Foreign Relations of the United States, 1948, The Far East: China, Volume VIII

893.20 Mission/6–1548

Memorandum by the Chief of the Division of Chinese Affairs (Sprouse) to the Director of the Office of Far Eastern Affairs (Butterworth)

[Washington,] June 15, 1948.

In the light of the discussions on June 11 between Secretary Marshall, Secretary Royall and others in regard to the role of the U. S. Army Advisory Group, the following comment is offered on the attached Joint Chiefs of Staff directive:

1. In paragraph 5 the mission of the JUSMAGChina is stated as follows:

“The mission of JUSMAGChina will be to assist and advise the Chinese Government in the development of modern armed forces for the fulfillment of those obligations which may devolve upon China under her international agreements, including the United Nations, for the establishment of adequate control of liberated areas in China, including Manchuria, and Formosa, and for the maintenance of internal peace and security.”

To state that the mission of the JUSMAGChina is to assist and advise the Chinese Government in the development of modern armed forces “for the establishment of adequate control of liberated areas in China, including Manchuria, and Formosa, and for the maintenance of internal peace and security” is, in a sense, committing the U. S. Government to intervention in the civil war. This section uses language which was applicable during the immediate post-war period but which no longer seems appropriate. This language is that used in the Presidential Directive of February 25, 1946⁵² authorizing the establishment of a U. S. Military Advisory Group to China. The same end could be attained without the use of such language by saying “to assist and advise the Chinese Government in the development of modern armed forces for the purpose of enabling China to create a national military establishment consonant with its national defense needs and to fulfill its obligations as a member of the United Nations”.

2. In paragraph 6a. (5) one of the functions of the Joint Advisory Council of the JUSMAGChina is described as “furnishing advice and assistance to the Chinese armed forces in the establishment and operation of a joint procurement and distribution system.”

If this “assistance” is taken to include assistance in operation of procurement in China, such a procedure is highly questionable, particularly in view of the past record of the Chinese Army in procurement procedures often involving outright requisition without reimbursement and other dubious practices. This same function is listed as one of the functions of the Naval Advisory Division under paragraph 6c. (2).

3. In paragraph 6b. (1) one of the functions of the Army Advisory Division is described as follows: “Assist and advise in the organization, training and equipping of all Chinese army forces.”

Under paragraph 6c. (1) one of the functions of the Naval Advisory Division is described as follows: “Assist and advise in the organization, training and equipping of all Chinese naval forces” etc.

Under paragraph 6d. (1) one of the functions of the Air Force Advisory Division is described as follows: “Assist and advise in the organization, training and equipping of all Chinese air forces.”

This would seem to commit the U. S. Government formally to the provision of equipment for all Chinese armed services and it seems to be contrary to the general intent of the discussions on June 11.

4. In paragraph 7b. it is stated that “activities will be so conducted that U. S. personnel will not participate, or appear to be engaged, in operations in combat areas”. This sentence is not altogether clear and it would seem desirable to have some clarification of its meaning.

5. Relationship of the JUSMAGChina and the U. S. Ambassador in China is not as clearly defined as was the case in the directive dated February 7, 1947⁵³ which served as the basis for the Joint Chiefs of Staff directive. In the February 7 directive it was stated that the chief of the U. S. Military Advisory Group would be “directly under and responsible to the U. S. Ambassador to China in matters of policy”. It was also stated that the U. S. Military Advisory Group would “advise the American Ambassador at all times as to the status of Magic activities”. The attached directive describes this relationship as follows: The JUSMAGChina will “keep the American Ambassador advised of pertinent activities” and “all communications relating to policy between the Chinese Government and JUSMAGChina will be directed through the U. S. Ambassador or in his absence the Chargé d’Affaires”.

6. It is believed that the Joint Chiefs of Staff should be informed of the views of the Department regarding the functions of the Naval Advisory Group in China, which were contained in the following statement read by the Secretary in his meeting with Secretary Royall, General Bradley, General Wedemeyer and others on June 11:

“The Department of State would have no objection to U. S. Naval officers assisting in the instruction and training of Chinese naval crews both at sea and in port.”

