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Dumbaston OAKS Conf.
Folder Augustiquy I
Box 145
PSFillumberton onke folder
3-44
THE UNDER SECRETARY OF STATE
WASHINGTON
August 21, 1944
MEMORANDUM TO THE PRESIDENT
Subject: Progress Report on Dumbarton Oaks
Conversations - First Day
Morning Meeting at Dumbarton Oaks
We met this morning, as scheduled, with Secretary Hull
presiding. Secretary Hull, on your behalf,
Ambassador Gromyko, and Sir Alexander Cadogan then
delivered prepared statements which were released
to the press. The entire proceedings were open to
the press which attended in large numbers. In add1-
tion the entire morning's proceedings were filmed for
the newsreels and a number of press photographs were
separately taken.
Meeting of Joint Steering Committee at Dumbarton Oaks
at 3:00 p.m.
Ambassador Gromyko with two of his associates,
Sir Alexander Cadogan with one of his associates, and
I with Mr. Dunn and Mr. Pasvolsky, met as a Joint
Steering Committee for the conversations to settle upon
the necessary arrengements. Agreement was reached as
follows:
-2-
(a) Language
Both the Russian and the English languages are to
be regarded as of equal importance during the conversa-
tions although it 1s expected by all concerned that
English will probably be used more frequently than
Russian.
(b) Chairmanship
It was proposed by Sir Alexander Cadogan and
seconded by Ambassador Gromyko that as chief representa-
tive of the host Government, I should be the permanent
chairman for the conversations.
(c) Statements to Press-Generally
It was agreed that no statements would be made to
the press except on the basis of agreement arrived at
by the three chairmen.
(d) Initial Procedure
After considerable discussion it was agreed that
the initial procedure of the conversations will be 8.
presentation by the Soviet group of its views. In the
course of this presentation the British and the American
groups will make such comments as they desire.
-3-
(e) Press Announcements on August 22
The press will be informed tomorrow at noon that
it has been decided that the conversations will pro-
ceed to the discussion of the general principles of
international organization and that at the first
meeting the Soviet group will present its ideas.
ED
PSF: Dumbarton Oaks freder 3-44
THE UNDER SECRETARY OF STATE
WASHINGTON
August 22, 1944
MEMORANDUM TO THE PRESIDENT
Subject: Progress Report on Dumbarton Oaks
Conversations--Second Day
Morning Meeting at Dumbarton Oaks
We met this morning, as scheduled. All members
of all three groups were present. In addition a
number of advisers and members of the Secretariat
were also in attendance. The matters covered fell
under the following headings:
(a) Chairmanship
On the motion of Ambassador Gromyko, seconded by
Sir Alexander Cadogan, I was chosen as the permanent
chairman. (This had been agreed upon at the meeting
of the Joint Steering Committee yesterday afternoon.)
(b) Announcements
I thereupon reported to the meeting on the arrange-
ments which had been agreed upon at yesterday afternoon's
meeting of the Joint Steering Committee. (These points
are set forth in the Progress Report of August 21 on
the first day's proceedings.)
-2-
(c) Presentation of Soviet Views
As had been agreed upon at the meeting of the Joint
Steering Committee yesterday afternoon I called upon
Ambassador Gromyko to present the views of the Soviet
group on the general principles of international organi-
zation. Points of interest in the Ambassador's state-
ment and in the subsequent discussion may be listed
as follows:
(1) Importance of Early Statement as to Major
Principles
Ambassador Gromyko said that his Government
believed that it would be desirable to attempt
to reach agreement on major principles.
Sir Alexander Cadogan expressed his agreement
with this view, adding that he understood that
this did not exclude subsequent discussion in
the course of the conversations of other points.
Ambassador Gromyko concurred in this statement.
(2) Regional Questions and Social and Economic
Questions
There was general agreement that the questions
of regional organization and of the relation-
ship of the general organization to social and
economic problems should be referred to a
subcommittee for consideration.
-3-
(3) Use of the Word "Aggression"
Sir Alexander Cadogan expressed the view that
in view of the uncertainty of the meaning of
the word "aggression", as shown by prior
experience, it might be wise in any definition
of the aims of the proposed organization to
use broader and more inclusive language.
(4) Voting Procedure in the Council
Sir Alexander Cadogan stated that he had been
instructed to propose that voting in the council
be on the basis of a two-thirds vote in all
cases and further that states which are parties
to disputes should not vote.
(5) International Court of Justice
It was agreed that this subject should be
referred to the Legal Subcommittee for further
discussion.
(6) Security Functions of the Organization
Sir Alexander Cadogan stated that the Soviet
reference to a possible international air
force required further study and that the
British attitude on this would in large part
depend upon matters of detail. There was
-4-
general agreement that detailed security
matters should also be referred to a sub-
committee.
Meeting of Joint Steering Committee at Dumbarton Oaks
at 12:00 Noon
The same persons who had met yesterday afternoon
met again at noon to determine further questions of
procedure. It was decided that the following subcom-
mittees should be established: a drafting subcommittee,
a legal subcommittee, a subcommittee on general questions
of international organization, a subcommittee on technical
security questions.
Afternoon Meeting at Dumbarton Oaks
The afternoon meeting was devoted to a presenta-
tion of the British point of view by Sir Alexander Cadogan
and a presentation of the American point of view by me,
Mr. Pasvolsky, Mr. Hackworth, and Mr. Dunn.
DEPARTMENT OF STATE
THE UNDER SECRETARY
August 23, 1944
Mr. President,
Attached is a copy
of the Russian document.
ES.
PSF:Dumbarton Oaks folder 3-44
SEGRET
24
August 22, 1944
Translation from Russian
text furnished by Soviet
Embassy, Washington.
SOVIET GOVERNMENT'S MEMORANDUM ON AN
INTERNATIONAL SECURITY ORGANISATION.
The new international security organisation should
be based on the principle, as expressed in the declara-
tion of the Moscow Conference on general security, "of
the sovereign equality of all peace-loving states" - on
the principle which recognises that the organisation
must be "open to membership by all peace-loving states,
large and small".
The task of the new international security organisa-
tion should be the effecting of measures directed toward
the prevention of aggression and preservation of peace
and also toward the suppression of aggression. Such an
international organisation can perform its task, if, when
determining its constitution, powers, conditions and
method of activity, the nations members of the organisa-
tion, and particularly those initiating its foundation,
base themselves on the necessity of effective cooperation
in measures capable of ensuring the security of peace-
loving peoples.
The problem of creating & security organisation
raises many diverse questions both of principle and of
an organisational character. It does not, however, appear
expedient during the first phase of negotiations between
representatives of the U.S.S.R., the United States and
Great Britain to embark on simultaneous discussion of
all these questions, but rather to confine oneself to
discussion of the most important questions and of the
principles which should form the basis of the organisation.
Such questions should include the following points:
A. Aims and Tasks of the Organisation;
B. Composition of the Organisation;
C. Principal Organs - Ceneral Assembly, Council,
International Court, Secretariat General (their competency,
functions and duties);
D. Means of Prevention of Aggression and Means of
Suppression of Aggression.
DECLASSIFIED
State Dept. Letter, 1-11-72
NOV 22 1972 The suggestions
By & H. Parks Date
-2-
The suggestions of the Soviet Government with regard
to the above listed questions are stated in the present
Lerorandum. After agreement has been reached on these
fundamental questions it will be necessary to work out
the actual constitution of the international security
organisation.
The question of regional organisation is subject to
further study.
The Soviet Government sees also great benefit in
and attaches great inportance to, cooperation between
peoples in the economic, social, technical and other
spheres.
For activities of this kind there right be formed,
in the opinion of the Soviet Government, a separate inter-
national organisation not connected with the international
security organisation, or several organisations, embracing
various spheres of international cooperation. Such organi-
sations night act separately from the international security
organisation, which would devote itself wholly to the object
of preserving the general peace and security of nations.
The present memorandum therefore does not deal with questions
outside the limits of international security and the preserva-
tion of peace. It will be possible to begin to discuss and
work out such questions later, when this should appear
necessary.
THE INTERNATIONAL SECURITY ORGANISATION.
I. Airs of the organisation.
The principal airs of the organisation are:
1). Laintenance of coneral peace and security and
adoption for t is purpose of collective casures for the
prevention of aggression and organising the suppression of
aggression which has already taken place.
2). The settlement and elimination by peaceful
reans of international conflicts which may lead to is breach
of the peace.
3). The adoption of any other measures concerning the
strongthening of universal peace and the development of
friendly relations arong nations.
NOTE: In addition it is considered desirable to establish
a separate international organisation or organisations, not
connected with the international security organisation, to
pronote international co-operation in the economic, commercial,
financial, technical, social, and health spheres and other
humanitarian activities.
II. Corposition
-3-
II. Cor position of the Orgenisation.
1). The initiators and Tounder-rembers of the
organisation are the United Nations, 1.e. those States
which signed the declaration of January 1, 1942, or who
have subsequently adhered to it.
2). The admission of other peace-loving States as
members of the organisation shall take place individually
after the statute of the organisation has been adopted
and in accordance with the regulations laid down in the
statute.
111. Principal Organs
1) General Assembly
2) Council
3) International Court of Justice
4) Secretariat General.
IV Goneral Assembly.
1) The General Assembly shall consist of representa-
tives of all states members of the organisation.
2) The General Asserbly shall determine the general
principles of international co-operation in matters of
security and the maintenance of peace.
3) The General Assembly shall consider all questions
concerning international security raised by the Council
upon its own initiative or at the suggestion of rembers of
the organisation. Such suggestions shall be referred to
the Council for consideration if it is necessary to take
leasures falling within the latter's competence.
4) The General assembly shall consider questions
concerning disarrament and reduction of armanents.
5) The General Assembly shall hear and consider
yearly reports of the Council and express its opinion
thereon.
6) The General Assembly shall decide questions
concerning the admission and expulsion of members of the
organisation on the recorrendation of the Council.
7) The General Assembly shall examine questions of
the modification or amendment of the statute of the
organisation and of the expansion of its activities.
no
C) The General Assembly shall deter inc the
allocation of expenses unone the menters and approve
the yearly budgets of the organisation.
9) The Concral Assembly shall elect its chairman
for e.ch sersion and Octer: ine its working procedure.
10) Decision: of the General Assembly fiall be
taken Ly a two-thirds mijority vote, -ith the exception
of entogories of questions for which a different
principle of voting may to provided, O.C. dec : ions of
an organisational character shall to taken by a simple
mijority vote.
V The Council.
1) The Council thall condit of representative: of
the Coviet Union, the United Stutes of America, United
Kingdom and China, and in the future .lso France, in
the cap.city of per -nent members, and of = certain
limited number of represent.tives of member-States,
elected Ly the Concral Assembly for 4 term to Le 1..1d
down in the stutute.
2) The Council, in accordence with the womers con-
forred upon it and its Alility to take urcent decisions,
shall have primary responsilility for ensuring general
70.00 and security of peoples.
Accordingly the Council thall If wthorised to Act
hen necessary on behalf c,' the ...ole international
organic tion, and decision: Ci the Council sh.11 le
hinding upon 111 States members of the OFF .ninition.
3) The Council shall le entitled to take all
recessary no.sures provided 1y the statute to rettle
any disputer -nd conflicts arising mon; States.
The Council shull determine the existence of 1
threat to police -nd decide What to
taken or recommended for the mintenuner or restorction
of rence.
4) The Council shall in c.i.c of necessity rovile
for the a -liention of armed .orce for the maintenance
of 20200 nd cocurity, using for Unit purpose the
forces placed .t its disposal ty State: contern
o.' the organisation in recordince with 1 special
Agreement.
Plans for
-5-
Plans for the a plication of armed force shall be
made by the Council with the assistance of a military
committee established for this purpose and composed of
representatives of States members of the Council. The
question of command over the armed forces in question
should be worked cut specially.
5) The Council shall subject to preliminary
examination all questions pertaining to the preservation
of universal peace and security which are subject to
inclusion in the ugenda of the general assemblies [s1c].
6) Decisions of the Council on questions per-
taining to the prevention or suppression of aggression
shall be taken by a majority of votes including those
of all permanent representatives on the Council.
Decisions of an organisational character shall be
taken by a simple majority vote.
VI. International Court of Justice.
An international court of justice will be established
and should function in accordance with a special statute.
VII. Secretariat-General.
The international security organisation shall possess
a Secretariat-General, heuded by a Secretary General who
shall be elected by the General Assembly on the recommen-
dation of the Council.
VIII. Methods of Preventing Appression and Heasures
for the Suppression of Aggression.
1). The methods of preventing or combuting affression
shall be as follows:-
A) An appeal of the Council to the disputants
calling for a pacific settlement of the dispute or con-
flict between them.
1:) An appeal of the Council to the disputints with
a varning regarding the possible use against them of
other means of pressure provided by the stutute.
c) Measures of economic pressure to be applied
against the disputants by some or all States members of
the organisation.
D) Severance
-6-
D) Severance by all members of the organisation
of diplomatic relations with the aggressor.
E) Severance of commercial, financial and other
economic relations with the aggressor, and also inter-
ruption of postal-telegraphic, rail and air communications.
F) The Provision, by member States not possessing
sufficient armed forces, of territory for the or anisation
of bases in areas of strategic importance for conducting
military operations against the aggressor.
G) Sea and land blockade.
H) Naval and air force demonstrations.
I) Air raids on particular military objectives of
the aggressor state.
J) Military operations by members of the organisation
against the aggressor.
2) The above methods of preventing and suppressing
aggression shall be employed by some or all states members
of the organisation.
3) To enable certain urgent military measures to be
taken there shall be attached to the organisation inter-
national air force corps, the st. ength of which shall be
determined by the Council with the assistance of a
commission of military experts specially created for that
purpose. Members of the organisation shall participate
in this corps with their national air forces, the size of
which shall be determined for each participant by the
organisation.
DEPARTMENT OF STATE
THE UNDER SECRETARY
August 23, 1944
Mr. President,
Attached is a copy of
the American document.
ES
DECL ASSIFIED
SECRET
PSF. dumbarton Oaks folder 3-44
low Art
Scoret
July 18, 1944
64
TENTATIVE PROPOSALS FOR A GENERAL
INTERNATIONAL ORGANIZATION
TABLE OF CONTENTS
Page
I. General Character of An International
Organization
1
A. Nature of the Organization
1
B. Purposes
2
C. Methods
2
D. Principal Organs and Agencies
3
II. A General Assembly
4
A. Composition
4
B. Powers
4
C. Representation and Voting
6
D. Organization and Sessions
6
III, An Executive Council
8
A. Composition and Representation
8
B. Powers
8
C. Voting
9
D. Organization and Sessions
10
DECL ASSIFIER
IV. An International Court of Justice
11
V. Pacific Settlement of Disputes
12
VI. Determination of Threats to the Peace or
Breaches of the Peace and Action with
Respect Thereto
14
A. Determination of Threats to the Peace
or Breaches of the Peace
14
B. Initiation of Action
16
C. Measures Not Involving the Use of
Armed Force
15
D. Measures Involving the Use of
Armed Force
16
E. Security and Armaments Commission
18
VII. Regulation
-2-,
Page
VII. Regulation of Armaments and Armed Forces
19
...
VIII. Arrangements for Economic and Social
Cooperation
20
A. Purpose and Relationships
20
B. Powers
20
C. Composition and Voting
21
D. Organization
22
IX. Arrangements for Territorial Trusteeships
23
Note: Documents on this subject will
be available later
X. General Administration and Secretariat
24
A. Office of Director-General and the
Central Administrative Staff
24
B. Obligations of Member States with
Respect to Officials of the
Organization
25
XI. Procedure of Establishment and
Inauguration
26
DECLASSIFIED.
Published in its entirety in
Foreign Relations of the United States, 1044
Vol. ) General,
Page(s) 653-665,667-669.
DECI ASSIFIED
Scoret
I
GENERAL CHARACTER OF AN
INTERNATIONAL ORGANIZATION
A. NATURE OF
THE ORGANIZATION
1. The general international organization to
establish and to maintain security and peace, as pro-
jected in the Four-Nation Declaration, signed at
Moscow, October 30, 1943, should be based on the
principle of cooperation freely agreed upon among
sovereign and peace-loving states, The organization
should be open to membership by all such states, large
and emall, and should be world-wide in character.
2. The United Nations and the nations associated
with them, and such other nations as the United Nations
may determine, should comprise the initial membership
of the organization.
3. The organization should be empowered to make
effective the principle that no nation shall be permitted
to maintain or use armed force in international relations
in any manner inconsistent with the purposes envisaged
in the basic instrument of the international organization
or to give assistance to any state contrary to preventive
or enforcement action undertaken by the international
organization.
4. The organization should be 80 constituted as
to make possible the existence of regional organizations
or other arrangements or policies not inconsistent with
its purposes, and to enable such organizations and ar-
rangements to function on their own initiation or by
reference from the general organization on matters of
security and peace which are appropriate for regional
adjustment. The general organization should at all
times be kept informed of the activities in matters of
security and peace undertaken by regional organizations
or under regional or other arrangements.
5. The organization should comprise arrangements
for cooperation in the fields of economic and other
specialized activities.
B. PURPOSES
-2-
B. PURPOSES
1. The primary purposes of the organization should
be, first, to maintain international security and peace,
and second, to foster through international cooperation
the creation of conditions of stability and well-being
necessary for peaceful and friendly relations among
nations and essential to the maintenance of security
and peace.
C , METHODS
As methods to be used for the maintenance of secu-
rity and peace, the international organization should:
a. encourage peaceful adjustment of controversies
by the parties themselves;
b. initiate cooperative action by member states
for the settlement of disputes;
C, encourage the use of local or regional pro-
cedures for the settlement of disputes capable
of adjustment by such procedures;
d. recommend political or diplomatic action to
adjust differences;
e. provide for, and encourage resort to, processes
of mediation, conciliation, and arbitration;
f. encourage reference of justiciable matters to
the international court of justice;
g. refer to he court justiciable questions pending
before the organization;
h. settle disputes referred to it by the parties
or over which it assumes Jurisdiction on its
own initiative;
1. determine the existence of threats to the peace
or breaches of the peace;
J. arrange, when necessary, for economic, commercial,
financial, and other measures of enforcement not
involving use of armed force,
k. provide
-3-
k. provide for the use of armed force, when neces-
sary in support of security and peace, if other
methods and arrangements are inadequate.
D, PRINCIPAL ORGANS
AND AGENCIES
1. The international organization should have
as its principal organs:
a. A general assembly;
b. An executive council;
C. An international court of justice; and
d. A general secretariat.
2. The international organization should have
additional organs, councils, commissions, or other
agencies for cooperation in international economic
and social activities, for territorial trusteeship
responsibilities, and for such other functions as
may be found necessary.
⑉4⑉
II
A GENERAL ASSEMBLY
A. COMPOSITION
The general assembly should be composed of repre-
sentatives of the states members of the international
organization.
B. POWERS
1. It should be empowered to receive and to ex-
amine representations addressed to the international
organization on matters deemed to be of concern to the
organization, and to take action in matters of concern
to the international organization which are not allocated
to other organs by the basic instrument.
2. The principal powers of the general assembly
should be as follows:
a. to make, on 1ts own initiative or on request
of a member state, reports on and recommenda-
tions for the peaceful adjustment of any
situation or controversy the continuation of
which it deems likely to impair the general
welfare;
b. to assist the executive council, unon its
request, in enlisting the cooperation of all
states toward giving effect to action under
consideration in or decided upon by the
council with respect to:
(1) the settlement of a dispute the continu-
ance of which is likely to endanger
security or to lead to a breach of the
peace;
(2) the maintenance or restoration of peace;
and
(3) any other matters within the jurisdiction
of the council;
c. to
-5-
C. to initiate studies and make recommendations
for:
(1) the promotion of international cooperation;
(2) the development and revision of rules of
international law; and
(3) the promotion of the observance of basic
human rights in accordance with principles
or undertakings agreed upon by the states
members of the international organization;
d. to admit to membership in the organization
independent states not initial members of the
organization;
e. to elect the members of the executive council
not having continuing tenure and the Judges of
the international court of justice;
f.
to approve the budget of the organs and agencies
of the organization, to determine a provisional
and a continuing basis of apportionment of ex-
penses of the organization among the member
states together with the procedure of appor-
tionment, and to review, make recommendations
on, and take other action concerning the budgets
of specialized agencies brought into relationship
with the international organization in accordance
with the terms agreed upon between such agencies
and the international organization;
6:
to receive reports from the executive council
and other organs and agencies of the organiza-
tion and from all specialized bodies or agencies
brought into relationship with the international
organization;
h. to exercise the powers with respect to economic
and social activities and territorial trustee-
ship stipulated in Sections VIII and IX;
1. to provide for the coordination of the general
policies of all organs and agencies of the
international organization and organizations
and agencies brought into relationship with 1t;
J. to
-6-
J. to set up any bodies or agencies it may deem
necessary for the performance of its functions;
and
k. to propose amendments of the basic instrument,
which should come into force when approved by
two thirds of the member states through their
constitutional processes, including the members
having continuing tenure on the executive
council.
C. REPRESENTATION
AND VOTING
1. The delegation of each member state should
consist of not more than six representatives.
2. Each member state should have one vote in the
general assembly, except as provided for in paragraph 3
below.
