Foreign Relations of the United States, 1946, General; the United Nations, Volume I

Department of State Atomic Energy Files

Proposal by the British Members of the Combined Policy Committee³⁶

top secret

[Washington, undated.]

Draft Conclusions of Combined Policy Committee Recommending Arrangements for Continuance of Co-operation Between the United States, the United Kingdom and Canadian Governments

The Committee took note that on 16th November, 1945, President Truman, Mr. Attlee and Mr. Mackenzie King had:—

(i) Recorded their wish that full and effective cooperation should continue in the field of atomic energy between the United States, the United Kingdom and Canada;

(ii) Agreed that the Combined Policy Committee and the Combined Development Trust should be continued in suitable form:

(iii) Requested the Combined Policy Committee to work out appropriate arrangements for this purpose.

2. There was general agreement in the Committee that it would be undesirable to propose the conclusion of a new and formal agreement between the three Governments at this moment. Having regard to the obligations assumed under Article 102 of the United Nations’ Charter, it would be necessary to publish the agreement; and it would be inopportune to do this so shortly before the opening of discussions in the United Nations Commission on Atomic Energy.

3. On the other hand, close cooperation between the three Governments which was begun during the war was a matter of public knowledge and the Declaration issued at Washington last November had made it clear to the world that this cooperation had not been broken off. The three Governments would not be open to criticism if they were to continue this cooperation on the same footing, until the outcome had been seen of the discussions in the United Nations Commission.

4. This cooperation might appropriately be based upon the existing documents. Since, however, these documents, and, in particular, the so-called Quebec Agreement, were in certain respects related to war conditions, certain adaptations and additions were required to render them suitable for the future.

[5.] The Committee:—

(1) Agreed to recommend, for the approval of the three Governments:—

(a) that cooperation should be continued, for the present, on the basis of the existing agreements, subject to the points shown in the schedules attached to these minutes;

(b) that these arrangements should be subject to revision later, in the light of any international agreement, which might be reached, as a result of the recommendations of the United Nations Commission on Atomic Energy;

(2) Took note that if the recommendation in (1) above was approved by the Canadian Government, they would acquire the same rights and assume the same obligations as if they had been parties to the Quebec Agreement and the Declaration of Trust.

Schedule of Amendments

(i) articles of agreement approved at quebec on 19th august, 1943 by president roosevelt and mr. churchill³⁷

Preamble and First Article to be deleted.

Second Article to be revised to read:—

“None of the three Governments will use atomic weapons against other parties without prior consultation with each of the other two Governments.”

Third Article to be revised to read:—

“None of the three Governments will disclose any information to, or enter into negotiations with other Governments, or authorities or persons in other countries concerning atomic energy, except in accordance with agreed common policy or after consultation with each of the other two Governments.”

Fourth Article to be deleted in view of the exchange of letters between President Truman and Mr. Attlee which has the effect of putting an end to this provision.

Fifth Article to be deleted and the following inserted:—

“5. Each of the three Governments will take measures so far as practicable to secure control and possession, by purchase or otherwise, of all deposits of uranium and thorium situated in areas comprising respectively the United States, its territories or possessions; the United Kingdom and its colonial dependencies; and Canada. They will also use every endeavour to acquire all supplies of uranium ores and concentrates and thorium minerals situated in other countries as may be agreed to be desirable. The three Governments will agree in each case whether the action referred to in the preceding sentence will be taken by one of them alone or by all three Governments or any two of them jointly.[”]

6. All supplies acquired under the provisions of the preceding paragraph (including those acquired by the Combined Development Trust) will be subject to allocation by the Combined Policy Committee and paid for by the Government to whom they are allocated. These allocations shall be made to any of the three Governments in such quantities as may be needed in the common interest for scientific research, military and humanitarian purposes. Such supplies as are not allocated for these purposes and are not already in the ownership of the Combined Development Trust shall be offered for sale to the Trust. The disposal of unallocated supplies, whether in the hands of the Trust or of any of the Governments, shall be determined by the Combined Policy Committee at a later date, in the light of the then existing conditions and on a fair and equitable basis.

7. The Combined Policy Committee will settle the policy to be followed in the mining and producing of uranium ores and concentrates and thorium minerals, and the Combined Development Trust will not be obliged to purchase supplies mined and produced otherwise than in accordance with policy thus laid down.

