Foreign Relations of the United States, 1981–1988, Volume I, Foundations of Foreign Policy

233. Telegram From the Department of State to all Diplomatic and Consular Posts¹

Washington, February 26, 1985, 0520Z

57043. This is a joint USIA, DOD, State message. Subject: US Policy on Observance of World War II Anniversaries.

1. Summary. On the basis of contributions from interested USG agencies, the National Security Council approved on February 11 a basic strategy on commemoration of World War II and postwar anniversaries. This cable discusses that strategy, which will serve as the framework for US public diplomacy efforts, and provides general guidance to posts.

2. We recognize that several posts have already been called upon to participate in commemorative events and wish to commend the initiative and sensitivity with which they have responded (Brussels 1485 and the Hague 511, Notal).² We encourage addressees to continue to exercise their own judgment as to whether invitations to participate in local bilateral or multilateral commemorations are generally in keeping with the guidance provided below. We believe there is much to be gained in terms of goodwill toward the US and the alliance through participation in appropriately positive observances. Posts should draw on this cable when discussing anniversaries with host governments. Instructions concerning specific outstanding requests for guidance will be sent septels. End Summary.

3. Commemoration of key anniversaries this year provides opportunities to:

— Reaffirm the goals and principles which were pursued in establishing the new, democratic community of Atlantic and Asian nations during the immediate postwar years;

— Draw attention to the unparalleled achievements and benefits resulting from post-war reconciliation and cooperation;

— Strengthen our coalition of allied and friendly countries by stressing the community of values and common interests which unite us today;

— Point to the job that remains to be done in expanding freedom and economic opportunity in parts of the world where they are not enjoyed;

— Mitigate the offensive and divisive thrust of the commemorative campaign the Soviets and their East European allies have underway;

— In the case of appropriate commemorative events, facilitate participation by individuals and groups with a legitimate personal or historical interest;

— Make available documentation from the period which illustrates and clarifies US and allied policies.

— Counteract contemporary pacifist sentiments by demonstrating that the values being commemorated were and are worth fighting for.

4. Themes. Starting from the broad, positive themes of peace and reconciliation articulated by President Reagan in a January 26 radio interview (see below, para 18), the United States views the many anniversaries being observed this year as an opportunity to rededicate ourselves to the goals and ideals which, under US leadership, the West followed in establishing a new, secure Atlantic and Asian democratic community, aimed at avoiding future wars.

5. In so doing, special emphasis should be given to the emergence of thriving democracies, dedicated to free enterprise, individual liberty and material well-being, in the very nations defeated in World War II, as well as to the creation of the most successful collective security organizations of modern times: NATO, ANZUS and the Treaty of Mutual Cooperation and Security with Japan. (ANZUS references must, of course, take account of current political difficulties).

6. Conversely, our celebration of these achievements must be balanced by emphasis on the unacceptability of the division of Europe which emerged from World War II. We should stress Soviet responsibility for this division and underline the fact that, contrary to the USSR, the United States does not believe that history has spoken its final word on the political organization of the continent. Our main themes should be self-determination of peoples, overcoming the human costs of the division and the rightful goals of nations in both Eastern and Western Europe to restore full national sovereignty. Particular emphasis should be placed on the human rights aspect of the division. Posts should note that human aspirations cannot be suppressed forever and stress that until freedom of movement and expression is made possible, tensions will threaten. This aspect of the anniversaries was addressed in the President’s February 5 statement on the Yalta Conference, repeated in State 35382.³

7. Dealing with the Soviets. The Soviet/Eastern European campaign is focused on the “overwhelming role” of the USSR in victory over Germany and Japan, adherence to the postwar status quo, familiar distortions of US and Soviet contributions to the war, and the vilification of the FRG. Soviet attacks on Bonn and Tokyo could, if responded to skillfully, further US interests by underscoring clearly the real differences between the respective US and Soviet approaches to Europe and Asia. In particular, the vicious “revanchism” campaign against the Federal Republic should be described as a clear demonstration of true Soviet goals towards Germany which belie much of the peace rhetoric of the past two years.