3. In taking decisions with respect to the budget
of the organs and agencies of the organization, the
continuing basis of apportionment of expenses of the
organization, and the budgets of specialized agencies
brought into relationship with the organization each
member state should have voting power in proportion to
its contribution to the expenses of the organization.
4. Decisions with respect to the admission to
membership in the organization, the election of the
members of the executive council, the election of judges
of the international court of justice, and the provisional
basis of apportionment of expenses, should be taken by a
two-thirds vote. Other decisions should be taken by a
majority vote.
D. ORGANIZATION
AND SESSIONS
1. The general assembly should meet annually, but
it may be convened in special session on the initiative
of the executive council or under any procedure the
assembly may adopt.
-7-
2. It should elect its president, vice-presidents,
and other principal officers who should serve for annual
terms or until their successors assume office. It should
perfect its organization and adopt its own rules of
procedure.
3. It should maintain headquarters at the seat of
the international organization but may hold its sessions
in whatever places would beat facilitate the accomplish-
ment of its work.
-8-
III
AN EXECUTIVE COUNCIL
A. COMPOSITION
AND REPRESENTATION
1. The executive council should consist of eleven
states members of the international organization. These
states should be elected annually. by the general assembly
and should not be immediately eligible for re-election
except that the United States of America, the United
Kingdom of Great Britain and Northern Ireland, the
Union of Soviet Socialist Republics, and the Republic
of China should have continuing tenure.
2. There should be & provision in the basic
instrument that whenever the executive council finds
that a government freely chosen by the French people
has been established and is in effective control of the
territory of the French Republic, France should be added
to the list of states members having continuing tenure on
the council.
3. Each state member of the executive council
should have one representative.
4. Any state member of the organization not having
a seat on the executive council should be entitled to
attend and to be heard on matters specially affecting
that member.
B. POWERS
1. The executive council should have primary
responsibility for the peaceful settlement of interna-
tional disputes, for the prevention of threats to the
peace and breaches of the peace, and for such other
activities as may be necessary for the maintenance of
international security and peace. It should in such
matters represent, and act on behalf of, all the members
of the international organization and should in every
case seek a just and equitable settlement of interna-
tional disputes.
2. The
-9-
2. The principal powers of the executive council
are enumerated below in Section v, Pacific Bettlement
of Disputes, Section VI, Determination of Threats to
the Peace or Breaches of the Peace and Action with
Respect Thereto, Section VII, Regulation of Armaments
and Armed Forces, and Bection X, General Administra-
tion and Secretariat.
C. VOTING
1. Each state member of the executive council
should have one vote.
2. Decisions with respect to the following
matters should be taken by a majority vote including
the concurring votes of all member states having con-
tinuing tenure, except as provided for in paragraphs
4 and 5 below:
a. the assumption on its own initiative or on
reference to it of Jurisdiction over a dispute;
b. the terms of settlement of disputes;
0. the negotiations for a general agreement on
the regulation of armaments and armed forces;
d. the determination of threats to the peace, of
breaches of the peace, and of acts obstructing
measures for the maintenance of security and
peace; and
e. the institution and application of measures of
enforcement.
3. Other decisions should be taken by a simple
majority vote.
4. In all decisions any state member of the execu-
tive council should have the right to abstain from voting,
but in such case the abstaining member should be bound
by the decision.
5. Provisions will need to be worked out with
respect to the voting procedure in the event of a dispute
in which one or more of the members of the council having
continuing tenure are directly involved.
D. ORGANIZATION
-10-
D. ORGANIZATION
AND SESSIONS
1. The executive council should be in continuous
session. Its headquarters should be maintained at the
seat of the organization, but its meetings may be held
at any places best facilitating its work.
2. It should elect its chairman.
3. It should be empowered (a) to set up any bodies
or agencies it may deem necessary for the performance
of its functions, (b) to perfect its own organization,
and (c) to adopt its own rules of procedure.
-11-
IV
AN INTERNATIONAL COURT OF JUSTICE
1. The Permanent Court of International Justice
should be reconstituted in accordance with a revision
of its present Statute.
2. The revised Statute should be made a part of
the basic instrument of the international organization.
-12-
V
PACIFIC SETTLEMENT OF DISPUTES
1. All states, whether members of the international
organization or not, should be required (a) to settle
disputes by none but peaceful means, and (b) to refrain
from the threat or use of force in their international
relations in any manner inconsistent with the purposes
envisaged in the basic instrument of the international
organization.
2. The parties to any dispute the continuance of
which is likely to endanger international security or
peace should be obligated, first of all, to seek a
settlement by negotiation, mediation, conciliation,
arbitration, reference to the international court of
justice, or other peaceful means of their own choice.
3. Where feasible, regional or other arrangements
should be employed to bring about adjustment or settle-
ment of local or regional controversies.
4. If the parties fail to effect a settlement of
such a dispute by the means above indicated, they should
be obligated to refer it to the executive council.
5. Any member state should have the right to
bring to the attention of the general assembly or the
executive council any condition, situation, or contro-
versy the continuance of which the member deems likely
to endanger international security or peace.
6. The general assembly should refer to the execu-
tive council any such condition, situation, or contro-
versy which it deems to require action to prevent an
immediate threat to the peace or breach of the peace.
7. The executive council should be empowered to
investigate any such condition, situation, or contro-
versy and should recommend appropriate procedures or
measures of adjustment. It should be empowered to do
this upon its own initiative, or upon reference from the
general assembly, or at the instance of a member
state.
-13-
8, The executive council, when it determines upon
its own initiative that there exists between member
states a dispute which constitutes a threat to security
or peace, and which is not being adequately dealt with
by other procedures, should be authorized to assume
jurisdiction to effect a settlement.
9. In case of a dispute involving a member and a
non-member state, or non-member states only, and which
is likely to lead to a breach of the peace, the execu-
tive council should be authorized to take jurisdiction
either upon its own initiative or at the request of any
party.
10. In discharging its responsibilities with
respect to pacific settlement the executive council
should be authorized to seek the advice and assistance
of the general assembly, to appoint commissions of inquiry
or conciliation, to refer to the international court of
justice justiciable disputes or legal aspects of disputes
not wholly justiciable, to employ regional or local pro-
cedures, or to take any other appropriate measures to
effect a settlement.
11. The executive council should be empowered with
respect to any dispute referred to in the preceding para-
graphs to encourage and facilitate the execution of the
terms of any settlement determined under the authority
of the international organization.
-14-
VI
DETERMINATION OF THREATS TO THE
PEACE OR BREACHES OF THE PEACE AND
ACTION WITH RESPECT THERETO
A. DETERMINATION OF
THREATS TO THE PEACE
OR BREACHES OF THE PEACE
1. The executive council should be empowered to
determine the existence of any threat to the peace or
breach of the peace, and to decide upon the action to
be recommended or taken to maintain or restore peace.
It should be empowered to seek the advice and assist-
ance of the general assembly in any matter in this
connection, and of the international court of justice
in any matter within the competence of the court.
2. The executive council should be empowered to
determine whether any condition, situation, or act in-
volving an alleged threat to the peace or breach of the
peace is of sufficient gravity to require action.
Note: The conditions, situations, and acts en-
visaged above include, for example:
a. employment of military forces by a state within
the jurisdiction of another state not authorized
by the international organization;
b. failure to comply with a request of the execu-
tive council to accept procedures of pacific
settlement in any dispute;
Co failure to accept terms of settlement of a dis-
pute as prescribed under the authority of the
international organization;
d. failure to comply with a request of the execu-
tive council to maintain the existing position
or to return to a prior position as determined
by the executive council;
8. failure
-15-
0. failure to observe obligations with respect
to the regulation of armaments and armed
forces and the manufacture of and interna-
tional traffic in arms; and
f. obstruction of measures for the enforcement
of security and peace through failure to
comply with a call from the council (1) to
carry out agreed undertakings regarding
measures of enforcement, and (2) to make
available, upon the basis of agreed obliga-
tions, forces and facilities for enforcement
action.
B. INITIATION
OF ACTION
1. When the executive council determines that a
threat to the peace or breach of the peace exists, it
should immediately (a) require the parties to refrain
from any action likely to aggravate the situation and
(b) decide upon the measures to be recommended or
taken.
2. All states, whether members of the international
organization or not, should be required to refrain from
giving assistance to any state contrary to preventive
or enforcement action undertaken by the international
organization or with its authorization.
C. MEASURES NOT INVOLVING
THE USE OF ARMED FORCE
1. The executive council should be empowered to
call upon member states to institute measures not re-
quiring the use of armed force in support of its deci-
sions and to determine, in any instance necessitating
such action, what measures should be employed and the
extent to which the respective member states should be
called upon to apply them.
2. In any case in which such action has been de-
cided upon by the executive council, member states
should be obligated:
a. to cooperate with the executive council and
the general assembly in obtaining the
information
-16-
information necessary for action and in appro-
priate measures of publicity;
b. to take part in concerted diplomatic measures;
C. to take part in collective economic, commercial,
and financial measures; and
d. to join in mutual efforts to afford relief and
aid to states assuming undue burdens through
participation in such measures instituted by
the executive council.
D. MEASURES INVOLVING
THE USE OF ARMED FORCE
1. In the event that other measures prove to be
inadequate, the executive council should be authorized
to provide for the use of armed force to assure the
maintenance of security and peace.
2. The member states should undertake to furnish
forces and facilities when needed for this purpose at
the call of the executive council and in accordance with
a general agreement governing the number and type of
forces and the kind and extent of facilities to be pro-
vided. Such an a greement should be concluded among the
member states at the earliest possible moment after the
organization comes into existence. It should be a duty
of the executive council to formulate as rapidly as pos-
sible plans and procedure for the negotiation of such
agreement. In formulating plans for the agreement and
in carrying out operations under the agreement, the coun-
cil should take account of the geographical position of
the member states, their regional or special obligations,
their population, and their relative resources.
3. The general agreement should provide that
member states should be obligated to maintain in con-
dition of effective readiness the armaments and armed
forces which by the agreement they respectively under-
take to make available for international cooperative
action.
4. Pending the conclusion of the general agree-
ment, the states parties to the Four-Nation Declaration,
signed at Moscow, October 30, 1943, and other states
in
-17-
in position to do so should provide, on the basis of
their various capacities and of undertakings among
themselves, such forces and facilities as may be needed
for establishing and maintaining security and peace.
5. The executive council should be empowered to
call upon the member states for economic, financial,
and commercial and other assistance necessary to support
and to supplement international action involving the use
of armed force as and when undertaken. Member states
should undertake:
a. to afford such assistance, the terms to be de-
termined in consultation between the executive
council and member states;
b. to deny economic or other assistance to a
state against which enforcement action is
undertaken, the nature of such assistance to
be defined by the executive council at the
time of the action; and
C. to join in mutual efforts to afford relief
and aid to states assuming undue burdens
through participation in security measures
involving the use of armed force instituted
by the executive council.
6. The executive council should be empowered to
call upon member states to grant rights of passage and
to furnish facilities, including bases, necessary to
the effective action of forces operating under authority
of the council. The conditions of the exercise of these
rights and of the furnishing of facilities, including
bases, should be determined, in advance or at the time
of action, by agreement between the executive council
and the member states in whose territories these rights
and facilities are required.
7. The executive council, advised and assisted by
the permanent security and armaments commission described
in part E below, should be responsible for the planning
of, and should exercise general supervision over, any use
of force determined to be necessary under the provisions
of the basic instrument of the international organization.
E. SECURITY
-18-
E. SECURITY AND
ARMAMENTS COMMISSION
1. The executive council should establish a
permanent security and armaments commission.
2. The permanent security and armaments commission
should provide the executive council with the expert
military advice and assistance necessary for the dis-
charge of the responsibilities of the council concerning
the employment of force and the regulation of armaments
and armed forces, and should perform such duties of
study, recommendation, administration, and execution
as the council may assign to it.
3. The security and armaments commission should
have authority, with the approval of the executive
council, to establish subordinate agencies and other-
wise perfect its organization.
-19-
VII
REGULATION OF ARMAMENTS AND ARMED FORCES
1. In order to promote the establishment and main-
tenance of international security and peace with the
least diversion of the world's human and economic
resources for armaments, the executive council should
be made responsible for initiating negotiations for the
conclusion of a general international agreement,
envisaged in the Four-Nation Declaration signed at
Moscow, October 30, 1943, for the establishment of a
system of regulation of armaments and armed forces and
for the regulation of the manufacture of and interna-
tional traffic in arms.
2. The executive council should be authorized to
exercise such powers for the execution of obligations
stipulated in the general international agreement as
may be assigned to it by the agreement.
3. The armaments and armed forces of the Axis
states /to be named later7 should be governed by the
terms of their surrender and by the authority estab-
lished thereunder. The executive council should be
empowered to take responsibility for assuring the
execution of stipulations governing the armaments and
armed forces of the Axis states, to the extent that
such responsibility may be assigned to it in succession
to the authority established under the surrender terms.
-20-
VIII
ARRANGEMENTS FOR '-
ECONOMIC AND SOCIAL COOPERATION
A. PURPOSE AND
RELATIONSHIPS
1. With a view to the creation of conditions of
stability and well-being which are necessary for peace-
ful and friendly relations among nations, the general
international organization should facilitate and pro-
mote solutions of international economic and social
problems, including educational and cultural problems.
Responsibility for the discharge of this function
should be vested in the general assembly, and under the
authority of the general assembly, in an economic and
social council, established in the basic instrument of
the organization.
2. The various specialized economic and social
organizations and agencies would have responsibilities
in their respective fields as defined in their statutes.
Lach specialized economic or social organization or
agency should be brought into relationship with the
general international organization. The terms under
which each specialized organization or agency should
be related to the general international organization
should be determined by agreement between the economic
and social council and the appropriate authorities of
the specialized organization or agency, subject to
approval by the general assembly.
B. POWERS
1. The economic and social council should be
empowered:
a. to carry out, within the scope of its fune-
tions, recommendations of the general assembly
in regard to economic or social matters;
b. to make recommendations, on its own initiative,
to the various specialized organizations or
agencies, to governments, or to the general
assembly, with respect to economic or social
problems, including those beyond the scope of
the specialized organizations, with a view to
promoting
-21-
promoting the fullest and most effective use
of the world's economic resources, to achieving
high and stable levels of employment, and in
general to advancing the well-being of all
peoples;
C. to coordinate the activities of the specialized
economic and social organizations or agencies
through advisory consultations with, and recom-
mendations to, such organizations;
do to receive and consider reports of the activi-
ties, decisions and recommendations of the
specialized organizations or agencies, and to
submit annually an analysis of such reports to
the general assembly;
e. to examine the administrative budgets of the
specialized organizations or agencies with a
view to recommending to the organizations or
agencies concerned, and in appropriate cases
to the general assembly, as to the most ef-
fective utilization of resources; and
f. to perform such other functions within the
general scope of its competence as may be
assigned to it by the general assembly, or
as may be provided for in future agreements
among member states.
C. COMPOSITION
AND VOTING
1. The economic and social council should consist
of qualified representatives of a specified number [24]
of member states. The states designated for this purpose
should be selected by the general assembly for terms of
three years, and each such state should have one repre-
sentative.
2. Each representative of a state designated as a
member of the economic and social council should have
one vote. Decisions of the council should be taken by
majority vote.
3. The economic and social council should make
suitable arrangements for representatives of the
specialized organizations or agencies to participate
--22-
without vote in its deliberations and in those of the
commissions established by it.
D. ORGANIZATION
1. The economic and social council should estab-
lish an economic commission, a social commission, and
such other commissions as may be required to facilitate
the consideration of problems within the scope of its
functions. Such commissions should consist of experts
specially qualified in their respective fields, who may
be nationals of any member state of the general inter-
national organization. The members of the commissions
should be appointed for periods of three years.
2. The economic and social council should elect
a chairman from among its members. A director and a
staff of competent experts should serve as the permanent
secretariat of the economic and social council and of
the commissions, and should constitute a part of the
central administrative staff of the general international
organization.
3. The council should adopt its own rules of
procedure and otherwise perfect its organization.
-23-
IX
ARRANGEMENTS FOR
TERRITORIAL TRUSTEESHIPS
1
Note: Documents on this subject
will be available later
-24-
X
GENERAL ADMINISTRATION AND SECRETARIAT
A. OFFICE OF DIRECTOR-
GENERAL AND THE CENTRAL
ADMINISTRATIVE STAFF
1. A director-general of the international organi-
zation should be elected by the general assembly with
the concurrence of the executive council. He should
serve for a period of five years and should be eligible
for re-election.
2. The director-general should have the responsi-
bilities of the chief administrative officer of the
organization. He should serve as the secretary-general
of the general assembly, of the executive council, and
of such other organs and agencies of the international
organization as the assembly or the council may direct.
He should also provide for coordination, within the gen-
eral policies appertaining to administration established
by the general assembly, of the administrative procedures
and regulations of the specialized agencies brought into
relationship with the international organization. He
should report to the general assembly on the work of all
the organs and agencies of the organization and of com-
missions, agencies, and other bodies of concern to the
international organization.
3. The director-general should appoint such
deputies and principal officers of the central
administrative staff as may be required, subject to con-
firmation by the general assembly, and such other
personnel of secretariats for which he is responsible.
He should recommend for appointment by the general
assembly or the executive council respectively the
directors of commissions and agencies responsible
respectively to these two organs.
4. The director-general and his deputies should
not during their terms of office hold any other public
office.
5. Officers appointed to the central administra-
tive staff should be selected on the basis of technical
or
-25-
or administrative competence and experience, and of the
widest practicable distribution among nationalities.
These officials should be constituted as a continuing
international civil service, and they should upon their
appointment pledge themselves to perform the duties
entrusted to them in the impartial manner and spirit
necessary to advance the interests and purposes of the
international organization.
B. OBLIGATIONS OF
MEMBER STATES WITH
RESPECT TO OFFICIALS
OF THE ORGAN IZATION
1. Member states should impose no obligations
upon their nationals who are officials of the interna-
tional organization that are inconsistent with the
performance of their duties.
2. Member states should grant the customary dip-
lomatic immunities to officials of the international
organization when engaged on business of the interna-
tional organization or when traveling to and from their
offices.
-26-
XI
PROCEDURE OF ESTABLISHMENT AND INAUGURATION
1. The general international organization for the
maintenance of peace and security projected in the Four-
Nation Declaration signed at Moscow, October 30, 1943,
should be established at the earliest practicable date--
if feasible, prior to the termination of hostilities.
2. The United States of America, the United
Kingdom of Great Britain and Northern Ireland, the Union
of Soviet Socialist Republics, and the Republic of China,
the signatories of the Four-Nation Declaration, should
take immediate steps to reach agreement in principle on
the fundamental features of a plan of the organization.
3. An agreed statement of the fundamental features
of the plan of the organization should then be trans-
mitted to the governments of the other United Nations
and the nations associated with them, together with an
invitation to communicate comments and suggestions for
the purpose of arriving at a substantial consensus of
views on the fundamental features of the plan.
4. As soon as practicable, the signatories of the
Four-Nation Declaration should convene a conference of
the United Nations and the nations associated with them
for the formulation and signature of an agreement which
would constitute the basic instrument of the organiza-
tion. The agreement should be submitted to the
participating governments for ratification in accordance
with their respective constitutional procedures.
5. Provision should be made in the agreement for
its coming into force when ratified by fifteen states in-
cluding the signatories of the Four-Nation Declaration.
6. The signatories of the Four-Nation Declaration
should be empowered by the agreement to call the first
meeting of the general assembly of the organization
under the agreement upon its coming into force.
7. The general assembly should elect at its first
meeting the non-continuing members of the executive
council.
and
the
council
DEPARTMENT OF STATE
THE UNDER SECRETARY
August 23, 1944
Mr. President,
Attached is a copy
of the British plan.
ES
DECLASSIFIED.
Published in its entirety in
Foreign Relations of the United States, 1944
Vol. 1 , General,
Page(s) 670-693.
PSF: Dumbarton daks focker 3-44
Secret
TENTATIVE BRITISH PROPOSALS
FOR A GENERAL INTERNATIONAL ORGANIZATION
Presented to the Department of State
by the British Embassy
July 22, 1944/
MEMORANDUM A
SCOPE AND NATURE OF THE PERMANENT ORGANISATION
I. THE PRINCIPLES AND OBJECTS OF THE ORGANISATION.
1.
The World Organisation will consist of inde-
pendent States freely associated and working together
for the better realisation of the Gommon good of
mankind.
2.
The principles and objects of the Organisation
should be stated in the preamble of the document
which brings it into existence. The Organisation
should be as simple and flexible as possible. Thus
the statement of its principles and objects becomes
DECLASSIFIED
specially important, since they lay down the conditions
in which action 13 taken by the members of the
Organisation.
3,
Article 4 of the Moscow Declaration lays down
that the Organisation shall be based on the "sovereign
equality" of States. Two principles follow from these
words, In the first place members must agree to
respect each other's political independence, and
secondly all members enjoy equality of status, though
not necessarily equality of function.
4,
Members should not be entitled to receive the
benefits of the Organisation unless they are prepared
to accept the obligations that 30 with them, Moreover,
it is the assumption of such obligations by all members
that ensures to all the benefits of the Organisation.
This should be recognised, therefore, as one of the
principles of the organisation.
5.
