional agenda of the next meeting of the Military Staff Committee.62
- This memorandum, approved by the United States Representatives on the Military Staff Committee at their 26th Meeting, September 16, was forwarded to the Secretary, Joint Chiefs of Staff, for information. (IO Files)↩
- MS/28, the United States statement of principles, is printed as USMS/12/Rev. 1, March 15, p. 759. The other documents are not printed.↩
- The enclosure, proposing resumption of sub-committee discussion on basic principles, had been circulated in the Military Staff Committee on September 13; see the Summary of the Sequence of Events, p. 914.↩