S/S–NSC Files: Lot 63D351: NSC 21 Series
Memorandum by the Secretary of State for the Executive Secretary of the National Security Council (Souers)1
Subject: Antarctica
Reference: NSC 21–July 13, 19482
It was recommended in NSC 21 that the United States seek a solution of the Antarctica territorial problem on the basis of internationalization. It will be recalled that there was included as a part of the paper a memorandum from Admiral Leahy to the Secretary of Defense dated June 25, 1948* which indicates the acceptance by the JCS of this recommendation, with two observations from the defense standpoint: 1. That control of the area by friendly powers should be assured. 2. That probable enemies of the U.S. be excluded from participation in an international regime.
Early in August 1948 this Department proposed to the governments of Argentina, Australia, Chile, France, New Zealand, Norway, and the U.K. that a solution of the territorial problem in the Antarctic be discussed on the basis of internationalization. The reactions of those countries were such as to make the realization of this objective impossible [Page 805] for the present. Chile, in reply, proposed, as a modus vivendi, an agreement or declaration which would freeze the status quo with respect to territorial rights as between the signatories for a period of 5, 10 or more years, and provide for scientific cooperation in the area among the signatories.
A careful study has been made, in the light of the positions taken by the various countries, of possible means of a) safeguarding U.S. interests, b) reducing or eliminating friction or conflict in the area, and c) improving the possibility of eventual final settlement on a satisfactory basis. The best prospect of accomplishing these objectives appears to lie in accepting the substance of the Chilean suggestion, seeking to modify it to bring it as closely as possible into harmony with the U.S. view as to the desirable final solution. This would eliminate the friction between countries which tends to become more acute year by year. The fact of its signature, its specific terms, and its operation could be expected to prepare the way for a satisfactory permanent solution of the problem at some time in the future after the present rivalries have diminished.
The agreement or declaration, as we would seek to modify it, would: Declare the desire of the eight signatories to avoid conflicts in Antarctica; state that they are engaged in conversations looking toward a solution and are disposed to consider and discuss suggestions for methods of settling the territorial problem; that for a period of 5 or 10 years (possibly longer) any activities carried out in the area will not prejudice such territorial rights as now exists (the United States would, of course, make its claim before entering this arrangement) and will not be invoked against other signatories as a basis for claims to sovereignty; that the signatories will grant to government[s] and nationals of each of the other signatories permission to conduct exploration and scientific research in the area of its claim; that exchange of scientific information will be carried out amongst the signatories, which signatories will encourage the dispatch of scientific and technical expeditions to the area; and that the signatory governments will create a commission to assist in coordinating plans for expeditions and to have the authority on behalf of the signatory countries to grant permission to countries other than the signatories to conduct explorations and scientific investigations in the area; the signatories will act in cooperation for the advancement of their common interests and protection of their rights in the area; prior to the expiration of the arrangement, the governments will consult regarding the advantages of meeting in an Antarctic conference.
The official U.S. claim would be made prior to the conclusion of the agreement.
Such an agreement would be consistent with NSC–21 and would take fully into account the observations of the JCS referred to above.
[Page 806]The Department of State proposes at an early date to consult with the British Government as to its attitude to this proposal and with the Chilean Government as to the manner of bringing this proposal under active consideration by the governments concerned.
It is requested that this memorandum be circulated to the Members of the Council for their information.
- This memorandum was circulated to the National Security Council as document NSC 21/1, August 30, under cover of a note by NSC Executive Secretary Sidney W. Souers stating that no action on the memorandum had been requested by the Secretary of State in view of the fact that the international agreement proposed herein would be consistent with previous National Security Council decisions regarding Antarctica and would take fully into account the observations of the Joint Chiefs of Staff.↩
- Document NSC 21, July 13, 1948 was textually the same as document PPS 31, June 9, 1948: for text, see Foreign Relations, 1948, Vol. i, Part 2, p. 977.↩
- NSC 21, p. 15. [Footnote in the source text.]↩