iTHIS DOCUMENT I S THE PROPERTY OP HIS BRITANNIC MAJESTY'S GOVERNMENT)
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S E C R E T
COPY NO.
C P . ( 4 8 ) 2,11.9,
2nd N o v e m b e r , 19U8.
CABINET
NORTH ATLANTIC TREATY AND WESTERN UNION
Memorandum b y t h e S e c r e t a r y o f S t a t e f o r F o r e i g n
Affairs
My c o l l e a g u e s w i l l want t o b e i n f o r m e d o f a n d t o
c o n s i d e r t h e p r o c e e d i n g s o f t h e C o n s u l t a t i v e C o u n c i l l a s t week,
I n a d d i t i o n t o t h e t r a n s a c t i o n o f much c u r r e n t
in P a r i s .
b u s i n e s s w i t h which I n e e d n o t t r o u b l e t h e C a b i n e t , two
important problems were d i s c u s s e d :
t h e proposed North. A t l a n t i c
T r e a t y and t h e f u t u r e development o f Western Union.
NORTH ATLANTIC TREATY
2.
As t h e r e s u l t o f a B r i t i s h i n i t i a t i v e t h e U n i t e d
S t a t e s and Canadian Governments a g r e e d t h a t t h i s p r o j e c t s h o u l d
b e e x p l o r e d on an o f f i c i a l l e v e l b y r e p r e s e n t a t i v e s o f t h e
U n i t e d " S t a t e s , Canada a n d t h e B r u s s e l s P o w e r s .
After
n e g o t i a t i o n s i n F / a s h i n g t o n , a document l a y i n g down t h e l i n e s
o f a N o r t h A t l a n t i c T r e a t y was p r o d u c e d on 10th S e p t e m b e r and
was s u b m i t t e d t o e a c h o f t h e G o v e r n m e n t s c o n c e r n e d .
This
p a p e r , u n d e r c o v e r o f a meraorajadum from m y s e l f ( D . 0 . ( 4 8 ) 6 4 ) ,
was c o n s i d e r e d a n d g e n e r a l l y a p p r o v e d b y t h e D e f e n c e Committee
The C a n a d i a n
on 7 t h O c t o b e r ( D . 0 . ( 4 8 ) 17th M e e t i n g , M i n u t e 1 ) .
Government s i g n i f i e d t h e i r a p p r o v a l o f t h e p r o j e c t on 1 7 t h
October.
3*
When t h e m a t t e r came b e f o r e t h e C o n s u l t a t i v e C o u n c i l
on 25th O c t o b e r , t h e C o u n c i l was i n v i t e d t o c o n s i d e r t h r e e
m a i n q u e s t i o n s :
( a )
Whether t h e B r u s s e l s T r e a t y Powers a r e i n
p r e p a r e d t o c o n c l u d e an A t l a n t i c P a c t ;
( b )
I f s o , which c o u n t r i e s s h o u l d b e i n v i t e d t o
a conference;
( c )
Which c o u n t r y s h o u l d i s s u e
a conference.
the i n v i t a t i o n s
principle
attend
t o such
4.
I e x p l a i n e d t h a t I f a v o u r e d some form o f r e g i o n a l
p a c t c o v e r i n g t h e A t l a n t i c , and t h a t an A m e r i c a n a s s u r a n c e o f
s u p p o r t f o r t h e B r u s s e l s T r e a t y was n o t enough.
What w a s
r e q u i r e d w a s some f o r m o f t r e a t y a r r a n g e m e n t w i t h t h e U n i t e d
S t a t e s a n d w i t h Canada, who had a l r e a d y s i g n i f i e d t h a t t h e y
were w i l l i n g t o meet t h e Western Powers f o r t h e purpose o f
concluding a treaty.
The w h o l e q u e s t i o n o f a t r e a t y w a s 0
d e l i c a t e m a t t e r , s i n c e i t would n o t n e c e s s a r i l y be e a s y t o
r e c o n c i l e t h e v i e w s o f t h e Western Powers w i t h t h o s e o f t h e
U n i t e d S t a t e s and C a n a d a .
I f e l t t h a t t h e problem s h o u l d b e
a p p r o a c h e d i n t h e same s p i r i t a s t h e M a r s h a l l P l a n had b e e n ,
i n o t h e r w o r d s , on a b a s i s o f s e l f - h e l p b y t h e B r u s s e l s T r e a t y
Powers.
The i d e a s h o u l d h e t o c r e a t e some coherent- d e f e n c e
s y s t e m s o t h a t t h e f i v e P o w e r s w o u l d n o t o n l y s t a n d on t h e i r
own f e e t m i l i t a r i l y , b u t w o u l d m a i n t a i n t h e i r i n d e p e n d e n c e
I n a d d i t i o n , a s f a r a s we o u r s e l v e s w e r e
and p r e s t i g e .
c o n c e r n e d , i t would b e , of c o u r s e , n e c e s s a r y f o r us t o m a i n t a i n
The o b j e c t i v e
e x i / t i n g o b l i g a t i o n s t o w a r d s t h e Commonwealth.
s h o u l d b e t o m o b i l i s e t h e w e a l t h and p r o d u c t i v e c a p a c i t y o f
t h e N o r t h American C o n t i n e n t f o r t h e d e f e n c e o f Western Europe.
The A m e r i c a n s had a l r e a d y p a s s e d t h e S e l e c t i v e S e r v i c e A c t
and t h e S e n a t e had a p p r o v e d t h e V a n d e h b e r g R e s o l u t i o n .
It
had b e e n s u g g e s t e d t h a t a P r e s i d e n t i a l D e c l a r a t i o n i n s u p p o r t
of- W e s t e r n Europe m i g h t meet t h e n e e d s o f W e s t e r n E u r o p e a n
I d i d n o t t h i n k t h a t t h i s was s o , f o r t h e r e a s o n
defence.
t h a t s u c h a d e c l a r a t i o n w a s n o t c o n s t i t u t i o n a l l y b i n d i n g and
was o n l y v a l i d f o r t h e P r e s i d e n t s p e r i o d o f o f f i c e .
I n any
c a s e n o t h i n g c o u l d b e e x p e c t e d u n t i l t h e American e l e c t i o n s
In t h e meantime t h e B r u s s e l s Powers must
had b e e n h e l d .
p r o g r e s s r e s o l u t e l y i n b u i l d i n g up t h e r e g i o n a l d e f e n c e
arrangement as a d e t e r r e n t a g a i n s t p o s s i b l e a g g r e s s i o n .
