860S.00/3–1348: Telegram
The Secretary of State to the Embassy in France
urgent
807. For the Ambassador. This tel being repeated London for immediate action in obtaining Brit FonOff concurrence following action, including text proposed joint communiqué. When your Brit colleague Paris has received appropriate instructions you shd, in concert with him, approach Bidault to invite his agreement following proposal:
In view unworkability Trieste settlement Italian Treaty, US, UK and Fr Govts shd agreed to recommend immediately return entire area Free Territory to Italy through adherence to new Protocol to Ital Peace Treaty by France, UK, USSR, US and Italy. In announcement this decision it is proposed US, UK and Fr issue joint communiqué on Thursday, Mar 18, of which following is a working draft, simultaneously in Washington, London, and Paris:
“The Governments of the United States, United Kingdom, and France have proposed to the Governments of the Soviet Union and Italy that those governments join in agreement on a Protocol to the Treaty of Peace with Italy to provide for the return of the Free Territory of Trieste to Italian sovereignty.
The Governments of the United States, United Kingdom and France have come to this decision as a result of the proven unworkability of the provisions of the Treaty of Peace with Italy establishing the Free Territory.
During the Council of Foreign Ministers’ discussion of the Italian Peace Treaty it was the consistent position of the American, British and French representatives that Trieste, which has an overwhelmingly Italian population, must remain an Italian city. Finally, when it became apparent that Russian disagreement on this point might prevent the conclusion of an Italian treaty and the restoration of peace to the Italian people, the Governments of the United States, the United Kingdom, and France agreed that the city and a small hinterland should be established as a Free Territory under a statute which, with the cooperation of all concerned, would, it was hoped, guarantee the independence of the people of the area and the protection of the Italian city of Trieste from domination by Yugoslavia.
Pending the assumption of office by a Governor the Free Territory has been administered by the Commander, British-United States Forces in the northern Zone of the Territory and by the Commander, Yugoslav Forces in the southern Zone. During the period of British and United States responsibility for the administration of the Zone occupied by their troops it has become apparent that certain elements of the area have conspired to create a situation which makes inoperative the guarantees of true independence for the Territory and the protection of the basic rights of the people. In view of the antagonistic and threatening attitude of the Yugoslav authorities and their efforts towards de facto incorporation of the Yugoslav Zone into Yugoslavia, [Page 513] the Governments of the United States and the United Kingdom have concluded that the present settlement can not guarantee preservation of the basic rights and interests of the people of the Free Territory. The Government of France has agreed with this view.
The Governments of the United States, United Kingdom, and France have therefore decided to recommend the return of the Free Territory of Trieste1 to Italian sovereignty as the best solution to meet the democratic aspirations of the people and make possible the reestablishment of peace and stability in the area.
Inasmuch as the Security Council has assumed responsibility for the independence and territorial integrity of the Free Territory of Trieste, the Governments of the United States, United Kingdom, and France will propose to the Security Council that it give its agreement to the suggested protocol.”2
It is proposed that US, UK and Fr would hand appropriate notes to USSR Embassies Washington, London and Paris just prior to publication communiqué.
If Bidault agrees, it is proposed US Ambassador Rome shd after consultation his UK and Fr colleagues inform De Gasperi on behalf three powers this decision on Wednesday, Mar 17, in strictest confidence pointing out consideration had also been given possibility that three powers might propose partition of Free Territory between Italy and Yugo; that proposal for return of all Free Territory to Italy appears more consistent with positions three powers in Ital treaty negotiations, which were based on ethnic grounds; but that if he shd prefer, present action might be amended to propose partition.
Subject De Gasperi’s agreement present proposal, joint statement will be published Washington, London, and Paris simultaneously Thursday Mar 18, 11 am EST. We trust Bidault will appreciate need for prompt action this matter in view serious possibility unauthorized publicity.
(Note for AmEmbassy London: Above discussed informally with Brit Emb here and agreed you shd discuss with FonOff with view obtaining earliest possible agreement and advise Dept for info and [Page 514] Paris for action. Any FonOff change procedure should of course await Department’s concurrence prior action by Paris.)
Sent Paris 807, London 895, Rome 682; rptd for info to Moscow 278, Belgrade 114.
- In telegram 1334 of March 13, received at 11:37 a. m., not printed, Caffery reported that in the various approaches made by the French regarding a declaration on Trieste, “they have made it clear that they strongly believe the declaration should provide for all of Trieste going to Italy. They are convinced that the Soviets would turn this down, thereby putting the Italian Communist Party on the spot. On the other hand the French are equally convinced that any offer to partition Trieste Zone A going to Italy and Zone B to Yugoslavia, would simply be playing the Soviet game.” (860S.00/3–1348)↩
- In telegram 1370 of March 15, not printed, Caffery reported that he had not yet discussed the draft, but had learned the French views: 1) the statement should refer to the whole of the FTT; 2) the approach should be made to the Italian Government in Rome rather than in the Security Council; 3) the statement should be made between March 27 and April 2; 4) the whole subject should be kept top secret until a day or so before the announcement. (860S.00/3–1548)↩