Foreign Relations of the United States, 1955–1957, Japan, Volume XXIII, Part 1

225. Airgram From the Department of State to the Embassy in Japan¹

A–158

Washington, September 19, 1957.

SUBJECT

• Ryukyuan Land

During the discussions in June with Prime Minister Kishi, he raised the problem of land utilization in the Ryukyus and suggested that the United States make every effort to alleviate the land shortage. He mentioned specifically the possibility of emigration of Ryukyuans to islands in the Trust Territory of the Pacific Islands, such as Saipan or Tinian. The Secretary replied that a close review of United States land requirements was under way and that the possibility of Ryukyuan migration to other areas, such as the Trust Territory, would be studied.

The Department has explored the suggested Ryukyuan migration to the Trust Territory of the Pacific Islands and has come to the conclusion that it is not feasible and should not be attempted. In pursuing this matter, the views of the Department of the Interior, which has the responsibility for administering the major part of the Trust Territory, and the High Commissioner of the Trust Territory were sought. Interior objected for the following reasons:

1. Under the Trusteeship Agreement² the U.S. is obliged to protect the inhabitants against the loss of their lands. In pursuance of this obligation the acquisition of land by persons other than native inhabitants is prohibited.

2. Since 1947 the population has increased from an estimated 47,000 to 65,000. With continued improvement in health and sanitation an even greater increase may be expected in the immediate future, particularly since the population is a relatively young one.

Of the 687 square miles of land in the Trust Territory only about half of it is considered arable. Some islands are already overpopulated and with the anticipated increase in population lands not currently in use will be needed by the local inhabitants.

3. The stated policy of the Department of the Interior is to reserve to the Micronesians, to the greatest extent possible, the development of the natural resources and commercial opportunities of the Territory in order that the maximum monetary return may accrue to them. Economic resources in the territory are limited and any Okinawans brought into the territory would be in direct competition with the Micronesians. The latter have not yet acquired sufficient economic and commercial acumen to withstand such competition. Not only would resentment arise but also the policy of promoting the economic interests of the Micronesians would be undermined.

4. The introduction of a minority element into the population at this time could be expected to create social problems and to affect the political development program. Migration of Okinawans for permanent settlement would be regarded by the Micronesians as a direct threat to the economic, social and political life that the Micronesians have become used to since the war.

The Department of Defense, which administers Saipan and Tinian through the Department of the Navy, continues to object to the entrance into the Trust Territory of any foreign national on security grounds.

Additional objections foreseen by the Department are:

5. Under the Trusteeship Agreement the United States is obligated “subject to the requirements of security and the obligation to promote the advancement of the inhabitants” to “accord to nationals of each member of the United Nations and to companies and associations organized in conformity with the laws of such member treatment in the Trust Territory no less favorable than that accorded therein to nationals, companies and associations of any other United Nation, except the administering authority.” Japan is a member of the United Nations and privileges extended to Ryukyuans, who are Japanese nationals, might create a precedent which all United Nations members could claim.

6. Almost 4,000 Ryukuan families (over 20,000 people) who formerly resided in the Trust Territory would like to return there. It would be almost impossible to permit a part of this group of people to move to the Trust Territory without opening the door to endless agitation for more migration. It would seem to be a case of all or none—and the Trust Territory clearly cannot take all of them.

The Departments of State and Defense are continuing to examine possibilities for Ryukyuan emigration to other areas.

The Department of Defense has reported on the review of United States land requirements in the Ryukyus as follows:

As a result of this review, the estimate of total United States requirements was reduced from upwards of 56,000 acres to within the 52,088 previously authorized by the United States Congress. More than 300 acres of land previously acquired were returned to the local economy between 1 July and 31 December 1956.

The United States has been following and will continue to follow the policy of outgranting, for no cash compensation, all land included in its holdings to the extent that this is compatible with United States utilization and security requirements. On 31 December 1956, United States holdings of acreage remaining arable were calculated at 7,505 acres. Farming was permitted on 6,389 acres; this constitutes 85 percent of the acreage held which remains arable.

On 14 August 1957, Commander Naval Operations directed Commander Navy Forces Japan to dispose of Yonabaru airfield site as excess land. In accordance with the most conservative policy and economy in United States land utilization, a requirement for additional land to build an airstrip on Miyako Island was cancelled.

Reappraisal of the land situation resulted in greater land values as well as lesser acreage needs. Based on these reappraisals, landowners are being given, in lieu of annual rentals, a cash payment a great many times more than the annual rent for the full use of their property. In Fiscal Year 1957, funds in the amount of $2 million for resettlement expenses incident to displacement of landowners, and $10 million for long-term land acquisition were made available to the field commanders. Funds, in addition to the amount previously authorized by the United States Congress, will be requested for land acquisition previously authorized.

The keystone of United States land policy in the Ryukyus is to keep United States holdings to an absolute minimum consistent with United States military missions in the area. In the furtherance of this policy every effort is being made to minimize requirements. Such efforts include joint service utilization of facilities, multi-story construction, and location of facilities on non-arable land. General Lemnitzer, earlier this year, told the Ryukyuans that this program is working “to the mutual benefit not only of the landowners, but of the Ryukyuan people in general, as well as the United States, and should usher in a period of greater prosperity and increasing well being in the Ryukyu Islands.”³

On the basis of the Department’s exploration of the Ryukyuan emigration question and Defense’s survey of United States land holdings in the Ryukyus, you are instructed to inform the Japanese, at a time and in a manner of your choice, that: (1) The United States is examining all possibilities for Ryukyuan emigration and attempting to stimulate it wherever possible. After careful consideration, the United States has come to the conclusion that no exception should be made in the case of the Ryukyuans to the general rule prohibiting migration into the Trust Territory of the Pacific Islands. (2) The keystone of United States land policy in the Ryukyus is to keep United States holdings to an absolute minimum consistent with the United States military mission in the area. To this end, a survey has recently been conducted which resulted in a further reduction of United States land holdings.

You are authorized to use the material appearing in this instruction in your presentation to the Japanese. Any connotation that the United States is obligated to provide the Government of Japan with reports on the activities of the United States administration of the Ryukyus should be avoided.

Murphy

1. Source: Department of State, Central Files, 794C.0221/9–1957. Secret. Drafted in NA on September 6; cleared in ODA, FE, and the Department of Defense; and approved by Robertson.
2. For text of the Trusteeship Agreement for the former Japanese-mandated islands in the Pacific, designating the territory as a “strategic area” and the United States as administering authority pursuant to the provisions of Chapter XII of the U.N. Charter, see TIAS 1665; 61 Stat. (pt. 3) 3301.
3. Quoted source not identified.