Policy Planning Staff Files: Lot 64 D 563: Box
20029: Germany
To define the course of action to be taken by the United States at a possible
meeting of the Council of Foreign Ministers in the near future to discuss
the problem of Germany.
[Sub-Annex]
Paper Prepared by the Policy Planning Staff
secret
[
Washington
,] November 12, 1948.
A Program for Germany (Program A)4
outline of the program
- 1.
- This paper sets forth a program for a new interim arrangement with
respect to the government of Germany, for possible submission by the
Secretary of State to a new meeting of the Council of Foreign
Ministers, or for promulgation in any other manner as a U.S.
position.
- 2.
- The arrangement envisages, under proper safeguards:
- a new control machinery agreement to be worked out by
CFM deputies, to govern
relationships among the Allies, and between them and the
Germans, pending the final peace settlement;
- the early election and establishment of a provisional
German government;
- the simultaneous termination of military government
throughout all of Germany; and
- the withdrawal of all occupying forces to specified
garrison areas.
- 3.
- The safeguards would include:
- free elections under satisfactory supervision;
- safeguards against any misuse of German police;
- provision for complete disarmament and demilitarization of
Germany;
- avoidance of any economic arrangements which could give
the Russians undue influence over the German government or
constitute an undue burden on Germany;
- timing or phasing of the successive stages in their proper
order, for example, forces would not be withdrawn until a
duly elected German government was prepared to function;
and
- effective elimination of the veto by any individual
power.
- 4.
- This arrangement would be intended to function until the
conclusion of a peace treaty.
- 5.
- The program is presented here in five parts:
- I.
- The Underlying Considerations
- II.
- The Proposal for a Program for Germany as It Would Be
Initially Advanced
- III.
- Notes on the Proposal
- IV.
- The U.S. Position on Other Subjects Apt to Come Up for
Discussion
- V.
- Presentation and Tactics
i. underlying considerations
- 1.
- The program has been drawn up for use in the event that this
Government should decide to make clear at this time the terms on
which we would be prepared to agree to an interim settlement
envisaging the establishment of a German government with authority
over all of Germany and to the withdrawal of forces from the major
part of German territory.
- 2.
- If it is not our desire to come forward with such a program at
this time, this paper would have no validity. If, however, we do desire to make such a proposal, it would
apparently have to be essentially along the lines of the one set
forth in this paper.
- 3.
- On the theory that we should not put forward proposals which we
would not ourselves be prepared to accept, this program has been so
devised that it could, in the opinion of the working group, be
implemented to the overall benefit of U. S. interests.
- 4.
- The program has also been devised on the theory that it must
constitute a genuine and sincere bid for agreement. Every effort has
therefore been made to meet legitimate Russian interests and
requirements to a reasonable degree.
- 5.
- On the other hand, it must be recognized that there is no serious
possibility of its acceptance by the Russians in
toto at this time. It is drawn up, therefore, with the
thought that it should constitute a starting point for what will
probably be long and difficult negotiations. These negotiations
would presumably take place for the most part among CFM deputies. These negotiations would
not necessarily have to have any specified time limit. Their primary
purpose would be to keep things flexible for an eventual agreement
on Germany when and if the Russians finally decide that it is to
their interests to have one.
- 6.
- This program is not designed to constitute or to replace a treaty
of peace. It is specifically intended as another interim arrangement
for the governing of Germany, to replace that worked out at
Potsdam.
- 7.
- In drafting this program it has been taken as axiomatic, in the
light of the experience of the past few years, that the four Allied
powers cannot be expected to collaborate effectively in the actual
government [Page 1327] of Germany or
in the exercise of any control authority in which their failure to
agree would hinder the effective administration of the country. The
project is therefore so devised as to call for a minimum of
four-power collaboration. And an effort has been made to restrict
four-power control powers to a negative, rather than a positive
basis (i.e., the Germans can do everything which the four powers do
not agree unanimously that they should not do.) This means, in
contradistinction to the concepts governing our proposals at
previous CFM meetings, that the
unification of Germany would have to be accomplished by the German
government, and that such matters as the establishment of a common
currency, the dropping of zonal economic barriers, the drawing up of
a common export-import plan, etc., would not have to be discussed
among the four powers.
- 8.
- A second basic point of departure has been the belief that no
unification of Germany is possible as long as zonal boundaries are
maintained and that the boundary between the Soviet and other zones
probably will not disappear as long as Russian troops are stationed
in the Soviet zone.
- 9.
