Executive Secretariat Files: NSC 11
Memorandum by the Acting Secretary of
State to Rear Admiral Sidney W.
Souers, Executive Secretary of the National Security
Council
Washington, December 14, 1948.
I am enclosing herewith a draft paper on the action which should be taken
with reference to U. S. Naval Forces at Tsingtao.
I recommend that this paper be placed on the agenda for consideration of the
Council at the meeting to be held on Thursday, December 16, 1948.57
[Enclosure]
Memorandum Prepared in the Department of
State58
Problem: To Determine the Action
Which Should Be Taken With Reference to U. S. Naval Forces at Tsingtao
in View of the Contemplated Withdrawal of Chinese Naval Units From That
City.
Analysis:
- 1.
- The Embassy at Nanking has been informed59 by the Chief, Naval
Division, JUSMAG, that the Generalissimo has approved the removal of
the Chinese naval training base and other naval installations at
Tsingtao to southern Taiwan and the establishment of a naval academy
at Amoy and that the Chief of Staff of the Chinese Navy is actively
planning this move.
- 2.
- Removal of Chinese naval forces and naval facilities from Tsingtao
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is probably indicative
of a Chinese decision that Tsingtao cannot or should not be
defended. Consequently, if American forces remain at Tsingtao, they
would probably have to assume primary and perhaps sole
responsibility for the defense of the city and the supplying of the
civil population, or they would be dependent upon Communist
suffrance. It is believed that the former would be folly and the
latter impossible. Furthermore, the principal reason for having
American naval forces in Tsingtao, viz., the Chinese naval training
program, would cease upon the departure of Chinese naval forces, and
a providential opportunity for withdrawing U. S. forces without loss
of prestige and with minimum damage to Chinese Government morale
would arise.
- 3.
- Removal of Chinese naval installations to Taiwan and Amoy would
supply a basis for the concurrent movement of U. S. forces to those
places. If, for overall strategic reasons, it is desirable to
maintain a IT. S. naval installation in Chinese waters, the location
of the installation on Taiwan would appear, in the light of the
progressive disintegration of the National Government position, much
more tenable politically and economically than at Tsingtao or
Shanghai or any other mainland city. The absence, insofar as is
known, of significant Communist penetration of Taiwan and the
evident difficulties which would confront the Communists in
attempting direct military assault on the island would probably
render such installation relatively free from Communist pressure, at
least for the time being. For the same reason, the danger of U. S.
forces becoming directly involved in hostilities with Communist
forces would be small.
- 4.
- On the other hand, there are evident disadvantages in establishing
U. S. naval forces either at Amoy or on Taiwan. If such forces were
located at Amoy, the extension of Communist control over South China
would lead to the flocking of Chinese refugees to that city. If
Communist control of the surrounding area should be consolidated,
our forces would be faced with the probability of direct conflict
with the Communist forces and with the problems of providing
essential commodities for the refugee-swollen city cut off from its
normal sources of supply and coping with organized Communist
infiltration and terrorism.
- 5.
- The Department of State recognizes the strategic importance of
Taiwan and is fully cognizant of the undesirability of it passing
under the control of a Chinese Communist-dominated government.
However, the stationing of American naval forces on the island at
this time would cause mainland Chinese to flee to Taiwan in large
numbers in the belief that they would be protected by the U. S.
Navy. In view of the dismal record of Chinese administration of
Taiwan to
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date, this
additional influx of Chinese refugees, which would inevitably
include large numbers of predatory politicians and carpetbaggers,
could only increase the burden on the island’s economy and
exacerbate the present Taiwanese hatred of mainland Chinese. By thus
paving the way for Communist infiltration and Communist inspired
uprising of the Taiwanese, the stationing of U. S. naval forces on
Taiwan would, at this juncture, unless offset by other factors which
are not now present, facilitate rather than prevent the spread of
Communism in the island.
- 6.
- Furthermore, the stationing of U. S. naval units on Taiwan, by
lending credence to Communist charges that we are preparing to
detach the island from China, would endanger IT. S. interests and
jeopardize the position of U. S. officials and other American
residents throughout the mainland of China. It would strengthen the
position of the Chinese Communists politically as the defenders of
China’s integrity against U. S. imperialistic aggression, and would
tend to unite all Chinese regardless of political affiliations or
belief in a movement for the restoration of Chinese territory. The
U. S. would, in brief, have largely succeeded to the position of
Japan. Finally, those forces opposing us throughout the world would
seize the opportunity thus presented to charge us with imperialistic
and predatory designs upon Taiwan.
- 7.
- The decision has been reached that the Joint U. S. Military
Advisory Group will be deactivated and withdrawn from China if
Nanking should fall or be seriously threatened by Communist attack.
The removal of the U. S. Naval Advisory Division of the JUSMAG would
be in keeping with this decision; the removal of the Chinese naval
training activities from Tsingtao would provide an excellent
opportunity for the U. S. to discontinue its participation in such
activities.
Conclusions:
- 8.
- Admiral Badger should proceed energetically to evacuate dependents
and surplus material and to liquidate shore-based activities. He
should be directed at this time to withdraw his forces when it
becomes publicly known that Chinese naval training installations
will be removed from Tsingtao or as soon thereafter as may be
feasible without jeopardizing plans for the evacuation of Americans
in China. Public intimation of his intention should be avoided until
the Chinese intention to transfer their installations becomes
publicly known in order that his withdrawal may be attributed to the
Chinese move rather than vice versa.
- 9.
- The existing program for training units of the Chinese Navy
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should be suspended upon
the removal of the Chinese naval training base from Tsingtao.
- 10.
- American naval forces should not be established at this time
either on Taiwan or at Amoy.