The object of the Organisation is stated in
Article 4 to be the "maintenance of irternational peace
and
-2-
and security," and this must be regarded as its
primary purpose.
6.
But if recourse to violence is ruled out, means
must be provided by which members of the Organisation
can settle their disputes by other than violent
methods; and the establishment of machinery for achiev-
ing this must be one of the objects of the Organisation.
7.
Moreover, in order that international peace and
security shalltbe maintained there must be in the world
some means by which States meet together to review and
harmonise their political action. One of the objects
of the Organisation, therefore, must be to create a
meeting place where statesmen can come together for
that purpose.
8.
But international peace and security must be made
positively, and not only kept by the negative means of
suppressing violence. They will be confirmed and
strengthened by guarding the right of man to seek his
freedom, and by increase in the well-being of human
society. Statesmen of the United Nations have declared
this to be both the purpose and the condition of
development in international order.
9,
It will be necessary, therefore, for the Organ-
isation to create institutions to promote the betterment
of world-wide economic conditions and the removal of
social wrongs, and to support and extend institutions
which now exist for these purposes.
10. Thus the principles and objects of the Organ-
isation, and consequently the conditions in which its
members receive its benefits and accept its obligations
and on which actions taken under its authority are
based, may be described as follows:-
11, PRINCIPLES
(1) That all members of the Organisation under-
take to respect each other's political inde-
pendence.
(11) That all members are equal in status though
not necessarily in function.
(111) That
-3-
(111) That all members undertake to fulfil towards
each other the obligations which are the con-
ditions of receiving the benefits of the
Organisation.
12. OBJECTS
(1) To ensure that peace and security shall be
maintained so that men shall not live in
fear of war.
(11) To provide means by which all disputes aris-
ing between States may be so dealt with that
peace and security are not endangered.
(111) To provide a centre in which the political
action of States can be reviewed and harmon-
ised, and directed towards a common end.
(1v) To promote the betterment of world-wide
economic conditions and the well-being of
all men by international agreement so that
the fear of want may be removed from the
world.
(v) To guard and enlarge the freedom of man by
institutions for the removal of social wrongs.
II. THE NATURE OF THE ORGANISATION
13.
In Article : of the Moscow Declaration it is
laid down that the organisation is to be founded on the
sovereign equality of its members. Its members will,
therefore, retain control of their own actions except
so fat as they are limited by the obligations into which
they freely enter and by international law.
14. Nothing has been more clearly proved during the
present war than the interconnexion of peace and security
in all parts of the world. The future organisation must
recognise this fact and be a world organisation in which
all peaceful States in every part of the world can co-
operate together for their mutual benefit
15. Though the status of all members is equal and all
will enjoy the same rights and undertake the corresponding
obligations, C their differences in power make necessary
some
-4-
some recognition of differences in function. The
initiative for the formation of the organisation has
come. from the Four Powers, the United States, the
U.S.S.R., the United Kingdom and China, and it is
generally recognised that its success will depend
more upon their continued cooperation than on any
other single factor.' The machinery of the organisation
should make it possible for them to carry out the
responsibilities which they will have acreed to
undertake. They must be given, therefore, a special
position in the Organisation in order effectively to
maintain peace and security. In general, as regards
all States the more power and responsibility can be
made to correspond, the more likely is it that the
machinery will be able to fulfil its functions.
16. We look forward to the liberation of France
and her restoration to the ranks of the Great Powers.
17. It is presumed that there will come into
existence a number of specialised technical organis-
ations through which States will combine together for
various purposes. There are already such organis-
ations in existence as part of the system of the
League of Nations. The relations of these bodies to
one another and to the main organisation are considered
-
in Memorandum D. Here it need only be said that such
bodies are unlikely to survive as effective instruments
in a world from which reasonable security is absent.
18. Just as there are special functional organis-
ations, so there may be regional associations for
various purposes when there is obvious advantage to be
obtained by limitation of the sphere of action. In
particular, there should be some Regional Organisation
for the Continent of Europe if only to prevent a
repetition of the circumstances. which have caused two
world wars to originate in that area, The condition
of Europe at the close of this war will demand the
special care and assistance of the United Kingdom, United
States and Union of Soviet Socialist Republics and
means must be found to prevent its becoming the centre
of a third world tragedy. It is possible to presume
that out of some "United Nations Commission for Europe"
as proposed in paragraphs nine and ten of Mr. Eden's memo-
randum of July 1, 1943 there might grow & Europian
Organisation
-5-
Organisation which, under the guidence of the three
major Allies might foster peaceful tendencies, heal
the wounds of Europe and at the same time prevent Ger-
many from again dominating the Continent. Such
Regional Associations might also come into existence
for economic cooperation, for the promotion of welfare
in Colonial territories, etc. It is, however, essential
that they should not conflict with the world-wide
Organisation, but rather assist it to carry out its
purpose.
III. CONSTITUTION OF THE ORGANISATION
19.
It is generally recognised that it will be
necessary to set up two main bodies, one as a centre of
discussion on which all States are represented and the
other, a smaller body, as a centre of action. It is
suggested that these bodies be termed the World Assembly
and the World Council respectively.
20. Membership - It is assumed that at the outset all
the United Nations will be invited to be members of
the Organisation. What States now neutral shall be
admitted and at what period is a matter for consider-
ation. The enemy States cannot be admitted until they
have shown by their conduct that they accept the
objects of the organisation and intend to pursue them.
21. All the members of the organisation should
share in some manner in the admission of new members.
It will have to considered how far it is necessary
to lay down conditions under which a State shall
cease to be a member of the Organisation.
22. World Assembly. The sovereign equality of all
members should be recognised by their representatives
meeting together on a footing of equality in a World
Assembly at least once a year. The right of infor-
mation and criticism should belong to all members of
the organisation.
23. It is not suggested that this body should have
all the powers that were possessed by the Assembly of
the Learue. The specialised and technical bodies
should undertake some of the duties which that body
performed
⑉6⑉
performed and the initiative in preventing breaches
of the beace should lie with the Torld Council.
24.
It is a matter for consideration whether the
"orld Assembly should have the control over finance
and the admission of new members which the Assembly
of the Learue possessed; but it is suggested that
the States cannot he expected to contribute to the
finances of an organisation without some share in
their determination, nor to belong to a society to
which other States may be admitted without Consul-
tation with them.
25. World Council. This body should be sufficient-
ly small and compact to ensure action and of such &
character as to possess the confidence of all members
of the organisation.
26. The Constitution of this body raises many
difficult problems. The relation between the Treat
Powers and other States has been a matter of dispute
for over a century. It 1s clearly necessary that the
Four Powers, which between them are directly respons-
ible for the peace and security of nearly two-thirds
of the world's inhabitants, should always be repres-
ented on it. The principle has been generally accepted
that where the interests of any State are specially
affected it should have the right to lay its case
before the Council.
27. It is desirable that the World Council should
be strictly limited in size, and it has been suggested
in some quarters that its membership should be
restricted to the three or four Powers upon whom
resoonsibility of maintaining peace principally
depends. It is, however, open to question whether
the other States would agree to the establishment
of a Council so limited in number. In any case the
number and method of their representation is a matter
for grave consideration, and the manner in which the
decisions of the Council shall be made may depend
on the method adopted. The object would be to ensure
that the other States on the World Council command
general confidence. Some form of election is pro-
bably essential end the World Assembly might be used
for this purpose.
28,
In
-7-
28. In such a Council, some means must be found
to ensure that the various regions of the world are
adequately represented. The size and area of States
vary so greatly and are so unevenly distributed over
the Continents that some azreement on this subject
is essential. Thus the Caribbean area has more inde-
pendent States than all the rest of Latin America,
which includes Brazil, Argentina and Chile. Both
Europe and South America have many more States than
North America or Asia. Hitherto States as different
tn power and status as Canada and Panama have had
equal rights of representation. The principle of
rotation has deprived the Council of experienced
states-men, while the creation of "semi-permanent"
sents was much resented by some States that did not
enjoy the privilege.
29, If the principle which governs the election of
the Governing Body of the I.L.O. could be accepted, a
more satisfectory result might be obtained, but it
is difficult to find the principle to apply to a
political body.
30. Should Regional Associations of sufficient
importance be formed (e.g. a Regional Organisation
for Europe) they might furnish a basis for repres-
entation on the Council. But for the most part,
States do not recognise other States as "represent-
Ing" them on institutions in which they have BL
major interest.
31. It is clear that this subject will need care-
ful examination - not only amongst the Four Powers
themselves but with the other States whose wishes must
be taken into account.
32, The main function of the world Council will
be to ensure such intercourse between the statesmen
of the countries represented on it as to anable them
to secure solutions of international problems by
discussion and cooperative action. For this purpose
revular meetings with an appropriate procedure and
secretariat are indispensable. No other single
factor 1a likely to be 30 influential in producing
harmony between the policies of States. The exher-
ience of the last thirty vears shows that there is
no
-8-
no adequate substitute for it.
33.
The functions suggested for the Torld Council
as the body responsible for the peace of the world
are described in Memorandum B.
34.
It will also be necessary for the World Council
to give some common direction to the functional bodies,
This question is considered in Memorandum D.
35. In general it is hoped that the Council may
become a centre where Governments reconcile their
attitudes towards major international problems so as
to be able to act decisively towards a common end,
36. Permanent Court of International Justice - It is
assumed that there will be general agreement that a
Permanent Court of International Justice will be set
up. The proposals of the Informal Inter-Allied
Committee which recently reported on this question
seem to indicate the general lines that should be
followed.
37. Secretariat - A permanent secretariat will be
indispensable. The experience of the League of Nations
and the I.L.O. should be utilised. It is assumed,
however, that a number of new specialised technical
bodies will come into existence. Further consideration
of this question might, therefore, await more definite
information concerning them.
38. The suggestion that the head of the Secretariat
should be Tiven the right of bringing before the World
Council any matter which in his opinion threatens the
peace of the world might well be incorporated in the
rules of the Organisation.
39. Specialised and Technical Organisations -
This question is considered in Memorandum D. The
position of the International Labour Organisation
will need special consideration.
40,
Seat of the Organisation - This problem should
be left open until further information is available
on the number and character of the functional
organisations.
41. Name
-9-
41.
Name of the Organisation - The term "United
Nations" is now in general use and there does not
seem to be any strong reason to substitute any other
for it.
Scoret
TENTATIVE BRITISH PROPOSALS
FOR A GENERAL INTERNATIONAL ORGANIZATION/
Presented to the Department of State
by the British Embassy
July 22, 19447
MEMORANDUM A
SCOPE AND NATURE OF THE PERMANENT ORGANISATION
I. THE PRINCIPLES AND OBJECTS OF THE ORGANISATION.
1.
The World Organisation will consist of inde-
pendent States freely associated and working together
for the better realisation of the common good of
mankind.
2.
The principles and objects of the Organisation
should be stated in the preamble of the document
which brings it into existence. The Organisation
should be as simple and flexible as possible. Thus
the statement of its principles and objects becomes
specially important, since they lay down the conditions
in which action is taken by the members of the
Organisation.
3.
Article 4 of the Moscow Declaration lays down
that the Organisation shall be based on the "sovereign
equality" of States. Two principles follow from these
words, In the first place members must agree to
respect each other's political independence, and
secondly all members enjoy equality of status, though
not necessarily equality of function.
4.
Members should not be entitled to receive the
benefits of the Organisation unless they are prepared
to accept the obligations that to with them. Moreover,
it is the assumption of such obligations by all members
that ensures to all the benefits of the Organisation.
This should be recognised, therefore, as one of the
principles of the organisation.
5.
The object of the Organisation is stated in
Article 4 to be the "maintenance of irternational beace
and
-2-.
and security,' and this must be regarded as its
primary purpose.
6,
But if recourse to violence 1,5 ruled out, means
must be provided by which members of the Organisation
can settle their disputes by other than violent.
methods; and the establishment of machinery for achiev-
ing this must be one of the objects of the Organisation.
7.
Moreover, in order that international peace and
security shall be maintained there must be in the world
some means by which States meet together to review and
harmonise their political action. One of the objects
of the Organisation, therefore, must be to create. a
meeting place where statesmen can come together for
that purpose.
8,
But international peace and security must be made
positively, and not only kept by the negative means of
suppressing violence. They will be confirmed and
strengthened by guarding the right of man to seek his
freedom, and by increase in the well-being of human
society. Statesmen of the United Nations have declared
this to be both the purpose and the condition of
development in international order.
9,
It will be necessary, therefore, for the Organ-,
isation to create institutions to promote the betterment
of world-wide economic conditions and the removal of
social wrongs, and to support and extend institutions
which now exist for these purposes.
10,
Thus the principles and objects of the Organ-
isation, and consequently the conditions in which its
members receive its benefits and accept its oblivations
and on which actions taken under its authority are
based, may be described as follows:-
11. PRINCIPLES
(1) That all members of the Organisation under-
take to respect each other's political inde-
pendence
(11) That all members are equal in status though
not necessarily in function.
(111) That
-3-
(111) That all members undertake to fulfil towards
each other the obligations which are the con-
ditions of receiving the benefits of the
Organisation.
12. OBJECTS
(1) To ensure that peace and security shall be
maintained so that men shall not live in
fear of war.
(11) To provide means by which all disputes aris-
ing between States may be so dealt with that
peace and security are not endangered.
(111) To provide a centre in which the political
action of States can be reviewed and harmon-
ised, and directed towards & common end,
(1v) To promote the betterment of world-wide
economic conditions and the well-being of
all men by international agreement so that
the fear of want may be removed from the
world.
(v) To guard and enlarge the freedom of man by
institutions for the removal of social wrongs.
II. THE NATURE OF THE ORGANISATION
13.
In Article : of the Moscow Declaration it is
laid down that the organisation 18 to be founded on the
sovereign equality of its members, Its members will,
therefore, retain control of their own actions except
so far as they are limited by the obligations into which
they freely enter and by international law.
14,
Nothing has been more clearly proved during the
present war than the interconnexion of peace and security
in all parts of the world. The future organisation must
recognise this fact and be a world organisation in which
all peaceful States in every part of the world can co-
operate together for their mutual benefit.
15.
Though the status of all members is equal and all
will enjoy the same rights and undertake the corresponding
obligations, their differences In power make necessary
some
-4-
some recognition of differences in function: The
initiative for the formation of the organisation has
come from the Four Powers, the United States, the
U.S.S.R., the United Kingdom and China, and it 1s
generally recognised thet its success will depend
more upon their continued cooperation than on any
other single factor. The machinery of the organisation
should make it possible for them to carry out the
responsibilities which they will have agreed to
undertake. They must. be given, therefore, a special
position in the Organisation in order effectively to
maintain peace and security. In general, as regards
all States the more power and responsibility can be
made to correspond, the more likely is it that the
machinery will be able to fulfil its functions.
16, We look forward to the liberation of France
and her restoration to the ranks of the Great Powers,
17, It 1s presumed that there will come into
existence a number of specialised technical organis-
ations through which States will combine together for
various purposes. There are already such organis-
ations in existence as part of the system of the
League of Nations. The relations of these bodies to
one another and to the main organisation are considered
in Memorandum D, Here it need only be said that such
bodies are unlikely to survive as effective instruments
in a world from which reasonable security is absent.
18, Just as there are special functional organis-
ations, so there may be regional associations for
various purposes when there is obvious advantage to be
obtained by limitation of the sphere of action, In
particular, there should be some Regional Organisation
for the Continent of Europe If only to prevent a
repetition of the circumstances which have caused two
world wars to originate in that area, The condition
of Europe at the close of this war will demand the
special care and assistance of the United Kingdom, United
States and Union of Soviet Socialist Republics and
means must be found to prevent its becoming the centre
of a third world tragedy, It 1s possible to presume
that out of some "United Nations Commission for Europe"
as proposed in paragraphs nine and ten of Mr. Eden's memo-
randum of July 1, 1943 there might TOW a Europian
Organisation
-5-
Organisation which, under the guidance of the three
major Allies might foster peaceful tendencies, heal
the wounds of Europe and at the same time prevent Ger-
cany from again dominating the Continent. Such
Regional Associations might also come into existence
for economic cooperation, for the promotion of welfare
in Colonial territories, etc. It is, however, essential
that they should not conflict with the world-wide
Organisation, but rather assist it to carry out its
purpose,
III. CONSTITUTION OF THE ORGANISATION
19. It is generally recognised that it will be
necessary to set up two main bodies, one as a centre of
discussion on which all States are represented and the
other, a smaller body, as a centre of action. It is
suggested that these bodies be termed the World Assembly
and the World Council respectively.
20,
Membership - It is assumed that at the outset all
the United Nations will be invited to be members of
the Organisation. What States now neutral shall be
admitted and at what period is a matter for consider-
ation. The enemy States cannot be admitted until they
have shown by their conduct that they accept the
objects of the, organisation and intend to pursue them.
21. All the members of the organisation should
share in some manner in the admission of new members.
It will have to considered how far it is necessary
to lay down conditions under which a State shall
cease to be a member of the Organisation.
22. World Assembly. The sovereign equality of all
members should be recognised by their representatives
meeting together on a footing of equality in a World
Assembly at least once & year. The right of infor-
mation and criticism should belong to all members of
the organisation.
23.
It is not suggested that this body should have
all the Dowers that were possessed by the Assembly of
the Learue. The specialised and technical bodies
should undertake some of the duties which that body
performed
--6-
performed and the initiative in preventing breaches
of the besce should lie with the Torld Council.
24.
It is & matter for consideration whether the
"orld Assembly should have the control over finance
and the admission of new members which the Assembly
of the League possessed; but it is suggested that
the States cannot be expected to contribute to the
finances of an organisation without some share in
their determination, nor to belong to 8 society to
which other States may be admitted without consul-
tation with them.
25, World Council. This body should be sufficient-
ly small and compact to ensure action and of such a
character as to possess the confidence of all members
of the organisation.
26, The Constitution of this body raises many
difficult problems, The relation between the Great
Powers and other States has been a matter of dispute
for over a century. It 1s clearly necessary that the
Four Powers, which between them are directly respons-
ible for the peace and security of nearly two-thirds
of the world's inhabitants, should always be repres-
ented on it. The principle has been generally accepted
that where the interests of any State are specially
affected it should have the right to lay its case
before the Council.
27, It is desirable that the World Council should
be strictly limited in size, and It has been suggested
in some quarters that its membership should be
restricted to the three or four Powers upon whom
responsibility of maintaining peace principally
depends, It 1s, however, open to question whether
the other States would agree to the establishment
of a Council so limited in number. In any case the
number and method of their representation is a matter
for grave consideration, and the manner in which the
decisions of the Council shall be made may dépend
on the method adopted. The object would be to ensure
that the other States on the World Council command
general confidence. Some form of election is pro-
bably essential end the World Assembly might be used
for this purpose.
28,
In
-7-
28, In such a Council, some means must be found
to ensure that the various regions of the world are
adequately represented. The size and area of States
vary so greatly and are so unevenly distributed over
the Continents that some agreement on this subject
is essential. Thus the Caribbean area has more inde-
pendent States than all the rest of Latin America,
which includes Brazil, Argentina and Chile. Both
Europe and South America have many more States than
North America or Asia. Hitherto States as different
in power and status as Canada and Panama have had
equal rights of representation. The principle of
rotation has deprived the Council of experienced
states-men, while the creation of "semi-permanent"
sents was much resented by some States that did not
enjoy the privilege.
29,
If the principle which governs the election of
the Governing Body of the I.L.O. could be accepted, a
more satisfactory result ght be obtained, but it
is difficult to find the principle to apply to a
political body.
30.
Should Regional Associations of sufficient
importance be formed (e.g. a Regional Organisation
for Europe) they might furnish a basis for repres-
entation on the Council. But for the most part,
States do not recognise other States 88 "represent-
Ing" them on institutions in which they have &
major interest.
31.
It is clear that this subject will need care-
ful examination - not only amongst the Four Powers
themselves but with the other States whose wishes must
be. taken into account.
32.
The main function of the World Council will
be to ensure such intercourse between the statesmen
of the countries represented on it 8.3 to enable them
to secure solutions of international problems by
discussion and cooperative action. For this purpose
regular meetings with an appropriate procedure and
secretarist are indispensable. No other single
factor 13 likely to be so influential in oroducing
harmony between the policies of States. The exper-
ience of the last thirty vears shows that there is
no
-8-
no adequate substitute for it.
33.
The functions suggested for the World Council
as the body responsible for the peace of the world
are described in Memorandum B.
34.
It will also be necessary for the World Council
to give some common direction to the functional bodies.
This question is considered in Memorandum D.
35, In general it is hoped that the Council may
become a centre where Governments reconcile their
attitudes towards major international problems so as
to be able to act decisively towards a common end.
36,
Permanent Court of International Justice - It is
assumed that there will be general agreement that a
Permanent Court of International Justice will be set
up. The proposals of the Informal Inter-Allied
Committee which recently reported on this question
seem to indicate the general lines that should be
followed.
37. Secretariat - A permanent secretariat will be
indispensable, The experience of the League of Nations
and the I.L.O. should be utilised. It 13 assumed,
however, that a number of new specialised technical
bodies will come into existence. Further consideration
of this question might, therefore, await more definite
information concerning them.
38.
