CONFIDENTIAL ANNEXES
C M . (2+5) 28th Conclusions, Minute I4
-
Monetary Awards
30th Conclusions, Minute 7
-
Palestine
Tripolitania:
Trusteeship
32nd Conclusions
35th Conclusions, Minute 1
-
Colonial
Council of Foreign
Minis ters
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MINUTE k
Annex
-11
a.m.)
T h e ...ar C a b i n e t h a d " b e f o r e them a N o t e "by t h e
P r i m e M i n i s t e r ( C . P . ( 1 + 5 ; ) 126) r a i s i n g t h e q u e s t i o n w h e t h e r
m o n e t a r y a w a r d s s h o u l d h e made t o t h e p r i n c i p a l
Service
l e a d e r s at- t h e end o f t h e w a r .
A t t h e end o f t h e l a s t
w a r m o n e t a r y g r a n t s t o t a l l i n g £ 5 5 5 , 0 0 0 h a d "been m a d e .
T h e P r i m e M i n i s t e r s a i d t h a t h i s own v i e w was
t h a t g: a n t s o f t h i s n a t u r e were now o u t o f d a t e a n d t h a t
t h e l a s t w a r p r e c e d e n t s h o u l d n o t "be r e p e a t e d o n t h i s
occasion.
A l l M i n i s t e r s
expressed
agreement
with
this
view.
The s u g g e s t i o n w a s , h o w e v e r , p u t f o r w a r d t h a t
t h e r e m i g h t w e l l h e a c a s e f o r m a k i n g an i n c r e a s e i n t h e
p e n s i o n s o f a l i m i t e d number o i o f f i c e r s i n t h e h i g h e s t
r a n k s who h a 6 b o r n e e x c e p t i o n a l r e s p o n s i b i l i t i e s a n d h a d
r e n d e r e d e x c e p t i o n a l s e r v i c e s i n the p r e s e n t w a r .
In this
w h i l e the emoluments o f
c o n n e c t i o n i t was p o i n t e d o u t t h a t
o t h e r r a n k s a n d o f t h e l o w e r c o m m i s s i o n e d r a n k s had h e e n
i n c r e a s e d on s e v e r a l o c c a s i o n s i n t h i s w a r , n o t h i n g h a d b e e n
d o n e f o r t h e h i g h e r ' r a n k s the v a l u e o f w h o s e r e m u n e r a t i o n
had b e e n p r o g r e s s i v e l y
ecreased owing to i n c r e a s e s in
t a x a t i o n a n a the r i s e i n the c o s t - o f l i v i n g .
T h e C a b i n e t
( l )
­
A g r e e d t h a t no m o n e t a r y g r a n t s s h o u l d be made
to the p r i n c i p a l Service Leaders at the
c o n c l u s i o n o f the p r e s e n t w a r .
ho a n n o u n c e m e n t o f t h i s d e c i s i o n s h o u l d h e
made f o r t h e p r e s e n t .
The m a t t e r w o u l d
p r o b a b l y b e d e a l t w i t h b y means o f a r e p l y
t o a P a r l i a m e n t a r y Q u e s t i o n when P a r l i a m e n t
reassembled.
( 2 ) T o o k n o t e t h a t t h e P r i m e M i n i s t e r , t h e
C h a n c e l l o r of t h e e x c h e q u e r and t h e S e r v i c e
Ministers woul- investigate the suggestion
t h a t i n c r e a s e d p e n s i o n s should be awarded
t o a l i m i t e d number o f S e r v i c e c h i e f s o f t h e
h i g h e s t r a n k s who h a d h e l d p o s t s o f h i g h
r e s p o n s i b i l i t y and had r e n d e r e d v e r y
distinguished services in the war.
Cabinet
Office,
S.V/.1.
THIS DOCUMENT IS THE PROPERTY OF HIS BRITANNIC MAJESTY^ GOVERNMENT, - -
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circulation of this paper has been strictly limited.
. . .
,
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TOP
Copy N0...J..Q...
SECRET
c
u.(U5)
3QTH C O N C L U S I O N S , M I N U T E 7
Confidential
(11th
PALESTINE
(Previous
Reference:
.7.M. ( M + ) 155th
Conclusions,
Minute 1 )
September,
Annex
19^-5 -
11.0
a.m. )
T h e C a b i n e t h a d b e f o r e t h e m a Memorandum b y t h e
L o r d P r e s i d e n t o f the C o u n c i l , Chairman of t h e P a l e s t i n e
Committee, t o w h i c h t h e r e was a t t a c h e d a r e p o r t
( C P . (i+5) 156) g i v i n g t h e r e c o m m e n d a t i o n s o f t h e
P a l e s t i n e C o m m i t t e e on t h e s h o r t - t e r m p o l i c y t o b e
adopted, i n t h a t
country.