- These two considerations (5 and 6) have made it necessary to
consider the immediate establishment of a German government (to
replace military government), to be followed by an early evacuation
of forces from all but specified garrison areas. These two factors
are basic, and are logically linked together. If there is to be a
four-power arrangement for Germany, some way or other a situation
must be created which will eliminate the Russian veto. If troops are
not withdrawn to specified garrison areas, zonal barriers will
probably remain in effect, and the prospects for any successful
economic unification of the country will be accordingly diminished.
Again, in this case, the Russians could sabotage the arrangements by
making economic unity, and accordingly economic recovery,
impossible. If, therefore, either of these major elements should,
for any reason, be eliminated, then the whole program should be
discarded; for without both of them, it could become a very
dangerous thing.
- 10.
- The same applies, of course, to the safeguards which are imbedded
in the proposals and which are designed to assure against the
“capture” and exploitation of Germany by Russia, as well as against
a, revival of German aggression. The main ones of these are:
- (a)
- the electoral arrangements, providing for free and
supervised elections;
- (b)
- the arrangements to guard against misuse of German police
units;
- (c)
- the provision for complete disarmament and
demilitarization of Germany;
- (d)
- our refusal to accede to economic arrangements which would
give the Russians undue influence over a German government
or constitute an undue burden on Germany.
- (e)
- the timing of the successive stages of realization, under
which, for example, forces would not be withdrawn until a
duly elected German government was in office and prepared to
function.
-
- If any of these safeguards cannot be basically assured or replaced
with others which would have the same effect, then again the whole
program should be reexamined.
- 11.
- For these reasons the plan should be specifically presented as an
integral program, the various component parts of which must be
considered in relation to each other.
- 12.
- The sections on government and Allied control constitute the
essence of the attached program. They are formulated with a view to
adaptation to whatever conditions exist at the time of CFM discussions. If a CFM is held late this year or early in
1949, the deliberations of the Bonn Constituent Assembly will be
well advanced, or possibly a western German government with an
eastern zone counter-part may already be in existence. The proposed
Constituent Assembly for all of Germany elected by free vote would
be likely to adopt a governmental system not far different from that
devised for western Germany at Bonn by the constituent
representatives of the majority of the total German
population.
- 13.
- The proposed governmental arrangements are all drawn up on the
theory that anti-communist forces can probably win a working
majority in any reasonably free national election at this time and
hold it for the foreseeable future, in the absence of actual armed
pressure from Soviet or German communist elements. This is a theory
which cannot be demonstrated in advance. The danger that it might
prove incorrect must therefore be considered as a calculated risk.
It is assumed, for purposes of this paper, that this risk is an
acceptable one, from our standpoint. This is a vital factor, for
only if we are prepared to rely on this probability can we avoid the
necessity of strong and continuing controls by the western powers
over the working of a German government. And if such controls were
to be retained, then it would plainly be preferable to carry on with
the existing western German arrangements than to attempt to work out
any device whereby we would try to exercise this control function in
collaboration with the Russians. The reliance on the ability of the
Germans to elect and maintain a government capable of resisting
communist pressures is therefore basic to this program. If this is
not accepted as a strong likelihood, then again the whole program is
unworkable and should be abandoned.
- 14.
- The disarmament program plays an important part in the basic
concept of this program. In the light of east–west differences and
of communist tactics, the disarmament problem becomes one of
preventing not only renewed German aggression but also any
connivance by either side with the Germans to permit rearmament
against the wishes [Page 1329] and
the interests of the other. For that reason, and to simplify the
problem of control, it is recommended that disarmament and
demilitarization be sweeping and complete. On the other hand, while
it is recognized that there will have to be certain prohibited
industries and activities, the identification of which would have to
constitute part of any interim settlement along the lines of this
program, the idea of any general restrictions on the level of
industry is rejected, as well as anything in the nature of a limited
functioning of individual branches of activities under four-power
control with individual veto. This accords with the principle,
mentioned above, that we should avoid everything that would call for
continued, day-to-day collaboration with the Russians in control
arrangements of a positive nature. In general, to meet this
principle, the older drafts of a disarmament and demilitarization
treaty5 require
extensive revision. (Work is now in progress on this revision.) On
the other hand, the idea of our continuing to offer to conclude such
a treaty is considered sound, and, in fact, indispensable to the
present program.
- 15.
