740.0011 EW (Peace)/1–1846
Memorandum by the Assistant Secretary of State (Dunn)22
Desirability of a General International Treaty With Austria
It is believed that at an early date the United States should attempt to get British, Soviet, and French agreement to the negotiation of a general treaty with Austria along the lines of the peace treaties. Since our position is that Austria has a status comparable to that of a liberated country, a treaty of peace would not be appropriate, but the document might be called, for example, “Treaty for the Reestahlishment of Austrian Independence”. The United States, in any case, [Page 297] never recognized the Nazi seizure of Austria and has not been at war with Austria.
The treaty should be drafted by the representatives of the four occupying powers, but it would be desirable that in addition to these powers it be submitted to the other United Nations and in particular that it be signed by Yugoslavia and Czechoslovakia, as this would settle definitely the question of the frontiers between these countries and Austria. The drafting of such a treaty could be undertaken by the Deputies on the Council of Foreign Ministers following the drafting of the peace treaties. The treaty could contain provision for such temporary Allied control or supervision as might be considered necessary, or, alternatively, this could be covered by a separate civil affairs agreement.
The principal reasons for the conclusion of such a treaty are the following:
- 1.
- In the interests of establishing Austrian independence and economic rehabilitation, it is necessary to end the Allied occupation at the earliest possible date. Apart from the disastrous economic effects of the occupation upon Austrian economy, the continued presence of Soviet troops in Austria would provide an excuse for Soviet troops to remain in Hungary to maintain lines of communication.
- 2.
- Termination of Allied military control would encourage the Austrians to work out their own salvation and facilitate the reestablishment, at least to some extent, of the normal channels of trade both within Austria and with foreign countries.
- 3.
- It would enable a definite determination of Austria’s frontiers to be made. Until this is done, relations between Austria and her neighbors will be prejudiced by agitation in those countries, as well as in Austria itself, for territorial adjustments.
- 4.
- The conclusion of the Italian treaty appears likely to result in a disappointment to Austrian aspirations in the South Tyrol. It would be well to offset this by the encouragement which the conclusion of a general treaty would bring to the Austrian people.
- Moreover, if peace treaties are concluded with the satellite states and no treaty is negotiated covering Austria, the tendency will be to continue to associate Austria and Germany as the only two countries remaining under Allied control. This would run counter to our objective of establishing Austrian independence and is in contradiction with our recognition of a freely elected Austrian Government.
- 5.
- The treaty would also provide a convenient means of imposing upon Austria the same obligations as are contemplated in the peace treaties with the satellite states relating to freedom of religion, et cetera. Moreover, if military restrictions are placed upon Austria’s neighbors, it would seem advisable to place similar limitations upon Austrian armaments by treaty.
- Addressed to the Secretary and to the Counselor of the Department, Mr. Benjamin V. Cohen.↩