Foreign Relations of the United States, 1947, Eastern Europe; The Soviet Union, Volume IV

FW 701.4160e/6–1647

Memorandum by the Director of the Office of European Affairs (Matthews)¹

secret

[Washington,] June 23, 1947.

The British have informed us of their intention to raise the question in Moscow of the establishment of direct diplomatic relations with the Ukrainian SSR and have requested the observations of this Government thereon. There follows a list of the principal advantages and disadvantages to this Government in following a similar course:

advantages

1. The establishment of direct diplomatic relations with the Ukraine would give this Government a valuable listening post in one of the most important Republics of the Soviet Union. Internal security regulations in the USSR have recently been tightened and increased barriers placed between contacts of Soviet citizens with foreigners. Our Mission in Moscow is finding it increasingly difficult to arrange for travel within the Soviet Union. A mission in Kiev would enable at least some additional contacts to be made and would provide an excuse for travel between Moscow and the Ukraine. Apart from contacts much information could be obtained merely from observation. For example, weather reports would be useful to the Department of Agriculture and it would be possible to obtain information concerning the work of reconstruction, industrial development, etc. even though our mission were subjected to close surveillance.

2. We have had indications that the establishment of diplomatic relations with the Ukrainian Government would have to take place before an application to open a consulate in Odessa could be considered. We have long desired to open a consulate in that port and it is likely that the Soviet Government will shortly insist upon the withdrawal of our Naval representative who is now there.

3. We have a pressing need throughout the world for officers who have had experience in the Soviet Union. We are now beginning to give special language training to junior officers to be followed by assignments to the USSR. Due to the critical housing shortage in Moscow it will not be possible to send a sufficient number of officers for service there or in Leningrad and the establishment of a mission in Kiev would be of great assistance in the carrying out of this training program.

4. The Ukrainian Government already enjoys the full privileges of membership in the United Nations and its subsidiary organizations as well as in conferences organized under its auspices. Ukrainian officials are assigned to the Soviet Embassy in Washington and the Ukrainian Government therefore enjoys a number of advantages without according any similar advantages to the United States.

5. There has long been a strong autonomous feeling in the Ukraine and in times of stress dissatisfaction with the General Government would probably be more evident in Kiev than in any other capital. The Polish Government has already received permission to open a consulate at Kiev and it is probable that if the British are allowed to establish diplomatic relations, similar permission will be given to other states particularly those bordering on the Ukraine. It may be possible to obtain valuable information from other diplomatic missions there.

disadvantages

1. The Ukrainian SSR is not an independent sovereign state and does not even have a very large degree of autonomy. The agreement to admit the Ukraine into the United Nations was made under the pressure of war-time necessity. To establish diplomatic relations with the Ukraine would assist the Soviet Government in its maneuver to have the fiction of the autonomy of the Soviet Republics accepted by foreign governments. While we are now well committed to separate Ukrainian participation in any conference organized under the auspices of the United Nations, the establishment of diplomatic relations would preclude us from objecting to Ukrainian participation in any non-United Nations conference on the ground that it was not a sovereign state.

2. Separate recognition of the Ukraine would increase the complexity of our relations with the Soviet Union and would give the Soviet Government increased maneuverability in advancing its own special interests in international affairs. For example, the Soviet Government could arrange for the Ukrainian Mission in Washington to take a strong position on a given question without involving the Soviet Government in direct responsibility therefor.

3. Establishment of direct relations would provide the Soviet Government with an additional propaganda channel and the mere fact of recognition would lead many Americans to accept the fiction of the autonomy of the Soviet Republics.

recommendation

It is recommended that we reserve our decision on this matter until we have had an opportunity to see whether or not the British are successful in establishing direct relations and what benefits they receive therefrom. It is recommended that the attached aide-mémoire be sent to the British Embassy and that the attached telegram be sent to Moscow informing the Ambassador of the Department’s decision.²

H. F[reeman] M[atthews]

1. This memorandum, drafted by Llewellyn E. Thompson, chief of the Division of Eastern European Affairs, was directed to Under Secretary of State Acheson. Earlier consideration of the establishment of direct diplomatic relations with the Ukrainian Soviet Socialist Republic was briefly touched upon in the memorandum of February 25, p. 536.
2. No attachments found with the file copy.