Foreign Relations of the United States, 1955–1957, Western European Security and Integration, Volume IV

253. Northern European Chiefs of Mission Conference, London September 19-21, 1957: Conclusions and Recommendations¹

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Country Conclusions and Recommendations

Norway

1. Norway continues to attach major importance to its membership in NATO and recognizes the need for a sustained defense effort.

2. At the same time pacifism and neutralism remain a latent force in Norway, particularly in the Labor Party. These sentiments reinforce Norwegian support for disarmament and enhance the concern felt at the dangers of atomic fall-out.

3. American military assistance is necessary if Norway is to maintain modern defense forces at the present level.

Iceland

1. The overwhelming majority of the Icelandic people supports of West and membership by Iceland in NATO.

2. A firm but understanding position on the part of the United States will assist Iceland in reducing communist influence within the country.

3. An effort should be made within NATO to assist Iceland in counteracting its growing dependence on trade with the Soviet Union.

Finland

1. There is no question about Finland’s sympathy for the West and will to maintain its freedom and independence.

2. We should avoid any action in our relations with Finland which would increase its difficulties in maintaining the delicate balance of Finnish-Soviet relations.

Sweden

1. The Swedish people are anti-Russian and prepared to resist communist aggression against their country.

2. Sweden regards its policy of non-alignment as a factor in the preservation of Finnish independence and hence in the interests of the West.

Denmark

1. The Danes continue firm in their support of NATO, but as in Norway there is a certain amount of latent neutralist sentiment.

2. Early settlement of the Danish shipping claim of approximately $5,000,000 dating from World War II would be helpful to our relations with Denmark.

3. American military assistance is necessary if Denmark is to maintain modern defense forces at the present level.

Ireland

1. Ireland is anti-communist but combatting Communism countinues to be secondary to preoccupation with the issue of partition.

2. The economic development of Ireland is severely hampered by the lack of capital and natural resources.

Canada

1. Canada’s support for NATO will remain unaltered by the Conservative Party.

2. Canada under the new Government will be less active and influential in the UN.

3. The nationalism of the Conservative Government will accentuate economic problems existing between the United States and Canada.

4. American policies with respect to Canada must take increasing account of nationalistic sensitivities.

United Kingdom

1. Despite her reduced power Britain continues to be an important ally and still exercises considerable world influence.

2. The Macmillan Government has shown a keen desire to restore Anglo-American cooperation. At the same time it is moving toward closer relations with the Continent.

3. Economic considerations are playing a dominant role in British policy, both internal and external. While Britain is beset by grave economic problems her internal political situation retains its traditional stability.

4. Britain is moving toward a more realistic assessment of her international role which, although confronting us with certain problems, may result ultimately in a more effective ally.

NATO

1. NATO remains essential to the common defense of the West against aggression.

2. Political consultation within NATO has made good progress and should continue to be promoted wherever appropriate.

3. NATO members should be encouraged to continue the maximum possible support to maintain the defense shield in Europe.

4. Irish membership in NATO is unlikely prior to the settlement of the problem of partition and as long as Ireland links its dispute with the U.K. to NATO membership.

USIS

1. Adequate and stabilized USIS programs should be maintained in the U.K. and the countries of Northern Europe. It is unrealistic to assume that because these countries have basically friendly and stable governments such programs are unnecessary.

2. USIS libraries are the symbol of American interest in the cultural life of Northern European countries and reach important elements of the population which cannot be reached otherwise, and should be maintained.

3. Immediate reconsideration should be given to the decision not to continue presentation subscriptions of the New York Herald-Tribune and New York Times to leaders in political, cultural and trade union circles. The sudden closing out of this activity denies access of this unofficial window of the U.S. to the very people with whom the Embassies are in closest touch. It was agreed that foreign leaders would not purchase these papers but would read them if they were presented.

4. It would be most helpful to Chiefs of Mission to have a policy statement from the Department on East-West exchanges, since Foreign Governments are constantly asking about our position in this respect.