The suggestion that the head of the Secretariat
should be given the right of bringing before the World
Council any matter which in his opinion threatens the
peace of the world might well be incorporated in the
rules of the Organisation.
39.
Specialised and Technical Organisations -
This question is considered in Memorandum D. The
position of the International Labour Organisation
will need special consideration.
40
Seat of the Organisation - This problem should
be left open until further information is available
on the number and character of the functional
organisations.
41, Name
-9-
41.
Name of the Organisation - The term "United
Nations is now in general use and there does not
seem to be any strong reason to substitute any other
for it.
SECRITA
MEMORANDUM B.
THE PACIFIC SETTLEMENT OF DISPUTES, THE QUESTION OF
GUARANTEES AND THE CONDITIONS IN THICH ACTION
SHOULD BE TAKEN FOR THE MAINTENANCE OF PRACE
AND SECURITY.
I. INTRODUCTION
If war is to be prevented there must be in
existence a means to make those decisions which in
the past have been made by violence. If an organisation
is set up to achieve this end there must be some
guarantee that its members will be protected should
States, inside or outside it, threaten to subject
them to violence. For the purpose of providing pro-
tection, action may have to be taken against an
offending State, and this necessitates some statement
of how and when such action shall be taken.
2.
The maintenance of peace and security 1s not
merely an end in itself but a means by which an
ordered and progressive community of States may come
into existence. The principles and objects of such
a society have been indicated in Part I of l'emorandum A,
and it is on them that all action by the Organisation
DECLASSIFIED
should be based. A state of peace should be regarded
as not simply the acceptance of the status quo but
active cooperative between States for the objects and
principles of the Organisation.
3.
Such ends cannot be obtained by any system
of procedure however skilfully designed. Everything
depends on the unity of purpose of those States which
possess the greatest means of carrying out their
purposes. It is impossible to ensure that these
States will always be in agreement, and no set of
rules will do SO. But an agreement to act under
certain specific principles in a World Organisation
will make their cooperation easier and will enable
other States to be associated with them for their
common purpose.
4.
If all the Great Powers are members of the
Organisation and show their intention of acting in
accordance with it, all States will be more ready to
accept
-2-
accept the responsibilities commensurate with their
power. The absence of the United States and, for a
long period, of the Union of Soviet Socialist
Republics from the League of Nations caused the United
Kingdom to review its responsibilities. For the same
reason smaller States were often reluctant to accept
full responsibility.
5.
For the same reason also there was great anxiety
on the part of many States to define very closely the
occasion for action by the organs and members of the
League of Nations. As is explained below, this attempt
failed in its purpose. Moreover, public opinion did
not understand the elaborate safeguards against arbitrary
action that existed. It is suggested that the methods
embodied in the constitution of the Organisation should
be simple and flexible. They should be extended and
elaborated only as the result of experience.
6.
It is believed also that, whatever procedure be
adopted, it is only by setting up some definite security
system such as is suggested in lemorandum C that reality
will be given to the promises made and that the States
of the world will come to believe that by a ccepting
the rights and responsibilities given to them by the
Organisation they will be spared such sufferings as
they are now enduring.
II. THE PACIFIC SETTLEMENT OF DISPUTES.
7.
Disputes between States are divided into two
main categories, those, often termed "justiciable,"
that can be settled by a legal tribunal, and those in
which other considerations are predominant.
8.
It is the second class which produces the most
intractable and dangerous disputes, including those in
which the legal position is entirely clear. In the
past, States have promised not to attempt settlement
of their disputes by violent means, but they have not
promised to settle their disputes. It is suggested
that it might be well if they now promised to "settle"
their disputes in the sense that they will not allow
them to endanger peace and security.
9.
Justiciable Disputes - It would seem that
there is likely to be general agreement that justi-
ciable disputes should be generally settled by a
Permanent
-3-
Permanent Court of International Justice. The
Informal Inter-Allied Corrittee suggested in its
recent report that the Court be open to all States,
whether they accept compulsory jurisdiction or not.
It would be possible for the International Organis-
ation to make the acceptance of such an obligation a
condition of membership, but in such a case it would
be necessary to allow States to make certain reser-
vations.
10.
The difference between accepting compulsory
jurisdiction with reservations and retaining full
freedom of action is likely to have more psychological
than practical effect, especially if the World Council
can obtain Adivsory Opinions from the Court on some
point in a dispute, which has been submitted to it.
11.
Other Disputes - Reference to the World
Council is the obvious method of dealing with other
disputes. Though other elaborate methods of concil-
iation have been set up they have hardly ever been
used and they have the disadvantage of placing the
case in the hands of persons who are not responsible
for the consequences of failure to preserve peace.
It is only in the World Council itself that a body of
rules and & technique of procedure can be gradually
established as the result of accumulated experience.
12.
It should be for the World Council to decide
what method should be used for dealing with the
dispute. Any decision of this nature should be
regarded as a decision of procedure and consequently
be adopted by a majority vote.
13. Even on questions of principle (as opposed to
questions of procedure) decisions might be taken by
(say) a two-thirds majority of the Council rather than
by unanimity. In all such cases all Four Powers should,
of course, be included in the majority. In any event,
the votes of the parties to the dispute should not be
taken Into account.
14.
States are not likely to bind themselves to
accept the decision of the Council in all cases. Nor
will it be likely that they would undertake the obli-
-ation to enforce it on other States in all cases.
But it would still be the function of the World Council
particularily the Great Powers on it, to see that
disputes
-4-
disputes did not threaten peace and security, and
for the other States to cooporate with it to the utmost
of their power for that purpose, so that there would
still be large opportunities for action to deal with
even the most difficult disputes.
15. For, as has been indicated, if peace and security
are to be maintained, some method must be devised for
the settlement of all disputes between States.
"Settlement" in this sense may, as is often the case in
domestic disputes, show that no romedy exists for a
legitimate grievance. But, if States promise to "settle"
their disputes in the sense defined in paragraph 8
above, the balance is thrown more in the direction of
change. The status quo is sufficiently safeguarded by
the mere existence of a universal system for the
maintenance of peace and security. Should the dispute
be such as to threaten peace and security, it will be
for the World Council (and in such cases action will
depend largely on the Great Powers) to decide what
action should be taken to deal with it.
16. If the dispute involves the Great Powers them-
selves the machinery for decision may prove inadequate;
but there is hope that the habit of cooperative leader-
ship in the settlement of other disputes and the
restraints imposed by their own promises to one another
and to other States may suffice to achieve a settlement,
even where the machinery seems to be inadequate to do
so. Much will depend on whether a sufficient number
of States, great and small, come to attach so much
importance to the preservation of the system that they
are prepared to run risks and make sacrifices to support
and preserve it.
17.
There was considerable agreement in the period
between the two wars that the vague words of Article XIX
of the Covenant of the League of Nations were hardly a
sufficient recognition of the fact that there must be
a change in the world. When, in the thirties, it was
perceived that there was no great deslre in some
countries to go to war to defend some of the frontiers
erected by the Peace Treaties, there was much dis-
cussion of a process which became known as "peaceful
Change". Examination of this concept shows that it
cannot be obtained by a clause in a Covenant, but can
only be a continual process achieved through discussion
and compromise between the Great Powers and, in their
due
-5-
due place, the smaller States concerned. But it is
essential that such a process be guided by principle
and subject to an ordered procedure, and it is necessary,
therefore, that it should take place withip an inter-
national organisation.
18.
It may be hoped that the international functional
organisations which are being brought into existence
will contribute to furthering the process of peaceful
change in an orderly manner.
III. THE QUESTION OF GUARANTEES
19.
In considering this question the history of the
guarantees given in the Covenant of the League of
Nations must be taken into account, since it throws
great light on the nature of the problem. For by
Article X the l'embers of the League "undertook to
respect and preserve as against external aggression
the territorial integrity and existing political inde-
pendence of all Members". The formula had first been
devised by President Wilson for the Western Hemisphere
and it was at his instance that it was applied univer-
sally. No method was laid down as to how the obliga-
tion should be carried out except that the Council
should "advise" upon that question.
20.
Territorial Integrity - There was much oppos-
ition to the proposed Article, attention being concen-
trated on the question of "territorial integrity".
Lord Cecil suggested that the guarantee should be
withdrawn if the State concerned refused to accept a
modification of frontier desired by a large majority
of the members of the League of Nations. The vague
phraseology of Article XIX of the Covenant was all
that resulted from this proposal. Mr. Lansing and
Dr. Miller were also opposed to inserting Article X,
though the latter came to believe that it made little
difference. Sir Robert Borden tried to abolish it
before the Covenant was signed, and the Canadian
Delegation renewed the attempt of the First Assembly.
In 1923 an interpretative resolution was adopted by
the Assembly (though as Persia dissented it had no
le gal force) which laid down that it was for each State
to decide how it should carry out Its obligations
under this head, while the Council was to take into
account, in any advice that it might give, the geo-
graphical situation and special conditions of each
State.
21.
In
⑉6⑉
21.
In fact, Article X was hardly ever used in the
disputes which came before the League of Nations. But
it was constantly referred to when some State wished
to remind others that its existing frontiers were
guaranteed by them. It was also constantly used by
critics of the League of Nations to show that its
members had guaranteed for all time frontiers which
they possessed no legal means of changing without
the consent of the State concerned.
22. Much smaller attention has been paid to this
subject in recent discussions, though there may, of
course, be a shift of Interest when the treaties
that register any changes of frontier which may be
made come into existence. There is, however, reason
to think that many States will be more Interested
in the establishment of some concrote security system
ready for inmediate action than in guarantees of
frontiers which in themselves do little to prevent
the invasion and occupation of territory by the armed
forces of another State.
23. Many other States vould be likely to refuse to
accept an Organisation which committed them to a
guarantee of the territorial integrity of all States.
24. It is suggested, therefore, that no such guar-
antee be included In the obligations undertaken by
members of the Organisation.
25. Political Independence - The question of
"political independence" raises issues of a rather
different character. The Loscow Declaration has
already based the Organisation on the "sovereign
equality" of all States, which implies that the
Members of the Organisation will retain legal control
over their own actions except in so far as they agree
by treaty to limit it. All States naturally attach
the highest value to their political independence,
and the principal statesmen have made repeated
declarations that they intend to respect the Inde-
pendence of other States.
26. But an undertaking to respect the political
independence of other States does not necessarily
involve a commitment to guarantee it. It is, moreover,
not easy to define exactly what political independence
is. One State may control the actions of another
State
-7-
State by indirect means. It is impossible to dis-
tinguish the line which divides such actions from what
is cenerally regarded as the legitimate influence which
one State may exercise on the actions of another. The
objection to any guarantee of "political independence",
therefore is that it could only extend to external and
legal forms. It could not take into account more
indirect methods.
27. For this reason the inclusion of a guarantee
of political independence in the obligations of the
Organisation seems undesirable. But it should be
recognized that mutual respect for the political inde-
pendence of its members is one of the essential
principles of the Organisation as already pointed out
in Part I of l'emorandur A.
20.
The Maintenance of International Peace and
Security - By the Covenant of the League, States
undertook to inflict sanctions on another State which
broke its promises to submit a dispute to pacific
settlement and resorted to war. It was for each State
to determine its own actions after the Council (or
Assembly) had declared that the occasion for action
had arisen. Doubt was constantly expressed as to the
sufficiency of this promise, though, so far as words
can guarantee action, a definite promise was made.
But the duty of enforcing action to be taken was laid
on the members.
29. Also by Article XI of the Covenant the duty of
safeguarding the "peace of nations" was laid on the
League, but no specific obligations as regards the
action to be taken were laid on the members.
30. The Four Powers have already, by Article 4 of
the Moscow Declaration, laid down that the main purpose
of the international organisation is the "maintenance
of International peace and security," and have
asserted by Article 5 that "they will consult with
one another and, as occasion requires, with other
members of the United Nations, with a view to joint
action on behalf of the community of nations" for this
nurmose until a system of general security is inaugurated.
It would seem that It is along these lines that any
guarantee should be given.
31. The duty of cooperating to the utmost of their
power in the maintenance of international peace and
security
-0-
security should be undertaken by, all members of the
Organisation. The degree of such cooperation must
obviously depend on the geographical situation of
States, the amount of their resources, their own
Internal situation and possibly other factors which
cannot be accurately weighed in advance. But the duty
of cooperating to the utnost of their power in an
Organisation which is essential to the peace and
security of all should be laid upon all members.
32.
The duty of maintaining international peace
and security should be laid in the first Instance on
the World Council acting on behalf of the other
members of the Organisation. It will be for the
World Council to take the initiative to give offect
to the undertaking to maintain international peace and
security. The Head of the Secretariat should, however,
as suggested In paragraph 38 of l'emorandum A be given
the right tc bring before the Council any matter which
in his opinion threatened international peace and
security.
33.
It is for consideration whether any special
obligations for the maintenance of international peace
and security should be explicitly assumed within the
permanent Organisation by the Four Powers who have
undertaken such a responsibility pending the estab-
lishment of a general system
34.
If regional organisations are set up for
security purposes, part of the responsibility in the
first instance might fall on them, but, as is
suggested in l'emorandum A, paragraph 18, not in such
a manner as to conflict with the final responsibility
of the World Council for the maintenance of peace and
security.
IV. THE CONDITIONS I:: winch ACTION SHOULD BE TAKEN
FOR THE MAINTENANCE OF PEACE AND SECURITY.
35.
It is generally recognised that there must be
some statement in the constitution of the Organisation
as to the conditions in which action is taken to main-
tain international peace and security. In the Covenant
of the League of Nations and in the attempts to elab-
orate the Covenant great attention was Civen to this
question.
3€.
In
⑉9⑉
36.
In the Covenant the sanctions of Article XVI
came into force only if there was resort to war after
a l'ember had broken the promises made in Articles
XII-XIV. Even then each State necessarily determined
for itself whether the casus foederis had arisen.
37.
In Article X the quarantees were against
"external aggression" only. It was by this article
that the unfortunate word "aggression" was introduced
into the Covenant and became the subject of so many
debates at Geneva. But the more the word was dis-
cussed the more difficult it become to define exactly
what it meant. The definition of aggression was con-
sidered important because it was thought that it
night affect the right of the Council to advise that
sanctions be employed. The most notable contribution
to the debate was the suggestion that aggression
should be determined by the acceptance or refusal of
arbitration or some other peaceful method of settling
disputes. But this did not cover the preparations
for aggression, nor did it take the time element suff-
iciently into account. Moreover, the discussion and
analysis of aggression enabled States to use a procedure
calculated to defeat the objects of the Covenant.
Illustration of this fact was given by the Japanese
attack on China in l'anchuria.
38.
In Article XI sanctions were not mentioned,
and the obligations of the Council were stated in
the most general terms. These obligations could be
interpreted as giving the right to take drastic
action, but in the light of other articles it was
difficult to find in them any right to use force against
a State. In actual practice a number of dangerous
situations that arose between small States were
dealt with successfully under Article XI, and a
technique which involved such matters as the setting
up of commissions of enquiry and the establishment
of neutral zones was gradually developed.
39.
In the Protocol of 1924 an attempt was made
to make the sanctions "automatic" by setting up an
elaborate set of rules. But the discussions showed
that such a course was impossible. Sanctions depend
upon the will of Governments and peoples anti cannot
be automatically brought into existence.
40.
Aa
-10-
40.
As has been noted above, one test of aggression is
the acceptance or refusal of some method of settling the
dispute. But the acceptance may be merely a method of dolay
while preparations for accression are being made
(as in the case of Italy's attack on Abyssinia) or
actual force is used (as in Japan's attack on China).
It can be argued that in both these cases the lack
of effective action was due not to any defect in the
Articles of the Covenant but to the lack of will on
the part of the other States, and notably of the
Great Powers involved, to 60 to war with the recal-
citrant State. But it was also true that Japan was
able to use her right of veto under Article XI to
place obstacles in the way of the necessary enquiry,
and that preventive action against Italy, before she
attacked, was difficult to take legally under the
Covenant. Under the Locarno Treaties the signatory
States could act without League authority in the case
of "flagrant aggression," but not preventively. If
the question of Germany's rearmament had been brought
before the Council it is not easy to see what sanctions
could have been taken against her under the Covenant.
41.
In actual fact there was never any doubt,
in the cases in which the League of Nations was con-
cerned, as to the identity of the acgressor, though
sometimes as to the character of the provocation
to aggression. States, it is true, adapted their
actions and procedure to the l'anguage and resolutions
adopted at Geneva and later to the Pact of Paris.
But in no case were the real intentions and motives
of the aggressive States concealed from the Govern-
ments of the other members of the League or from
public opinion. The discussions at the Council
and the Assembly made them sufficiently clear.
42. This experience suggests that too rigid a
definition of the occasion for action is as likely
to hinder as to facilitate the maintenance of peace
and security. If the World Council is given power to
act for this purpose it will be able to work out
for itself the necessary procedure in the light of
experience. It will be easier also in such circ-
umstances to refer matters to regional associations
if any such come into existence which can be used
for that purpose.
45.
At the same time the principles and objects
governing the actions of Members will have been laid
down
-11-
down in the Preamble to the document bringing the
Organisation into existence. These, 0.8 suggested
in Part I of Memorandum A, should include not only
the maintenance of peace and security but also respect
for the "sovereign equality" and "political independence"
of its l'embers. If, therefore, it is laid down
that the World Council shall only take action in
accordance with these principles and objects, action
for other purposes will be excluded. It is suggested
that States will be protected from arbitrary action
by the World Council as much by this sufeguard as
by elaborate definition, while the World Council will
be more free to act to protect States from violence.
V. CONCLUSIONS.
44.
As to the Pacific Settlement of Disputes:-
(1) That all States should promise to settle their
disputes by peaceful means in such a manner
that international peace and security are not
endangered.
(11) That justiciable disputes should generally be
decided by a Permanent Court of International
Justice.
(111) That other disputes should be subjected to a
process of discussion and conciliation in the
World Council, which should have power to
determine the procedure to be followed without
the consent of the parties to the dispute.
45.
As to Guarantees:-
(1) That all l'embers should undertake to co-operate
to the utmost or their power in the maintenance
of international peace and security, and that
the World Council should be required to take the
initiative for this purpose.
(11) That no guarantee should be Given of the
territorial integrity of Members.
(111) That no guarantee should be given of the
political independence of l'embers, but
that respect for it should be recognised
as one of the principles of the organisat-
ion.
46.
As
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46.
As to the conditions in which action should
be taken for the maintenance of peace and security:- -
That there should be no attempt to lay
& down in advance any rigid definition of the occasions
on which such action should be taken, but that the
l'embers of the Organisation and the "orld Council
should only be empowered to take action in accordance
with the principles and objects of the Organisation.
MOST SECRET
MEMORANDUM C₂ SECURITY
THE MILITARY ASPECT OF ANY POST-WAR SECURITY
ORGANISATION
INTRODUCTION.
1.
The Moscow Declaration on General Security
contemplates the creation, at the earliest possible
date, of an international organisation charged with
the maintenance of world peace and security. This
organisation is to be founded on the principle of
the sovereign equality of all peace-loving States,
and all such States are to be eligible for member-
ship.
2.
An attempt 18 made in the present paper to
sketch out the general lines on which the organisation
of International Security might be attempted after
the conclusion of the present war. The proposals
deal, however, with the form which the Permanent Sec-
urity Organisation might eventually take and do not
relate to the intervening period. During this last
period it is evident that some temporary arrangements
will have to be made, but these will be obviously aff-
ected if there is some previous general agreement as
to the form which the permanent organisation might
assume.
GENERAL CONSIDERATIONS.
DECLASSIFIED
NATURE OF THE ORGANISATION.
3.
The proposed world organisation, whatever its
form, is bound to fail unless:-
(a) The U.K., U.S.A., U.S.S.R., and China continue
to co-operate wholeheartedly in its support.
(b) The Governments and peoples of those Powers
at least retain the will to enforce peace.
(c) The organisation is simple, its objects are
clear-out, and the machinery is of a kind to
which member States are already accustomed,
THE
- 2 -
THE OBJECTS.
4.
The objects should be:-
(a) to disarm Germany and Japan;
(b) to keep them disarmed, and
(c) to prevent them or any other aggressor from
again upsetting the peace of the world,
THE MEANS.
5.
The proposed organisation will have to rely,
in the main, on the combined military forces of the
United Nations and, in particular, of the Four Powers,
working together to a common end. Nost of the States
concerned are already accustomed to suoh & system.
6.
Economic measures, also, may operate to deter
potential aggressors, but unless backed by force or
the effective threat of it are unlikely to prove an
adequate check on & State which 1s, itself, ready
to resort to force.
THE IDEA OF AN "INTERNATIONAL POLICE FORCE".
7.
In some quarters it 1e contended. that the co-
ordination of military forces could best be expressed
in a. completely international "Police Force". What-
ever its theoretical merits, this postulates a greater
advance in international co-operation than States
are yet prepared to make, as it implies the existence
of a world State. Practical questions of size,
composition, maintenance, location and command would
give rise to controversies on which international
agreement would almost certainly be unobtainable,
8.
We conclude that the time has no yet come for
the creation of such an international force.
PROPOSALS,
HIGHER MILITARY ORGANISATION.
9.
