Foreign Relations of the United States, 1950, Western Europe, Volume III

740.5/11–3050: Telegram

The United States Deputy Representative on the North Atlantic Council (Spofford) to the Secretary of State

top secret
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London, November 30, 1950—noon.

Depto 250. From Spofford. Following is draft report (working paper) on German participation which I am circulating, as chairman, to deputies this morning preparatory to next meeting:

“Introductory:

1. Report of Military Commission [Committee] (MC–30) was considered by deputies and Military Commission in consultation and has been approved as set forth in annex “A”¹ hereto.

2. Certain questions considered in report were left open for determination pending consideration of political aspects by deputies. These questions have been reviewed by deputies and are embodied in their comments set forth below.

General Principles:

3. Need for organizing and developing collective defense of Europe is increasing rather than diminishing. Council has already decided that defense of Europe will require establishment of integrated force, under centralized command and control, composed of forces made available by participating governments and full utilization of manpower and productive resources available from all sources.

4. From political point of view, Council Deputies concur in and endorse statements made in paragraphs 1 through 8 of MC–30, particularly that defense of North Atlantic area requires that Western Europe be defended as far to east as possible, that considerable potential of Western Germany must be denied to enemy and secured for North Atlantic nations, that acceptable and realistic defense of Western Europe and adoption of forward strategy cannot be contemplated without active and willing German participation, and that process of building up total forces required must be initiated in immediate future.

5. Deputies have been considering political aspects of German participation in defense of North Atlantic area. They are agreed that following principles are applicable:

(a) Any system of German participation must be within NATO structure, whether directly or indirectly;

(b) System must be militarily acceptable and units formed thereunder must he effective;

(c) In so far as possible, European, as distinct from national, spirit should be instilled in German contingents;

(d) German units should be on basis of full equality with units of other participating countries with which they are integrated;

(e) Recognizing that in any solution adopted some controls on Germany will be required, solution should provide for progressive diminution of such control over Germany to extent that such diminution will not lead to resurgence of traditional German militarism.

(f) Solution should provide for rapid formation and training of German units;

(g) To make rapid progress, existing organizations and agencies should be utilized in initial phases, without prejudicing development of effective permanent institutions which can assume necessary responsibilities;

(h) Solution adopted should be flexible and subject to modification in light of experience.

6. In reviewing military and political aspects of problem deputies are convinced that concurrent solutions cannot be found to all questions presented. While work proceeds toward solution of political aspects of problem, certain measures upon which there already exists large measure of agreement can and must be taken immediately. This conviction dictates use of provisional measures during transitional period. Purpose of such transitional period would be

(a) To permit essentials of military organization to proceed immediately;

(b) To proceed with recruitment of German manpower and production of matériel under provisional arrangements pending development of more permanent system; and

(c) To enable broader political problems to be dealt with concurrently but apart from urgency of initiating military measures.

These provisional arrangements would be progressively superseded as and to extent that permanent mechanisms, either military or political, were developed which would be effective to discharge various responsibilities.

Political Aspects of Military Question:

7. Deputies are agreed on following recommendations on those military questions left open for determination pending consideration of military aspects:

(a) Size of German formations: (German formations should be smallest completely balanced units as determined by military considerations.)
Note: Size of German units should await consideration of final report of Military Commission.

(b) Air units: German contribution should include appropriate air units for defense of Western Europe and support of German ground units. Such air units would be within integrated air components of Supreme Commander.

(c) Conscription or voluntary enlistment: Deputies consider that this problem should be determined by German authorities. There is no political objection to conscription system for German units. In fact conscription may give more democratic and less traditionally militaristic character to these units. In general, action of German Federal Republic should be governed by recommendations of Military Commission as endorsed by deputies with regard to military service.

(d) Contributions of German production: Subject to safeguards set forth in annex “A” deputies consider that German production should contribute greatest extent possible to support of German contribution and to such other phases of common defense as may be reasonable and within her capabilities. Nature and size of contribution required of German armament industry should be recommended by appropriate agencies of NATO.

Until other arrangements are adopted safeguards on production will continue to be exercised by occupying authorities. There must of course be close cooperation between this agency and Defense Production Board of NATO.

(e) Plans for raising and preliminary training of German forces: Deputies agree that detailed plans for raising and preliminary training of German forces should be made by occupying authorities in concert with Supreme Commander and appropriate German authorities after initial discussions with Germany have clarified overall problems.