THE LORD P R E S I D E N T OP THE C O U N C I L , i n i n t r o d u c i n g
the r e p o r t , emphasised the importance of m a i n t a i n i n g
the utmost s e c r e c y , both as regards t h e Committee's
recommendations and, i n d e e d , as r e g a r d s t h e f a c t
that
a P a l e s t i n e Committee of the Cabinet had been
constituted.
T h e q u o t a o f 75?000 J e w i s h
immigrants
p e r m i s s i b l e under the p r o v i s i o n s o f the White Paper
o f M a y , 1939, was now w i t h i n 3,000 o f e x h a u s t i o n , and
i t w a s now a m a t t e r o f u r g e n c y t o r e a c h
conclusions
as t o a s h o r t - t e r m p o l i c y which would b r i d g e t h e p e r i o d
between the complete exhaustion o f the immigration
quota and the d e v i s i n g and i m p l e m e n t a t i o n of a l o n g ­
term p o l i c y .
The p o s i t i o n was o n e o f g r e a t
difficulty
a n d we w e r e u n l i k e l y t o e s c a p e c r i t i c i s m w h a t e v e r
p o l i c y we a d o p t e d .
The p o s i t i o n was a g g r a v a t e d by t h e
internal
s i t u a t i o n i n P a l e s t i n e which showed s i g n s o f
d e t e r i o r a t i o n , Jews and A r a b s a l i k e b e i n g armed and
v e r y much o n t h e a l e r t a g a i n s t o n e a n o t h e r .
I t s e e m e d e s s e n t i a l t h a t we s h o u l d , i n
accordance with the pledge given in the White Paper
obtain- the a c q u i e s c e n c e o f the Arabs o f P a l e s t i n e
in
the c o n t i n u a n c e o f any Jewish i m m i g r a t i o n a f t e r the
e x h a u s t i o n o f t h e q u o t a , b u t e v e n i f we c o u l d g e t t h e
A r a b s t o a g r e e t o t h e c o n t i n u a t i o n o f i m m i g r a t i o n on
a v e r y r e s t r i c t e d s c a l e ( o f w h i c h t h e r e s e e m e d some
l i k e l i h o o d through the good o f f i c e s o f the Arab s t a t e s )
t h e J e w i s h f e e l i n g b o t h h e r e and i n t h e U n i t e d S t a t e s
w o u l d be t h a t not e n o u g h h a d b e e n d o n e .
I t was
s i g n i f i c a n t t h a t t h e J e w i s h A g e n c y , when o f f e r e d t h e
3,000 i m m g r a t i o n c e r t i f i c a t e s r e m a i n i n g f r o m t h e
W h i t e P a p e r q u o t a t o be e x p e n d e d a t t h e r a t e o f
1,500
a m o n t h , .had f l a t l y r e j e c t e d t h i s and h a d demanded a
f i g u r e o f 100,000.
- The C o m m i t t e e , i n t h e s e
circumstances, had, after exhaustive
discussion
unanimously reached the v i e w ; ­
s
( i )
t h a t we s h o u l d c o n t i n u e t o c o n f o r m t o t h e
e x i s t i n g arrangements, .as p r e s c r i b e d in
t h e "/kite P a p e r , i n r e s p e c t o f
immigration'
d u r i n g the i n t e r v a l between the e x h a u s t i o n
o f t h e q u o t a t h e r e i n p r e s c r i b e d and t h e
promulgation of a l o n g - t e r m p o l i c y ,
every
e f f o r t b e i n g made t o p e r s u a d e t h e A r a b s
to agree to a continuation of
immigration
during this i n t e r v a l at the
rate.at
present permissible.
( i i )
t h a t b e f o r e t h e a p p r o a c h w a s made t o t h e
A r a b s , the United S t a t e s Government should
be i n f o r m e d o f t h e f a c t t h a t H i s Maje s t y ' s
Government were u r g e n t l y c o n s i d e r i n g the
f o r m u l a t i o n o f a new l o n g - t e r m p o l i c y
for
P a l e s t i n e , that they intended to r e f e r
t h i s p o l i c y t o t h e "/oriel O r g a n i s a t i o n i n
due c o u r s e , and t h a t t h e y p r o p o s e d i n t h e
meantime to a c t as in ( i )
and,
( i l l )
t h a t t h e C h i e f s o f S t a f f s h o u l d be a s h e d t o
take immediate steps to r e i n f o r c e
the
Middle East garrison to the extent
n e c e s s a r y to meet the m i l i t a r y
commitment
i n v o l v e d in ( i ) .