The proposed world organisation implies the
existence
- 3 en
existence of some sort of World Council. This
Council will need military advice and this advice will
have to be given by States, not individually but in
concert. Apart from the "strategic" side of the
work, e.g., the preparation of plans to resist potent-
ial aggression, there are a number of general questions
such as the regulation of armaments on which combined
military advice will be required.
10. If the Higher Military Organisation 18 to
advise the World Council and provide machinery whereby
plans can be made in advance and the efforts of the
forces of member States co-ordinated, it follows
that it must form part of, and receive directions
from, the World Council.
11. It thus becomes clear that there will have
to be Military Staff Committee serving the World
Council.
COMPOSITION OF THE MILITARY STAFF COMMITTEE.
12. Since for many years to come the Four Powers
will have to play the predominant part in safeguard-
ing world peace, the permanent members of this Committee
should be the military representatives of those Powers.
The co-operation of States other than the Four Powers
will, however, be essential in providing forces and
making available bases, shipping and other facilities,
and these States will expect to be given a voice
corresponding to their obligations. These States
should, therefore, be associated in some form or
other with the work of the Military Staff Committee,
The form which this association should take raises
difficult problems, and must depend to a considerable
extent on the form which the World Council itself takes.
As & beginning, the Committee might be strengthened,
when dealing with particular security problems, by
the addition of military representatives of States
having special concern with the question under dis-
cussion.
13. It
- 4 -
13. It is important that the members of the World
Council should not receive military advice from more
than one source. It 18, therefore, essential that
the members of the Military Staff Committee should
be the supreme military authorities in their own
countries, or their representatives,
FUNCTIONS OF THE MILITARY STAFF COMMITTEE.
14.
The primary duty of the Committee would be
to prepare and keep up to date plans for the preven-
tion of any renewed aggression by Cermany or Japan,
or by any other State which might at any time give
signs of becoming an aggressor. The Committee
would also be responsible for any necessary co-ordin-
ation of the national forces of the member States.
FORCE AT THE DISPOSAL OF THE WORLD COUNCIL
15. For the purpose of dealing with major aggres-
sion, it 18 contemplated that, when necessary, the
full resources of all member States would be made
available. To deal with minor emergencies, part
of the obligation to be assumed by member States
would be the sarmarking of a quota of their national
forces or other resources to be at the disposal of
the Council. It would be for the World Council to
decide, on the advice of the Military Staff Committee:-
(1) What the size and composition of the quotas
of individual States should be.
(11) In the event of an emergency arising, what
particular forces should be called upon
to deal with 1t.
16. The mere existence of national forces and
their availability in emergency would not, however,
by itself, suffice to ensure the maintenance of
security, even if plans for their employment were
made in advance by the Military Staff Committee.
It would be essential that these forces should have
worked together in time of peace if their co-operat-
ion were to be smooth and efficient in time of emergency.
In
- 5 -
In this connexion it is difficult to exaggerate
the psychological effect of constant co-operation.
CO-OPERATION BETWEEN FORCES OF DIFFERENT STATES,
17.
In time of peace co-operation could best be
fostered:-
(a) By the Joint garrisoning or occupation of
certain areas; and
(b) By means of joint cruises and flights, and
other joint exercises.
The method by which these objects should be
achieved would require detailed study, and the neces-
sary rights and facilities for Joint garrisoning or
occupation, joint exercise and joint access to ports
and airfields, would have to be secured by agreement
between member States and, where necessary, by ex-
pressed provisions in the peace treaties with ex-
enemy States.
REGIONS
18.
There 18 considerable support for the suggest-
ion that, for purposes of an international security
system, the world should be divided into fixed regions,
each containing forces which, under the supreme control
of a World Council, would be responsible for prevent-
ing aggression in that region. It has been argued
that such an arrangement would limit the military
commitments of the smaller States and increase effic-
iency and rapidity of action.
19.
From a military point of view, there are cert-
ain objections to a world organisation constructed on
a basis of separate regions. These objections may
be stated as follows:-
(a) It 18 impossible to draw a boundary of a
region so as to confine within it all
military operations which the member States
in that region might have to undertake.
(b) If
- 6 -
(b) If an attempt were made to fix the operational
boundary of a region, States on the perimeter
would necessarily form part of the neighbour-
ing geographical region. Thus neighbouring
regions would overlap extensively.
(o) The defence arrangements of some Powers are
based primarily on soa and air power, which
do not lend themselves to regionalisation.
The advantages of regional organisation may be summar-
ised as follows:-
(a) The main attraction of a regional political
organisation 1s that it would give the
smaller nations a more direct concern in
security problems, and BO encourage their co-
operation in security measures, thus reducing
the burden on the Four Powers.
(b) Regional organisation might increase the
efficiency and rapidity of both political and
military action by member States of the
region.
(c) A regional organisation, through its attached
military staff, would facilitate military
co-operation between the States concerned.
20.
An argument in favour of the proposals contained
in this paper 1s that the suggested military organisat-
1on 18 not dependent on the existence of regional
political councils, yet could be adapted to a regional
eystem if the latter proved desirable on political
grounds. In such a case the Military Staff Committee
would serve to co-ordinate the activities of the mil-
itary staffs attached to the regional organisations.
CONCLUSIONS.
21.
Our conclusions, therefore, are as follows:-
(a) Any complete international "Police Force" 1s
impracticable in present circumstances.
(b) The
- 7 -
(b) The success of any world security organis-
ation depends on the whole-hearted co-oper-
ation of the principal member States and on
their resolution to use force to prevent
aggression.
(c) The object, in the first instance, of any
world security organisation should be the
prevention of renewed aggression by Germany
and Japan.
(d) Forces to support the World Council would
have to be placed by member States at its
disposal in the manner contemplated in
paragraph 15.
(e) Military advice and direction would be
afforded to such World Council as may be
set up by a military staff composed of the
supreme military authorities of appropriate
Member States or their representatives.
(f) National forces associated for the above
purpose should train and work together in
peace to the greatest possible extent.
(g) There would be some military difficulty in
the division of the world for security pur-
poses into fixed geographical regions, but,
if Regional Political Councils were set up
as part of some world organisation, it would
follow that they should have Military
Advisory Staffs, and this might facilitate
local co-operation.
NOTE - It will be noticed that the system proposed
above differs from the system which existed prior to
the war in the following three main points:-
(a) The establishment of an effective Military
Staff Committee of the World Council with
power to formulate plans and to co-ordinate
the action of national forces prior to any
emergency which may necessitate their action.
(b) The joint garrisoning of certain areas by
combined detachments of national forces.
(c) The
- 8 -
(c) The training and exercising together of
national forces in peace time, making use
of certain specified seaports and airfields.
MEMORANDUM D,
CO-ORDINATION OF POLITICAL AND ECONOMIC
INTERNATIONAL MACHINERY
1.
There will inevitably be set up, as part of
the permanent international system, a number of
specialised international bodies dealing with econ-
omio and social questions. Some of these bodies
have already been considered in considerable detail,
e.g. the Permanent Organisation for Food and Agric-
ulture. Others are in earlier stages of development.
There are already in existence the technical organ-
isations attached to the League of Nations, such as
those which deal with Health, the abolition of the
Drug Traffic, Transport etc.
2,
It will be necessary to make provision -
(a) to oo-ordinate the activities of these
bodies on their technical side;
(b) to bring them into relation with the World
Organisation.
3.
The obvious methods by which these objects can
be achieved are by means of discussions both between
the specialised organisations themselves and in the
World Organisation, and by means of an economic
and social secretariat attached to the World Jouncil,
4.
No doubt some form of consultation will be
arranged between the specialised bodies themselves
so that their activities may be directed towards a
common end. This co-ordination will be assisted by
the existence of an economic and social secretariat
attached to she World Council. The specialised inter-
national bodies should also have the obligation of
sending reports to the World Organisation as well as
to their constituent members. These reports can be
considered and discussed in the World Organisation,
so far as it is desirable to do 30, in order to
facilitate co-operation between the specialised bodies
and the maintenance of international peace and security.
5.
These discussions will be assisted by the
existence of an economic and social secretariat attached
to the World Council, and there may thus come into being
for economic and social questions an equivelent to
the machinery which (see Memorandum A, paragraph 38)
will, it is hoped, be in existence for political questions.
SECRET
MEMORANDUM E.
METHOD AND PROCEDURE FOR ESTABLISHING
A WORLD ORGANISATION.
1.
It may be hoped that the exchange of memoranda
and preliminary discussions between the four lowers
will result in a considerable measure of agreement.
The question thus arises how such agreement shall
be recorded, in what form it shall be submitted to
the four Governments for their approval, and how
and when the views of the other United Nations shall
be obtained.
2.
In Article 4 of the Moseow Declaration the
Four Powers recognised the necessity of establishing
an international organisation "at the earliest practic-
able date, and an obligation lies on them to make
every effort to fulfil this promise.
DECL ASSIFIED
3.
Moreover, if agreement can be obtained between
the United Nations on a definite scheme to maintain
international peace and security a new hope will
arise in the world which may do much to render less
difficult the painful process of reconstruction.
The reception of the Moseow Declaration by public
opinion shows how anxious the world is to receive
some assurance that such a scheme is ready for
adoption.
4.
There appear to be considerable advantages
in obtaining at the earliest possible moment agree-
ment on the essentials of the permanent International
Orgunisation, leaving the more detailed working out
of its several parts to a later stage.
5.
If it 1s decided to set up any regional assoc-
intions in any part of the world it will be much
easier to fashion them in accordance with a general
plan after the outline of the World Organisation has
been determined.
6. Moreover.
-2-
6.
Moreover, the existence of such an agreement
will facilitate negotiation for the establishment
of specialised and technical bodies. It will also
make possible the adaptation of such parts of the
temporary machinery set up immediately after the war
as it is desired to incorporate in the permanent
Organisation.
7.
In the Moseow Declaration the Four Powers have
assumed a responsibility for the maintenance of
peace and security pending the establishment of a
general system of security. This duty is likely to
be less onerous if the other United Nations, and poss-
ibly States now neutral, are associated with the
Four Powers for that purpose at the earliest possible
date. In this way the new permanent Organisation
will more quickly become a reality and take its proper
position in the new world community.
8. Moreover, the Treaties of Peace will be more
easily made if the form and character of the new
permanent organisation are already known. Solutions
of difficult problems will be more easily found and
there is less likelihood of decisions being made
which are incompatible with the terms of the perman-
ent organisation.
9.
It is suggested, therefore, that the aim of
the preliminary talks at Washington should be to
reach such agreement as can be referred to the four
Governments in the form of a Draft Declaration,
similar to that signed at Moscow but containing in
its several clauses a more extended survey of the
objects and principles of the permanent International
Organisation and an outline of the machinery which
it is proposed to set up to obtain them,
10. It may be necessary to omit from the draft
Declaration many important particulars, e.c., the
exact methods by which the members of the World
Council are chosen and their number. Some of these
points may perhaps be left to the new organisation
itself to determine. But it may be hoped that agree-
ment may be obtained on what political bodies shall
be set up e.g., a World Assembly, a World Council
and a World Court; on the principles on which action
will be taken for the pacific settlement of disputes
and the
-3-
and the maintenance of International peace and
socurity; on the necessity for agreeing some
permanent method by which the military forces nec-
essary to maintain international peace and security
can be co-ordinated; and on the principles which
shall govern the relations of the specialised
organisations with one another and with the World
Council and World Assembly.
11, It will then be for the Governments of the
four lowers to determine how far they can approve
the druft Declaration and it may be necessary to
have a more formal exchange of views between them
for this purpose.
12. If agreement is thus obtained it will be nec-
essary to communicate it to the other United Nations
for consideration, and immediately thereafter to
publish 1t. After a suitable interval the United
Nations would be invited to attend a Conference at
which the Declaration, with such emendments as hud
been found desirable, would be definitely adopted,
13. It should then be possible to set up a body
to work out a more detailed instrument in the form
of a Convention or Treaty on the lines of the Declare-
tion. It would be the coming into force of this
instrument, after the ordinary proceduré required
for ratification, which would bring the Permanent
Orgunisation into existence. The exact date on
which it was put into force might well be left to be
determined by the Four lowers who are specially
rosponsible for the maintenance of international
peuce and security in the interin period.
14. This method would have the advantage that.
while the Permanent Organisation can, of course,
only be brought into existence with the full consent
of the Governments concerned after they have consulted
the peoples which they represent, its form and
character will have been to a lurge extent icciaed
in consequenco of the adoption of the Declaration.
Luny of the Governments of the United Nations might
find it impossible to sign a treaty at that stage,
Some of them may not survive the transition from
war to peace. But rany of them could record their
agreement to a Declaration of the kind described
and 30 prepure the way for themselves or their
successors to take part in the preparation and
signature of the rinal instrument.
PSF: Dumbarton Onks freder
3-44
THE UNDER SECRETARY OF STATE
WASHINGTON
August 23, 1944
MEMORANDUM FOR THE PRESIDENT
1. Compulsory Settlement of Disputes. At this
stage, the Executive Council should not be given the
right to impose the terms of settlement of a dispute.
Its functions should be to promote peaceful settlement,
to make recommendations to the parties, and to settle
disputes only on the request of the parties.
2. Voting by Great Powers. The votes of great
powers involved in cases before the Council should not
be counted in the Council's decisions with respect to
such cases.
3. Election of Council Members We should accept
a procedure under which one-half of the non-permanent
seats would be filled every year, thus providing for a
two-year rather than one-year term.
4. Number of Permanent Seats If necessary, we
should accept a modification of our present proposal as
regards France in the sense that she would be given a
permanent seat on the Council when she has a government
DECLASSIFIED
State Dept. Letter, 1-11-78
By R. H. Parks Date NOV 22 1972
-2-
recognized by the four major powers and that, in the
meantime, she would have provisional representation
without the prerogatives of a permanent member. At
the same time, we should raise the question of giving
Brazil a permanent seat.
5. Vote in the Council.-We should accept a
provision for a two-thirds, rather than a simple
majority, vote in the Council, except for minor
decisions.
6. Withdrawal and Suspension. Our position should
be against the inclusion of provisions for withdrawal
and suspension.
7. Ad Hoc Judges. We should make it clear that
we regard the principle of ad hoc judges as unwholesome,
but we should not raise the question too sharply
because we ourselves would always have a judge on the
Court. We should accept the proposition if other
countries insist, but express a hope that eventually
the system would disappear.
ES
you
PSF: Dumbarton Daks
diumbaton Oaks
THE UNDER SECRETARY OF STATE
WASHINGTON
August 23, 19/4
MEMORANDIE! FOR MISS TULLY
I think the President will need
this for his study this ovening.
Harry thanks!
THE UNDER SECRETARY OF STATE
WASHINGTON
August 23, 1944
MENORANDUM FOR THE PRESIDENT
An agreed in my conversation with
you this morning, I attach hereto e brief
outline of the differences in the papers on
World Security en presented by the United States,
the United Kinndom and the Soviet Union.
THE UNDER SECRETARY OF STATE
WASHINGTON
August 19, 1944
OLONET
CHECK LIST OF
ESSENTIAL DIFFERENCES
BETWEEN
THE UNITED STATES, THE BRITISH, AND
THE SOVIET PROPOSALS
I.
SCOPE OF THE
ORGANIZATION
U. S. - The organization should include arrangements
both for security and for economic and social
cooperation.
U. K. - Same.
U.S.S.R. - There should be a separate organization or
organizations for economic and social coopera-
tion. Relation to general organization might
be discussed later.
II. FUNCTIONS OF THE
PRINCIPAL ORGANS
U. S. - The general assembly and the executive council
should have essentially different functions-the
assembly for economic and social questions, the
council for security. The assembly should have
budgetary and electoral functions. Another council
or commission, under the assembly, would deal with
coordination of economic and social agencies.
U. K. - The assembly would have less significant functions
than in the U. S. plan. It would be the center
of discussion, the council the center of action.
The same questions presumably could be considered
by both the council and the assembly. The assembly
might also have budgetary and electoral functions.
The executive council would deal with security and
with economic and social questions.
DECLASSIFIED
State Dept. Letter, 1-11-72
NOV 22 1972
By R. H. Parks Date
-2-
U.S.S.R. - Since the Soviet plan contemplates an organiza-
tion for security alone, both the assembly and the
council would deal with the same questions at dif-
ferent levels. The assembly would determine the
general principles of cooperation for security and
peace, would consider questions of disarmament,
would admit and expel members, examine amendments,
and deal with budgetary and electoral functions.
The council would have primary responsibility for
enforcing peace and security and would give pre-
liminary consideration to all security questions
which may be included in the assembly agenda.
III. REGIONAL ORGANI-
ZATIONS AND ARRANGEMENTS
U.S. - Regional organizations should plan an important but
subsidiary role in security questions, acting in
enforcement matters only on the authorization or
request of the executive council. They could take
initiative in peaceful settlement or welfare questions.
In all cases, they must be consistent with the pur-
poses of the general organization.
U.K. - Greater stress is laid on regional organization in all
fields, especially for security. Like U.S. proposal,
they should be subject to the guidance of the general
organization. They should, however, be under the
guidance of the major allies.
U.S.S.R. - No views are presented on regional organization-
except that question should be studied.
IV. AIR FORCE
U.S. - No support is presented for an international air force.
U.K. - The time not yet come for the creation of an inter-
national force.
U.S.S.R. - An international air force corps should be created, by
the council, for taking urgent military measures, in
which national air forces would participate.
- 3 -
V.
SPECIAL AGREEMENTS
FOR SUPPLY OF FORCES, AND
CONTROL OF ARMAMENTS
U. S. - Two such special, general, international agreements
are proposed to be negotiated at the initiative of
the council.
U. K. - This plan differs from the U. S. proposal in making
no explicit provision for such special agreements.
The council would have full powers in these fields
through the basic instrument, not through subse-
quent special agreements.
U.S.S.R. - Similar to U. S. plan in proposing special agreement
on supply of forces-there is no special agreement
on armaments regulation proposed (probably influenced
by U. S. plan on the first point).
VI. DEGREE OF
FOUR POWER CONTROL
U. S. - Unanimity of four powers in council would be required
for security measures (abstention is possible, though
the decision would be binding) and for amendment of
the basic instrument. (A new voting provision for
required abstention by a special vote is under considera-
tion.)
U. K. - Unanimity of four powers would be required for taking
security measures, but no mention is made for amendment.
U.S.S.R. - Similar to the British proposal.
VII. MEMBERSHIP IN
THE ORGANIZATION
U. S. - Initial membership should consist of the United Nations,
the nations associated with them in the war, and such
other nations as the United Nations may determine.
Provision for the suspension of any or all rights,
and for withdrawal is being considered but not expulsion.
- 4 -
U. K. - Initial membership is confined to United Nations.
No reference to the associated nations. Admission
of neutrals and of enemy states left for later
consideration. Necessary to lay down conditions
for state ceasing to be a member (expulsion or with-
drawal?). Suspension of rights not mentioned.
U.S.S.R. - Initial membership is confined to the United Nations.
Others to be admitted later. Expulsion would be
provided for. Suspension of rights not mentioned
nor withdrawal.
VIII. INTERIM
ARRANGEMENTS
U. S. - Proposes (1) Interim Consultative Security
Commission, and (2) European High Commission.
U. K. - Some temporary arrangements will have to be made
but no specific proposals are advanced.
U.S.S.R. - No proposals are made.
IX. OBJECTS OF THE
WASHINGTON TALKS
U. S. - To agree in the first conversations on fundamental
features of a plan to be transmitted to other
Governments for comments with a view to wider
agreement preparatory to a conference for drafting
and signing the basic instrument.
U. K. - To agree in the first conversations on a draft
declaration which should be referred to the four
governments for agreement prior to submitting it to
the other United Nations for consideration preparatory
to a conference to accept the declaration. A special
body should draft the detailed instrument for signature
and ratification.
U.S.S.R. - Should have a preliminary exchange of views on the
most important questions and principles to be agreed
on and work out afterwards an agreed upon draft of
the three Governments.
psF: Namber Gab Zde
PSF: Dumbarton Oaks
THE UNDER SECRETARY OF STATE
WASHINGTON
August 23, 1944.
MEMORANDUM TO THE PRESIDENT
Subject: Progress Report on Dumbarton Oaks
Conversations--Third Day
Meeting of the Subcommittee on Organization
We presented a tentative list of topics for dis-
cussion which was acceptable to the British, but as the
Soviets expressed a desire to talk from their document,
that course was followed.
(a) Aims of the International Organization
The aims stated in the Soviet memorandum were
generally acceptable, but were thought by our group and
by the British to require extension, by inclusion of
basic principles and objects of the Organization.
(b) Economic and Social Cooperation
I suggested that the important question of economic
and social cooperation be taken up in the Joint Steering
Committee.
(c) Principal Organs
We agreed as to the principal organs and that the
Organization should be empowered to create necessary
subordinate agencies.
-2-
(d) General Assembly
After Ambassador Gromyko clarified the Soviet view
that the Assembly would discuss and the Council would
decide and act, both on security and peace and on arms
limitation, we were in substantial agreement. It was
understood that the Council would not have to take
cognizance of matters referred by the Assembly.
(e) Admission and Expulsion of States
We and the British proposed that admission of
states be left to the Assembly. We and the British
proposed that there be no reference to withdrawal or
expulsion. The Soviet group will consider these views.
