763.00/8–652
No. 813
Memorandum by the Deputy Assistant
Secretary of State for European Affairs (Bonbright) to the
Assistant Secretary of State for United Nations Affairs
(Hickerson)1
Subject:
- Reference of Austrian question to UNGA
Dr. Gruber has discussed with the US, UK, and France his proposal to refer the problem of the Austrian Treaty to the UNGA. We have agreed in principle and have outlined some basic considerations concerning the method of presentation of this question. Dr. Gruber has accepted these views.
The British and French show a lack of enthusiasm for Gruber’s proposal but realizing that he is apparently going ahead with it anyway, they are not disposed to object. Gruber is now in Brazil seeking to enlist the support of the Brazilian Government. His emissaries are also discussing the question with the Indian and Swedish Governments. In July, the Austrian Government circulated to all UN states a memorandum2 outlining the problem and containing the text of the Austrian draft treaty, which had never been published before, as well as the abbreviated treaty which was transmitted to the Soviet Government in March 1952. It is not yet known what governments will sponsor the resolution.
Gruber’s basic position, as outlined in the memorandum, holds that the conclusion of a treaty is not required to bring about the evacuation of Austria by the occupying forces. The resolution for which he is now seeking sponsors may call on the occupying powers to evacuate Austria before the conclusion of a treaty.
Such a resolution would create serious difficulties for the US. There are no present indications that the Soviet Union will conclude any Austrian Treaty prior to the settlement of the German question. In the absence of any change in the international situation which would bring about an Austrian settlement, there is no [Page 1775] present alternative to a continuation of the occupation. This view may run counter to the Austrian request to the UNGA and involve us in our first difference of opinion with the Austrian Government on the treaty question. We are not opposed to withdrawal of troops from Austria. If they are withdrawn before the conclusion of the treaty, certain conditions would have to be fulfilled which affect Austrian security. It would be extremely difficult for the US to agree to withdraw our occupation forces without obtaining the completion of the program for gendarmerie training and the creation of an Austrian security force to maintain internal order. Secondly, it would seem unwise to accept Gruber’s position to withdraw the occupation forces before a definitive settlement of the problem of Soviet controlled property in the Eastern Zone. Finally, it would be illogical to accept Gruber’s position until definite agreement is reached in strategic planning concerning the place which Austria will occupy geographically in the defense of Western Europe.
EUR considers, therefore, that steps should be taken now to control the action of the GA insofar as possible in order that we may get results which are consistent with our own and with Austrian security interests. We believe that UN debate of this question will be beneficial since it would publicize the efforts made by the Western Powers since 1945 to conclude the treaty. A sympathetic understanding in the GA of the efforts of the Western Powers throughout the treaty negotiations might enhance the chance of an Austrian settlement on a fair basis. If support can be obtained in the Assembly for a settlement on the basis of the abbreviated treaty, the possibility of ultimate agreement would certainly not be any more remote than it appears at the present time.
It might be helpful in forestalling any effort by Assembly members to mediate our differences with the Soviet Union. We believe that any proposal for mediation would serve only the Soviet interests. While our Embassy in Moscow considers that reference of this question to the UN would not worry the Soviet Government or have any appreciable effect on Soviet policy, it might, however, have a restraining influence on Soviet occupation policy in Austria since experience has shown that they tend to avoid action which violates the agreements on occupation while the Austrian question is receiving widespread attention.
In view of the foregoing, EUR considers it would be desirable to agree as early as possible on a program for UN action and to do whatever preliminary work in the UN capitals which may be appropriate. This program should have British and French agreement. We suggest for your consideration the following: [Page 1776]
- 1.
- The initiative for reference of this question to UNGA should come from the Austrian Government with the usual guidance and assistance on our part.
- 2.
- The sponsors should preferably be a group of states in order to broaden the base of support and to demonstrate a world-wide interest on the part of nations not participating in the occupation. Tripartite agreement on the sponsors cannot be obtained in view of the British and French attitude but the three Western Powers should have an opportunity to express their views to the Austrian Government on the prospective sponsors prior to their selection.
- 3.
- Prior to the meeting of the GA we should make our position known to various UN governments which have received the Austrian memorandum and seek to obtain their agreement to the proposal outlined in 6 below.
- 4.
- The action placing this question on the agenda should be taken in sufficient time so it is not put up as an emergency measure.
- 5.
- The original resolution should be phrased in such a way as to give the US, UK and France an opportunity to make a fully documented presentation of their efforts to conclude the treaty.
- 6.
- The maximum result we should seek to obtain should be a simple resolution by the GA recognizing the Austrian problem, pointing out that the abbreviated treaty offers a fair and equitable basis for settlement, and recommending that the Deputies begin negotiations immediately on the abbreviated treaty to secure a settlement and terminate the occupation.
EUR is attempting to find out the substance of Gruber’s exact proposals to the governments which may sponsor the resolutions and will provide a full documentation on the negotiations and occupation policy for use by the US representatives as well as a brief factual “White Paper” which can be circulated to the UN members.
You may also wish to discuss with representatives of the Austrian Embassy and the Austrian Observer at the UN the procedural matters involved in this question and to give such technical and procedural advice which may be appropriate. EUR would be pleased to render such assistance as may be appropriate in this connection.
Mr. Ward Allen will represent EUR and will be glad to discuss this question with a representative of your Bureau.