8. In the absence of a common approach, we should consider cooperation and joint participation in events with the Soviets only if the USSR demonstrates a willingness to redirect its approach. It now appears that the Soviets will risk alienating the West rather than pass up the opportunity afforded by the V-E day anniversary to rally domestic support for their policies, and reaffirm the status quo in Europe. This fact should not cause us to abandon our basic theme of reconciliation. We should, however, not expect a marked softening in the Soviet approach.

9. Eastern European Observances. As noted in para 19 below, posts in Eastern Europe are requested to explain our approach to East European governments, stressing its incompatibility with the Soviet revanchism theme. If the public line of these governments proves significantly more congenial to our own we should consider reciprocating— and encouraging our allies to do the same—by joining at an appropriate level in their national observances, or in other appropriate ways.

10. V-E Day. The White House envisages a major Presidential address on May 8 during the President’s trip to Europe.⁴ As a general rule, we would suggest treating May 8 as the day when peace came to Europe, a situation which has prevailed since, thanks to NATO, with the exception of periodic Soviet assaults on one or another of its “allies.”

11. Events in Asia. Reflecting the sensitivities of the Japanese in particular, we plan a low-key approach for the end-of-war anniversaries. As Prime Minister Nakasone told Secretary Shultz in California, commemorations should be cast in positive, forward-looking terms, stressing the progress Japan has made in developing a true democracy and the postwar importance of US-Japanese friendship.⁵ Contacts between Japanese and American veterans’ groups are under way and should receive appropriate encouragement. We should also acknowledge the important wartime roles of Australia and New Zealand in defending freedom while taking into account the current political difficulties in the ANZUS alliance. We are also aware of the need to commemorate the roles of friendly countries in both the European and Pacific theaters, including the Benelux and Scandinavian countries, Greece, the Philippines and Korea. Following the lead of individual host governments interested in appropriate commemorations and starting from a positive, forward-looking posture, we should stress the progress made in the postwar West and seek to emphasize the celebration of freedom as a common theme.

12. China. We should continue to assess the feasibility of participating in Chinese anniversary ceremonies. Bearing in mind our wartime alliance with Chiang Kai-shek and the complications of the Taiwan issue, such participation may not be advisable.

13. Veterans’ Groups. Without endorsing joint participation with Soviet veterans’ groups, we plan to cooperate with US veterans’ groups to the extent possible. NSC has recommended that DOD designate one of the services as the executive agent for WWII anniversaries. That service in turn will set up a central office primarily for informational purposes to provide coordinated responses to veterans’ groups’ inquiries.

14. We support the concept of a formal German-American veterans’ commemoration, stressing homage to those who fell in battle as well as the high degree of mutual respect and cooperation between the two armed forces today. As suggested in para 19 below, we wish to begin consultations on a NATO observance at NATO Headquarters, Brussels. Any veterans activities in Europe should be done in coordination with and, if possible, under the supervision of USCINCEUR. Requests for participation by any US active duty troops in any ceremony or activity should be forwarded to the Department of State for coordination with DOD. Consideration will also be given to the possibility of a national ceremony in the US to commemorate Americans who died in battle and in concentration camps. In addition to elaborating themes mentioned above, such a ceremony would also aim to bolster American internationalism and counter neo-isolationist pressures.

15. Events in Israel. Israel is hosting May 5–9 a world assembly commemorating the 40th anniversary of the defeat of Nazi Germany and its satellites. While we understand that most of the program is designed for Israeli participation only, our embassy has been invited to attend, with the rest of the diplomatic corps, a ceremony on May 8 in honor of the allied victory. We believe that Embassy Tel Aviv can best judge whether participation in this ceremony would be consistent with the themes of peace and reconciliation we are seeking to emphasize. Representatives of the Department of Justice’s Office of Special Investigations (responsible for war crimes investigations) have also been invited to attend the assembly. No other official US participation is planned at this time, although a Presidential message is being sent for inclusion in a brochure to be published by the world assembly.

16. Consultations. All agencies are agreed on the importance of continued close consultations with our allies, particularly the FRG, the UK, France, Japan and Australia. In addition to contacts through our embassies, we plan to use NATO POLADs as appropriate. An action request is contained in para 19 below.

