Foreign Relations of the United States, 1949, National Security Affairs, Foreign Economic Policy, Volume I

FACC Files

Policy Paper Approved by the Foreign Assistance Correlation Committee¹

restricted

[Washington,] June 15, 1949.

MAP D–F

Outline of Total Interim Organization of the Military Assistance Program (MAP)

general

1. Agencies of the U.S. Government having a primary interest in the Foreign Military Assistance Program (MAP) are the Department of State, the National Military Establishment, and the Economic Cooperation Administration. Other agencies will participate when their interests are involved.

The basic doctrines set forth in FACC D–9/7² to which this paper is subject, establish the relationship among these agencies in the administration of MAP.

2. As stated in the letter of April 13, 1949, from the President to the Secretary of State (Appendix A)³ primary responsibility and authority for direction of the Foreign Military Assistance Program is lodged in the Secretary of State. This decision was made with due regard to the fact that the program is an integral part of both U.S. foreign policy and national security. The acknowledgment of the Secretary of Defense to the President’s letter is also attached (Appendix B).³

3. The proposed broad distribution of MAP activities among the three participating agencies, is:

a. Department of State: Primary authority and responsibility for direction of the program; formulating, through interdepartmental coordination, the policies governing MAP; coordinating, interests and assigned responsibilities of agencies involved in MAP including chairing special interdepartmental committees established; negotiating international agreements; directing the use and allocation of funds appropriated for MAP; and reporting on the program.

b. National Military Establishment: Advising from the military viewpoint on broad policy; formulating strategy and military policy relating to matters involved in MAP; carrying out the assigned responsibilities of detailed programming, procurement, supply, delivery, training, observation of end-use, and other military aspects of the program.

c. Economic Cooperation Administration: Advising, at policy levels, mainly on the problems of securing a proper balance between foreign economic recovery through ECA and military assistance plans and programs, including impact of MAP in foreign nations where both US economic and military assistance are being given; advising on additional military production, intra-European transfers, and similar matters; assisting in limited operations where the use of its organization is best adapted to MAP purposes (e.g. authorizing the procurement of certain common use items).

organization for map in the united states

Foreign Military Assistance Steering Committee

4. The Secretary of State, as Chairman, the Secretary of Defense and the Economic Cooperation Administrator constitute the “Foreign Military Assistance Steering Committee”. (FMASC).

5. The Steering Committee will meet as required, particularly in connection with policy matters requiring their personal approval or consideration, or those which must be referred to the President.

Foreign Military Assistance Coordination Committee ( FMACC )

6. For day-to-day consultative and working purposes a “Foreign Military Assistance Coordination Committee” will be established and consist of designees of the Secretary of State, Secretary of Defense, and the ECA Administrator.

7. The Director (for Foreign Military Assistance) in the Department of State will be the designee of the Secretary of State and will serve as Chairman. The designees of the Secretary of Defense and the Economic Cooperation Administrator will be the principal representatives for the MAP within their respective agencies.

8. The FMACC will serve as the advisory interdepartmental organization for coordination of problems relating to the MAP. The Committee will have the following functions:

a. To make recommendations as to basic policy to the Secretary of State.

b. To consider and advise the Secretary of State on plans for the development and execution of the program.

c. To review all military assistance programs and make recommendations to the Secretary of State.

When appropriate, representatives of other Federal agencies may be invited to participate in the deliberations of the Committee.

Director for Foreign Military Assistance (Department of State)

9. A Director for Foreign Military Assistance, appointed by the Secretary of State as a Special Assistant to the Secretary, will be responsible for the direction of the Foreign Military Assistance Program.

10. He will have the following functions:

a. To serve as the Secretary of State’s representative on, and as Chairman of, the Foreign Military Assistance Coordination Committee.

b. To determine and distribute appropriately among participating agencies the functions necessary to be performed to carry out MAP.

c. To assure that provision is made for carrying out the functions so distributed, and to assure their effective execution.

d. To provide the necessary policy direction within the Department of State for MAP and to assure the necessary correlation and coordination of other matters affecting the formulation or implementation of such policies.

e. Within the framework of the established organization of the Department of State, to establish and direct the overseas organization for MAP.

f. To authorize and control the allocations of all MAP funds, including reallocation of unexpended balances when appropriate.

g. To direct the preparation of such reports as may be required to provide information concerning the activities of the Department and of other collaborating departments and agencies of the Government.

h. To assure the preparation by the several agencies of the instructions and manuals of procedure, and the necessary review thereof.

11. It is proposed that the Office of the Director for Foreign Military Assistance be organized as shown in Appendix C.⁴

Top Organization for MAP in NME and ECA

12. National Military Establishment: An “Assistant to the Secretary for MAP” will be designated by the Secretary of Defense. He will be the principal focal and contact point for MAP within NME.