5*
I f i t were a g r e e d . t h a t a t r e a t y were n e c e s s a r y , t h e
C o n s u l t a t i v e C o u n c i l n e e d n o t go i n t o d e t a i l s a t o n c e , b u t
b e f o r e n e g o t i a t i o n s s t a r t e d e x p e r t s of each of the Western
European c o u n t r i e s c o n c e r n e d s h o u l d c o n s i d e r t h e Annex t o t h e
W a s h i n g t o n d o c u m e n t and d e c i d e how i t s h o u l d b e i n t e r p r e t e d ,
and what m o d i f i c a t i o n s , e x c i s i o n s o r a d d i t i o n s were, d e s i r a b l e .
Our o b j e c t i v e s must b e c l e a r l y d e f i n e d b e f o r e c o n v e r s a t i o n s
with the United States could s t a r t .
In t h i s c o n n e c t i o n , i t
s h o u l d b e b o r n e i n mind t h a t , a l t h o u g h t h e European P o w e r s
m u s t ' n e c e s s a r i l y h o l d t h e f r o n t i n c a s e o f a g g r e s s i o n , i t was
n o t p o s s i b l e f o r G r e a t B r i t a i n t o r e p e a t t h e r o l e t h a t s h e had
p l a y e d i n 191L, a n d 19)40.
I n 1911+ s h e h o d , t o g e t h e r w i t h h e r
A l l i e s , h e l p e d t o h o l d t h e f r o n t , and i n 19I+O s h e hod s t o o d
alone.
B u t w i t h modern a i r f o r c e s and w e a p o n s t h e r e w a s a
s t r o n g p o s s i b i l i t y that Great B r i t a i n might be immobilised by
a i r and p r o j e c t i l e a t t a c k .
For t h e s e r e a s o n s i t was e s s e n t i a l
t h a t e v e r y b o d y s h o u l d b e b r o u g h t i n t o t h e w a r a t t h e same
moment.
The s e c u r i t y o f Vtfestern Europe r e q u i r e d a r e g i o n a l
pact which committed t h e t r a n s - A t l a n t i c as w e l l as the
c o n t i n e n t a l Powers.
E v e r y b o d y must a c t a s o n e and r e s i s t
together.
I f t h i s w e r e known, p o t e n t i a l a g g r e s s o r s m i g h t
be given pause and the n e c e s s a r y b a s i s f o r d i s c u s s i o n s f o r the .
maintenance of peace might b e c r e a t e d .
1
6.
H i t h e r t o - t h e P o w e r s o f W e s t e r n Europe had b e e n
d i s u n i t e d , n o t s o much i n s p i r i t b u t i n t h e i r e c o n o m i c and
defence arrangements.
T h i s had l e d S o v i e t R u s s i a t o a s s u m e
t h a t h e r p o t e n t i a l a d v e r s a r i e s c o u l d b e d e a l t vi/ith o n e a t a
time.
The b a s i s o f e f f e c t i v e d e f e n c e o f Vilestern c i v i l i s a t i o n
w a s f o r t h e r e s o u r c e s o f a l l t h e d e f e n d e r s t o b e put i n t h e
p o o l , e c o n o m i c a l l y as. w e l l a s m i l i t a r i l y .
7,
S o f a r a s t h e Commonwealth w a s c o n c e r n e d , t h e
p o s i t i o n had b e e n d i s c u s s e d d u r i n g t h e r e c e n t c o n f e r e n c e i n
London;
t h e Commonwealth c o u n t r i e s , e x c e p t Canada, w e r e n o t
d i r e c t l y committed or i n v o l v e d , but they understood the
n e c e s s i t y o f t h e Western European Powers drawing c l o s e r
together.
There had b e e n i n d e e d a g r e a t f e e l i n g of u n a n i m i t y
and a g e n e r a l a c k n o w l e d g m e n t o f t h e r e a l menace w h i c h
I t was t h e r e f o r e
t h r e a t e n e d u s i n t h e e a s t and w e s t .
n e c e s s a r y f o r G r e a t B r i t a i n t o k e e p a l l t h e Commonwealth
c o u n t r i e s i n f o r m e d o f what a r r a n g e m e n t s t h e y wer*e making f o r
t h e i n t e g r a t i o n and d e f e n c e o f W e s t e r n E u r o p e .
In g e n e r a l .
i t c o u l d b e s a i d t h a t t h e Commonwealth s u p p o r t e d t h e i d e a o f
a North A t l a n t i c . P a c t .
8..
The F o r e i g n M i n i s t e r s o f F r a n c e , t h e N e t h e r l a n d s , Belgium and Luxembourg a g r e e d t h a t a t r e a t y w i t h t h e U n i t e d S t a t e s a n d Canada was n e c e s s a r y . '
The F r e n c h and B e l g i a n F o r e i g n M i n i s t e r s had had c e r t a i n h e s i t a t i o n s e a r l i e r , as t h e y f e a r e d i n t e r n a l r e a c t i o n s i n t h e i r own c o u n t r i e s t o s u c h a t r e a t y , h u t now t h e p o s i t i o n h a d c h a n g e d r a d i c a l l y , ,
The
U n i t e d S t a t e s a n d C a n a d a hod made i t p l a i n t h a t t h e y r e a l l y w a n t e d a t r e a t y , and i t would h e a t e r r i b l e r e s p o n s i b i l i t y f o r a n y b o d y t o d i s c o u r a g e t h e c o n c l u s i o n o f s u c h a t r e a t y now w i t h a l l i t s advantages. 9*
,
As r e g a r d s t h e q u e s t i o n who s h o u l d b e i n v i t e d t o a
conference f o r t h e framing of such a t r e a t y , I f e l t t h a t in
t h e l i g h t of t h e d i f f i c u l t i e s t h a t would a r i s e i f t h e q u e s t i o n
were d e b a t e d t h e r e and t h e n , i t would b e b e t t e r t o s e t t l e t h e
main q u e s t i o n and t o l e a v e t h e s e s u b s i d i a r y problems t o b e
decided l a t e r .
For i n s t a n c e , i f I t a l y were i n v i t e d the
q u e s t i o n o f t h e p r o v i s i o n f o r t h e s e c u r i t y of G r e e c e and T u r k e y
would i n e v i t a b l y a r i s e ;
i f t h e Scandinavians were i n v i t e d , t h e r e
m i g h t b e d e l a y , s i n c e t h e y had i n d i c a t e d t h a t t h e y w a n t e d more
time to consider Scandinavian defence arrangements f i r s t .