T h e m a t t e r h a d s i n c e b e e n d i s c u s s e d in- t h e
F o r e i g n S e c r e t a r y ' s M i d d l e E a s t C o n f e r e n c e w h i c h now
r e c o m m e n d e d t h a t any a n n o u n c e m e n t s h o u l d be p o s t p o n e d
u n t i l the p i l g r i m a g e to Mecca t o o k p l a c e i n November
because o f the r i s k of Arab f e e l i n g becoming
inflamed
a t t h a t t i m e and o f the n e c e s s i t y f o r making c e r t a i n
military
preparations.
of
A
which
( a )
1
g e n e r a l d i s c u s s i o n t o o k p l a c e , i n the
the f o l l o w i n g points were made:- ,
course
The v i e w was s t r o n g l y e x p r e s s e d t h a t i t
would
be v e r y d i f f i c u l t
to j u s t i f y
the
suspension of immigration u n t i l a f t e r
the
f o r t h c o m i n g Mecca P i l g r i m a g e .
The
p r o p o s a l in t h i s sense r e p r e s e n t e d a
material modification of the Report
of
the P a l e s t i n e Committee.
A complete
s u s p e n s i o n m i g h t w e l l be r e p r e s e n t e d as
being i n c o n s i s t e n t w i t h the s p i r i t of the
u n d e r t a k i n g s we h a d g i v e n i n t h e V / h i t e
Paper.
I t might encourage Arab truculence
and labile i t m i g h t e a s e m a t t e r s w i t h the
Arabs f o r the actual p e r i o d of
the
P i l g r i m a g e , i t m i g h t w e l l p r o v e t o be a
very expensive concession.
While
full
j u s t i c e s h o u l d be done to Arab c l a i m s ,
it
was p o s s i b l e t o e x a g g e r a t e t h e i r
importance.
( b ) We w e r e i n t h e u n f o r t u n a t e p o s i t i o n
that
w h a t e v e r a c t i o n we t o o k w e w e r e l i k e l y
to
f i n d o u r s e l v e s exposed to sharp
criticism
f r o m one s i d e o r t h e o t h e r .
I t was
i m p o r t a n t in t h i s c o n n e c t i o n , so f a r as
p r a c t i c a b l e , to take the U n i t e d S t a t e s
w i t h us.
//kilo o p i n i o n I n t h a t c o u n t r y
w a s a t t h e moment v e r y f r e e i n
its
c r i t i c i s m o f our p o l i c y i n P a l e s t i n e ,
the
U n i t e d S t a t e s Government had n o t so f a r
been p r e p a r e d to a c c e p t any
responsibility
f o r h e l p i n g i n the h a n d l i n g of the
situation.
(c)
Was i t n o t c l e a r t h a t t h e P a l e s t i n e
issue
was o n e t h a t w o u l d u l t i m a t e l y h a v e t o g o
to the World Organisation?
This being
s o , w o u l d n o t t h e w i s e c o u r s e , f o r us be
t o make i t c l e a r a t o n c e t h a t i t w a s o u r
i n t e n t i o n to r e f e r , i t t o the World
A declaration of this
Organisation?
kind should ease the p o s i t i o n as between
the A r a b s end o u r s e l v e s , f o r the A r a b s
had tended to complain i n t h e past t h a t
t h e i r c a s e had n e v e r been p r o p e r l y h e a r d .
We s h o u l d b e a b l e t o m a k e i t c l e a r t o
them t h a t i f t h e m a t t e r w e n t b e f o r e the
World Organisation they would have the
f u l l e s t o p p o r t u n i t y o f m a k i n g t h e i r case­
before world opinion.
Equally, a
d e c l a r a t i o n i n t h i s s e n s e s h o u l d h e l p us
with the Jews, since Jewish opinion
would r e a l i s e that matters were t a k i n g a
new f o r m , and i t m i g h t be h o p e d t h a t
t h e r e w o u l d be a t e n d e n c y t o c o n c e n t r a t e
on p r e p a r a t i o n o f t h e c a s e o f t h e W o r l d
easing
Organisation with a corresponding
of the situation in Palestine.