[Annex]

Draft Directive by the Joint Chiefs of Staff Governing the Establishment and the Operation of the Joint U. S. Military Advisory Group to the Republic of China

1. The Joint U. S. Military Advisory Group to the Republic of China (JUSMAGChina) is established hereby.

2. JUSMAGChina will be organized in accordance with and governed by the provisions of this directive.

3. Organization:

a. General

JUSMAGChina will be composed of an Army Advisory Division responsible to the Army Department for Army matters, a Naval Advisory Division responsible to the Navy Department for Navy matters, and an Air Force Advisory Division responsible to the Air Force Department for Air Force matters. For matters in which the Army, Naval and Air Force Advisory Divisions have joint interest, JUSMAGChina will be responsible to the Joint Chiefs of Staff through the Director, who will communicate directly with the Joint Chiefs of Staff on such matters.

b. Joint Organization

The Chiefs of the Army, Naval and Air Force Advisory Divisions will be designated by the Joint Chiefs of Staff. The senior of these three Chiefs will be the Director of JUSMAGChina. (As a matter of policy, the seniority of the Chiefs will be so arranged as to cause the position of Director to rotate periodically among the three services.) The other Chiefs will be Deputy Directors. The next senior Deputy Director will act for the Director in the latter’s absence. The Director and the Deputy Directors together will constitute an overall coordinating agency to be known as the Joint Advisory Council. To assist this agency in carrying out its functions, the Joint Advisory Council will establish a Joint Secretariat, a Joint Planning Staff and such other joint agencies as may be found necessary. The purpose and the relationship of these joint agencies to the Joint Advisory Council shall be similar in general to that of Joint Chiefs of Staff agencies to the Joint Chiefs of Staff.

(1) The Joint Secretariat shall consist of officers of appropriate rank from each service, and of suitable enlisted personnel.

(2) The Joint Planning Staff shall be composed of officers of appropriate rank and equal number from each service. The size of this staff shall be established by the Joint Advisory Council but it shall be kept small in size.

4. Strength. The initial personnel strength of the JUSMAGChina will not exceed 1,000 officers and enlisted men. The individual strengths of the Army, Naval and Air Force Advisory Divisions will be determined by the Joint Chiefs of Staff after considering recommendations thereon by the Director and by the Chiefs of the Army, Naval and Air Force Advisory Divisions. These recommendations will be based on the assumption that JUSMAGChina will include such personnel as are required to make JUSMAGChina logistically self-supporting for such support as cannot be provided by the Chinese Government to maintain a reasonable standard of living for U. S. personnel of the Joint Group. Based on the above concept of a logistically self-supporting JUSMAGChina, the Joint Advisory Council should from time to time review the personnel strength of the Joint Group and submit appropriate recommendations for increase or decrease to the Joint Chiefs of Staff.

5. Mission. The mission of JUSMAGChina will be to assist and advise the Chinese Government in the development of modern armed forces for the fulfillment of those obligations which may devolve upon China under her international agreements, including the United Nations, for the establishment of adequate control over liberated areas in China, including Manchuria, and Formosa, and for the maintenance of internal peace and security.

6. Functions

a. Joint Functions

The Joint Advisory Council, functioning in a manner similar to the Joint Chiefs of Staff, will be responsible for:

(1) The coordination of the activities of the Army, Naval and Air Force Advisory Divisions and for insuring unity in matters of joint concern.

(2) Advising and assisting the Head of the Chinese Government in the methods of preparing and developing over-all strategic plans, in the development of a joint military organization, and along such lines as may be directed from time to time by the Joint Chiefs of Staff.

(3) Encouraging the continuation and development of Chinese joint weather, communications and intelligence services.

(4) Controlling all Public Information and Public Relations matters of the Joint Group or any of its component service Divisions.

(5) Furnishing advice and assistance to the Chinese Armed Forces on the establishment and operation of a joint procurement and distribution system.

(6) Promoting the standardization of Chinese Army, Navy and Air Force equipment and encouraging the use of material of U. S. manufacture and design.

(7) Facilitating exchange of information and avoiding duplication of effort between the Army, Naval and Air Force Advisory Divisions.

(8) Performing any special missions as directed.

b. Army Advisory Division Functions

The Army Advisory Division will provide advice, assistance and instructions to the Chinese on Army matters as follows:

(1) Assist and advise in the organization, training and equipping of all Chinese Army forces.

(2) Advise and assist in the organization, training and equipping of Chinese supply, transportation and technical development organizations which are required to provide logistic support to the Chinese Army forces and common user items to the Chinese Navy and Air Force forces.

c. Naval Advisory Division Functions

The Naval Advisory Division will provide advice, assistance and instruction to the Chinese on naval matters as follows:

(1) Assist and advise in the organization, training and equipping of all Chinese Navy forces (including naval aviation), and Chinese Marine Corps forces if and when established.

(2) Extend advice and assistance in the establishment and operation of a joint procurement and distribution system insofar as it involves furnishing common user items for the Chinese Naval Service.

(3) Advise and assist in the hydrographic survey of the China coast.

d. Air Force Advisory Division Functions

The Air Force Advisory Division will provide advice, assistance and instruction to the Chinese on Air Force matters as follows:

(1) Assist and advise in the organization, training and equipping of all Chinese Air Force forces.