For
s t r a t e g i c r e a s o n s t h e U n i t e d S t a t e s Government d e s i r e t o i n c l u d e
I c e l a n d , P o r t u g a l and E i r e i n t h e proposed A t l a n t i c P a c t .
As
r e g a r d s t h e l a t t e r i t seems p o s s i b l e t h a t i f i n v i t e d t o j o i n ,
the I r i s h might r a i s e the p a r t i t i o n q u e s t i o n .
I should perhaps
at t h i s point add t h a t t h e Danish, Norwegian and Portuguese
G o v e r n m e n t s h a v e b e e n a p p r i s e d i n c o n f i d e n c e o f t h e r e s u l t of
t h e W a s h i n g t o n c o n v e r s a t i o n s s o t h a t on i n v i t a t i o n t o p a r t i c i p a t e
would n o t t a k e them b y s u r p r i s e .
The P o r t u g u e s e r e a c t i o n w a s
cautious but not unfavourable;
t h e Danish and Norwegian
G o v e r n m e n t s , h o w e v e r , e x p r e s s e d a d e s i r e f o r d e l a y on t h e g r o u n d s
mentioned above.
10. .
I t was i m p o r t a n t , h o w e v e r , t o remember t h a t t h e U n i t e d
S t a t e s and C a n a d i a n r e q u i r e m e n t s w o u l d d i f f e r i n some r e s p e c t s
from t h o s e o f t h e B r u s s e l s T r e a t y P o w e r s .
The F r e n c h
G o v e r n m e n t , f o r e x a m p l e , a r e a n x i o u s t o r e s t r i c t t h e n u m b e r of
p a r t i c i p a n t s s o , a s t o avoid d i s s i p a t i n g the a v a i l a b l e resources,
w h e r e a s t h e U n i t e d S t a t e s Government f a v o u r t h e i n c l u s i o n of a l l
North A t l a n t i c Powers and a t t a c h p a r t i c u l a r importance t o the.
p a r t i c i p a t i o n of N o r w a y a n d D e n m a r k ( b e c a u s e o f t h e s t r a t e g i c
i m p o r t a n c e of t h e N o r w e g i a n a i r f i e l d s a n d o f G r e e n l a n d
respectively).
11.
I t was a g r e e d t h a t i t was i m p o r t a n t t h a t no t i m e
should be wasted.and t h a t in the circumstances t h e p o s s i b l e
d i f f e r e n c e s amongst t h e B r u s s e l s T r e a t y Powers t h e m s e l v e s and
b e t w e e n t h e m , a n d t h e U n i t e d S t a t e s a n d C a n a d a on t h e q u e s t i o n
of p a r t i c i p a t i o n s h o u l d b e d e a l t w i t h l a t e r .
12.
The C o n s u l t a t i v e
Council accordingly agreed unanimously
t h a t t h e U n i t e d S t a t e s and Canadian Governments should
be informed f o r t h w i t h t h a t t h e B r u s s e l s T r e a t y Powers
w e r e now p r e p a r e d t o e n t e r I n t o a T r e a t y w i t h t h e .
U n i t e d S t a t e s a n d C a n a d i a n G o v e r n m e n t s on N o r t h
Atlantic defence;
t h a t e a c h Government s h o u l d w i t h i n t e n d a y s of t h e ­
d a t e of t h e f o r m a l c o m m u n i c a t i o n r e f e r r e d t o i n ( 1 ;
a b o v e s e n d i n s t r u c t i o n s t o i t s r e p r e s e n t a t i v e on t h e
P e r m a n e n t Commission c o n c e r n i n g t h e a t t i t u d e t o be
a d o p t e d i n r e s p e c t of t h e d e t a i l e d p r o p o s a l s l a i d
down i n t h e . Annex t o t h e R e p o r t of t h e W a s h i n g t o n
Talks;
"
- .
­
;
.
(3)
t h a t , i n v i e w of t h e f o r e g o i n g a g r e e m e n t , t h e
q u e s t i o n who s h o u l d i s s u e t h e i n v i t a t i o n s l a p s e d
. for the time being.
13*
The r e p r e s e n t a t i v e s of t h e f i v e Powers i n W a s h i n g t o n a n d O t t a w a h a v e b e e n i n s t r u c t e d t o make a c o n c e r t e d a p p r o a c h t o t h e U n i t e d S t a t e s a n d C a n a d i a n G o v e r n m e n t s on t h e s e l i n e s . H i s M a j e s t y ' s G o v e r n m e n t h a v e t h e r e f o r e t o c o n s i d e r now w h a t i n s t r u c t i o n s t o i m p a r t t o t h e U n i t e d Kingdom r e p r e s e n t a t i v e on t h e P e r m a n e n t C o m m i s s i o n . R e c o m m e n d a t i o n s
;
.
1h*
The C a b i n e t a r e r e c o m m e n d e d t o a p p r o v e t h e a c t i o n t a k e n h i t h e r t o a n d t h e i n s t r u c t i o n s on t h e f o l l o w i n g l i n e s t o t h e U n i t e d Kingdom r e p r e s e n t a t i v e on t h e P e r m a n e n t C o m m i s s i o n . ( a )
T h e U n i t e d Kingdom r e p r e s e n t a t i v e s h o u l d a p p r o v e t h e
c o n c l u s i o n o f a t r e a t y on t h e g e n e r a l l i n e s of t h e
A n n e x t o t h e R e p o r t of t h e W a s h i n g t o n T a l k s .
(b)'
He s h o u l d , h o w e v e r , e x p r e s s t h e v i e w t h a t t h e t r e a t y
s h o u l d n o t c o v e r economic, s o c i a l and c u l t u r a l ­
aims, but only those r e l a t i n g to defence.
If ,
n e c e s s a r y he m i g h t a g r e e t o a g e n e r a l r e f e r e n c e t o ­
t h e common h e r i t a g e o f W e s t e r n c i v i l i s a t i o n i n t h e
preamble, b u t should oppose a r t i c l e s c a l l i n g f o r
t h e e s t a b l i s h m e n t of s p e c i a l machinery f o r t h e
c o n s i d e r a t i o n of such q u e s t i o n s .
