Foreign Relations of the United States, 1948, Eastern Europe; The Soviet Union, Volume IV

840.811/5–848

The Secretary of State to the Ambassador of the Soviet Union (Panyushkin)

The Secretary of State presents his compliments to His Excellency the Ambassador of the Union of Soviet Socialist Republics and refers to the previous exchange of notes for the purpose of arranging agreement regarding the holding of a conference on a new regime of navigation on the Danube and the note of the Union of Soviet Socialist Republics dated May 8, 1948.

The Government of the United States regrets that the Union of Soviet Socialist Republics does not agree to a preliminary meeting to exchange views concerning arrangements for the proposed conference. The United States Government believes that such an exchange would have expedited arrangements for, and facilitated the convocation of the conference, on terms acceptable to the Union of Soviet Socialist Republics, the United Kingdom, France, and the United States.

It is the opinion of the United States Government that, as matters now stand, the date of May 30, 1948 could not possibly allow sufficient time to make arrangements suitable to the participating governments. Accordingly, the United States Government proposes that the Conference be held in Belgrade on July 30, 1948 assuming that this is agreeable to the other governments concerned and in light of the assurance of the Government of the Union of Soviet Socialist Republics of information that the Yugoslav Government will be able to act as host in accordance with an invitation as agreed to by the Union of Soviet Socialist Republics, the United Kingdom, France and the United States. There is enclosed a copy of a proposed note to the Yugoslav Government which contains certain suggested modifications and additions to the invitation proposed by the Union of Soviet Socialist Republics in the Ambassador’s note of May 8, 1948.

The United States Government deeply regrets the Government of the Union of Soviet Socialist Republics’ position that it cannot agree to the participation of Austria at the Conference as urged by the United States Government. It is the continued view of the United States Government that the central geographic position occupied by Austria and its important role in the trade and commerce on the Danube River warrant its inclusion in the Conference along with the other riparian states. Accordingly, the United States Government would appreciate a reconsideration by the Government of the Union of Soviet Socialist Republics of its position. If the Government of the Union of Soviet Socialist Republics still cannot agree to full participation on the part of the Austrian Government, the United States Government requests that it agree to Austrian attendance at the very least in the same capacity in which Austria now attends the Economic Commission for Europe; namely, by sending representatives in a consultative capacity.

The United States Government would be grateful to the Government of the Union of Soviet Socialist Republics for the earliest possible notification to the effect that it agrees to transmitting simultaneously the enclosed text of an identical communication by the four governments to the Government of Yugoslavia in order to assure the holding of the Danube Conference on July 30, 1948.

A similar communication is being sent to the governments of the United Kingdom¹ and France.

Washington, May 25, 1948.

[Enclosure]

Proposed Text of an Identical Communication of the Four Governments to the Government of Yugoslavia

At the Council of Foreign Ministers meeting in December 1946, the Governments of the United Kingdom, the French Republic, the Union of Soviet Socialist Republics and the United States of America agreed to the incorporation of the principle of free and open navigation on the Danube in the treaties with Bulgaria, Hungary and Rumania, and further agreed to the calling of a conference to work out a new convention for a regime of navigation of the Danube.

The four governments have now decided to convene the conference on July 30, 1948, and request the cooperation of the Yugoslav Government in holding the conference in Belgrade. In the event that the Yugoslav Government is agreeable to the proposed time and place, its agreement is requested in the interest of adequate communication to issue authorization for aircraft of the participating countries, as deemed necessary by each participating country, to fly to and from Belgrade to transport persons attending the conference and to perform courier services during the course of the conference, subject to normal Yugoslav regulations and controls regarding the operation of aircraft. In addition, it is assumed that the Yugoslav Government is prepared to assure adequate facilities for representatives of the press and radio of the participating countries who might wish to report conference developments, which facilities would include freedom from censorship on conference reporting.

If the Yugoslav Government is in agreement with the above, it is suggested that it be good enough to signify its concurrence with this communication and to issue invitations in the following form to the enumerated governments:

“The Government of the Peoples Federated Republic of Yugoslavia has the honor on its own behalf and on behalf of the Governments of France, the United Kingdom, the Union of Soviet Socialist Republics, and the United States to invite the Governments of Austria, Bulgaria, Czechoslovakia, Hungary, Rumania, and the Ukrainian Soviet Socialist Republic to send representatives [or Bulgaria, Czechoslovakia, Hungary, Rumania and the Ukrainian Soviet Socialist Republic to send representatives and to the Government of Austria to send representatives to act in a consultative capacity]² to Belgrade, Yugoslavia, to participate in a conference beginning july 30, 1948 to work out a new convention regarding the regime of navigation of the Danube in accordance with the agreements made by the above four Governments at the December 1946 meeting of the Council of Foreign Ministers.”

1. The British Government sent a note on June 10 for the Soviet Union and gave a copy of it on the next day to the Department of State. The proposals advanced in the United States note of May 25 were fully supported, but the note also plainly declared that if a future conference failed to reach agreed recommendations on a new régime of navigation for the Danube river, then all British rights under existing treaties were reserved, and any new convention made at a conference could not enter into effect unless it had been accepted by all of the countries concerned. (840.811/6–1148)
2. Brackets appear in the source text.