- The proposal for the withdrawal of forces to specific garrison
areas is a compromise between the desire to get Russian forces out
of Germany entirely and the necessity of keeping U.S. forces there
to meet the wishes and security requirements of the western European
allies. That the Soviet forces must be required to leave the Soviet
zone as a whole, and that they must be placed in a position where
they cannot exercise any influence on civil affairs, is clear. On
the other hand, it is unlikely that the French could be brought to
consent either to the departure of U.S. troops from Germany or to
any arrangement which would call upon Allied forces to get out of
the Rhineland. If western forces remain in their zones, Russian
forces will remain in theirs. The withdrawal of forces to garrison
areas therefore appears to be the best compromise. At the same time,
the provision that these garrison areas shall be, in the case of
powers non-contiguous to Germany, in the neighborhood of seaport
towns, is designed to make possible the further requirement that the
Russian troops, like those of the U.S. and U.K., be supplied by sea
and air, and in this way to deprive the U.S.S.R. of the
justification for the maintenance of armed forces in Poland.
- 16.
- The Russians, who view economic matters almost solely in their
political connotations, will seek some means whereby they can gain,
through these arrangements, an economic hold over Germany which will
permit them later to exert political pressure on a German
government. The main one of these devices will of course be the
demand [Page 1330] for reparations
beyond any reasonable capacity of the Germans to pay. While this and
similar attempts must be rejected, it is recognized that the
Russians probably deserve to have some assurance—particularly if
Germany is to be left free to join ERP—that German trade will not be oriented exclusively
to the west. Since the initiative in raising this question should
come from the Russians, nothing is said on this subject in the
initial U.S. proposal itself. However, allowance is made for this
requirement in the recommendation that a fair share of German
foreign trade would be available for the east.
- 17.
- With respect to ERP itself, this
is not mentioned in the draft proposal, because it is considered
that a provisional German authority, with power to control Germany’s
foreign relations and foreign trade, would have no choice but to
participate in ERP, and would be at
liberty to do so in the absence of any special restrictions. We
would therefore leave it to the Russians to raise this subject if
they so wished. We would, however, accept no arrangements which
would inhibit the Germans from participating in ERP. To do so would place Germany
economically at the mercy of Russia and would defeat the purposes of
this program.
- 18.
- A word of clarification is in order as to the relationship of this
program to the present western German arrangements. The program
envisages an adaptation by common agreement of the London decisions
to which the U.S. is committed. It has heretofore been thought that
through the intensified development of the western German
arrangements agreed last June we would be able to exert such
pressure on the eastern zone of Germany that eventually we would be
able to force the Russians to permit the eastern zone to become a
part of the western German arrangements. The present program is
based on the belief that the Berlin situation, the desirability of
combatting Soviet propaganda about withdrawal of forces, and the
unlikelihood of any helpful Russian participation in four-power
control make desirable a somewhat modified approach.
- 19.
- This program embraces the essential principles of the London
program. The latter’s objective of returning authority to the
Germans would be accelerated with a view to reducing Soviet
interference and this purpose would be furthered in the proposed
troop withdrawals which would recognize the fact that we cannot
expect of four-power collaboration the same things that we can
expect of three-power collaboration. On the other hand, the
guarantees against German disarmament would gain force by acceptance
on a four-power basis. While it can be hoped that we might obtain
British and French acquiescence to the plan as a development of the
London program and as representing no abandonment of the initiative
we have acquired with respect to the major part of Germany under
that program, our proposals [Page 1331] would be presented in the CFM as a new program standing by itself in order to
obviate raising an unnecessary and undesirable prestige factor which
will militate strongly against Soviet acceptance.
- 20.
- The proposal of this program, based as it is on an effort to get
rid of the sharp line of division through central Germany and the
resulting dangers connected with the status of Berlin, would not be
logical unless it went hand in hand with a parallel effort to bring
about the evacuation of Austria.
ii. a program for germany
6
German Government
1. A constitutional government for all of Germany should be established
as soon as possible.
2. The four occupying powers shall authorize the Ministers-president of
the sixteen German Laender (states) and the Lord
Mayor of Berlin to convoke a constituent assembly for the whole of
Germany. Members of the assembly shall be chosen by popular election in
proportion to the population of the respective Laender. In addition, two representatives from each Land (state) and from Berlin shall at the same
time be chosen by popular vote to constitute a Laenderrat (senate) which shall participate in the constituent
assembly. The general election shall be held throughout Germany within
[90] days of the conclusion of CFM
agreement, provided the International Commission hereinafter mentioned
approves.