( c )
He s h o u l d s u g g e s t t h a t i n d u e c o u r s e , i n a d d i t i o n t o
t h e Brussels Treaty Powers, the United S t a t e s and
Canada, E i r e , I c e l a n d , P o r t u g a l , Norway, Denmark
and i f p o s s i b l e . S w e d e n s h o u l d b e s o u n d e d ' a s t o t h e i r
r e a d i n e s s t o a c c e p t an i n v i t a t i o n t o a c o n f e r e n c e f o r
t h e framing of t h e t r e a t y .
( d )
He s h o u l d a r g u e a g a i n s t t h e i n c l u s i o n of I t a l y i n
t h e f i r s t i n s t a n c e , t h o u g h i t s h o u l d b e made p o s s i b l e
f o r h e r e i t h e r t o a d h e r e , t o t h e t r e a t y i n some
c a p a c i t y a t a l a t e r d a t e , or, if the Americans i n s i s t ,
f o r h e r to send a r e p r e s e n t a t i v e t o t h e c o n f e r e n c e in
some d i s t i n c t i v e c a p a c i t y , b u t o n l y on t h e u n d e r ­
s t a n d i n g t h a t some p r o v i s i o n i s made f o r t h e s e c u r i t y
of G r e e c e and Turkey­
( e )
He s h o u l d a r g u e t h a t t h e e x a c t f o o t i n g on w h i c h I t a l y
a n d a n y c o u n t r y o t h e r t h a n t h o s e named a b o v e c o u l d
e n t e r a t r e a t y should, b e . d e c i d e d a t t h e c o n f e r e n c e
itself.
'
( f )
He s h o u l d s u g g e s t t h a t i f t h e a t t i t u d e o f a n y o f t h e
c o u n t r i e s approached proves l i k e l y to delay the
c o n c l u s i o n of t h e t r e a t y , t h a t c o u n t r y s h o u l d b e
d r o p p e d from t h e l i s t of p a r t i c i p a n t s .
( g )
He s h o u l d s u g g e s t t h a t t h e U n i t e d S t a t e s s h o u l d b e
asked t o t a k e p r e l i m i n a r y s t e p s t o convene a
c o n f e r e n c e as soon a s t h e d o m e s t i c s i t u a t i o n i n
America a l l o w s i t . .
Arguments
15,
The r e a d i n e s s o f t h e U n i t e d S t a t e s a n d C a n a d i a n
Governments t o e n t e r i n t o b i n d i n g m i l i t a r y commitments i n
Europe r e p r e s e n t s o n o t a b l e r e v o l u t i o n of t h o u g h t b o t h i n A m e r i c a and Canada.
W i t h o u t s u c h a t r a n s - A t l a n t i c commitment, W e s t e r n Europe would r i s k h a v i n g f o r t h e t h i r d t i m e t o c o n f r o n t an a g g r e s s o r w h i l s t t h e U n i t e d S t a t e s w e r e s l o w l y girding themselves for the fray.
Moreover, without a t r e a t y i t would be d i f f i c u l t i f not i m p o s s i b l e to s e c u r e t h e d e l i v e r i e s o f arms o r t o a r r a n g e t h e a d v a n c e m i l i t a r y p l a n n i n g i n peace-time which are e s s e n t i a l t o Western s e c u r i t y . 16.
The U n i t e d S t a t e s a n d C a n a d i a n G o v e r n m e n t s seem t o
favour i n c l u d i n g in the t r e a t y provisions f o r economic,
s o c i a l and c u l t u r a l c o l l a b o r a t i o n .
I t w o u l d i n my v i e w b e
a m i s t a k e t o r i s k d u p l i c a t i n g t h e work o f t h e O r g a n i s a t i o n f o r
European E c o n o m i c C o - o p e r a t i o n and t h e B r u s s e l s T r e a t y m a c h i n e r y ,
w h i c h i s b e g i n n i n g t o work; w e l l .
The p o i n t , h o w e v e r , d o e s n o t
seem o f c a p i t a l i m p o r t a n c e , a n d i f l a t e r o u r a t t i t u d e i s
v i o l e n t l y o p p o s e d b y t h e U n i t e d S t a t e s and C a n a d i a n G o v e r n m e n t s ,
i t may b e n e c e s s a r y t o go some way t o meet thenu p r o v i d e d t h a t
n o t h i n g i s d o n e t o weaken t h e e x i s t i n g m a c h i n e r y o f t h e
O r g a n i s a t i o n f o r E u r o p e a n E c o n o m i c C o - o p e r a t i o n and t h e
Brussels Treaty.
17
The A m e r i c a n s and C a n a d i a n s , w i t h some r e a s o n ,
a t t a c h g r e a t i m p o r t a n c e t o t h e p a r t i c i p a t i o n o f Norway and
Denmark a n d , p e r h a p s t o a l e s s e r d e g r e e , o f I c e l a n d , E i r e and
Portugal.
I f a l l o r a n y of t h e s e . c o u n t r i e s p r o v e w i l l i n g t o
p a r t i c i p a t e , i t would be d i f f i c u l t to f i n d good grounds f o r
opposing t h e i r i n c l u s i o n .
N e i t h e r t h e Americans nor t h e
Canadians are l i k e l y t o be i m p r e s s e d by the French argument
t h a t o u r l i m i t e d r e s o u r c e s must b e c o n c e n t r a t e d e n t i r e l y on t h e
defence of the Rhine.
There i s , of c o u r s e , l i t t l e doubt t h a t
t h e d e f e n c e o f t h e R h i n e s h o u l d h o v e p r i o r i t y and t h e A m e r i c a n s
are l i k e l y to r e c o g n i s e t h i s .
But t h e y w i l l a r g u e t h a t t h e
d i s t r i b u t i o n of a v a i l a b l e r e s o u r c e s w i l l be d e c i d e d b y the
G o v e r n m e n t s on t h e a d v i c e o f t h e i r m i l i t a r y a d v i s e r s and t h a t
t h e W e s t e r n wor\Ld s h o u l d n o t b e d e p r i v e d o f t h e p o l i t i c a l and
s t r a t e g i c a d v a n t a g e s f l o w i n g from t h e p a r t i c i p a t i o n o f t h e s e
o t h e r P o w e r s s i m p l y b e c a u s e t h e F r e n c h Government w i s h t o b e
t h e s o l e r e c i p i e n t s o f American a i d .
18.
The p o s i t i o n o f I t a l y r a i s e s g r e a t d i f f i c u l t i e s .
The A m e r i c a n s s e t some s t o r e b y I t a l i a n p a r t i c i p a t i o n .