(f) The Council
Ambassador Gromyko said his Government desired to
have the five permanent members of the Council named in
the Basic Instrument and not subject to election. Both
the British and the Soviet groups felt that no provision
should be made for increasing the number of permanent
seats. I suggested that this matter be discussed in
the Joint Steering Committee.
Meeting of the Subcommittee on Security
We discussed a tentative list of topics presented
by our group. These were extended by reference to our
proposals relating to security and to the British
-3-
memorandum on the military aspects of security.
Ambassador Gromyko and Sir Alexander agreed in principle
to our proposals concerning (1) determination of the
existence of threats to peace or breaches of peace,
(2) action to be taken and obligations of member states,
(3) measures for the enforcement of decisions, both
those not involving the use of armed force and those
requiring provision of armed forces and facilities.
Both the British and the Russian groups requested that
matters of detail be reserved for clarification in the
drafting subcommittee.
ES
PSF: Oaks File
DEPARTMENT OF STATE
NEWS DIGEST
No. 202a
August 23, 1944
DUMBARTON OAKS CONFERENCE SUPPLEMENT
NEWS STORIES
Conference gets down to business with two closed meetings during
which chief delegates present views of their respective govts. on
methods for assuring peaceful relations among nations when war is won.
Conference now expected to be divided up into emall committees to
study various concrete problems. It is thought likely that three com-
mittees will be necessary to do spadework for meeting--one on politi-
cal matters, one on military plans, and one on drafting. (Wash. Her-
Trib. Polk; Star, Baird)
American plan, as obtained from unimpeachable source by NY Times,
18 careful to emphasize that U.S. has no intention of proposing 4-
power dictatorship on rest of world, but makes quite clear that author-
ity of assembly of all powers should be limited. American plan calls
for Executive Council of 4 permanent members and 7 additional members.
It stipulates that in order to use force to prevent aggression, 4 per-
manent members must vote for it unanimously and in addition there must
be majority vote of council. It proposes that powers enter "general
agreement" on number and type of forces they are obligated to put at
disposal of executive council, making it unnecessary for U.S. delegate
to return to Congress every time he and majority of council vote to
apply force to prevent aggression. U.S. scheme proposes that forces
of each country be used in 1ts natural region whenever possible. (Wash.,
NY Times, Reston)
Russian delegation proposes to discipline aggressor nations by
breaking off diplomatic relations, inflicting financial and commercial
penalties, cutting off railroad, telegraph and airplane communications,
establishing blockade, and making show of military and naval strength.
(Wash., Times-Her., Moore)
Gromyko's speech seemed to place more stress on role of great pow-
ers in postwar organization than do Anglo-American nations. But U.S.
officials do not consider that any wide gulf separates Russian and
Anglo-American viewpoints. They hold that it 18 merely a matter of
emphasis. (Wash. Star, Baird)
Senators, in atmosphere devoid of partisanship, join in discussing
Dumbarton conference as leading to ultimate happy outcome for world
peace. Connally indicates confidence meeting will succeed. Vanden-
berg says gathering starts "under happiest auspices". Connally assures
Taft that Hull has promised to "keep us posted" on progress of confer-
enoe "day by day if necessary". Single hint of politics occurs when
Taft asks Connally about Ambassador Harriman's reported statement that
"firm alliance" exists between U.S. and Soviet. Connally says phrase
is "rhetorical flourish" and general in meaning, and says "we have as-
surances from highest sources that no commitments were made at Casa-
blanca, Tehran, or Moscow which would bind this country". (Wash., NY
Times, Wood)
Hull assures members of Congress that they will be kept informed
of progress of Dumbarton talks. Explains that current meeting is
"technical" and that when matters of "policy" become involved he will
-2-
continue his practice of advising lawmakers. (Wash., AP, Star)
Explanation of secrecy maintained about details of discussions
at Dumbarton Oaks is given to newspapers by press officer of U.S. del-
egation. He says this 18 in no sense a dress performance, but rather
consists in preliminary and exploratory talks, which may lead to agree-
ment on which full publicity will be given. Declares that in this
present stage too much publicity would be misleading, and would not be
desired by all delegations present. (Wash,, NY Times)
Dulles, on arriving in Wash,, tells reporters he brings no speci-
fic proposals for conference with Hull, but 18 hopeful for full ex-
change of views which would permit agreement between U.S. political
parties on future international plans. (Wash, NY Times) Andrews, writ-
ing in Her-Trib., sees in Dulles' remarks indication that Dewey 18
proceeding on assumption that he will be kept fully informed of Dum-
barton developments. Describes Dulles as "as careful in his use of
language as any State Dept. spokesman ever was". Ward, writing in Sun,
says Dulles intimates that one purpose of his visit will be to test
bona fides of Roosevelt Administration's professed desire for "bipar-
tisan cooperation in effort to establish lasting peace". Pasley
writes in Times-Her. that Dulles, arriving in midst of press censor-
ship imposed by State Dept. ¹⁸ McDermott, says he hopes bipartisan un-
derstanding between Hull and Dewey would not exclude full and free
debate as to future world organization and America's part in such a
set-up.
Molotov and Harriman voice confidence that Allied powers will
shape postwar world free of aggression. Molotov says success of Dum-
barton conference "18 assured by good will of peace-loving nations
and increased consciousness of necessity of dependable guarantees
against instigators of new wars". (Moscow, AP, Sun, Post)
Chinese National Herald laments necessity of holding 2 separate
conferences at Dumbarton Oaks. Says no doubt this duplication will be
rectified in near future when Soviet joins in total war against Axis
powers and when all United Nations, large and small, sit in same coun-
cil, Herald otherwise expresses full support of Dumbarton conference.
(Chungking, UP, NY Times, Times-Her)
Britain strongly supports expanding world security organization
now being mapped at Wash. into more than alliance for keeping down
aggression and making it into agency for wiping out economic and poli-
tical evils that give rise to war. However, there 18 no indication
that Govt. proposes to make suggestion to other powers at this time.
(Lon. Sun, O'Neill)
Polish-American Congress sende memorandum to Hull asking that its
support of Atlantic Charter as basis of future world organization be
given consideration at Dumbarton conference. (Wash., Times-Her)
COMMENTATORS
Krook, NY Times, August 23: Aspect of U.S. plan for new peace-
keeping league which is most likely to divide the country into opposing
groups is its alleged provision that if Senate ratifies by treaty the
details of our membership on the new League's Council, then Executive
will have full warrant to apply force when council votes to use it,
without further recourse to Congress.
Sullivan, Her-Trib., August 23: Recommends that Dumbarton confer-
ence assure that, upon threat of war, force to repress the threat will
come into action, as nearly automatically as it 18 possible to achieve.
Constantine Brown, Star, August 22: Secrecy with which State
Dept. has decided to cover Dumbarton conference likely to harm rather
than help.
Wm, Philip Simms, Daily News, August 22: Informed persons say
new league of nations now under discussion will be based on realities
principle. instead of idealism, and that regional understandings will be guiding
Van Devander and Player, NY Post, August 21: There's great deal
of bewilderment -- particularly in Chinese circles -- over why China
should have to stay away from conference table until after Russia has
left. There has been, and will be, no open protest or show of resent-
ment by China, but many Chinese are deeply disappointed over set-up
and feel, very privately, that they have been sort of kicked around
for no apparent good reason.
EDITORIALS
Sun, August 23: While conference proceeds behind closed doors it
will be well for public to remember two points: 1) results will not
be binding but will be recommendations to three govts. by their dele-
gations, and 2) there will be no news of actual proceedings except
such 8.8 State Dept. puts out in formal releases. So longas final de-
cision on policy rests with people, as Hull has formally assured it
will, specialized labor of negotiation may properly be allowed to pro-
ceed in atmosphere of privacy.
Post, August 23: Two results of secrecy of conference will be: 1)
spotlight will be removed from conference which seeks to carve man-
kind's destiny, and 2) reports that do get out will be compounded of
rumor and gossip. American people subsisted on this pabulum in 1919
and result was, as Welles points out, to breed spirit of cynicism in
this country toward peacemakers. It is not too late to change this
policy.
Daily News, August 22: Harmony presided at opening of Dumbarton
conference, but this does that mean that conflicts will not be bared
when principles are applies. All three speakers denied Big 3 domina-
tion, but no small nation has been invited to participate. They have
merely another promise for representation to be added to those of
Atlantic Charter, United Nations Declartion and Moscow Pact.
Star, August 22: Delegates to Dumbarton know what needs to be
done, and, in a general way, how they propose to do it. What remains
is translation of these concepts into & finished plan. Hull outlined
the problem at opening of conference in clear and forceful language.
Daily News, August 22: Hull-Dulles meeting reveals that Dewey
was not talking to make political impression when he warned against
power politics at Dumbarton. If he had, he would have been caught
flat-footed by astute Hull, when Hull offered to discuss foreign policy
with him.
PM, August 22: Difficulties which confront men at Dumbarton Oake
are enormous, There are differences among Big-4 themselves. Men at
Dumbarton Oaks must find some way to reconcile insistence ori sover-
eignty with workable international order, to dress up any agreement in
terms palatable to our own Senate. They must not let it be said that
they played "power politics", but they must nevertheless play power
politics if they are to do their job well,
NY World Telegram, Aug. 21: Our allies should accept Hull-Dulles
as evidence that there are no basic party differences in U.S. for. pol.
PSF: Dumbarton Oaks folder 3-44 -
DEPARTMENT OF STATE
THE UNDER SECRETARY
August 24, 1944
Miss Tully,
fill
The attached is a note
covering today's proceedings at
V Dumbarton Oaks which I believe
the President might wish to
glance over.
ES.
PSF: Dumbarton Daks
SECRET
THE UNDER SECRETARY OF STATE
WASHINGTON
August 24, 1944
MEMORANDUM TO THE PRESIDENT
Subject: Progress Report on Dumbarton Oaks
Conversations--Fourth Day
Meeting of the Subcommittee on Organization
(a) Soviet Views Concerning the Council
(1) Settlement of Disputes. We agreed in principle
that the Council should be empowered to consider the
settlement of disputes in accordance with the Statute.
The British and ourselves felt the power to impose
settlement should apply only when a breach of peace is
involved. The Soviet group seemed to agree, but the
matter is to be studied further.
(2) Provision of Forces. We agreed, subject to
further study, that forces should be provided on the
basis of a separate general agreement, subject to the
constitutional processes of each state.
(3) Consideration of Matters Pertaining to Peace
and Security. Ambassador Gromyko clarified the Soviet
view that the Council should examine all questions
relating to peace and security before they are discussed
in the Assembly.
-2-
(4) Voting. We and the Soviet group proposed that
questions of peace and security be decided by a simple
majority including all permanent members, but agreed to
consider the British preference for a two-thirds majority.
The British favored excluding from voting a state
party to a dispute, on grounds that the veto power of a
permanent member might prove difficult for smaller coun-
tries to accept. We called attention to our interest
in this matter. The Russians are studying the subject.
(b) American Views on the Organization
(1) General Assembly. We proposed and the British
agreed that the Assembly might examine representations
and reports on matters of concern to the Organization,
and act on matters not allocated to other organs. The
Soviet group felt that matters relating to security
should be brought to the Assembly by the Council, and
they reserved judgment on our proposal that the Assembly
make recommendations for peaceful adjustment of questions
affecting general welfare.
(2) Amendment. Our view was accepted in principle
that amendments should be proposed by a simple majority
of the Assembly and ratified by two-thirds of the states,
including the permanent members of the Council. The
British felt that imposition of an amendment on the
remaining one-third might offer difficulties.
-3-
(3) Voting. The differences between our proposal
and the Soviet view on voting in the Assembly appeared
to be a matter of drafting. Both views were generally
acceptable to the British.
(4) The Council. We suggested that non-permanent
members be elected for one year but agreed to consider
the British proposal of three years with rotating retire-
ment, and the Soviet view of one or two years. It was
agreed in principle that states not on the Council should
attend and be heard on matters affecting them. The
British suggested that such states might be given the
right to vote on matters not affecting peace and secu-
rity. Our view was that such matters would not
ordinarily be a concern of the Council.
Meeting of the Legal Subcommittee
The subcommittee discussed the American views on
the International Court. The British commented but the
Soviet group reserved comment until later except to
agree the Court should be part of the Organization.
Meeting of the Special Military Subcommittee
Military representatives discussed the provision of
forces, particularly the Soviet view that an international
air force corps should be integrated and under the direct
control of the Council.
PSF: Dumbarton Oaks freder
3-44
THE UNDER SECRETARY OF STATE
WASHINGTON
August 25, 1944
MEMORANDUM TO THE PRESIDENT
Subject: Progress Report on Dumbarton Oaks
Conversations--Fifth Day
/
Meeting of the Joint Steering Committee
This meeting, the only one held today, was the
most important of the entire conversations so far.
(a) Relation of the World Organization to Economic
and Social Matters
This important topic, which when previously raised
had been postponed for future discussion, was considered
fully for the first time.
(1) Unity of British and American Views.--The
British indicated that they are prepared to accept our
views that an Economic and Social Council should be
created and should be an organ of the Assembly.
(2) Full Presentation and Discussion of Soviet
Views.--The Russians earnestly and exhaustively argued
that the League's experience demonstrates that an inter-
mingling in the same organization of responsibilities
for both the maintenance of peace and for economic and
social matters will work out to the detriment of
security. We presented at length our reasons for
-2-
believing that the general organization must concern
itself with all matters which bear upon the maintenance
of conditions conducive to peace. We also urged that
our proposal not only accomplishes this but, leaves the
executive Council free to concentrate on the primary
task of security, thus obviating the defects in the
League's structure. We were encouraged by the atten-
tion which Ambassador Gromyko and Mr. Sobolev paid to
our arguments. It was agreed that Ambassador Gromyko
would report fully to his Government.
(b) Regional Organizations
We agreed to postpone consideration of this topic.
(c) Composition of the Executive Council
We agreed to postpone consideration of this topic.
(d) Expulsion and Withdrawal of Members
Ambassador Gromyko insisted that the power of ex-
pulsion is desirable for the "discipline" of members.
The British, as a substitute, proposed suspending the
privileges of membership of those states against which
action is taken by the Council. This proposal was
tentatively accepted, ad referendum.
(e) Should the Council make Decisions by 2/3 or
Majority Vote?
We stated that we could agree to the British pro-
posal that important questions should be decided by a 2/3
-3-
vote (including the unanimous vote of members having
permanent seats on the Council). Ambassador Gromyko
indicated no dissent and said he would inform his
Government.
(f) Should Parties to a Dispute Vote?
We agreed to state our views early next week.
(g) Composition of Military Staff Committee
The British clarified their proposal and said their
military authorities regard it as of very great impor-
tance. We agreed to present our view on the British
proposal next week. There was also tentative discus-
sion, with little apparent divergence of view, of the
question of the supreme commander for joint security
forces.
(h) International Court of Justice
There appeared to be general agreement (1) that
there should be a Court, (2) that the Court should be
a part of the Organization, and (3) that there should
be no attempt to draft the actual Statute of the Court
during these conversations.
(1) Authority of Council to make its Decisions Obligatory
There appeared to be tentative agreement with the
British proposal that the Council should have 'authority
to make its recommendation obligatory in any dispute
involving a clear threat to peace when all other methods
of settlement have failed.
ES.
PSF: Dumbarton Daks
PSF:
THE UNDER SECRETARY OF STATE
WASHINGTON
August 28, 1944
MEMORANDUM TO THE PRESIDENT
Subject: Progress Report on Dumbarton Oaks
Conversations--Sixth Day
Meeting of the Joint Steering Committee
The Committee continued to discuss the topics of
which consideration had been begun last Friday.
(a) Expulsion and Withdrawal of Members
Ambassador Gromyko stated that the tentative opinion
of the Soviet group now is that the proposal made by the
British last Friday for suspension of the privileges of
membership should be regarded not as a substitute for
the Soviet proposal for expulsion but as a proposal for
'action in addition to expulsion.
(b) Composition of the Council
(1) Possible Permanent Seat for Brazil. In response
to a question by Ambassador Gromyko, we indicated that at
some later stage of the discussions we may wish to pro-
pose that there be added to the number of permanent mem-
bers of the Council some one of the Latin American
countries. We mentioned Brazil specifically, in reply
to another question by Ambassador Gromyko.
Sir Alexander Cadogan said that he would inform his
-2-
Government, commenting that he doubted if they had con-
templated the possibility of such a proposal. He thought
that if the number of permanent seats were increased
beyond five there would be considerable difficulties.
The Russians want only five permanent seats.
(2) Status of France.-There appeared to be general
agreement upon the desirability of a permanent seat being
reserved for France, regardless of whether or not a gov-
ernment of France has been formally recognized by the time
the Organization 1s formed.
(3) Number and Tenure of Non-Permanent Members.-
There seemed to be general agreement that there should
be six non-permanent members and there was tentative
agreement, ad referendum, with the Soviet proposal for
a two-year term.
(c) Vote of Permanent Member Involved in a Dispute
We stated that we had come to the conclusion that a
state involved in a dispute should not vote on matters
affecting that dispute and that this rule should apply
to all members. There ensued a full discussion in which
we explained carefully the reasoning which had led us to
our present position in which we were strongly supported
by the British. The Soviet representatives stated that
they considered our proposal to be in violation of and a
"retreat" from the basic principle that major decisions
of the Organization should be arrived at on the basis
-3-
of unanimity among the great powers. They maintained
their prior position that a special procedure should be
worked out to govern instances in which one of the states
having a permanent seat may be involved in a dispute and
indicated that a specific Soviet proposal on this might be
forthcoming later.
(d) Initial Membership of the Organization
We discussed this topic at the request of
Ambassador Gromyko and there appeared to be general agree-
ment with our proposal that initial membership would
include the United Nations and associated nations.
Ambassador Gromyko then said that all of the 16
Soviet republics should be included among the initial mem-
bers of the Organization. Sir Alexander Cadogan said that
he had no comment on the Ambassador's statement at this
stage but he remarked that he believed his Government will
have to talk to the Soviet Government about the general
question of the international status of the Soviet
republics. We said that we would have to think about
the Ambassador's statement.
Meetings of New Formulation Groups
Pursuant to arrangements arrived at in Friday's
meeting of the Joint Steering Committee, small formulating
groups of the Organization Subcommittee and of the Security
Subcommittee met this afternoon to draw together the work
which has been done by these Subcommittees and to put this
work into form suitable for approval by the Joint Steering
Committee.
El
Oaks
THE UNDER SECRETARY OF STATE
WASHINGTON
August 28, 1944
MATTERS TO DISCUSS WITH THE PRESIDENT
1. Status of France - Apparent general agreement
that fifth permanent sent on Council should be
reserved for France.
2. Brazil on Council - 170 proposed E. sixth permanent
seat and mentioned Brazil - Soviets want only five -
British probably want only five also.
- 3. Sixteen Soviet Republics - Gromyko said all sixteen
Soviet republics should be initial members of the
organization.
4. Votes of Members Involved in Disputes - We stated
our position that "guilty" party should not vote
in own case - British supported us - Soviets seid
, this "violates" principle of unanimity of Pig Four.
PSF: Dumbarton Oaks
THE UNDER SECRETARY OF STATE
file
WASHINGTON
August 29, 1944
MEMORANDUM TO THE PRESIDENT
Subject: Joint Statement to the Press on
Dumbarton Oaks Conversations
In accordance with your suggestion, I proposed
to Ambassador Gromyko and Sir Alexander Cadogan that
paragraph No. 2 of the attached statement to the press
should be amended to read:
"A council composed of a smaller number of members
in which the principal States will be joined by
a greater number of other States to be elected
periodically.
If
This suggestion was not acceptable to
Ambassador Gromyko and we were able to agree only
upon the statement as given.
&
PSF: Dumbarton Oaks
TOP SECRET
THE UNDER SECRETARY OF STATE
WASHINGTON
August 29, 1944
MEMORANDUM TO THE PRESIDENT
Subject: Conversations--Seventh Progress Report on Dumbarton Day Oaks file.
Meetings of the Formulation Group on General Organization
The formulation group of the Subcommittee on
General Organization, meeting Monday and today, has
reached tentative agreement on the following aspects
of the International Organization:
I. Purposes
To maintain peace and security through effective
collective measures for the prevention and suppression
DECL'
of threats to or breaches of the peace; to adjust or
settle peacefully disputes which may lead to a breach
of the peace; to develop friendly relations among
nations; to serve as a center for harmonizing the action
of nations for these ends. We and the British agreed
that the Organization should achieve international
cooperation on economic, social and technical matters,
but the Soviet group, while constructively participating
in discussion of this point, reserved judgment pending
instructions.
-2-
II. Principles
The Organization will act in accordance with the
following principles: the sovereign equality of all
peace-loving states; fulfillment by all members of the
obligations assumed in accordance with the basic instru-
ment; settlement of all disputes by peaceful means not
endangering peace and security; avoidance of the threat
or use of force in any manner inconsistent with these
purposes; and no assistance to a state against which
preventive or enforcement action is being undertaken.
III. Membership
Membership should be open to the United Nations
and all other peace-loving states; initial members
should be the United Nations (the Soviet group reserves
judgment as to whether "the nations associated with
them" should be included); states not initial members
should be admitted individually after adoption of the
basic instrument and in accordance with regulations
in it.
