Office of the Historian

740.0011 P.W. (Peace)/8–1347: Telegram

The Acting Secretary of State to the Political Adviser in Japan (Atcheson)26

top secret
urgent
Washington, August 13, 1947—2 p.m.

318. Eyes only Atcheson and MacArthur. For your info, the status of Japanese peace treaty discussions is currently as follows:

1.
A. Replies to our July 11 suggestion of a conference of deputies and experts on August 19 have been received from the 10 Govts approached, [Page 490] which offered the following views on leading questions involved:
a.
Composition: All states consulted except Soviets indicated willingness attend an 11-power peace conference. Soviets took position Far Eastern Big Four possessed special interests postwar treatment of Japan, Council of Foreign Ministers had been organized particularly for preparatory work of drawing up peace treaties, and question of convening a conference to draw up Japanese treaty should therefore be provisionally examined by CFM.
b.
Date: France, Netherlands, and Philippines considered August 19 satisfactory date. Brit, Australia, New Zealand, Canada and India supported suggestion for an early conference but stated it would be difficult or impossible to attend on August 19. Soviets emphasized desirability of haste in convening CFM.
c.
Level of Representation: US proposal that conference initially be composed of deputies and experts accepted by France, Netherlands and Philippines. Canada reserved position. Chinese, Indian and New Zealand positions not clarified. Brit expressed view questions of policy and principle would have to be determined first at ministerial level before deputies and experts could usefully begin to operate. Australia also took this position and stated Australian Minister of External Affairs must represent Australia at any peace conference on Japan. Soviets proposed whole question of Japanese treaty be first considered by CFM.
d.
Place: No Govt expressed clear preference regarding site of suggested conference but several representatives have expressed preference for Washington because of presence here of Far Eastern experts attached to FEC. Chinese Ambassador urged preliminary or formal conference be held in China.
e.
Voting: Australia, Canada and Philippines expressly accepted American proposal voting at conference be by simple two-thirds majority. France accepted for initial conference with understanding voting procedures at a subsequent meeting of 11 Foreign Ministers to pass on draft would be determined at the time. New Zealand and India approved suggested abandonment FEC veto rights. Brit and Netherlands did not question US proposal for two-thirds voting system. China proposed decision by two-thirds majority including majority Far Eastern Big Four. Soviets gave no indication voting preferences beside proposal treaty be considered by CFM.
2.
Soviet answer viewed as counter-proposal rather than refusal, with some possibility Soviets may still accept 11-nation conference on which US Govt firmly determined, possibly in return for FEC voting procedure. It is therefore planned to dispatch note Soviet Embassy pointing out Cairo, Yalta and Potsdam agreements did not establish Four Power jurisdiction Japanese treaty; establishment of FEC constituted recognition primary interests 11 powers Japanese post-war treatment and peace settlement; US proposal for 11-nation conference accepted by other nine FEC nations; and it is therefore hoped Soviet Govt will indicate willingness attend 11 nation conference [Page 491] near future, conference to decide its own procedure; and dispatch identic notes other nine Govts enclosing copies Soviet reply of July 22, our reply thereto, and summary of views of ten Govts to our July 11 proposals.27
3.
Text of reply being sent to Soviets today follows:
[Here follows text of aide-mémoire of August 12 printed supra.]
4.
If Soviets do not reply within 2 weeks Secy will consider whether to despatch formal invitations 10 Govts inviting them to attend Japanese Peace Conference at Washington on September 8, each country to be represented by its Foreign Minister or a Deputy as it chooses and with conference to determine its own procedure.

Lovett
  1. Introductory paragraph and paragraphs numbered 1, 2, and 4 repeated to Chiefs of Mission (eyes only) at 10 capitals of Far Eastern Commission members (1592 to Moscow, 3471 to London, 3007 to Paris, 408 to The Hague, 139 to Ottawa, 189 to Canberra, 124 to Wellington, 503 to New Delhi, 908 to Manila, and 1010 to Nanking).↩
  2. The other nine FEC members were circularized by note dated August 14.↩