(2) Advise and assist in the organization, training and equipping of Chinese supply, transportation and technical development organizations which are required to provide logistic support to the Chinese Air Force forces.

7. General. The functions of JUSMAGChina will be governed by the following broad principles:

a. Occupy the field of military cooperation in China to the exclusion of all other-than-United States participation and influence, insofar as is compatible with governmental agreements.

b. Activities will be so conducted that U. S. personnel will not participate, or appear to be engaged, in operations in combat areas.

c. Keep the American Ambassador advised of pertinent activities.

d. JUSMAGChina personnel will not become involved in Chinese political affairs in implementation of this directive, nor will they assume any duties as a result of which they will be responsible to the Chinese Government.

e. Personnel of JUSMAGChina will continue the policy of fostering friendly relations and strengthening the ties of U. S.-Chinese solidarity.

f. Advice and assistance rendered to the Chinese Government will be in conformity with the military doctrines of the Armed Forces of the United States, adapted to the existing situation in China.

g. The Chiefs of the Army, Navy and Air Force Advisory Divisions are authorized direct communication with the U. S. Army, Navy and Air Force Departments on technical, administrative and similar matters of concern only to their respective services.

h. The Director of JUSMAGChina will exercise supervision over facilities and cross-servicing of the Army, Navy and Air Force Advisory Divisions to assure maximum economy and efficiency of local administration and logistics. The U. S. Armed Service which provides supplies or services to any other Service, in accordance with the provision of this paragraph, will be reimbursed the cost thereof by the receiving Service in accordance with existing regulations.

i. Should any question arise as to the interpretation of any part of this directive, or as to the Director’s responsibilities as coordinator in matters not covered herein, it will be referred to the Joint Chiefs of Staff for decision by or through the Director of JUSMAGChina.

j. All communications relating to policy between the Chinese Government and JUSMAGChina will be directed through the U. S. Ambassador or in his absence the Chargé d’Affaires.

8. Review of U. S. Military Assistance to China. The Joint Advisory Council shall appraise and review periodically, in consultation with the United States Ambassador to China, the means, methods and degree of extending assistance to the Republic of China in accordance with Public Law 512 and any other pertinent laws; and the Director of JUSMAGChina will submit semiannually detailed recommendations for continuation or modification of such means, methods and degree to the Joint Chiefs of Staff.

9. Equipment for China. Any provision of U. S. Army, Navy and Air Force equipment and supplies to the Chinese armed forces will be in accordance with such agreements thereon as may be entered into on the governmental level. Requests from the Chinese Government for military supplies and equipment will be referred to the Director of the Joint Group for appropriate recommendations.

10. Relationships with officials and agencies of the Chinese Government.

a. The Director, JUSMAGChina, acting as the unified channel of communication for all the Chiefs, is authorized direct communication with the following, on subjects enumerated:

(1) The President of the Republic of China, in his capacity as Supreme Commander of the Chinese Forces, on matters of a purely military nature.

(2) Other agencies of the Government of the Republic of China, on matters relating to the mission and to the joint functions of JUSMAGChina.

b. These provisions in no way affect direct communications between the Chief of any of the Advisory Divisions and appropriate departments of the Chinese Government on matters pertaining wholly to the business of his Division, and which have no effect on the business of any other Division.

c. If any of the above-mentioned matters are of concern to the Chief of more than one Division, no approach will be made to officials, agencies or departments of the Chinese Government unless all the interested members of the Joint Advisory Council concur, or, if it is impossible to reach an agreement, until the Joint Chiefs of Staff have approved the approach.

11. Requests for Training of Chinese in Training Establishments of the U. S. Armed Forces. All requests of the Chinese Government for the military training in the United States of Chinese citizens will be submitted to the Director of the Joint Group for appropriate recommendations thereon before forwarding to the appropriate U. S. Agency for consideration. Before recommending approval of such requests, the Director will insure that individual Chinese are cleared politically by the Chief of the Diplomatic Mission in China.

12. Relationship with Attachés. It is essential that cordial and cooperative relations be established between the Chiefs of the three service Divisions and the U. S. Military, Naval and Air Force Attaches. The Military, Naval and Air Force Attaches, as members of the chief of diplomatic mission’s staff, and respectively as representatives of the Secretaries of the Army, Navy and the Air Force, and of the respective military services, act as Army, Navy and Air Force advisors to the United States Ambassador to China. The Chiefs of the three service Divisions are not subject to the control of the Military, the Naval, or the Air Force Attaché, but they should keep them informed of pertinent activities and problems pertaining to their Divisions.

52. Directive to the Secretaries of State, War, and the Navy, Foreign Relations, 1946, vol. x, p. 823.
53. Not printed.