13. His functions in connection with such MAP functions as are assigned NME will be:

a. Represent the Secretary of Defense on the FMACC.

b. Comprise the formal administrative channel between Director and NME.

c. Provide the unified direction and authoritative coordination on behalf of the Secretary of Defense.

d. Arrange for immediate availability to himself and the Director of periodic and special reports together with supporting data showing as currently as possible the status of supply flow under approved programs.

14. Economic Cooperation Administration: An Assistant to the Economic Cooperation Administrator will be appointed by the Administrator of ECA. He will be the principal focal and contact point for MAP within ECA.

15. His functions in connection with such MAP functions as are assigned ECA will be:

a. Represent the ECA Administrator on FMACC.

b. Coordinate the formulation of program and policy within ECA with particular emphasis on the economic effects of MAP in ERP-participating countries.

c. Coordinate the activities of ECA in connection with the procurement of common use items for MAP.

interim organization for map at the regional level

European Coordinating Committee

16. The Secretary of State will designate the Ambassador to the Court of St. James’s as the Chairman of the European Coordinating Committee (ECC).

17. The European Coordinating Committee will consist of the Ambassador to the Court of St. James’s, as Chairman, the ECA Special Representative for Europe, the Senior U.S. Military Representative for MAP in Europe as designated by the Secretary of Defense. The ECC will consult with the Ambassadors to Western European countries receiving military assistance on MAP matters which are of direct concern to the countries to which such Ambassadors are accredited.

18. The ECC shall be responsible for formulation of recommendations to the Secretary of State on the operations of MAP in Western Europe. Issues may be referred to the ECC by any member of the ECC or by the Executive Director for MAP Overseas. The ECC will also consider and advise the Secretary of State on plans for the development of MAP operations in Western Europe, and will review all requests for military assistance submitted by Western Union and other Western European countries and make recommendations thereon to the Secretary of State. It will also periodically review MAP operations in Western Europe for the purpose of advising the Secretary of State.

Responsibility of Chairman of ECC and Executive Director

19. The Chairman of the ECC shall serve as the “Overseas Representative for MAP in Europe”. In that capacity he shall be charged with general responsibilities for assuring development of MAP policies in Western Europe, acting within the scope of the authority delegated, and policies established, by the Secretary of State (or the Director for Foreign Military Assistance acting for him). He shall also be responsible for assuring satisfactory operations of MAP in Western Europe.

20. In order to carry out the operating functions associated with the responsibilities of the ECC, there shall be appointed by the Secretary of State an Executive Director to the ECC, acceptable to the ECC, who shall be responsible for the planning, direction and coordination of MAP operations in the Western European area from a management viewpoint. The Executive Director will perform the functions set forth in paragraph 21 below on behalf of the ECC and will be responsible to the Chairman of the ECC. The Executive Director will also act for the Chairman of the ECC in his absence.

21. The Executive Director for MAP Overseas, within the framework established in paragraph 20 above, will have the following functions:

a. To plan, direct and coordinate the MAP operations in Europe.

b. To determine working policy within Western Europe.

c. To provide for the initiation of recommendations to the Secretary of State with regard to self-help and mutual aid aspects of the Program.

d. To develop recommendations for the country requests for aid and to supervise generally the refinement of such requests. This will include:

(1) Establishment of criteria for preparation and presentation of requests for aid.

(2) Reviewing for the ECC supply and production programs formulated by Western Union and other Western European MAP recipient countries.

(3) On basis of Western Union and other country requests, developing for the ECC recommendations on requirements for ECC submission to the Secretary of State.

(4) Checking requests submitted by participating countries for adherence to quotas previously set; and proposing to the ECC recommendations on shifts in quotas.

e. To inspect, evaluate, and stimulate U.S. MAP activities in countries assigned to ECC.

f. To maintain the necessary over-all reporting of overseas MAP activities, including coordination of such reporting on behalf of ECC.

g. To assist in resolving or securing the resolution through ECC of major MAP problems arising in participating countries.

h. To perform other functions assigned by the ECC or its Chairman.

22. The Executive Director for MAP Overseas will be served by a small staff, including persons detailed to him by State, ECA and NME with the approval of the Chairman of the ECC. The Office of the Executive Director for MAP Overseas will be organized and related to the total organization for MAP overseas as shown by the chart, Appendix D.⁵

Temporary Personnel for Developing Country Requests for Aid

23. To the extent necessary there will be attached for temporary periods to the Office of the Executive Director for MAP Overseas or to the appropriate regional organization especially selected military officers and civilian specialists to assist country MAP sections in developing country requests for aid. Members of this group, augmented by political and economic aid specialists, will be assigned to a participating country with the approval of the U.S. Ambassador. Such personnel will assist the MAP Section in the completion of the country’s request for aid, and will be subject to the Ambassador’s general supervision while in a country, and will remain no longer than their assistance is necessary. The number of U.S. MAP personnel permanently assigned to a given country will be kept as low as possible in consideration of such temporary help available from the Regional Level.

24. In view of the fact that on policy issues Western Union will generally be dealt with as a single entity, it is anticipated that the country level functions within a WU member country will be concerned primarily with matters of implementation such as details for supply, training, observation of end use, and similar implementing functions—recognizing always that in particular policy cases it may be desirable to deal directly with the country. This will serve to keep MAP personnel permanently assigned to a Western Union country at a minimum.