On
t h e o t h e r hand, t h e M i l i t a r y C o m m i t t e e o f t h e B r u s s e l s T r e a t y
h a v e e x p r e s s e d t h e o p i n i o n t h a t , w h i l e t h e i n c l u s i o n . o f Italy
w o u l d b e u s e f u l from a p u r e l y s t r a t e g i c p o i n t of v i e w , t h e
s h o r t a g e o f m i l i t a r y s u p p l i e s and t h e l i m i t a t i o n s imposed b y
t h e P e a c e T r e a t y w o u l d make h e r a. l i a b i l i t y a t p r e s e n t .
But
t h e y recommend t h a t t h e q u e s t i o n s h o u l d b e k e p t i n mind as t h e
supply position improves.
Secondly, as pointed out above,
I t a l y c a n n o t w e l l b e i n c l u d e d u n l e s s p r o v i s i o n i s made f o r
t h e s e c u r i t y o f G r e e c e and Turkey.
F i n a l l y , there i s in I t a l y
t o - d a y a s t r o n g p u b l i c sentiment in favour of n e u t r a l i t y .
The I t a l i a n Government w o u l d t h e r e f o r e p r o b a b l y f e e l d r i v e n t o
r e p r e s e n t t h e i r p a r t i c i p a t i o n as a f a v o u r t o the Western world,
a f a v o u r which would have t o be r e q u i t e d by r e v i s i o n of the
P e a c e T r e a t y , by C o l o n i a l c o n c e s s i o n s a n d b y a l a r g e s h a r e o f
any m a t e r i a l a i d g i v e n b y A m e r i c a .
On t h e s e g r o u n d s i t s e e m s
d e s i r a b l e t h a t I t a l y s h o u l d n o t be o n e o f t h e POwers s o u n d e d i n
the f i r s t instance.
19.
In h a n d l i n g a l l t h e s e m a t t e r s i t i s important t o
ensure t h a t n o t h i n g s h o u l d d e l a y the c o n v o c a t i o n of t h e
c o n f e r e n c e and t h e c o n c l u s i o n o f t h e t r e a t y .
The t i d e i s now
f l o w i n g i n o u r f a v o u r a n d we m u s t t a k e i t a t t h e f l o o d .
O t h e r w i s e d e l a y s may l e a d t o d o u b t s and s o t o t h e c o l l a p s e o f t h e
whole p r o j e c t .
On t h e s e g r o u n d s I recommend t h a t a n y
c o u n t r i e s whose a t t i t u d e p r o v e s l i k e l y t o cause d e l a y s h o u l d
h e a t once d i s c o r d e d .
T h e i r a c c e s s i o n con, i f n e c e s s a r y , be
arranged at a l a t e r stage. .
20.
F i n a l l y , s i n c e t h e Washington e x p l o r a t o r y c o n v e r s a t i o n s t o o k p l a c e o s t e n s i b l y a s t h e r e s u l t of t h e V a n d e n b e r g R e s o l u t i o n and t h e d e c l a r a t i o n s of t h e P r e s i d e n t , i t seems a p p r o p r i a t e t h a t t h e c o n f e r e n c e s h o u l d t a k e p l a c e i n A m e r i c a a n d t h a t t h e U n i t e d S t a t e s s h o u l d make t h e p r e l i m i n a r y soundings and i s s u e t h e i n v i t a t i o n s .
The
c o n c e p t i o n of a N o r t h A t l a n t i c T r e a t y h a s b e e n w i d e l y c a n v a s s e d i n t h e U n i t e d S t a t e s , w h e r e i t has been r e g a r d e d a s an American initiative.
The c i r c u m s t a n c e t h a t t h e i d e a o r i g i n a t e d i n t h i s c o u n t r y i s n o t known e x c e p t t o a v e r y n a r r o w c i r c l e o f o f f i c i a l s who h a v e b e e n c a r e f u l n o t t o r e v e a l i t .
There has been v i r t u a l l y n o a r t i c u l a t e o p p o s i t i o n from t h e p u b l i c , t h e p r e s s or Congress.
I f t h i s s t a t e of a f f a i r s i s t o c o n t i n u e , t h e r e i s much t o b e s a i d f o r a l l o w i n g t h e U n i t e d S t a t e s G-overnment t o continue to appear to be taking the i n i t i a t i v e . DEVELOPMENT OF WESTERN UNION
Statement
of
the
Case
21.
F o r some t i m e n o w ' H i s M a j e s t y ' s G o v e r n m e n t h a v e b e e n
u n d e r i n c r e a s i n g p r e s s u r e t o a g r e e t o some f u r t h e r , a n d i f
p o s s i b l e , some d e m o n s t r a t i v e move t e n d i n g t o r e i n f o r c e W e s t e r n
Union.
T h i s p r e s s u r e h a s come p a r t l y f r o m F r a n c e , p a r t l y f r o m
A m e r i c a a n d p a r t l y f r o m a c t i v e e l e m e n t s i n t h i s c o u n t r y on
b o t h s i d e s of t h e H o u s e s
The H a g u e C o n f e r e n c e l a s t J u n e
focused
a g r e a t d e a l o f t h e v e r y g e n e r a l f e e l i n g t h a t some
s u c h move m u s t now b e m a d e , a n d t h o u g h i t i s t r u e t h a t
s u b s e q u e n t t o t h e c o n f e r e n c e many d i v e r g e n c i e s o f v i e w b e g a n
t o m a n i f e s t t h e m s e l v e s i n t h e r a n k s of t h e E u r o p e a n " F e d e r a l i s t s " ,
n e v e r t h e l e s s t h e r e i s s t i l l s t r o n g s e n t i m e n t i n f a v o u r of t h e
F r e n c h p r o p o s a l f o r a " C o n s u l t a t i v e A s s e m b l y " , more p a r t i c u l a r l y
p e r h a p s i n F r a n c e , w h e r e t h e c o n s t i t u t i o n of some s u c h b o d y
w o u l d u n d o u b t e d l y h o v e a f a v o u r a b l e e f f e c t on t h e p r o s p e c t s of
t h e p r e s e n t Government, and a s s i s t i t in i t s s t r u g g l e a g a i n s t t h e
Communist a n d t h e G a u l l i s t
raanaces.
As f o r t h e A m e r i c a n s , t h e r e
i s no d o u b t t h a t t h e p r e d o m i n a n t f e e l i n g i n t h e U n i t e d S t a t e s id
t h a t t h e d e m o c r a c i e s of W e s t e r n E u r o p e o u g h t t o e n t e r i n t o some
c l o s e r a s s o c i a t i o n , a n d t h i s n o t i o n was v i g o r o u s l y e m p h a s i s e d
b y G o v e r n o r Dewey h i m s e l f d u r i n g h i s r e c e n t P r e s i d e n t i a l c a m p a i g n .