5. The value of the U.S. Exchange of Persons programs in the various countries was emphasized. Certain Fulbright programs were drawing to an end and it was recommended that ways and means be explored to continue these essential programs either through appropriate funds or through sales of surplus commodities on which the foreign currencies would be earmarked for exchange financing.

UN

1. Apart from the question of Chinese representation, there are presently no important outstanding political questions between the U.S. and the Scandinavian countries involving the U.N.

2. Britain and the present government of Canada feel considerable disillusionment with the U.N.

3. The nations in the Soviet bloc show no signs of withdrawing from the U.N. and indeed are increasing their participation in the specialized agencies.

4. The new voting pattern of the U.N. can give the Afro-Asian bloc veto power over all substantive resolutions and jeopardizes the former Free World veto. It is at least theoretically possible to muster majorities both on procedural and substantive issues against the North Atlantic community.

5. Consideration should be given to refraining from efforts to persuade a country to change its position on an issue before the U.N. General Assembly where that position is well established, where we have reason to know that our efforts will not be successful and where such efforts are likely to be damaging to our prestige in the country in question.

6. The Department should keep Chiefs of Mission informed about the position taken by the delegations to the General Assembly of the countries to which they are accredited.

7. The Department and USIA should intensify their efforts to supply Missions with simpler and less technical material for use in presenting and explaining the Western position on disarmament both the governments and the public.

The Impending Conference on the Law of the Sea

1. A vigorous and skillful diplomatic effort will be required to ensure a sympathetic reception of the U.S. position the territorial sea and the related questions of conservation and fisheries.

2. An indication of some flexibility in the U.S. position, particularly in relation to the economic factor in the fisheries question, would be welcomed by the countries of Northern Europe, with the exception of the U.K.

Economic and Military Assistance

1. Concern was expressed at the apparent weakening of support in the U.S. for the foreign aid program and the unfavorable repercussions of this development in the countries of Northern Europe. The hope was expressed that the programs could be continued in the interest of the security of the United States.

2. It would be desirable to make a thorough study of the Austrian suggestion that the OEEC be utilized for provision of aid to under-developed countries under arrangements whereby the members of the OEEC could provide a certain amount of aid and supply a market for products of those countries.

European integration

1. The establishment of the Common Market, EURATOM and the Free Trade Area will strengthen Western Europe and the Atlantic Community politically and economically. It was expected that this could be achieved without increasing protectionism against the outside world and might possibly decrease it.

2. The British are supporting the Free Trade Area proposals in good faith.

3. The Canadians will probably accept U.K. participation in the FTA if agriculture is excluded.

4. The question of the ability of the less developed OEEC countries to join the Free Trade Area deserves special attention as there would be a grave danger to the OEEC if these countries should remain outside it while other OEEC countries joined.

5. In view of the importance of fish to Norway and Iceland, it is recommended that the Department give attention to the possibility of confidential approaches, as appropriate, to the key countries in the Free Trade Area negotiations to obtain the inclusion of fish in the Free Trade Area.

Soviet Policy and Relations With Scandinavia and Britain

1. While Khrushchev has emerged victorious from the June plenum he is probably not in a position to overrule the army on questions directly affecting its interests. Furthermore any failure of programs with which he is associated, such as decentralization of industry and the new lands might give his opponents an opportunity to oust him.

2. A disturbing factor in the present situation is the increased use by Khrushchev of the Communist party which is a prisoner of its own ideology.

3. The Soviet Government in its relations with the Scandinavian countries is likely to continue to employ “the carrot and the stick.” The Soviet desire to extend its influence in the uncommitted areas has brought it into sharp conflict with the United Kingdom in many parts of the world, thus making it difficult for the Soviet leaders to succeed in their former policy of courting the United Kingdom in an effort to separate it from the U.S.

Value of Conference—Desirability of Holding Such Conferences Once a Year

It was the sense of the Conference that it had been most valuable to all the participants, and that it would be in the interest both of the Missions concerned and of the Department to hold such conferences once a year.

1. Source: Department of State, Central Files, 120.1440/9–2357. Secret. Transmitted to the Department of State in despatch 713 from London, September 23.