17. Next Steps. An interagency group on World War II anniversaries was formed in November, 1984, and will continue to meet regularly. The Office of the Historian in the Bureau of Public Affairs is currently working on a series of background papers on major anniversaries, which we intend to use as part of a general briefing package for USG officials and public speakers. The first such paper, on the Yalta Conference, was sent to posts in State 32454.⁶ Other topics include V-E Day, the Potsdam Conference and V-J Day.

18. Excerpt from President Reagan’s comments on WWII anniversaries from his January 26 radio interview. Begin text: I have to tell you that I hope that, world wide, the observance of the end of World War II will not be the rejoicing of a victory and recalling all of the hatred that went on at the time. I hope we’ll recognize it now as the, day that democracy and freedom and peace and friendship began between erstwhile enemies. End text.

19. Action requested:

A. For All Diplomatic Posts: Please draw on above guidance as appropriate in discussing overall US approach to V-E Day and V-J commemorations with host governments. Please report any significant reactions, especially those which reflect special support or criticism of US goals. All requests for US participation in commemorative events should be reported immediately.

B. For Bonn, London, Paris: As posts are aware, Department has been in close touch with these allies concerning V-E Day and President’s trip. Please present above views as reflection of overall inter-agency guidance and note that we will also raise the subject at NATO. Please stress our continuing desire for the closest possible consultation on V-E Day issues.

C. For USNATO: Please draw on above guidance in presenting the general outlines of US goals to POLADs and note that the US is interested in the closest possible consultation with all allies on V-E Day issues. You should note that details of specific events are still being considered and should request detailed views of other allies on major issues.

D. For Warsaw Pact Capitals: As noted in para. 9 above, Department wishes to provide Warsaw Pact countries with a comprehensive description of our approach. This description should stress our desire to pursue reconciliation and should suggest that if EE countries wish also to adopt this theme, we are prepared to discuss joint observance of various events such as liberation of cities or camps, etc. Presentation should be tailored to posts’ judgment of local situation. It should be low-key and objective and should not hold out hopes for major US particiption. We do not believe that Warsaw Pact countries will stray from the Soviet line, but wish to offer them the opportunity to adopt a more moderate approach.

E. For Bonn: One possibility raised in Washington is that of a joint military ceremony at NATO Headquarters. We would be interested in your assessment of this idea as well as reactions of the Germans before taking it up in NATO.

Shultz

1. Source: Department of State, Central Foreign Policy File, Electronic Telegrams, D850129–0272. Confidential; Priority. Sent for information Priority to the Department of Defense, Defense Intelligence Agency, and CINCPAC Honolulu. Sent for information to USNAMR SHAPE, USCINCEUR Vaihingen, CINCUSAFE Ramstein, CINCUSAREUR Heidelberg, USDOCOSOUTH Naples, and CINCUSNAVEUR London. Drafted by David Jones (EUR/CE); cleared by Simons, John Campbell (P), Lowenkron, Michael Klossen (EUR/RPM), Palmer, Dale Herspring (EUR/EEY), John McCarthy (PA), Kimmit, Pearson, R. Bell (DOD/ISP), John Sandstrom (USIA–P/G), Cobbs, Dobriansky, Louise McNutt (EAP), Joyce Lasky Shub (P), Philip Wilcox (ARA/IAI), Thompson (JCS), McKinley, and Krebs; approved by Burt.
2. In telegram 1485 from Brussels, January 29, the Embassy summarized its “participation in the fortieth anniversary celebrations in Belgium, with particular emphasis on the reconciliation mass held Christmas Eve in Bastogne.” (Department of State, Central Foreign Policy File, Electronic Telegrams, D850063–0482) In telegram 511 from The Hague, the Embassy noted the various celebrations scheduled to take place in the Netherlands in 1985, adding: “These activities are meant to commemorate liberation and not victory over the Germans. The Dutch people, including the government officials and the Royal Family, are sponsoring these commemorations to remember the hardships they endured to insure their freedom and to thank representatives of the military forces and countries which liberated them.” (Department of State, Central Foreign Policy File, Electronic Telegrams, D850049–0806)
3. In telegram 35382 to all diplomatic and consular posts, February 5, the Department transmitted the text of the White House statement on Yalta (see footnote 6, Document 227). (Department of State, Central Foreign Policy File, Electronic Telegrams, D850082–0649)
4. See Document 240.
5. See footnote 5, Document 220.
6. See footnote 4, Document 227.