3. All political parties at present authorized in any zone should be
permitted to offer candidates throughout Germany. A system of UN supervision and inspection shall be
established and maintained uniformly in all electoral districts
throughout Germany to ensure that all authorized political parties may
operate freely and that elections are held by universal equal and direct
suffrage, and by secret ballot. Complete freedom of speech, assembly,
and communication, and non-discrimination in the use of all media of
information for electoral purposes shall be guaranteed. Zonal boundaries
shall be eliminated as political barriers, and freedom of movement for
persons and ideas shall be assured throughout Germany. New elections for
local and Land authorities throughout Germany
shall also be held at or about the same time under the same
supervision.
4.(a) To administer the system of supervision and
inspection for free elections, an International Commission, with
appropriate staff, shall be established under United Nations auspices
immediately following the conclusion of CFM agreement, and shall commence to function at least [60]
days prior to the date of the general elections. The [Page 1332] Commission shall have authority to
make recommendations which will be implemented by the Four Military
Governors unless disapproved by them unanimously. The Commission shall
appoint a Central Police Director for Germany as a whole who (with
appropriate staff) shall have direct control over all German police
units for the maintenance of law and order and the exercise of police
power in an entirely impartial manner completely divorced from political
purposes. This Director shall not be a German, nor a national of any one
of the occupying powers, and he shall select under the same limitations
of nationality a Police Commissioner, responsible to himself, for each
Land.
(b) Within [one] week from the date of designation
of the Central Police Director, the Military Governors of the four zones
shall furnish him complete information regarding all German police
forces and other German armed units within their respective zones. They
will also comply promptly with any requests he may make for supplemental
information on this subject.
(c) After the Central Police Director has assumed
charge of police affairs, no person in Germany other than members of the
occupying forces shall be permitted to bear arms or conduct any
activities of a police nature except with his permission and under his
authority, exercised through the Police Commissioners of the Laender.
(d) The authority of the International Commission
and the Central Police Director shall be effective during the electoral
period and until the German provisional government has assumed
governmental responsibilities.
5. The constituent assembly, together with the Laenderrat, shall exercise the dual functions of a provisional
government and a constitution-making body.
- (a)
- In its capacity as provisional government, the assembly, together
with the Laenderrat, shall be enabled to
perform all functions essential to the legal, economic, and
political unity of Germany. It shall be authorized to create at once
central administrative departments in the necessary fields. Subject
to the approval of the Laenderrat, the
constituent assembly shall determine the procedures for the
provisional exercise of legislative and executive authority, and
determine as may be required for temporary purposes the division of
powers between the provisional government and the Laender governments. The constituent assembly shall submit
these procedures for review to the Four Military Governors; they
shall go into effect, if not disapproved within twenty-one days by
unanimous vote of the Four Military Governors. The jurisdiction of
the provisional government shall be clearly defined by an allied
statute reserving specifically only those powers essential to the
maintenance and enforcement of demilitarization and of other
controls in a few specific fields (as outlined [Page 1333] below in paragraphs 7 to 9
inclusive on the “Allied Commission for Germany”).
- (b)
- In its capacity as a constituent organ, the assembly, together
with the Laenderrat, shall proceed to draft a
constitution for Germany. In order to ensure the utmost freedom to
the constituent assembly, no detailed requirements for the
constitution shall be imposed on the assembly by the occupying
powers, but the draft constitution, before submission to the
electorate for ratification, shall be subject to disapproval by
unanimous vote of the Allied Commission, as hereinafter provided for
(see paragraph 7).
6. If not disapproved by the Allied Commission, the draft constitution
shall be submitted to the German electorate, for ratification, and if
ratified a constitutional German government shall without delay be
formed in accordance with the constitutional procedures.
Allied Commission for Germany
7. At the time the German provisional government assumes governmental
responsibilities, the Allied Control Council shall be dissolved and
there shall be established an Allied Commission for Germany, consisting
of four civilian High Commissioners, one appointed by each of the Four
Powers, with appropriate staffs to function until the peace settlement.
At the same time, military government shall be terminated, and in
particular, occupation troops shall cease to exercise military
government functions. Zonal boundaries for these purposes shall thereby
be definitively eliminated.
8. The Allied Commission for Germany shall deal directly only with the
central German government. Pending a general settlement with Germany the
Allied Commission shall exercise reserved powers to be specified in an
allied statute. In particular, special powers in the following fields
shall be reserved to the Allied Commission which may act directly in
these fields as well as through orders to the central German
government.