IV. Principal Organs
An assembly, a council, an international court,
a general secretariat, and such additional organs,
councils, commissions or agencies as may be found
necessary.
-3-
Meeting of the Joint Steering Committee
We reviewed and rather promptly reached agreement,
with very minor revisions, on the draft statements of
the formulation group, summarized above.
The ease and the dispatch with which agreement
was reached on these matters was encouraging.
We also agreed easily upon the schedule of
meetings to be followed tomorrow and the next day.
The arrangements at which we have arrived for con-
sidering and disposing of the various matters under
discussion seem to be working smoothly and effectively.
&
DEPARTMENT OF STATE
fell
NEWS DIGEST
No.
207a
August 29, 1944
DUMBARTON OAKS CONFERENCE SUPPLEMENT
NEWS STORIES
Senator Bridges cautions in Senate against secrecy imposed on
Dumbarton conference, and says Congress will "not stand for double-
talk" surrounding U.S. proposals for an international peace organiza-
tion. From what he has learned of U.S. proposal, he says, a projected
assembly representing all nations "will be a debating society with no
power save to discuss and advise" and "all power will be in the coun-
cil which will be in the hands of the big four". Sen. Hill says Sen.
Bridges 16 disturbed by rumors, and should reserve his criticism until
he sees what conference does, Sen, Bridges draws no support from his
fellow Republicans during his clash with Sen, Hill, (Wash,, all papers)
Paul Ward, writing in Sun, sees Bridges' attack as a rift developing
in Republican-Demooratio truce over issue of devising postwar succes-
sor to Lengue of Nations. NY Times story points out that ns matter of
fact the secrecy concerning Dumbarton talke has not been ironclad for
a great part of basic plan submitted to delegates has been published
in NY Times, and suggests that Sen. Bridges evidently made use of
of these articles,
Chiefs of U.S., Brit,, and Russian delegations agree to hold prese
conference at Dumbarton Oaks this morning. Stettinius, Cadogan, and
Gromyko decide to hold press conference after week in which State Dept.
was bombarded with complaints of "secret diplomncy". Hull discloses
at his press conference that delegates will attempt to give to press
in their communiques "something with a little more substance" than
contained in announcements made 80 far. (Wash., Post, Folliard; NY Times)
Asked if he had shared information about Dumbarton conference with
Dulles, Hull tells press conference "I talked with him AS I would to
a Senator. (Wash., NY Times)
Dr. Wellington Koo arrives at National Airport and thus rounds
out roster of Big-4 representatives in Wash. Stettinius and Cadogan,
accompanied by members of U.S. and Brit. delegations, are on hand to
meet Dr. Koo. Conspiouously absent are Gromyko and Russian delegates.
Dr. Koo says China is eager to make her contribution to success of
conference, (Wash., all papers)
Dr. Kung favors international police force rather than standing
armies to maintain world security, he reveals in interview. Empha-
sizes that he speaks in personal capacity and not for his govt. De-
scribes a single world police force paid by all members of new league
and operating under an international military commission as ideal and
economical way to keep pence. (Wash,, Times-Her)
Major topic of discussion among U.S., Soviet and Brit, delegates
16 method by which proposed international council may decide on action,
military or economio, if one or more of Big-5 powers become embroiled
in a controversy, it is learned. Success or failure of meeting may
turn on this point, according to diplomatic sources. Wash, Her-Trib, Polk)
Stettinius' dook, Nong Lei, whose great ambition 16 to shake
hands with Dr. Wellington Koo, is at end of line at airport greeting
Dr. Koo as he arrives. (Wash., AP, Sun)
-2-
Presinct stations of world police force will be spotted at strate-
gio places around globe if plans conceived by some delegates to Dumbar-
ton conference are accepted. A substantial force of Americans, Brit.,
Dutch, French, Brazilians and Colombians would be stationed somewhere
in Caribbean, Powerhouse of military strength would be maintained in
China with additional troops in eastern Russia. World's most powerful
force would be stationed in Brit, and France. Agreement has not yet
been reached on Balkan area, but Turkey 1s favored by majority of del-
egates. Talks are reported to have achieved astonishingly good resulta
(Wash,, PM, Michie, Aug. 27)
COMMENTATORS
Childs, Post, Aug. 29: Newspapermen protesting closed door pol-
10y at Dumbarton Oaks want an end to leaks which result in one or two
favored reporters getting news denied to the majority. It this is to
be atmosphere in which preliminary meeting to organize world security
18 to be conducted, then public will be 111 prepared to understand
what 1s takingplace. Behind present dispute is niggardly information
policy of State Dept, While there's been marked improvement in recent
months, the old tradition of "no news will cause no trouble" is still
strong. Question of informing the public is really part of a broader
question--whether State Dept. is equipped to wage pesce, Here in a
small way, by liberalizing the news policy at Dumbarton Oaks, State
Dept. can show it is abreast of times.
Lippmann, Post, Aug. 29: There are impelling reasons why liber-
ation of Paris should be followed by invitation to French provisional
govt, to participate in Dumbarton conference and European Advisory
Commission, Inclusion of France in Dumbarton conference will do what
no mechanical formula can possibly do in answering complaint that 3
great military pówers seek to dominate the world.
Pusey, Post, Aug. 29: U.S. influence in international affairs
would certainly be stronger if commitments to use force to keep the
peace should be left to executive discretion. But it is improbable
that Congress would ever consent to lodgment of so much power in Pres-
ident. Grave danger 18 that issue of executive control over peace
forces, if officially presented, will divide the people and lead to a
stalemate such as that which undermined peace of 25 years ago. Adop-
tion of some means of inducing President and Congress to work together
in this field 18 no less urgent than agreement among victorious powers
themselves,
EDITORIALS
Christian Science Monitor, Aug. 26: To give American delegate
on world council direct access to American armed force for law enforce-
ment need not be to trespass on Congress' Constitutional right to de-
clare war, Given honest information and clear leadership, American
people will not long refuse to approve plans for making action in name
of the world organization swift and effective,
Chicago Sun, Aug. 25: A decision of the Big Four at Dumbarton
Oaks to discipline each other would be desirable but not practicable
at the present time. No oollective-security system can be established
unless the Big Four agree to stick together at least during the years
of its early development. It is better to work for attainable strides
than to underout the conference because perfection is not just around
the corner.
-3-
FOREIGN PRESS
ITALY--Rome press has given wide coverage to opening of postwar
security conference at Dumbarton Oaks with address of Secretary parti-
cularly featured. Commenting Osservatore Romano, August 23, expressed
fear that victor nations might assume hegemony of world but found com-
fort in sssurances of Secretary that organization of future is to be
based on sovereign equality of all pence-loving states.
Italin Nuova, August 24, recalling that attempt at peace after
last war failed for many reasons of which chief was probably laok of
international police force urges that this force now be set up by all
nations on basis of equality (BO it will not be mere instrument of
power) to preserve pence until world 18 sufficiently oducated in free-
dom and democracy.
Nenni in Avanti, August 25, refers to dovelopments in war in Eu-
rope during recent days ne presaging early end of hostilitics and
says four-power conference from which new association of nations 1e
boing watched with anxious expectancy. He warns however that formulas
of 1919 will not solve problems of 1944 and neserts that question for
tomorrow 18 not whether frontiers will be drawn here or there but ra-
ther one of free circulation of labor and Inborers and free nocess to
raw materials,
Corriere D1 Roma, August 25, endorses Secretary's remarks and
snys that in view of fact that all wars have been caused fundamentally
by economic malnjustments minor nations may find renewed hope in
Secretary's policies and assurances,
TURKEY-Formerly pro-Axis Tasviriefkar editorial, August 23: Mr,
Hull's speech innugurating Dumbarton Onks' conference was welcomed by
Turkish public opinion with great interest. We Turks entertain strong
hopes for success of present experiment nimed nt establishing inter-
national harmony and lasting peace in world, American Secretary of
State apparently favors creating armed force for protection of world's
pence and security. It will be impossible to achieve durable pence
and order unless all nations great and small are granted equal chances
for progress, aggrossion and political intrigues altogether eliminated.
If Dumbarton Onks delegates are merely trying to defend policies of
their respective countries, decision of this conference can hardly be
expected to bring about stable world order.
Ushankligil in Son Posta, August 22: America and entire Anglo-
Saxon world have apparently concentrated all their nttention on pro-
blem of protecting tomorrow's penoe, relegating to second place for
time being matter of nctually establishing pence. If under formula of
unconditional surrender 1100 hidden desire not to make definite oom-
mitments before final crystalization of future events, then adoption
of measures for protection of pence before founding of pence structure
itself constitutes important part of woll-drawn-up program.
Tanin, August 23: In view of continually changing circumstances,
future pence no matter how just can only temporarily settle interna-
tional problems. Consequently establishment of politionl organization
responsible for solution of controversial problems becomes absolute
necessity. Most important principle 16 nooeptance by all nations of
obligation to submit their problems to such security organization.
However such sncrifice of right to sovereignty depends upon nature of
tomorrow's ponce and sincerity of security organization. Grent powers
should therefore refrain from making organization tool of their own
interests.
PSF: Dumberton Oaks
TOP SECRET
THE UNDER SECRETARY OF STATE
WASHINGTON
August 30, 1944
MEMORANDUM TO THE PRESIDENT
Subject: Progress Report on Dumbarton Oaks
Conversations Eighth Day
fill
Meeting of the Special Military Subcommittee
(a) Provision of Forces
The Subcommittee, meeting for the first time this
week, resumed its discussion of the nature of forces to
be provided for enforcement action. Admiral Willson sub-
mitted for the American group a formula which would obli-
gate each state to maintain, in accordance with a general
agreement, a stipulated quota of air, sea and land forces
in readiness for immediate movement upon receipt of an
order from the Council. A warning order would indicate
at what time these forces would come directly under the
command of the Council. Our formula was agreeable to
the British but the Russians asked whether it would ex-
clude an international air force corps under direct control
of the Council. Our view was that the American formula
was more comprehensive than the Soviet proposal because
sea and land forces, as well as air forces, as provided
for under the agreement, would be subject to control of
the Council when and as required. The Soviet group asked
for a few days in which to consider the American proposal.
-2-
(b) Composition of the Military Committee of the Council
The British set forth their view that the four
principal powers should be continuously represented on
this Committee, presumably by representatives of their
respective Chiefs of Staff. Representatives of other
states would be associated with the Committee as occasion
arose on a basis to be determined later by the Committee
and the Council. The American and Soviet groups were in
general accord with this proposal, subject to later
agreement upon exact language.
Meeting of the Subcommittee on General Organization
The Subcommittee on General Organization, meeting
for the first time this week, discussed but did not
undertake to reach agreement on the questions which
follow. Ambassador Gromyko explained that the Soviet
group would be able to contribute little to the discus-
sion because they had not given much previous considera-
tion to these questions.
1. Should amendments to the basic instrument be binding
on dissenting states?
2. Enforcement of obligations over non-member states.
3. Has a non-member of the Council a right to vote on
special questions affecting its interests or should
it merely have a right to be heard?
-3-
4. Nomenclature.
5. Should the Council be "in continuous session"?
6. Director-General's right to call the attention of
the Council to threatening situations.
7. Character of the Secretariat.
ES.
TOP Dumbarton SECRET
Orpo
THE UNDER SECRETARY OF STATE
WASHINGTON
August 31, 1944
PRIVATE AND PERSONAL
Memorandum to the President and the
Secretary of State
From the Under Secretary of State
Subject: Brazil's Place on the Council.
1. The British and the Russians have emphatically rejected
our proposal for a sixth member of the Executive Council in that
capacity.
2. Our own American group, after an exhaustive study of this
subject, recommends unanimously that we should not press for Brazil
for the following reasons:
A. If Brazil goes on the Council, we would be respon-
sible always for her action.
B. If Brazil is put on the Council at our instance, all
the other Latin American states would be antagonized.
C. Our insistence on Brazil would raise the question of
regional representation, thus bringing forth claims by the Soviet
Government and other groups for additional permanent members on the
Council such as Czechoslovakia or some other state in her orbit.
D. Brazil is not a great military power and is not likely
to be one in the near future, and therefore the whole concept that
special responsibility would be assumed by great military powers would
be weakened or destroyed.
DECLASSIFIED
State Dept. Letter, 1-11-72
By R. H. Parks Date NOV 2 1972
/
-2-
E. As now contemplated, there will most probably be two
Latin American states always among the non-permanent councils of
the Council, since more than one-third of the membership of the
organization would be western hemisphere countries -- 21 out of
possibly 60.
It would be much better to have the Latin American repre-
sentation distributed over the continent than to single one out.
F. If we have six permanent members and a Council of eleven
it would give up your valuable idea of having a greater number of
small countries and large countries on the Council. An increase in
the number of representatives on the Council at this stage would be
thoroughly undesirable from the point of view of the efficiency of
the Council's action.
ES
PEF: Dumberton Oaks
TOP SECRET
THE UNDER SECRETARY OF STATE
WASHINGTON
FD
August 31, 1944
PRIVATE AND PERSONAL
Memorandum to the President and the
Secretary of State
From the Under Secretary of State
Subject: France as a Permanent Member of the Council
1. The memoranda of all three governments contain
a proposal that France should eventually become the fifth
permanent member of the Council.
2. It would be extremely embarrassing now for us to pro-
pose to the Russians and the British that the question not be
settled to the extent of providing a place in the future among
the permanent members of the Council.
3. We anticipate no difficulty in working out a formula
for the actual admission of France in the future to a place 8.8
a permanent member of the Council, to be regulated by agreement
of the four governments.
4. May we have your authority to provide in the present
draft for an arrangement of this kind?
&
DECLASSIFIED
State Dept. Letter, 1-11-72
By R. H. Parks Date NOV 22 1972
ml
DEPARTMENT OF STATE
FOREIGN PRESS SUMMARY
No. 289
V
August 29, 1944
Dumbarton Oaks Conference
RUSSIA--Tass dispatch in Pravda for August 28 reporting Dumbartor
Oaks Conference contains following paragraph: "Together with short
official reports which present only some insignificant details re-
garding the course of conversations, and moreover do not reveal their
characters, the newspapers continue to publish various unconfirmed
reports based apparently on statements made privately by various
officials".
French Communists
RUSSIA--Trud for August 16 publishes article by French Communist
Maurice Thorez entitled "At the Head of the Struggle for the Libera-
tion of France". Thorez describes resistance of French workers to
German occupation which he stated began immediately after country was
occupied. Germans attempted to exploit French workers but they re-
fused to yield and by determined resistance forced Germans to parti-
ally satisfy their demands for better rations and working conditions.
French people were inspired by heroic struggle of Red Army, and active
resistance of French workers increased substentially after German at-
tack on Soviet Union. Illegal cells were formed in various indus-
tries and developed into committees of national and trade union action.
Soviet victories in east and Allied landings in Normandy released ex-
traordinary enthusiasm in France. Trade unions advised workers to
form military detachments and prepare for general strike to paralyze
war production and German transport. French workers are rendering
important aid to Allied armed forces.
Churchill's Italian Visit
ENGLAND--Fullest acount of Mr. Churchill's visit to Rome appears
in dispatch from Daily Telegraph's correspondent there. It reads in
part: "Mr. Churchill on Tuesday received Signor Bonomi, who lunched
at the British Embassy in Rome. Marshal Badoglio was also present.
This luncheon party is sufficient refutation of the suggestion made
in some Italian quarters that Mr. Churchill's visit would be the occa-
sion for Cabinet changes and the return of Marshal Badoglio to office.
Mr. Churchill entertains a warm regard for Marshal Badoglio and has
already expressed his opinion of the somewhat hasty manner in which
the Marshal was forced to resign the Premiership. The British Prime
Minister left in the minds of both his Italian fellow guests no doubt
that he has full confidence in the good-will of the present govern-
ment. He believes that it is doing well and deserves all the help
that the Allies can give. Signor Bonomi called on Mr. Churchill at
the Embassy at noon and they had an hour's cordial conversation.
Though their meeting was entirely private, it is certain that Italian
Premier stressed his government's eagerness to contribute every possi-
ble additional effort to defeat the common enemy. He added the hope
that this effort would earn for Italy generous treatment from the Al-
lies both in facing her immediate problems and in the final peace
settlement".
Article by Times special correspondent in Rome lists Mr. Chur-
chill's contacts there with Prince Umberto, Premier Bonomi, General
Badoglio, Ambassador Kirk, and Mr. Myron Taylor. Correspondent goes
on to say: "Altogether it has been a very useful visit. Mr. Chur-
chill has been made aware of the sense of disappointment which the
Italian people feel at being admitted as co-belligerents with the
Allies and then left with little apparent recognition of the credit-
able effort that they have made to deserve that title. The Prime
Minister's
-2-
Minister's opinion, there is reason to believe, is that the Italians
have indeed 'worked their passage' and have earned the right to some
counterpart. He has had an opportunity of observing at close quarter
how distracted the Italians now are, and the demoralizing effect of
inadequate food supplies and insuperable transport difficulties, and
of considering the dengers that may emerge if this state of affairs
is allowed to continue. The depth of Mr. Churchill's investigation
of the Italian situation had not been foreseen when he left London,
and consultations with Mr. Eden and the United States Government will
be necessary before any decisions can be tsken, but it does look as
if the visit might result in the formulation of a clearer and more
positive Anglo-American policy towards Italy than has hitherto ex-
isted. This is what the Italians have long been asking for. A small
step in that direction had already been taken before Mr. Churchill's
visit by the decision to allot British war material to the Italian
army sufficient to equip several new units. It is this sort of thing
that helps to make the Italians feel that their war efforts are being
taken seriously by the Allies. Without it they are liable to col-
lapse into reckless despair".
peel ASSISTED
PSF: Dumberton Dake
SECRET
THE UNDER SECRETARY OF STATE
WASHINGTON
August 31, 1944
PSF file I'm
MEMORANDUM FOR THE PRESIDENT
Subject: Chinese Plan
I an pleased to enclose herewith for your
information a copy of the Chinese document on
International Security.
BEGI ASSISTED
DECL ASSIFIED
56
SECRET
ISO 83
August 24, 1944
TENTATIVE CHINESE PROPOSALS
FOR a GENERAL INTERNATIONAL
ORGANIZATION 7
Presented to the Department of
State by the Chinese Embasay,
August 23, 1944
7
ESSENTIAL POINTS IN THE CHARTER OF AN, INTERNATIONAL
ORGANIZATION
I. General Principles.
1) The International Organization shall be universal
in character, to include eventually all states.
2) The principle of equality of all states and all
races shall be upheld.
DEC!
3) The International Organization shall preserve
and maintain neace, on the barie of international
law and justice.
4) The use of force as an instrument of national
policy shall be absolutely prohibited. Any dispute
between states, irresnective of its nature or origin,
shall be settled only by pacific means.
5) The member states shall promote economic coopera-
tion, with a view to securing social stability and
economic development of all nations.
6) The member ntates shall strive to advance social
welfare, raise the standard of living of their
people, promote cultural collaboration among nations,
and effect a solution of population and demographic
problems.
II. Membership of the International Organization.
1) All states, not original members of the Inter-
national Organization, may be admitted into the
International Organization upon resolution of the
Assembly. However, the Axle states shall not be
admitted until it has been proved that they are
fully prepared to coonerate with other nations in
the furtherance of peace and democracy.
Page Two
2) All member states shall respect and maintain the
territorial integrity and political independence of
each other against external aggression.
3) A member state may withdraw from the International
Organization upon the expiration of two years after
the notification-of withdrawal. But the withdrawal
will not be effective until such member state has
fulfilled all her obligations under the Charter,
including such obligations 8.8 may arise from the
settlement of a pending dispute.
III. Structure.
1) The International Organization shall consist of
an Assembly and an Executive Council, an International
Court of Justice, and & Secretariat.
2) Under the Executive Council, there shall be estab-
lished a Military Commission, an Economic Commission,
a Commission on Territorial Trusteeship, an Inter-
national Law Codification Commission, an International
Labor Office, a Social Welfare Office, a Cultural
Relations Office, and such other organs as the
Council may deem necessary.
IV. Assembly.
1) The Assembly shall consist of the representatives
of member states. Each member state may send three
representatives.
2) The Assembly shall meet at least once a year, and
at any time, in case of emergency.
3) The Assembly shall have power to deal with all
matters within the competence of the International
Organization or any matter relating to international
peace.
4) Each member etate shall have one vote in the
Assembly.
V.
Executive Council.
1) The Executive Council shall consist of the four
nations of the Moscow Declaration as permanent mem-
bera, and a certain number of non-permanent members,
not exceeding seven members, to be elected by the
Assembly on the basis of geographic representation.
Page Three
In the election of non-permanent members, the prin-
ciple of rotation shall be observed; and provision
shall be måde to avoid a complete change of member-
ship at any one time.
2) The Council shall meet at least four times a
year and may be convened at any time, in case of
emergency. States members of the Council shall
appoint representatives to be stationed permanently
at the seat of the International Organization.
When the Assembly 1s not in session, the Executive
Council shall be the supreme organ of the Inter-
national Organization, with powers to deal with all
matters within the competence of the International
Organization or relating to international peace.
3) States who are members of the Council shall each
send one representative and shall each have one
vote,
4) Where matters before the Council involve a member
etate not represented at the Council, such member
state shall be requested to send 8 representative.
