Foreign Relations of the United States, 1947, Council of Foreign Ministers; Germany and Austria, Volume II

740.00119 Council/4–247: Telegram

The Secretary of State to the Acting Secretary of State

confidential
us urgent

Moscow, April 2, 1947—11 p. m.

1163. Delsec 1382. For the President, Vandenberg, Connally and Acheson from Marshall. Nineteenth regular session CFM, 2 April, Bevin presiding, initially heard Molotov propose agreement in principle that German provisional political organization be established as democratic government on basis of democratic elections. Bevin pointed out that any agreement reached on political unity must presuppose the existence of economic unity. The CFM agreed unanimously, Bidault stated that provisional constitution should be prepared by representatives of the Laender State Governments, approved by the Allied Control Council, and then ratified by German people.⁷ Marshall proposed that the ACC be instructed to establish a plan for a provisional German government representative of the Laender which would direct and coordinate central departments, initiate framing of the permanent constitution, and recommend pattern of permanent territorial organization. In addition he asked that ACC insure basic human rights and freedoms and guarantee of autonomous power of both state and central governments and finally to define relationships between ACC and provisional government and between zone commanders and provisional government.⁸

Molotov objected to the US plan for what he called a “federalized Germany” and submitted two basic points for consideration as follows: “1. Germany’s political structure must have a democratic character and the organs of power must be established on the basis of democratic elections, similar to what was provided for by the Constitution of Weimar, but the rights and duties of the president being limited to those exercised by a constitutional head of state without independent executive authority. 2. As a first step towards forming a provisional German government, central German administrative departments dealing with finance, industry, transport, communications and foreign trade shall be instituted in accordance with the Potsdam decision.”

He supported strongly a constitution based on the Weimar plan as already approved by German people, but with presidential powers greatly reduced.⁹

At this point Bevin proposed that the stages of procedure be considered rather than basic principles and suggested the following:

• “A. Central administrations shall be established to discharge the immediate tasks most necessary to ensure the economic unity of Germany.
• B. A German representative body shall be nominated at an early date to advise the Control Council on the general aspects of the work of the central administrations and on the number and size of the Laender, and to work out, within the framework of principles agreed by the Control Council on the basis of paragraphs one and two (not quoted in this message), the details of a provisional constitution.
• C. The provisional constitution and any recommendations of this advisory body shall be submitted to the Control Council for its approval and in accordance with the provisional constitution as approved by the Control Council elections shall be held and a provisional government formed to operate the provisional constitution.
• D. When due trial has been made of the provisional constitution it will be amended after taking into account the recommendations of the provisional government and ratified by the German people and approved by the Control Council. At this stage a new government will be duly elected.”

Marshall accepted British proposal subject to reservation that the US was not yet convinced that a provisional constitution was necessary or desirable. He felt that a charter to the German people should be issued by ACC so that the Germans could devote themselves to the adoption of a permanent constitution and the provisional government could be gotten under way with a minimum of delay.¹⁰

Molotov agreed in principle with Bevin’s proposal on the four stages, but disagreed with Marshall’s proposal that the head of Laender States form the provisional government. (At this point a series of explosions were heard and Molotov interrupted the interpreter to explain that his people were probably blowing up the ice in the river. Bevin quickly rejoined with, “I thought it was the Economic Unity Committee upstairs”, to which Molotov replied, “They haven’t reached that stage yet”.)

Molotov held out strongly for inclusion in the German Advisory Council of representatives of democratic parties, trade unions and other anti-Nazi organizations. Both Bevin and Marshall argued against this proposal, but were willing to have the German advisory body consult such organizations. Bidault remained non-committal.

After considerable discussions centering around representation of the democratic parties and trade unions on the German advisory body, it was agreed to refer the four positions to the Coordination Committee in the light of comments made at today’s meeting to draft, insofar as possible, an agreed set of plans and procedures for German constitution and organization of the German government.

Repeated to London as 121, Berlin as 206. (Dept please pass to Vienna as 22, to Rome as 19 and to Paris as 98.)

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7. For the text of Foreign Minister Bidault’s statement, which was circulated to the Council as document CFM(47) (M)96, April 2, 1947, see Déclarations de Bidault, pp. 31–33.
8. For the text of Secretary Marshall’s statement on the proposed directive to the Allied Control Council for Germany summarized here, see Germany 1947–1949, p. 190, or Department of State Bulletin, April 13, 1947, p. 651.
9. The statements made by Foreign Minister Molotov at various points of this meeting of the Council are quoted and paraphrased, in the form of a single continuous statement, in Molotov, Problems of Foreign Policy, pp. 410–417.
10. For the text of Secretary Marshall’s statements commenting upon the British and Soviet proposals made at this meeting of the Council, see Germany 1947–1949, pp. 190–192, or Department of State Bulletin, April 13, 1947, pp. 651–652.