T h e r e a r e c l e a r s i g n s t h a t Mr. Dewey i n t e n d s t o u s e t h e E u r o p e a n
R e c o v e r y Programme a s a l e v e r t o compel t h e c l o s e r i n t e g r a t i o n
of W e s t e r n E u r o p e .
I n . c o n s e q u e n c e , we c a n n o t i g n o r e t h e
p o s s i b i l i t y t h a t i f n o f u r t h e r a d v a n c e i s m a d e , t h e e f f e c t on
t h e c r e d i t s w h i c h o r e t o b e v o t e d n e x t F e b r u a r y may b e c o n s i d e r a b l e .
22,
I n p o i n t o f f a c t , t h e a c h i e v e m e n t s of t h e p a s t y e a r
r e p r e s e n t a n o t a b l e advance towards European u n i t y , and T have
n o d o u b t t h a t t h e m e t h o d of s t e a d y a n d g r a d u a l p r o g r e s s w o u l d b e
t h e r i g h t way t o b r i n g a b o u t e v e n g r e a t e r u n i t y i n t h e f u t u r e .
U n l e s s t h e r e f o r e we a r e t o a d o p t a p u r e l y n e g a t i v e a t t i t u d e ,
w i t h u n f o r t u n a t e consequences in America, France and elsewhere,
i t s e e m s e s s e n t i a l t o d e v i s e some s c h e m e w h i c h w i l l s a t i s f y t h e
d e m a n d f o r a move a n d a t t h e same t i m e o v o i d a n y c o m m i t m e n t t o
t h e d a n g e r o u s e x p e d i e n t s advocated b y t h e F e d e r a l i s t s and t h e i r
allies.
-Such a scheme s h o u l d r e p r e s e n t an o r d e r l y d e v e l o p m e n t
of t h e g e n e r a l c o n c e p t i o n u n d e r l y i n g t h e T r e a t y o f B r u s s e l s .
23.
I t was w i t h t h i s o b j e c t t h a t t o w a r d s t h e e n d of
S e p t e m b e r I s u g g e s t e d t o t h e P r i m e M i n i s t e r a n d t o o n e o r two
of my c o l l e a g u e s t h a t some r e g u l a r m e e t i n g o f r e s p o n s i b l e
M i n i s t e r s o f t h e W e s t e r n E u r o p e a n c o u n t r i e s m i g h t be" c o n s i d e r e d , a n d a f t e r some d i s c u s s i o n I p u t f o r w a r d a - p r o p o s a l on t h e following l i n e s : ­
( a ) . The new s c h e m e w o u l d h e f o r a m e e t i n g w h i c h m i g h t b e
t e r m e d "A C o u n c i l o f M i n i s t e r s o f W e s t e r n E u r o p e "
which would meet a t s t a t e d i n t e r v a l s , p e r h a p s t w i c e
a y e a r , and b e composed of g o v e r n m e n t a l d e l e g a t i o n s
w i t h a d v i s e r s from e a c h of t h e c o u n t r i e s c o n c e r n e d .
The e x a c t M i n i s t e r i a l r e p r e s e n t a t i o n w o u l d v a r y w i t h
c i r c u m s t a n c e s a n d w i t h t h e . i t e m s on t h e a g e n d a of t h e
Council.
:
( b )
If t h i s proposal were accepted, s t e p s would be taken
t o c r e a t e an a d e q u a t e s e c r e t a r i a t , a n d t h e i n t e n t i o n
w o u l d b e t o r u n t h e " C o u n c i l o f M i n i s t e r s " on r a t h e r
s i m i l a r l i n e s t o t h e G e n e r a l A s s e m b l y of t h e U n i t e d
N a t i o n s , t h o u g h o f c o u r s e on a much s m a l l e r s c a l e .
Thus any r e p o r t s w h i c h would b e p l a c e d i n f r o n t of
t h e C o u n c i l b y a n y of t h e o r g a n s e s t a b l i s h e d u n d e r
t h e T r e a t y of B r u s s e l s might b e r e f e r r e d , i n t h e
e v e n t o f a n y d i v e r g e n c e of v i e w , t o c o m m i t t e e s a n d
s u b - c o m m i t t e e s f o r i n v e s t i g a t i o n and r e p o r t ;
and
an e f f o r t w o u l d t h e r e a f t e r b e mode t o a c h i e v e
a g r e e m e n t on t h e b a s i s o f f u l l d i s c u s s i o n i n t h e
Council i t s e l f .
( c )
T h e p r o p o s e d new s y s t e m m i g h t b e s u b s e q u e n t l y
e x t e n d e d so a s t o p e r m i t t h e p a r t i c i p a t i o n of a n y
German o r W e s t e r n German G o v e r n m e n t .
.There would
i n f a c t b e n o t h i n g t o p r e v e n t a German D e l e g a t i o n f r o m
s i t t i n g in at t h e Council, though i t might well n o t
be p o s s i b l e f o r t h a t Delegation t o take any p a r t in
t h e d i s c u s s i o n of c e r t a i n s u b j e c t s , such a s t h o s e
The some
r e l a t i n g to defence or foreign policy.
might be s a i d in r e g a r d to p o s s i b l e I t a l i a n r e p r e ­
s e n t a t i o n , and i n d e e d i t might b e t h a t t h e d i f f i c u l t y
of a d m i t t i n g I t a l y t o t h e ' T r e a t y of B r u s s e l s m i g h t
b e overcome b y a s s o c i a t i n g h e r w i t h t h e p r o p o s e d
" C o u n c i l of M i n i s t e r s " r a t h e r t h a n b y h e r a c c e s s i o n
t o t h e T r e a t y of B r u s s e l s i t s e l f .
21+.
S u c h a s y s t e m w o u l d g o a l o n g way t o w a r d s s p i k i n g
t h e g u n s o f t h o s e who w i s h t o f r a m e a C o n s t i t u t i o n a n d who
c r i t i c i s e H i s M a j e s t y ' s Government f o r n o t g o i n g f a s t enough
i n t h e d i r e c t i o n of " W e s t e r n U n i o n " , w h i l e a t t h e s a m e t i m e
p r e s e r v i n g i n e f f e c t t h e f u l l s o v e r e i g n t y of t h e p a r t i c i p a t i n g
S t a t e s a n d i n r e a l i t y a d o p t i n g t h e b a s i s of t h e s o - c a l l e d
" e m p i r i c a l " a p p r o a c h . r a t h e r t h a n t h e a l t e r n a t i v e b a s i s o f some
formal " C o n s t i t u t i o n " .