(f) Internal organization in Germany: Deputies have discussed various aspects of internal defense organization in Germany. They recognize that final determination must be made in conjunction with German authorities. German internal organization will also depend to some extent on nature of any political defense structure which evolves in Europe and in NATO. Deputies consider that inter-allied agency is not acceptable substitute for German organization. Whether or not these functions should be performed by one or more German agencies should be determined after discussion with German authorities. It is generally agreed that:

(1) Organization should be capable of fulfilling its functions effectively and rapidly.

(2) Functions to be performed by such organization would be limited to prevent development of powerful Defense Ministry.

(3) To insure against possible recreation of German staff, operational, planning and intelligence functions above level of authorized units should not be established in German defense structure.

Deputies consider that enforcement of safeguards, as set forth in annex “A”, should be responsibility of occupying powers. Enforcement of those safeguards can be progressively transferred to appropriate European or NATO agency if and to extent that this should later be considered advisable, or relinquished as need for them ceases.

Political Questions:

8. Deputies recalled that Council in its resolution of September 26, 1950 (C5–D/11–final)² stipulated that integrated force should be organized under North Atlantic Treaty Organization and be subject to political and strategic guidance exercised by appropriate agencies of North Atlantic Treaty.

9. Deputies have considered French proposals that there be included within NATO framework European army subject to European as well as NATO political guidance. They are agreed that any such institutions, if and when created, must (a) strengthen North Atlantic community and integrated defense of North Atlantic area; (b) be integrated into NATO framework; (c) promote closer association of countries of Western Europe and tie Western Germany more firmly to west.

10. Creation of European defense structure raises problems which require profound and mature consideration, and which cannot be adequately solved in haste. If fully adequate and lasting solutions are to be found such problems should be considered on their merits and free from pressure of initiating military measures. Furthermore it could not realistically be expected that these solutions, even if agreement upon them were quickly reached, could attain adequate development in time to serve as framework for rapid initiation of effective military strength.

11. Deputies consider that European powers which wish to participate (including German Federal Republic) and observers from other NAT governments, if latter desire to be so represented, should be convened to consider French Government’s proposals for European army and attendant supporting political institutions. To extent that agreement is reached by European powers upon such arrangements, and they are developed to point where they can create and support effectively military forces of European rather than national character, suitable for integration into NATO, these arrangements will be placed progressively into operation and can then supersede transitional arrangements. Final test of all such arrangements must be whether, in judgment of NATO, they are militarily effective and serve to strengthen North Atlantic community. Transitional arrangements shall continue in effect until replaced either by arrangements so agreed upon or by other arrangements adopted by NATO in light of experience. Assurances should be given to German Federal Government that they would have full equality in discussions concerning political superstructure for Western European defense and equality of treatment of German units in integrated force.

12. Consideration of these political problems must not delay prompt initiation of those military measures upon which agreement has been reached by Military Commission and which can be initiated forthwith. Deputies consider that Allied Occupation Authorities in Germany should be authorized, on behalf of parties to North Atlantic Treaty, to discuss with German Federal Government question of German participation in Western European defense along lines set forth in annex “A”. Principles enunciated therein and in this document should guide Occupation Authorities. Object of these discussions should be to secure earliest possible recruitment and training of German formations for integrated defense force. German Federal Government should also be informed of desire of NATO members to maintain flexibility in such provisional arrangements as may be agreed upon so that appropriate modification can be made in light of experience.

13. Definitive solutions of various segments of problem raised by German participation would be facilitated by actual experience in working under provisional agreements for period after Supreme Commander has been appointed and in dealing with practical problems involved in developing integrated force for defense of Europe, including German formations. They consider this matter of primary importance for rapid solution of both short-term and long-term problems.

Conclusions:

Deputies, therefore, submit following conclusions:

(1) Report of Military Commission constitutes acceptable basis, from political aspect, for German participation in defense of Western Europe.

(2) Political climate in Germany is deteriorating to detriment of German willingness to cooperate in European defense effort.

(3) Consideration of political superstructure and European army for Western European defense proposed by French Government should not delay prompt initiation of those military measures upon which agreement has been reached.

Recommendations:

The deputies therefore recommend:

(1) That this report and annex “A” thereto be approved.

(2) That Allied Occupation Authorities in Germany should be authorized, on behalf of parties to North Atlantic Treaty, to discuss with German Federal Government question of German participation in defense of Western Europe in accordance with this report and annex “A” and be requested to report results of such discussions and steps taken to initiate German participation in accordance therewith.

(3) That European powers which wish to participate (including German Federal Republic) and observers from other NAT governments, if latter desire to be so represented, should be convened at initiation of French Government to consider its proposals for European army and its attendant political institutions.”

Sent Department Depto 250; repeated info Paris 1043, Frankfort 484.

[Spofford]

1. No Annex A was found attached to the source text.
2. Transmitted in Secto 55, September 26, p. 350.