VI. Method of voting.
1) Decisions regarding the application of sanctions
and other important matters concerning the main-
tenance of peace shall be made by a two-thirds
majority of the members present at the meeting,
including the concurrent votes of all the permanent
member states of the Council.
2) Decisions in all other matters shall be by simple
majority of the members present at the meeting: and
in certain matters, such as elections, by secret
ballot.
2) A party to a dispute, whether or not & permanent
member of the Council, shall have no right to vote
in any decision relating to the dispute.
4) A member abstaining from voting or casting a
negative vote shall be bound by the decision of the
majority.
VII. Secretariat.
1) The Secretariat shall consist of 8 Secretary-
General, six Deputy Secretaries-Generel, end a
certain number of Secretaries, technical experts,
Page Four
and other functionaries. The Secretary-General
shall be selected from amongst the nationals of
member states other than the permanent members of
the Council, and appointed by the Council with
the approval of the majority of the Assembly.
2) The Deputy Secretaries-General shall be
appointed by the Council, with the approval of
the majority of the Assembly--four from amonget
the nationals of the permanent member states of
the Council and two from amonget the nationals
of other member states of the International
Organization, of which the Secretary-General 1s
not 8 national.
3) The Secretary-General shall act as the Secre-
tary-General of the Council and the Assembly.
4) The Secretarist shall constitute an impartial,
competent, and independent international civil
service and shall be so selected as to reflect
a fair representation of various nationalities.
VIII. Military Commission.
1) There shall be established a Military Commission,
the functions of which shall be an follows:
A, Tc draft a disarmament convention and
supervise its execution.
B. To draft and execute plans for mill-
tary sanctions.
C, To organize and direct an inter-
national police force.
2) The Military Commission shall consiet of the
representatives of the permanent members of the
Council, and a certain number of representativer
of other member states of the International Organi-
zation, to be determined by the Council.
2) There shall be established, under the Militory
Commission, an International General Staff, the
organization of which shall be determined by the
Council.
Page Five
IX. Economic Commission.
1) There shall be established an Economic Commission,
the functions of which shall be as follows:
A. To draft international conventions
relating to economic cooperation and
supervise their execution.
B, To formulate and execute plans for
economic sanctions.
C. To study and compile statistics and
reports on world economic conditions.
2) The Commission shall consist of representatives
of the permanent members of the Council, and a
certain number of other member states of the Inter-
national Organization, to be determined by the
Council.
3) The conventions relating to economic cooperation,
drafted by the Economic Commission, shall be put
into effect after their adoption by international
economic conferences to be convened from time to
time by the Council.
X. International Territorial Trusteeship Commission.
There shall be established an International
Territorial Administration Commission, the func-
tions of which shall be as follows:
1) To administer or supervise the administration of
such territories as will be placed under the
trusteeship of the International Organization.
2) To administer territories that shall have been
internationalized on account of strategic or other
reasons, and placed under the jurisdiction of the
International Organization.
3) The Commission shall, with regard to the adminis-
tration of the territories under trusteeship, intro-
duce the necessary measures for the protection and
welfare of the local populations; and the promotion
of education with a view to enabling such terri-
tories to become self-governing and independent.
4) The Commission shall submit an annual report to
the Council regarding the conditions of the terri-
tories under the administration of the International
Organization.
Page S1x
5) The organization of the Commission shall be
determined by the Council, and provision shall be
made for representation on the Commission of the
local populations of the territories concerned.
XI. International Law Codification Commission.
1) There shall be established an International Law
Codification Commission, the functions of which
shall be as follows:
A. To study problems of international law,
and to propose conventions relating thereto.
B. To codify existing international law.
2) The regulations governing the organization of the
International Law Codification Commission shall be
determined by the Council.
3) Conventions relating to international law,
drafted by the International Law Codification Com-
mission, shall be effective after their adoption
by international codification conferences, to be
convened from time to time by the Council, and
ratification by two-thirde of the governments of
the participating states.
XII. International Labor Office.
The present International Labor Office shall be
maintained as part of the International Organization,
for the advancement of the welfare of all workers,
and the promotion of cooperation between labor and
capital.
XIII. International Social Welfare Office.
1) There shall be established an International Social
Welfare Office, the functions of which shall be an
follows:
A. To formulate various projects relating
to international social welfare.
B, To supervise the execution of the above-
mentioned projects.
Page Seven
2) Projects relating to international social welfare
shall include the following matters:
A. To regulate the production, manufacture,
and sale of onium and other dangerous drugs.
B. To suppress traffic in women and children.
C. To prevent and suppress the spread of
disease between states.
D. To introduce measures of social relief
and social insurance.
3) Regulations governing the organization of the
International Social Welfare Office shall be deter-
mined by the Council.
4) The projects relating to international social
welfare, formulated by the Social Welfare Office
and adopted by the Council, shall be put into
effect by the Office, or recommended to the govern-
ments of member states.
XIV. International Cultural Relations Office.
1) There shall be established an International
Cultural Relations Office, the functions of which
shall be as follows:
A. To formulate projects relating to inter-
national cultural cooperation.
B, To supervise the execution of the above-
mentioned projects.
2) The above-mentioned projects relating to inter-
national cultural cooperation shall include the
following matters:
A. To establish the concept of international
peace.
a) Preparation of publications and
school textbooks calculated to promote
international understanding and,
friendship.
b) Encouragement of international
peace movements.
Page Eight
o) Removal of possible causes of
international 111-feeling in the
fields of radio broadcaste, films,
theaters, press, and literature.
B, To effect cultural exchanges.
a) Convening at regular periods inter-
national educational and academic
conferences.
b) Exchange of professors and students.
c) Promotion of cultural and academic
organizations of an international
character.
d) Setting up international research
institutes and libraries.
e) Encouraging acientific discoveries
and assisting scientific and tech-
nical collaboration.
3) The regulations governing the organization of
the International Cultural Relations Office shall
be determined by the Council.
4) The projects relating to international
cultural cooperation, formulated by the Inter-
national Cultural Relations Office, and adopted
by the Council, shall be put into effect by the
Office or recommended to the governments of the
member states.
XV. International Court of Justice.
1) There shall be established an International
Court of Justice, for the judicial settlement of
international disputes.
2) The protocol governing the International Court
of Justice shall be put into effect after its
adoption by the Assembly and ratification by three-
fourths of the states members of the International
Organization.
3) The Court shall have competence to deal with
any justiceable dispute, at the request of the
Council or of a party to the dispute.
Page Nine
4) In the care of non-justiceable disputes, where
both parties are agreeable to a judicial settle-
ment, the International Court of Justice may deal
with the case "ex aequo et bono."
5) The International Court of Justice may deliver
an oninion on matters referred to it by the
Assembly or the Council.
6) The Court may set up a Commission of Factual
Investigation, where this 1s necessary for the
adjudication of cases.
7) All decisions by the International Court of
Justice shall be compulsorily enforced.
XVI. Pacific Settlement of International Disputes.
1) No state shall be permitted to resort to the
use of force for the settlement of disputes.
2) Where a dispute between member states has been
settled by arbitration, or judicial or other
pacific means, parties to the dispute shall have
the obligation of faithfully carrying out the
decisions of such settlement.
Where a dispute between member states 18 not
settled by pacific means, the Council or the Assembly
shall, at the request of either party to the dispute,
have power to deal with the case. Where a party to
the dispute 1s not represented in the Council, the
Council shall invite such party to send a representa-
tive.
When a dispute in the subject of voting in the
Assembly or in the Council, the parties to the die
oute shall have no right to vote and, for the purpose
of voting, shall not be counted as among those states
present.
3) The council may, at any time, on its own initiative,
transfer a case of dispute to the Assembly. Where it
16 no requested by either party to the dispute, the
Council shall transfer the case to the Assembly; but
such request for transfer shall be presented within a
specified period after the dispute has first been
brought before the Council Similarly, the Assembly
may refer cases of dispute to the Council.
Page Ten
4) Any use of force, or any threat to use force,
whether immediately affecting any member state or
not, shall be deemed a matter involving the peace
of the world. In such cases, the Secretary-
General may, on his own initiative or at the
request of any member state, immediately convene
the Council to take effective measures to safeguard
peace. A member state shall not give any support
or assistance, or accord any de facto or de Jure
recognition, to any situation that 18 created by
force in contradiction to the principles of the
Charter.
XVII. Aggression and Sanctions.
1) Any party to 8 dispute shall be considered the
aggressor, who shall have been first to commit any
of the following acts:
A, Declaration of war against another state.
B, The invasion by armed forces of the
territory of another state.
C. The use of land, naval, or air forces
to bombard the territory of another state
or attack the land, naval, or air forces
of another state,
D. The establishment of a blockade of the
coast or ports of another state.
E. Provision of support to armed groups,
formed within 1ts territory, which have
invaded the territory of another state: or
refusal, notwithstanding the request of
the invaded state, to take in its own
territory all the measures in its power to
deprive such groups of all assistance or
protection.
F. The landing in, or introduction within
the frontiers of another state, of land,
naval, or air forces, without the permission
of the government of such state; or the
infringement of the conditions of such per-
mission, particularly AB regards the duration
of sojourn or extension of area.
G. Provision of arms and munitions, or
financial or technical assistance to the
Page Eleven
nationals of another state, calculated
to create civil commotion or to over-.
throw the government of such state.
2) Sanctions shall consist of three kinds:
A. Diplomatic sanctions
B. Economic sanctions
C. Military sanctions
3) Concrete plans for the application of manotions
shall be formulated by the Council, in consultation
with the Military and Economic Commissions, 80
that they may at any time be put into immediate
application. With 8. view to the effective appli-
cation of sanctions, such plans shall also include
comprehensive provisions for aid to the victim of
aggression and for mutual assistance among member
states applying sanctions.
4) There shall be established an international
police force (which may exclusively consist of air
force), which shall act under the Executive Council
for the application of military sanctions. The
organization of the International Police Force
shall be determined by the Council, The expenses
of the International Police Force shall be borne
by the International Organization. In addition
to the International Police Force, member states
shall contribute armed forces in accordance with
plans formulated by the Council.
5) As soon as the aggressor 1s determined, there
shall, in addition to the immediate application of
diplomatic and economic sanctions, be net in motior.
the necessary preparations for military sanctions
to be enforced by the decision of the Council,
against such aggressor.
6) Where there 18 8 threat of the use of force,
the Council shall, on its own initiative or At
the request of a party to a dispute, immediately
adont emergency measures for the prevention of
actual conflict of arms, If either party refuses
to comply with such emergency measures, the
Council shall take the necessary steps with a view
to the application of senctions.
Page Twelve
7) Upon the outbreak of an international conflict,
the Council shall, on its own initiative or at the
request of either party, be immediately convened
to determine the aggressor. Pending determination
of the aggressor, the Council may decide upon
emergency measures for the suspension of hostilities;
and either party to the dispute who acts against
such measures shall be deemed the aggressor.
8) The Council may also apply sanctions 1n the fol-
lowing cases:
A. To a member state which refuses to
submit a dispute to pacific settlement.
B. To a member state which refuses to
carry out the terms of a pacific settle-
ment.
9) All decisions relating to aggression and sanctions
shall rest with the Council,
XVIII. Peaceable Changes.
1) Where a treaty has become inapplicable on account
of change of circumstances or where there exists an
international situation, the continuance of which
may endanger world peace, and the parties concerned
have failed to achieve results by direct negotiation,
the Assembly may, at the request of either party,
make recommendations for & satisfactory solution.
2) Such recommendations must have been paesed by a
two-thirds majority of member staten present in the
Assembly.
3) If either party fails to comply with the recommen-
dation of the Assembly, the Council may, at the
request of the other party, take effective measures
for their enforcement and may, if necessary, apply
sanctions.
XIX. Regional Organizations.
1) Member States within the same geographic area
may voluntarily establish regional organizations to
promote cooperation and beaceful relations.
Page Thirteen
2) The purpose of a regional organization shall
be supplementary to the International Organization
and shall not, in any case, be contrary to the
provisione of the Charter of the International
Organization.
3) A regional organization shall be subject to the
control of the International Organization end shall
submit an annual report of ite work to the Assembly
of the International Organization.
4) International matters of regional character may
be dealt with by the regional organization; but
any member state concerned which 1A not satisfied
by the action taken by the regional organization
may submit the case to the Council or the Assembly
for reconsideration.
5) A regional organization shall have no right to
decide on questions relating to aggression and
sanctions. The structure and constitution of a
regional organization shall be formulated by the
states concerned, in accordance with regional con-
ditions, subject to the approval of the Assembly
of the International Organization.
XX, Treaty Obligations.
1) All treaties and international agreements here-
after entered into by member states should be
registered with and published by the Secretariat
of the International Organization. Such treaties
or international agreements shall not be considered
effective prior to registration.
2) Member states shall mutually agree that all obli-
gations or understandings existing among them and
contrary to the provisions of the Charter should be
abrogated by virtue of the Charter; and they shall
undertake henceforth not to enter into any obliga-
tions contrary to the provisions of the Charter.
2) Any member state which has, prior to admission
to the International Organization, undertaken
obligations contrary to the provisions of the
Charter, shall immediately take the necessary steps
to divest itself of such obligations.
Page Fourteen
XXI, Relations between the International Organization
and Non-Members.
1) In cases of dispute between a member state and a
non-member state, or between non-member states,
the Council shall invite such non-member or states,
to accept, provisionally, the obligations of member
state, under such conditions as are deemed appro-
priate by the Council, with e view to a settlement
of the dispute. Where such invitation 1A accepted
by 8 non-member, the provisions of the Charter
relating to pacific settlement, aggression, sanctions,
and other relevant provisions, shall all be
applicable.
2) After such invitation is offered to a non-member,
the Council shall immediately investigate the cir-
cumetances of the dispute and make recommendations
of such measures as it shall deem most appropriate
and effective.
3) If one party 80 invited declines to accept the
obligations of a member state for the settlement of
a dispute, but resorts to the use of force against
the other party, such party shall be subject to
sanctions.
4) If both parties to a dispute decline, upon
invitation, to accept the obligations of a member
state for the settlement of & dispute, the Council
shall take the appropriate steps and make recommen-
dations with a view to preventing hostilities and
solving the conflict.
5) In matters relating to disarmament, economic
collaboration, international law codification,
social welfare, and cultural relations, the Inter-
national Organization shall take steps. to make
possible participation by non-member states.
XXII. Budget.
1) The budget of the International Organization
shall be determined by the Assembly.
2) The expenses of the International Organization
shall be borne by the member states, according to
a scale adopted by the Assembly on the basis of
the respective national incomes of the member states.
PSF: Dumbarton Oaks
TOP SECRET
THE UNDER SECRETARY OF STATE
WASHINGTON
August 31, 1944
MEMORANDUM TO THE PRESIDENT
still
Subject: Progress Report on Dumbarton Oaks
Conversations--Ninth Day
Meeting of Joint Steering Committee
The Joint Steering Committee met at noon today for
the first time in two days to consider drafts relating
to the Assembly which had been prepared for it during
those two days by the formulation groups. There was
striking unanimity of views on these drafts.
a. Points Agreed Upon
1. Composition. To be composed of all states
members of the Organization.
2. Functions and Powers. Assembly to have the
right to consider questions relating to the maintenance
of peace and security, but not on its own initiative to
deal with any such matter which is being dealt with by
the Council; to approve the annual budgets; to have the
power of suspending members against which action has
been taken by the Council; and to elect non-continuing
members of the Council and the Director-General (upon
recommendation of the Council) and judges of the Court
in accordance with the Court's statute.
-2-
3. Voting. Important decisions to be by a two-
thirds majority.
b. Expulsion; Economic and Social Council
The Soviet group continued to urge that the Assembly
also be given the power to expel members and they con-
tinued to reserve their position with respect to the
substance of our proposal for an Economic and Social
Council. However, on both these matters agreement was
reached as to form of language.
C. Amendment of the Basic Instrument
Our position was that amendments should be proposed
by a majority vote of the Assembly and should come into
effect when approved by two-thirds of the member states
including all those having permanent seats on the Council.
The Soviet and British groups are drafting their own
respective formulae on this point.
Meeting of the Legal Subcommittee
We reached tentative agreement with both the Soviet
and British representatives that: (1) an international
court should be the principal judicial organ of the
Organization, its statute to be part of the basic instru-
ment; (2) the Statute of the present Permanent Court
should be revised or used, subject to modifications,
as the basis of the new statute; (3) all members of the
-3-
Organization should ipso facto be parties to the statute;
and (4) the conditions under which states not members
of the Organization may become parties to the statute
should be determined in each case by the Assembly on
recommendation of the Council.
Meeting of the Security Subcommittee
We reached tentative agreement with the Soviet and
British representatives on the following questions, all
of which were then referred to the formulation group
for more detailed consideration:
a. Determination of Threats to or Breaches of Peace
The Council should determine in each case when a
threat to or breach of peace exists.
b. Council's Right to Obtain Facilities
Member states should be obligated by a general
agreement to furnish facilities. Supplementary agree-
ments might be made by the Council in emergencies.
C. Responsibility of the Council for Enforcing Surrender
Terms for Germany and Japan
There should be continuing supervision of the enemy
states.
&
PS F:Aumbarton Oaks
DEPARTMENT OF STATE
FOREIGN PRESS SUMMARY
No. 291
August 31, 1944
Dumbarton Oaks
ENGLAND--In addition to full news stories from Washington on Dum-
barton Oaks Conference, Times, August 23, devotes its main editorial
to talks and other editorials are published on same day by Daily Her-
ald and Daily Worker.
Declaring that American, British and Russian representatives
have "settled down to a task whose scope and importance require no
emphasis,' If Times goes on to assert that joint statement made August 22,
by Mr. Willkie and Mr. Dulles on need for United States to play a con-
structive and responsible part in assuring world order constitutes
"convincing evidence of Republican support for the broad lines of
administration policy, and will strengthen the hands of the American
delegates at the conference". Editorial says: "The talks are ex-
ploratory and non-commital; and their conclusions, whether made pub-
lic or not, will be reported to the three governments for their con-
sideration. There is therefore every guarantee of frankness in die-
cussion and of a determination not to allow real issues and practical
difficulties to be overshadowed by those stereotyped formulae of good
intention which have so long encumbered the path of international co-
operation".
Times believes that conference will probably be much preoccupied
with question of national status. It holds that the phrase "the sov-
ereign equality of all peace-loving states" was "somewhat unguardedly
introduced into the Moscow Declaration"; and that it had unfortunately
shown signs of being adopted as a convenient missile on American poli-
tical platforms
Daily Herald editorial is sharply critical of views voiced, Aug-
ust 22 by Daily Express which attacked idea of a new League of Nations,
and placed emphasis on use of force in maintaining world peace. As-
serting the Express has during the war displayed an internationalism
which might have deceived many of its readers, claiming to be "Ameri-
ca's British buddy" and "Scviet Russia's number one foreign tovarich",
Herald says that Beaverbrook paper, "like so many converts becomes
a backslider as soon as the heat of hell recedes". Labor Party paper
alleges that "Lord Beaverbrook himself scoffed in House of Lords at
the Hot Springs Food Conference", recalls campaign in Daily Express
against Bretton Woods Agreement, and maintains that Express reference
to League of Nations is attack on aims of Dumbarton Oaks Conference.
Editorial in Daily Worker stating that hopes of postwar world
depend on ability of three major powers to work together, holds that
from this viewpoint opening speeches at Dumbarton Oaks Conference are
highly encouraging. It particularly approves "the unanimity with
which they discredited the attempts made by anti-Tehran forces before
the conference--in the press both over here and across the Atlantic--
to represent either Britain and United States as disagreeing with the
Soviet Union, or else all three agreed upon riding roughshod over the
rights and opinions of the lesser nations".
BRAZIL--Rio de Janeiro press gave warm support to Secretary Hull's
speech at Dumbarton Oaks, August 21, o Jornal, August 22, said:
"Secretary Cordell Hull's speech assures us that it is not the inten-
tion of the United States Government to establish with England and
Russia a scheme for the reconstruction of international society with-
out giving a hearing to legitimate interested parties, which otherwise
would have the opportunity only of nodding their heads in tacit ap-
proval."
0 Radical described Hull's speech as "magnificent". All papers
headlined the speech, full text of which was widely published.
FRENCH
-2-
French Situation
ENGIA ND -Observer, August 27: "There is a French Government
again on the free soil of France. The agreements now signed between
General de Gaulle's provisional government of fighting Frenchmen and
the British and American Governments are wise acts of accord end: alliance
to secure the swiftest, most orderly return to full French rule; and
must be followed with equal speed by every Allied step to restore
France to her own place in the councils of Europe and the world. But
it is the deeds, endurance and discipline of the French people them-
selves that are bringing back so quickly the old self-rule and self-
reliance refreshed; and it is now the privilege, right and duty of
General de Gaulle, by asking what the nation wishes, to restore the
whole republic."
Editorial in Manchester Guardian, August 29, brings up question
of what General de Gaulle will do with opportunities and responsibil-
ities with which he is faced, once national enthusiasm which lifted
him to place as head of provisional government of France has subsided.
It says steps to be taken toward making Frence one of the great Allied
powers will be slow and gradual process; "meanwhile great power for
good or 111 will lie with General de Gaulle, the provisional govern-
ment and the regional commissioners whom it has appointed".