Foreign Relations of the United States, 1946, The Near East and Africa, Volume VII

861.24591/3–546: Telegram

The Secretary of State to the Chargé in the Soviet Union (Kennan)

secret
us urgent   niact

Washington, March 5, 1946—7 p.m.

385. Please deliver immediately the following note to Mr. Molotov:

“I have the honor to inform your Excellency that I have been instructed by my Government to deliver to the Government of the Soviet Union the following message:

The Government of the United States has been informed that the Government of the Soviet Union has decided to retain Soviet troops in Iran after March 2, 1946, that this decision was taken without the consent of the Iranian Government, and that Soviet troops continue to remain on Iranian territory in spite of the protests of the Iranian Government.

It will be recalled that in reply to a note addressed on November 24, 1945 by the Government of the United States to the Government of the Soviet Union¹ suggesting the immediate withdrawal of all foreign troops from Iran, the Soviet Government on November 29 stated that the period of the stationing of Soviet troops in Iran was governed by the Anglo-Soviet-Iranian Treaty of January 29, 1942. The Government of the United States understood from this statement that it was the intention of the Government of the Soviet Union that all Soviet troops would be withdrawn from Iran not later than March 2, 1946, six months after the date of the signing of the instrument of surrender with Japan on September 2, 1945. This understanding was based upon Article Five of the Tripartite Treaty referred to above which states:

‘The forces of the Allied Powers shall be withdrawn from Iranian territory not later than six months after all hostilities between the Allied Powers and Germany and her associates have been suspended by the conclusion of an armistice or armistices, or on the conclusion of peace between them, whichever date is the earlier.’

So far as the Government of the United States is aware, this commitment was not questioned at the recent meeting of the Security Council in London which agreed that the Soviet Union and Iran should seek a solution of their differences by direct negotiation.

The decision of the Soviet Government to retain Soviet troops in Iran beyond the period stipulated by the Tripartite Treaty has created a situation with regard to which the Government of the United States, as a member of the United Nations and as a party to the Declaration Regarding Iran dated December 1, 1943, can not remain indifferent. That Declaration announced to the world that the Governments of the United States, the Union of Soviet Socialist Republics and the United Kingdom were ‘at one with the Government of Iran in their desire for the maintenance of the independence, sovereignty and territorial integrity of Iran’. In the opinion of the Government of the United States, the maintenance of troops in Iranian territory by any one of the three signatories to that Declaration, without the consent and against the wishes of the Government of Iran, is contrary to the assurances contained in that Declaration. Furthermore it was generally accepted during the various discussions which took place at the meeting of the Security Council in London that the retention by a member of the United Nations of its troops in the territory of a country which is also a member of the United Nations, without the consent of the Government of that country, is not in accordance with the principles of the United Nations and that the withdrawal of such troops should not be made contingent upon other issues.

The Government of the United States, in the spirit of the friendly association which developed between the United States and the Soviet Union in the successful effort against the common enemy and as a fellow member of the United Nations, expresses the earnest hope that the Government of the Soviet Union will do its part, by withdrawing immediately all Soviet forces from the territory of Iran, to promote the international confidence which is necessary for peaceful progress among the peoples of all nations.

The Government of the United States trusts that the Government of the Soviet Union, no less than itself, appreciates the heavy responsibility resting upon the great powers under the Charter to observe their obligations and to respect the sovereign rights of other states.

The Government of the United States requests that it be promptly advised of the decision of the Government of the Soviet Union which it hopes will be in accord with the views herein expressed.”²

Sent to Moscow, repeated to London and Tehran.

Byrnes

1. See telegram 2386, November 23, 1945, to Moscow, Foreign Relations, 1945, vol. viii, p. 448.
2. In telegrams 397 to Moscow, 173 to Tehran, and 2053 to London, respectively, the Department on March 6 authorized the conveying of the substance of the United States note to Prime Minister Qavam at Moscow, and to appropriate Iranian and British officials (861.24591/3–646).