8. There shall be full and effective cooperation between the three Governments in regard to the exchange of information concerning atomic energy required for their respective programmes of atomic energy; development. This exchange will be implemented by arrangements approved from time to time by the Combined Policy Committee.

9. The Combined Policy Committee, already established and composed of six members, three from the United States, two from the United Kingdom, and one from Canada, shall carry out the policies set out in the present memorandum subject to the control of the respective Governments. To this end the Committee shall:—

(i) Review from time to time the general programme of work being carried out in the three countries;

(ii) Allocate materials in accordance with the principles set forth in the sixth paragraph above;

(iii) Settle any questions which may arise concerning the interpretation and application of arrangements regulating cooperation between the three Governments.”

(ii) the declaration of trust signed by president roosevelt and mr. churchill of 13th june, 1944³⁸

Preamble

First Paragraph

Add:	“and by . . . . . . . on behalf of the Government of Canada”
For:	“The Two Governments”
Read:	“The Three Governments”

Second Paragraph

Delete:

this paragraph

Third Paragraph

Delete:	this paragraph and substitute:—
	“Whereas it is in the common interest of the three Governments to ensure the acquisition of an adequate supply of uranium ores and concentrates and thorium minerals: and”

Fourth Paragraph

For:	“The Two Governments”
Read:	“The Three Governments”
For:	“control” substitute “secure”
For:	“uranium and thorium ore”
Substitute:	“uranium ores and concentrates and thorium minerals”

Fifth Paragraph

Delete:	this paragraph and substitute:
	“Whereas it has been agreed that the three Governments will use every endeavour to acquire all such supplies of uranium ores and concentrates and thorium minerals situated in territories outside their jurisdiction as may be agreed to be desirable.”

Sixth Paragraph

Delete:	“gaining control of the uranium and the supplies in certain areas outside the control of the two Governments and of other Governments of the Dominions and of India and of Burma”
Substitute:	“securing supplies of uranium ores and concentrates and thorium minerals”

Agreement

Clause 1 (2)

After the words “six persons”

Insert:	“three from the United States, two from the United Kingdom and one from Canada”
For:	“Quebec Agreement” substitute “three Governments”
Insert:	new sub-clause (3):
	“The Trust shall carry out its functions under the direction and guidance of, and as agent of, the Combined Policy Committee.”

Clause 2

Omit:	“gain control of and”
For:	“uranium and thorium” throughout this clause
Read:	“uranium ores and concentrates and thorium minerals”
Delete:	“supplies situated in certain areas other than areas under the jurisdiction of the two Governments and of the Governments of the two Dominions and of India and Burma”

Sub-Clause (e)

Delete:

“supplies”

Sub-Clause (e)

Delete:	“treatment and disposal of uranium and thorium”
Substitute:	“the concentration and disposal of”

Clauses 3

Sub-clause (1)

Delete:	“the Trust shall carry out its functions under the direction and guidance of the Combined Policy Committee and as its agent and”
For:	“all uranium and thorium and all uranium and thorium ores and supplies”
Substitute:	“all uranium ores and concentrates and thorium minerals”
For:	“the Two Governments”
Read:	“the Three Governments”

After “deal with” insert “only”

After sub-clause (1) insert two new sub-clauses:

“(2) The Trust is not obliged to acquire supplies mined and produced otherwise than in accordance with mining and production policy settled by the Combined Policy Committee.

(3) Supplies in the ownership of the Trust allocated by the Combined Policy Committee to any Government will be sold to that Government by the Trust.”

Re-number sub-clause (2) as sub-clause (4)

Clause 4

For:	“the Two Governments”
Read:	“the Three Governments”

Clause 7

Add at the end of clause: “and the Prime Minister for the time being of Canada”

Clause 8

Delete this clause and substitute:

“This agreement and Declaration of Trust shall remain in full force and effect from the date hereof until terminated by mutual consent on the request of any of the parties and shall be subject to revision or extension at any time by mutual consent.”

36. This document was considered at the Combined Policy Committee Meeting of April 15; for the minutes of that meeting, see p. 1227.
37. For text of the Quebec Agreement, see Treaties and Other International Acts Series (TIAS) No. 2993; United States Treaties and Other International Agreements, vol. 5, pt. 1, p. 1114.
38. For text, see Foreign Relations, 1944, vol. ii, p. 1026.