25.
T h e r e was some d i s c u s s i o n of t h i s m a t t e r w i t h t h e Commonwealth- P r i m e M i n i s t e r s , a n d i t w i l l b e r e c a l l e d t h a t i n
t h e m i n u t e s o f t h e m e e t i n g h e l d a t 11 a . m . on 19th O c t o b e r
( P . M . M . ( 4 8 ) 9th M e e t i n g ) I am r e c o r d e d a s s a y i n g t h a t " t h e t i m e
w o u l d s h o r t l y come when i t w o u l d b e a d v i s a b l e t o h o l d g e n e r a l
m e e t i n g s a t t e n d e d b o t h b y t h e F o r e i g n M i n i s t e r s of t h e
s i g n a t o r y ( B r u s s e l s ) P o w e r s a n d of t h e m e m b e r s o f t h e f u n c t i o n a l
committees.
E x p e r i e n c e had p r o v e d t h e d i f f i c u l t y of i s o l a t i n g
s p e c i a l p r o b l e m s a n d t h i s a p p e a r e d t o o f f e r a b e t t e r m e a n s of
obtaining'effective collective decisions".
26.
As I u n d e r s t o o d i t , n o n e of o u r C o m m o n w e a l t h c o l l e a g u e s
h a d a n y p a r t i c u l a r o b j e c t i o n t o s u c h a' d e v e l o p m e n t , a n d t h a t
b e i n g s o , though I c o u l d n o t put i t forward o f f i c i a l l y , I d i d .
moke 0 g e n e r a l a l l u s i o n t o my s c h e m e a t t h e m e e t i n g o f t h e
C o n s u l t a t i v e C o u n c i l on 25th O c t o b e r .
T h i s w a s d o n e , of c o u r s e , p a r t l y w i t h t h e d e s i r e t o d e f l e c t a t t e n t i o n from t h e r i v a l F r a n c o - B e l g i a n p r o p o s a l f o r a C o n s u l t a t i v e Assembly w h i c h w a s on o u r a g e n d a , a n d p a r t l y b e c a u s e I am c o n v i n c e d t h a t o n l y b y some s u c h a p p r o a c h a s I h a v e s u g g e s t e d a r e we i n p r a c t i c e ever
l i k e l y t o s o l v e " t h e v e x e d p r o b l e m of t h e a s s o c i a t i o n of I t a l y w i t h o t h e r E u r o p e a n d e m o c r a c i e s , ,and a b o v e a l l t h e even more d i f f i c u l t and u r g e n t problem of t h e e v e n t u a l a s s o c i a t i o n of Germany w i t h W e s t e r n ' E u r o p e . 21*
I n t h e s u b s e q u e n t d i s c u s s i o n I d e t e c t e d a s e n s e of
r e l i e f o n t h e p a r t o f M. Schuman t h a t my s u g g e s t i o n h a d b e e n
m a d e , a n d i n d e e d I was i n f o r m e d b y M. C h a u v e i a f t e r w a r d s t h a t
M. Schumon f o r h i s p a r t w o u l d b e o n l y t o o w i l l i n g t o t a k e my
s c h e m e i n p r e f e r e n c e t o h i s own o f f i c i a l o n e i f he c o u l d
persuade his w i l d e r " F e d e r a l i s t ' c o l l e a g u e s t h a t only by such
a c c e p t a n c e was a n y p r o g r e s s e v e r
l i k e l y t o b e made i n t h e
d i r e c t i o n of a c l o s e r u n i t y w h i c h w o u l d i n c l u d e G r e a t B r i t a i n .
I n a n y c a s e , s e e i n g , t h a t we w e r e now i n p o s s e s s i o n o f more t h a n
o n e s u g g e s t i o n , t h e B u t c h p r o p o s e d , a n d i t was s u b s e q u e n t l y
a g r e e d , t h a t t h e s e n s i b l e t h i n g t o do w o u l d b e t o s e t up a
Committee' t o examine b o t h t h e s e s u g g e s t i o n s , and i n d e e d any o t h e r
s u g g e s t i o n t h a t hod b e e n o r m i g h t b e mode, and r e p o r t b a c k t o
t h e i r Governments a t an e a r l y d a t e .
1
28.
following
(a)
The C o n s u l t a t i v e C o u n c i l a c c o r d i n g l y r e a c h e d
conclusions unanimously:­
the
t h a t a b o d y s h o u l d b e s e t up t o s t u d y t h e p r o b l e m
of c l o s e r union i n Europe i n a c c o r d a n c e w i t h t h e .
. d i s c u s s i o n s of t h e C o u n c i l ;
( b )
t h a t t h e b o d y s h o u l d make r e c o m m e n d a t i o n s , t o Governments; ( c )
t h a t t h e r e p r e s e n t a t i v e s on t h e C o m m i t t e e
a p p o i n t e d by Governments;
( d )
t h a t t h e m e m b e r s h i p of t h e C o m m i t t e e s h o u l d b e 5
F r e n c h , 5 B r i t i s h , 3 B e l g i a n , 3 Dutch and 2 Luxembourg
members;
(e)
that it
( f )
t h a t the Committee s h o u l d - s t u d y t h e g e o g r a p h i c a l
s c o p e o f a n y s t e p s t h a t i t m i g h t recommend a n d ,
i f i t c o n s i d e r e d d e s i r a b l e , might put forward
various alternatives;
(g)
that
( h )
t h a t t h e r e p o r t of t h e Committee s h o u l d n o t b e
p u b l i s h e d u n t i l p r e s e n t e d t o G o v e r n m e n t s , who w o u l d
take j o i n t d e c i s i o n s in matters
of p u b l i c i t y ;
( i )
t h a t t h e C o m m i t t e e s h o u l d r e p o r t by. t h e n e x t
of t h e C o n s u l t a t i v e C o u n c i l .
s h o u l d meet in
should be
Paris;
t h e m e e t i n g s s h o u l d be h e l d i n
private;
meeting"'
*
Recommendation
29.