- (a)
- Disarmament and demilitarization, including related fields of
scientific research, and civil aviation (subject to the provisions
of a disarmament and demilitarization treaty);
- (b)
- Reparations;
- (c)
- Protection and security of Allied forces and representatives,
their immunities and satisfaction of their requirements.
Powers to be exercised by the Ruhr Control Authority shall also be
reserved in the Allied statute to the extent necessary to carry out the
International Control of the Ruhr. The Allied Commission shall transmit
orders or requirements to local or Land
authorities through the central German government.
9. All legislative and constitutional measures and international
agreements which the German government wishes to make, except [Page 1334] agreements with one of the
Four Powers, shall, before they take effect, be submitted by the German
government to the Allied Commission. All such measures and agreements
shall come into force automatically if not disapproved within [21] days
by unanimous vote of the Allied Commission. The German government shall
be obliged to inform the Allied Commission of all international
agreements entered into with one or more of the Four Powers. Subject to
disapproval by the Allied Commission, the German government may repeal
or amend, except in the reserved fields, all existing legislation,
including Control Council and Military Government enactments. The Allied
Commission may at any time inform the German government of its
disapproval of any legislative measures or administrative actions of the
government or of local and Land authorities, and
may direct that the action in question shall be cancelled or
amended.
Withdrawal of Troops
10. (a) Within 150 days from the date on which the
provisional German government assumes governmental responsibilities, the
total occupation forces in Germany will be reduced so as not to exceed
160,000. The U.S., U.K., USSR and France shall each provide a complement
not to exceed 40,000. The garrison forces of the U.S., U.K., and USSR
shall be stationed in specifically defined limited areas containing port
facilities; suitable locations might be: U.S.–Bremen area; U.K.–Hamburg
area; USSR–Stettin area. French military forces shall be stationed in
the Rhineland at a location to be determined. The restricted areas shall
contain port facilities, training areas, air fields and suitable
storage, quartering and recreation facilities. The U.S., U.K., and USSR
forces will not utilize land lines of communications to or from their
respective limited areas. They will maintain their forces by sea or air
lines of communications terminating within the respective restricted
areas. The occupation forces will exercise no local governmental
functions, but will carry out specific tasks according to the
instructions of the Allied Commission.
(b) The extent to which Germany shall be obliged
to meet requirements and furnish funds for the maintenance of the forces
in garrison areas shall be determined from time to time by the Allied
Commission. All unused German currency and all German goods in the
possession of the Allied forces, except such as the Allied Commission
decides are necessary for the maintenance of the forces in the garrison
areas, shall be turned over to the provisional German government by the
time that the withdrawal to garrison areas is completed.
11. Reduction of forces shall commence immediately after the conclusion
of the Council of Foreign Ministers. In any event, the overall troop
strengths, of each of the four occupying powers, must be reduced to
100,000 or less within [90] days of the conclusion of the CFM. [Page 1335] Reduction to the agreed 40,000 must be concluded and
forces of all four occupying powers concentrated in their respective
restricted areas no later than 150 days subsequent to the provisional
government’s assumption of responsibility. Withdrawal of the forces
shall take place under quadripartite or U.N. supervision. In the case of the U.S., U.K., and
France, provision must be made for these nations to retain the right of
free transit and the right to guard military supplies necessary to
maintain the forces of occupation in Austria, until such time as an
Austrian Treaty is concluded and the withdrawal of troops and military
stores as a result thereof is completed. This arrangement will be
necessary unless an agreement of some other type is obtained that
provides for the supply of the forces of occupation in Austria should
they remain in Austria subsequent to an agreement for Germany.
Disarmament and Demilitarization
12. The United States shall propose again a Four Power treaty for the
disarmament and demilitarization of Germany along the lines of the
Byrnes proposal. The prohibitions and
restrictions to be imposed upon Germany shall be stated clearly either
by reference to existing Control Council legislation and directives, or
by including annexes specifically defining the items subject to
prohibition or control (war materials, para-military organizations,
military installations, research, etc.). Restrictions shall in general
be limited to those of a distinctly military character in order to avoid
undue interference with essential economic activities and in the
interest of simplicity of enforcement. It is envisaged that enforcement
action may be taken by three or more of the signatory powers if they
agree, but shall not be taken by less than three.
13. Responsibility for the enforcement of the disarmament and
demilitarization of Germany shall, pending the conclusion of the peace
settlement, be vested in the Allied Commission for Germany. For this
purpose a special Demilitarization Board shall be established under the
Allied Commission, headed by military representatives of the Four
Powers, assisted by the necessary expert technical staffs.
