6. Memorandum From the Assistant Secretary of State for Far Eastern Affairs (Robertson) to Secretary of State Dulles0

SUBJECT

  • Reappraisal of United States Policies Toward Japan

Attached is a study1 which reappraises United States policies toward Japan and makes certain recommendations designed to improve United States-Japanese relations. The study points to the need to modify our policies further to take account of Japan’s resumption of major power status.

Entering upon the post-treaty period, Japan recognized its dependence upon the United States in many spheres and in general was prepared to follow the lead of the United States in world affairs and to cooperate with the United States in defense and other matters. Alignment with the United States ensured the defense of Japan, greatly assisted its economic revival and was primarily responsible for the initiative leading to Japan’s return to a leading position in world affairs. At this earlier stage, United States-Japanese relations entailed little conflict of interest or sacrifice of self-interest on either side.

In recent years, we have entered a new era in our relations with Japan where the major issues existing between the two countries involve [Page 15] some conflict of interest with regard to territories, trade and the military posture of Japan. It appears essential to the continued alignment that there be a mutuality of interest and confidence which will enable each country to make difficult choices where some sacrifice of self-interest is required.

The study points to the necessity to accommodate Japan’s essential trading patterns as the cornerstone of a full and continuing close cooperation. Cooperative long-term United States-Japanese relations will depend primarily upon the availability to Japan of raw materials and export markets in the United States and other free world nations which will enable Japan to maintain a viable economy.

In considering the various issues which tend to alienate Japan from the United States, the study arrives at the following recommendations regarding measures which the United States can take to remove or ease those issues (United States policies in the Ryukyus and Japan’s dissatisfaction with present treaty arrangements have been treated at length in separate papers2 which you have already received):

(1)
Consult fully with the Japanese on the disposition of United States forces in Japan and give consideration to waiving the Japanese yen contribution to the support of our forces in Japan;
(2)
Evince a clear and positive attitude toward trade with Japan and move to eliminate State statutes discriminating against the sale of Japanese textiles;
(3)
Consult closely with the Japanese Government on our policies toward China but avoid the appearance of pressure to make Japan conform to these policies;
(4)
Re-examine our Bonins policy to determine what steps might be taken with regard to limited repatriation and compensation for use of land;
(5)
Ensure that further withdrawals of United States forces from Japan are handled in a manner that will result in maximum political advantage to the United States;
(6)
Take certain steps to assist Japan to expand its trade with South-east Asia;
(7)
Re-examine our policies in the Trust Territory to permit limited Japanese access to the Territory;
(8)
To the extent feasible, give Japanese requests priority in allocating PL 480 commodities;
(9)
Examine the feasibility of increasing United States procurement of military commodities and services in Japan;
(10)
Complete on an urgent basis current negotiations for an atomic power bilateral with Japan; and
(11)
Consult as appropriate with high officials of the Japanese Government on current and long-range foreign policy problems, particularly in Asia.

  1. Source: Department of State, Central Files, 611.94/3–2858. Secret. Drafted by Pfeiffer and Green and concurred in by S/P, C, and L.
  2. Not printed; see Supplement.
  3. One of them was the “Draft NSC Policy Paper on the Ryukyus,” February 1, 1958. (Department of State, FE Files: Lot 60 D 90, Japan-Ryukyus)