I a s k my c o l l e a g u e s
( a )
­
t o a p p r o v e i n p r i n c i p l e my p r o p o s a l f o r
.Council" as o u t l i n e d above, and
a
"European
(b)
..,
to approve t h e agreement reached in P a r i s t h a t the
f i v e B r u s s e l s Powers s h o u l d a p p o i n t a Committee
of E n q u i r y t o e x a m i n e a l l p r o p o s a l s f o r g r e a t e r
E u r o p e a n u n i t y and r e p o r t t o G o v e r n m e n t s .
Arguments
30.
The c a s e a g a i n s t a d o p t i n g a p u r e l y n e g a t i v e a t t i t u d e
h a s a l r e a d y , b e e n s t a t e d i n t h i s - p a p e r , b u t t h e r e a r e some g e n e r a l c o n s i d e r a t i o n s a f f e c t i n g t h e p o s i t i o n of t h e F r e n c h ' Government t o which I s h o u l d l i k e t o c a l l t h e a t t e n t i o n of my c o l l e a g u e s , 31*
T h e r e i s , I f e a r , no d o u b t t h a t t h e p r e s e n t F r e n c h Government and i n d e e d t h e whole F r e n c h n a t i o n a r e i n a ' parlous s t a t e .
On t h e s i d e of t h e p u b l i c t h e r e i s 0 g e n e r a l
a p a t h y , a l e e k of c o n f i d e n c e a n d an a b s e n c e o f a n y s e n s e of
c i v i c r e s p o n s i b i l i t y , w h i l e t h e Government f o r t h e i r p a r t
show l i t t l e c a p a c i t y t o g i v e l e a d e r s h i p , t o t a c k l e t h e p r o b l e m s
of t h e d a y and t o i n s p i r e p u b l i c c o n f i d e n c e .
In c o n s e q u e n c e
t h i n g s o r e d r i f t i n g d a n g e r o u s l y . - Yet i t i s probably t r u e
t h a t France i s economically in a b e t t e r position than t h i s
c o u n t r y a n d t h a t i f a F r e n c h G o v e r n m e n t w e r e t o show t h e some
r e s o l u t i o n a s we h a v e d o n e , t h e y w o u l d f i n d t h a t t h e i r r o a d t o
r e c o v e r y was e a s i e r and l e s s p a i n f u l t h a n o u r s .
What i s
r e q u i r e d i s t h e n e c e s s a r y moral e f f o r t ;
a n d i t i s e v e n now n o t
too l a t e .
The r e p u g n a n c e o f t h e n a t i o n t o t h e e x t r e m e s of
Communism a n d G a u l l i s m h a v e g i v e n t h e p r e s e n t G o v e r n m e n t a
p r o s p e c t of l i f e w h i c h t h e y h a v e s c a r c e l y d e s e r v e d .
32.
I have been c a r e f u l l y c o n s i d e r i n g what can b e done t o
f o r t i f y a n d s t i m u l a t e t h e F r e n c h G o v e r n m e n t , f o r we m u s t r e c o g n i s
t h a t F r a n c e i s e s s e n t i a l t o t h e W e s t e r n s y s t e m and t h a t h e r
c o l l a p s e w o u l d i n v o l v e t h e c o l l a p s e of t h e w h o l e .
W h i l e we
c a n n o t h o p e t o r e g e n e r a t e F r a n c e f r o m t h i s s i d e of t h e C h a n n e l ,
t h e r e a r e two t h i n g s we c a n d o .
F i r s t , we c a n h e l p t o p r o m o t e
t h e r e v i v a l o f t h e F r e n c h Army.
-At p r e s e n t , m e m o r i e s of t h e
German o c c u p a t i o n a r e s o l i v e l y t h a t t h e d e f e n c e l e s s n e s s o f
F r a n c e h a s a d e m o r a l i s i n g e f f e c t on t h e w h o l e b o d y p o l i t i c ,
w h i c h can b e l i k e n e d t o c r e e p i n g p a r a l y s i s .
I t may b e t h a t a
c o n s c i o u s n e s s of r e v i v i n g s t r e n g t h and growing c o n f i d e n c e i n
t h e c a p a c i t y o f F r a n c e t o d e f e n d h e r s e l f w i t h h e r A l l i e s may
h e l p t o r e s t o r e t h e n a t i o n a l s e l f - r e s p e c t , t h e l o s s of which
i s a t t h e r o o t of F r a n c e ' s p r e s e n t t r o u b l e s .
S e c o n d l y , we
s h o u l d c o n t i n u e t o do a l l we c a n t o g i v e t h e F r e n c h p e o p l e a
s e n s e of p o l i t i c a l s o l i d a r i t y w i t h t h e o t h e r W e s t e r n N o t i o n s .
T h i s h a s b e e n o u r p o l i c y s i n c e t h e b e g i n n i n g o f t h e y e a r a n d we
hove a l r e a d y s e e n i t s b e n e f i c i e n t r e s u l t s , Without the T r e a t y
of B r u s s e l s , f o r e x a m p l e , i t would n o t have been p o s s i b l e t o
i n d u c e t h e F r e n c h G o v e r n m e n t t o t a k e the r i s k o f a s s o c i a t i n g
t h e m s e l v e s w i t h u s i n W e s t e r n Germany o r s t i l l l e s s o f b a c k i n g
us i n t h e B e r l i n d i s p u t e .
The s t a t e o f F r a n c e i s b a d , b u t
w i t h o u t t h e s e n s e of s o l i d a r i t y c r e a t e d by t h e B r u s s e l s T r e a t y
i t would b e worse.
T h i s i s r e c o g n i s e d i n F r a n c e and t h e f a c t
accounts f o r the widespread d e s i r e to forge closer bonds with
t h e c o u n t r i e s , of t h e W e s t , e v e n t o t h e e x t e n t of f u l l F e d e r a t i o n .
W i t h t h e F r e n c h i n t h i s f r a m e of m i n d i t w o u l d b e d a n g e r o u s t o
t h r o w F r a n c e b a c k on h e r s e l f b y r e j e c t i n g o u t of h a n d h e r
proposals for closer union.
Hence t h e p r o p o s a l s I have p u t
forward.
They a r e d e s i g n e d t o a v o i d t h e c o n s t i t u t i o n a l a n d
other p i t f a l l s prepared by the F e d e r a l i s t s , but represent the
minimum w h i c h con b e s a f e l y o f f e r e d i f we w i s h t o f o s t e r
p o l i t i c a l s o l i d a r i t y in the West.
E.B.
Foreign O f f i c e , S.W.1.
2nd N o v e m b e r , 19M-8.