14. The Board will carry on appropriate inspections and will by majority
vote recommend to the Allied Commission measures necessary to maintain
and enforce the disarmament and demilitarization restrictions. On
receipt of such recommendations the Allied Commission will determine by
majority vote what action should be taken.
15. Upon termination by a peace settlement of the Allied Commission for
Germany, the disarmament control functions shall be exercised by a
special Allied Disarmament Commission to be specified in the disarmament
treaty and embodied in the final German peace settlement.
[Page 1336]
Reparations
16. The powers in occupation of the Western Zones of occupation of
Germany shall, within 60 days of the termination of the CFM meeting, make a final determination of
the industrial plants and equipment to be removed from these Zones as
reparation. Deliveries of such plants and equipment shall be made at the
earliest possible date, in accordance with paragraphs 3 and 4 of Part IV
of the Potsdam Agreement. No other deliveries on reparation account
shall be made from any part of Germany.
17. The Four Powers agree that industrial plants and equipment previously
removed from Germany, uncompensated deliveries from German current
production prior to the CFM meeting,
German foreign assets made available for reparation, and all other
assets received as reparation by claimant nations together with such
further deliveries as are made under paragraph 16 shall constitute a
final settlement of all Allied reparation claims on Germany. The Four
Powers will not support additional reparation claims on the part of any
other power.
Foreign Property in Germany
18. The Allied Commanders in Germany shall be immediately instructed to
hasten the examination of claims for the restitution of United Nations
property looted by Germany, in accordance with existing Allied
agreements, with a view to completing the return of such property by the
time the German provisional government is established.
19. Pending the conclusion of a German peace settlement, United Nations
property in Germany shall be no less favorably treated than German
property. The German government shall be required to ensure its
protection and non-discriminatory treatment.
20. All property, rights and interests in Germany which have been
acquired by the governments of any of the occupying powers since May 8,
1945, except property or facilities acquired for the discharge of
diplomatic and consular functions, shall be relinquished. Pending the
determination by the German government of the ultimate status of such
property, rights and interests, they shall be placed under the
provisional administration of the governments of the Laender in which they are located.
The Ruhr
21. An International Authority for the Ruhr shall be created to perform
the following functions:
- (a)
- To make allocations of coal, coke and steel from the Ruhr as
between German consumption and export, in order to ensure
adequate access to supplies of these products, taking into
account the essential needs of Germany.
- (b)
- To ensure that the German authorities do not institute, carry
out, or permit artificial measures which would distort the
movements of Ruhr coal, coke and steel in international trade
except for measures of self-protection approved by the
International Authority.
22. The International Authority for the Ruhr shall be composed of
representatives of the governments of the United Kingdom, France, and
Germany, which shall have three votes each, and the governments of the
Netherlands, Belgium and Luxembourg, which shall have one vote each.
Decisions of the Authority shall be taken by majority vote, except that
Germany shall have no vote on questions involving Germany’s compliance
with its obligations under the agreement. The organization and functions
of the Authority, and the obligations of Germany in its regard, shall be
specified in detail in an instrument approved by the occupying powers
after consultation with the governments of the Netherlands, Belgium and
Luxembourg.
The Peace Settlement
23. The four Allied Powers, in collaboration with the other nations which
have been at war with Germany, shall formulate a peace settlement which
will establish finally Allied requirements on Germany, thus opening the
way for the eventual admission of Germany into the UN.
[This paper concludes with the following sections:
iii. notes on the program for germany
This section explained the Program for Germany in greater detail
elaborating the measures and policies that would be necessary to
implement the basic concepts of the program. It included subsections of
notes corresponding to the various parts of the program for Germany,
dealing with those parts paragraph by paragraph.
iv. the u.s. position on other subjects apt to come
up for discussion
In this section of PPS 37/1 the Policy
Planning Staff outlined U.S. policy on the Saar, residual controls, war
damages to U.N. property in Germany, and
boundaries, since these topics had not been considered in the Program
for Germany but might arise during a meeting of the Council of Foreign
Ministers.
v. presentation and tactics
In the final section the Policy Planning Staff sketched various methods
of presenting the Program for Germany, stressing that the paper was not
a final document, but was subject to further consideration. The program
was meant for a meeting of the Council of Foreign Ministers, since it
was the only body which could translate the proposal into a [Page 1338] four power agreement, but it could be
used outside the Council. Finally, its presentation would undoubtedly
evoke French objections and special steps would have to be taken to
impress the safeguards of the program on the French.]