Non-Western European Participating Countries

25. MAP matters with respect to Greece, Turkey, Korea, Iran and any other non-Western European participating countries will be handled directly from Washington unless and until it is determined to be administratively desirable to channel these through the ECC. No immediate change will be made in present arrangements for current programs of military assistance, although as soon as feasible the same MAP standards and regulations will be applied uniformly throughout the world to the extent possible.

Coordination of United States Representation to Western Union

26. The terms of reference stated above for the ECC will supersede those currently established for the Correlation (Coordination) Committee in Europe on United States Foreign Assistance Programs (FACC D–6/3⁶). In view of the fact that on policy issues Western Union will generally be dealt with as a single entity, all MAP matters with Western Union shall be channelled through the Executive Director and, where necessary, the ECC. The Executive Director shall be responsible for assuring application of MAP policy, as developed by the Secretary of State and the ECC, by the United States representation and staffs at Western Union. Staff functions will continue to be performed primarily by existing agencies and staffs (OSR, DELWU, and appropriate Embassies) under existing responsible officers. To the extent necessary, therefore, the Director for Foreign Military Assistance, in consultation with the FMACC, will determine the terms of reference with respect to MAP matters for representation to all Western Union organizations.

27. The channel of transmission of non-Western Union country requests will be from the United States Ambassador in the country concerned to ECC through the Executive Director. The ECC and the Executive Director may, if found desirable, utilize the staffs of existing U.S. organizations to Western Union for handling MAP matters of other Western European recipients at the regional level.

organization for map at the country level

U.S. Representation for MAP for each Individual Participating Country

28. The Chief of the U.S. (Diplomatic) Mission in each participating country will be the executive director of the Military Aid Program in that country and will coordinate the political, military and economic aid staffs to the extent that they are concerned with MAP.

29. In this capacity, the Chief of the U.S. (Diplomatic) Mission will perform the following MAP functions. Where necessary for this purpose, he will be provided with a Special Assistant for MAP:

a. Represent the Department of State in carrying out the Department’s field coordinative responsibilities in connection with MAP, including the making of policy decisions within the framework of established policy.

b. Arrange the necessary liaison with foreign nations on MAP matters.

c. Direct local negotiations in connection with military assistance.

d. Perform such other functions in connection with MAP as directed by the Secretary of State.

30. The ECA Chief of (Country) Mission will act as principal advisor to the Ambassador on the relation of the Military Assistance Program to economic recovery, including amount of additional military production that can be undertaken, internal financing of military expenditures, and intra-European transfers of items in connection with MAP. The Chief of the ECA Mission will designate a member of his staff as assistant for MAP to work on these matters with the Special Assistant for MAP designated by the Ambassador.

31. The U.S. Ambassador in each participating nation, except Luxembourg, will be assigned a MAP staff as an additional MAP Section. A senior military officer will be in charge of the MAP Section and serve as military advisor on MAP matters to the Ambassador.

32. MAP activities at the individual participating country level will be organized as shown in Appendix F.⁷ The functions of each of the Sections thereinunder are shown in Appendix G.⁷

Policy for the Performance of MAP Functions at the Country Level

33. The functions and responsibilities of the Sections at the country level of the MAP organization, as set forth in Appendix G, will be performed in accordance with the following policies:

a. Initiation and Development of Country Requests for Aid:

Sufficient personnel will be attached to the U.S. Ambassador’s MAP Section in a participating country to advise foreign military staffs on the initiation and development of requests for aid, as well as to perform other duties. To meet peak workloads and to advise on documentation of requests so as to facilitate completion of its work and later review in London, assistance will be available from Office of the Executive Director for MAP Overseas or other appropriate regional organization as provided for in paragraph 23.

b. Requisitioning:

Requisitions against an approved program will generally be prepared by technicians of the participating country working under the direction and with the assistance of the country MAP Section. Requisitions will be reviewed by MAP Section for technical compliance prior to forwarding to Washington.

c. Training:

U.S. Personnel may be assigned to a country MAP Section for specific approved MAP training purposes for the time required. U.S. training assistance, in a foreign country or in the U.S., will be made available only upon specific request of the foreign nation.

d. End Use Observation:

End use observation will be accomplished by the following means: (1) through review of reports of the participating country on utilization of aid; (2) through sample inspections made by U.S. Officials; (3) through regular U.S. reporting channels.

e. Reporting:

Reporting will be accomplished by the regular stall in conjunction with their MAP functions, and summary reports developed by the Special Assistant to the Ambassador for MAP.

1. This document, approved by FACC on June 15, became a portion of Part F of the MAP Hearing Book. Upon enactment of the program, MAP D–F served as the basis for its initial organization.
2. FACC D–9/7, a paper which did not receive the final approval of the Committee, is not printed.
3. Not printed.
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5. Not printed.
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