Foreign Relations of the United States, 1947, The British Commonwealth; Europe, Volume III

853B.7962/6–347

The Secretary of State to the Ambassador-Designate to Portugal ( Wiley ) in New York

secret

Washington , June 3, 1947.

Sir: The United States Government is now prepared to open discussions with the Portuguese Government for the purpose of negotiating a new agreement under which United States military aircraft serving American forces of occupation abroad would enjoy transit rights at the Lagens airfield in the Azores for the duration of the occupation of Germany and Japan. The Department wishes you to initiate negotiations to that end as soon as you think it wise to do so after your arrival in Lisbon. The essential elements of the proposal to be made to the Portuguese Government are contained in the attached draft Note for delivery by you to the Portuguese Foreign Minister at an early appropriate opportunity.

The War Department has designated Brigadier General A.W. Kissner as military adviser to assist you in these negotiations. General Kissner is continuing his present duties in Washington, but is prepared to proceed to Lisbon promptly as soon as you indicate the need for his presence there. General Kissner’s instructions authorize him to speak for the War Department except in cases where a major change in existing War Department policy is involved. Discussions have been held in Washington with General Kissner and other representatives of the War Department. They have agreed to the presentation of the objectives in the form of the attached draft Note. Depending on the development of your discussions with the Portuguese Government, you will of course be free to recommend changes, having in mind the objectives of the War Department with which General Kissner is familiar.

You will note that the draft proposals contain no quid pro quo on the part of the United States Government and it is not intended that there should be given any form of political assurance such as might be suggested by the Portuguese Government in exchange for the concession of military base rights. The War Department is, however, prepared to make certain commitments in connection with assistance in the training of Portuguese military and civilian personnel, in making available surplus military aircraft, in the construction of certain facilities and in the assumption of certain maintenance responsibilities. General Kissner will inform you of these in detail.

In view of past experience, it is felt that the Portuguese Government would be unwilling to agree to a mere extension of the time limitation contained in the May 30, 1946, agreement.¹ It is therefore considered important that, although the purpose of the new agreement is substantially the continuation of present facilities and privileges, the Portuguese Government should be given every indication that it is intended to negotiate an entirely new agreement to take effect upon the expiration of the May 30 agreement.

As to the duration of the new agreement, it should be for the period of occupation of Germany and Japan, since the entire premise of the agreement is the need for the facilities to which the occupation gives rise. If that is not obtainable, provision for termination under certain conditions after a lapse of five years, as in Paragraph 12 of the United States-Iceland Agreement of October 7, 1946,² might then be sought. A copy of Despatch No. 713 of October 7, 1946,³ from the American Legation at Reykjavik, containing the text of the agreement just mentioned, is enclosed.

Discussions with the Portuguese Government last year on long term arrangements for joint use and maintenance of military base facilities in the Azores were discontinued early in September 1946. The Portuguese Government showed great interest in the matter but attached conditions which were unacceptable to the United States Government. At the conclusion of the discussions, the Portuguese Government was informed that they were being recessed rather than terminated. In the light of the interest shown by the Portuguese Government, you may, if you think it desirable to do so, refer to those discussions and emphasize our continuing interest in coming to an agreement of that nature. The uncertainty of present world conditions suggests, however, the desirability of postponing further discussions along those lines, which could be resumed at a later date at the initiative of either Government, and of confining present arrangements to the immediate need for transit facilities to service occupation forces in Germany and Japan.

The British Embassy in Washington was informed on May 22, 1947⁴ of the intention to open these negotiations and was assured that the British Government would be kept informed of their progress. Emphasis was laid on the necessity of secrecy at this stage of the negotiations. The hope was expressed to the British Embassy in Washington that the British Ambassador at Lisbon would be given instructions enabling him to lend prompt support to your negotiations, should that be necessary. You should keep the British Ambassador at Lisbon⁵ informed of the progress of the negotiations. A copy of the Department’s note of May 22, 1947 to the British Embassy in Washington is enclosed.

Very truly yours,

For the Secretary of State:

John Hickerson

Acting Director Office of European Affairs

[Enclosure]

Draft Note From the American Ambassador to the Portuguese Minister for Foreign Affairs ( Caeiro da Mata )

Excellency: I have the honor to refer to the negotiations which were conducted last year between the Governments of the United States and Portugal with respect to the use of facilities in the Azores Islands for the transit of United States aircraft serving the forces of occupation in Germany and Japan.

The Government of Portugal recognized the need of the United States Government for these facilities and, in an agreement of May 30, 1946, authorized for a period of eighteen months the passage in transit through Lagens airfield of United States aircraft serving American occupation forces. For its part, the United States Government has conscientiously carried out its obligations under the spirit and letter of that agreement. This authorization expires on December 2, 1947. However, the responsibilities of the United States to the other members of the United Nations and, in fact, to all nations of the world for the occupation of the ex-enemy nations still continue. The United States as one of the occupying powers must therefore continue to look to friendly governments for such cooperation as they can give in assisting the United States and the other occupying powers in carrying out their responsibilities for the occupation of Germany and Japan.

The facilities which the United States Government has enjoyed in the Azores have been a vital link in the line of communications with the American forces of occupation, and its need for such facilities will still exist at the date of expiration of the agreement of May 30, 1946. In view of the consistently cooperative and friendly attitude of the Government of Portugal in providing essential facilities in the Azores during the war and in recognizing the need for transit facilities during the subsequent period of the occupation of Germany and Japan, the Government of the United States is encouraged to anticipate a renewed cooperation of the Portuguese Government in providing for the continuation of facilities in the Azores after December 2, 1947, for the transit of the United States aircraft serving the forces of occupation. The need for these facilities has been recognized in the agreement of May 30, 1946, as a clear and unavoidable consequence of the responsibilities of the United States Government as one of the occupying powers, and the United States Government feels certain that it can depend upon the Government of Portugal to provide this assistance so essential to the successful discharge by the United States of its responsibilities in the occupation of Germany and Japan.

The United States Government would therefore appreciate an early opportunity to negotiate a new agreement to meet the foregoing requirements and to take effect upon the expiration of the agreement of May 30, 1946, which will include the following essential elements:

1. Lagens airfield on Terceira Island in the Azores to be available for regular and scheduled passage in transit of United States military aircraft serving the forces of occupation in Germany and Japan.

2. The United States to maintain such American personnel, facilities and installations at Lagens airfield as are necessary for controlling, maintaining and serving United States military aircraft.

3. Santa Maria airfield to be available to United States military aircraft for emergency use in the event of adverse weather conditions at Lagens.

4. A mixed commission to make periodic inspections of the two airports and to advise the Portuguese Government on any improvement of conditions, services and equipment necessary to maintain both airfields at a high standard.

1. For text of Agreement, effected by exchange of notes May 30, 1946, see Department of State Treaties and Other International Acts Series (TIAS) No. 2345; United States Treaties and Other International Agreements (UST), vol. ii, (pt. 2), p. 2201.
2. For text of Agreement, effected by exchange of notes October 7, 1946, see Department of State Treaties and Other International Acts Series (TIAS) No. 1566, or 61 Stat. (pt. 3) 2426; for documentation on the negotiation of the Agreement, see Department of State files 859A.20 and 501AA.
3. Not printed.
4. Note of May 22 not printed.
5. Sir Nigel B. Ronald.