(d)
I f
( e )
S h o u l d we n o t d o b e t t e r t o a p p r o a c h t h e
J e w i s h A g e n c y a n d t e l l t h e m t h a t we
h a d i t i n mind t o p u t t h i s w h o l e m a t t e r
t o t h e W o r l d O r g a n i s a t i o n and a c q u i r e
t h e i r u n d e r s t a n d i n g and s u p p o r t f o r such
temporary suspension of immigration as
m i g h t be n e c e s s a r y p e n d i n g t h e w o r k i n g
o u t o f such a p o l i c y ?
a n y s t a t e m e n t on t h e l i n e s s u g g e s t e d i n
( c ) a b o v e was t o b e m a d e ' b y H i s M a j e s t y ' s
Government,"was i t not d e s i r a b l e that i t
s h o u l d b e made w i t h i n t h e . m i n i m u m o f
delay?T h a t w o u l d make i t c l e a r
that
the i n i t i a t i v e
s t i l l r e s t e d , w i t h us and
i t w o u l d be o u r answer t o c r i t i c i s m ,
whether in t h i s country or elsewhere.
I t w o u l d a l s o g r e a t l y s t r e n g t h e n our
hands in the e v e n t o f o u t b r e a k s i n
P a l e s t i n e , whether Jewish or Arab.
THE SECRETARY OF STATE FOR THE COLONIES s a i d
t h a t he had been i n c o n s t a n t t o u c h w i t h
the Jewish Agency, but that body, which
w a s now u n d e r c o n s i d e r a b l e p r e s s u r e b y
extreme e l e m e n t s , had adopted a q u i t e
u n c o m p r o m i s i n g l i n e and w a s , he f e l t ,
that
p r i m a r i l y " c o n c e r n e d , t o make i t c l e a r
THE F O R E I G N
the White Paper was dead.
SECRETARY s a i d t h a t t h e n e w s t h a t t h e
J e w i s h Agency had d e c l i n e d t o a c c e p t the
3,000 i m m i g r a t i o n c e r t i f i c a t e s
offered
t o t h e m , and demanded a q u o t a o f 1 00,000,.
w h i c h he- h a d n o w c o m m u n i c a t e d , t o t h e
A m e r i c a n s , h a d c l e a r l y mads a m a r k e d
i m p r e s s i o n on t h e m .
(f)
THE CHANCELLOR OP THE EXCHEQUER e m p h a s i s e d
"
t h e i m p o r t a n c e o f p r e s s i n g on w i t h '
economic development as a c o n t r i b u t i o n
to the s o l u t i o n o f . t h e P a l e s t i n e
problem.
W h i l e he a c c e p t e d t h a t i t d i d n o t
figure
in the proposals in the P a l e s t i n e
Committee s Report since that Report
d e a l t w i t h s h o r t - t e r m p o l i c y o n l y , he
h o p e d t h a t i t m i g h t be p o s s i b l e now t o
say something about i t b e i n g our
intention
not merely to deal with Jewish immigration,
but t o arrange f o r f u l l s u p p o r t ,
including
reasonable financial assistance, for
the
economic development of t h i s backward
area.
8
( g ) A t t e n t i o n w a s d r a w n t o t h e
i n v o l v e d in the h a n d l i n g
issue.
military
problems
of the P a l e s t i n e
THE SECRETARY OP STATE P O P WAR a n d THE
SECRETARY OP S T A T E FOR A I R i n f o r m e d
the
C a b i n e t of the p o s i t i o n as r e g a r d s the
a v a i l a b i l i t y o f f o r c e s and p o s s i b l e
time­
t a b l e s for t h e i r m o v e s .
I t was g e n e r a l l y
f e l t that g i v e n the v e r y
threatening
s i t u a t i o n d i s c l o s e d by the
letter
c i r c u l a t e d by the S e c r e t a r y o f S t a t e
for
t h e C o l o n i e s i n t h e a n n e x t o C P . (1+5)
165,
t h e C h i e f s o f S t a f f s h o u l d a g a i n be
i n v i t e d to review the security
aspects
o f t h i s m a t t e r and the a r r a n g e m e n t s
for
moving troops.
( h ) A t t e n t i o n w a s d r a w n i n t h i s same c o n n e c t i o n
to the great importance of b r i n g i n g
the
P a l e s t i n e P o l i c e F o r c e up t o s t r e n g t h .
The C a b i n e t were i n f o r m e d t h a t the C o l o n i a l
O f f i c e a n d t h e War O f f i c e w e r e a l r e a d y
in
c o n t a c t as r e g a r d s the p o s s i b i l i t y
of
e m p l o y i n g men n o w d u e f o r
demobilisation
f o r this purpose.
( i )
T h e p o i n t w a s a l s o made t h a t w h i l e w e m u s t ,
of course, take whatever s e c u r i t y measures
w e r e p r a c t i c a b l e and. n e c e s s a r y , i t w o u l d
be m o s t u n f o r t u n a t e w e r e t h e n e e d t o
g a r r i s o n P a l e s t i n e to r e s u l t in
further
s e r i o u s d e l a y s i n d e m o b i l i s a t i o n and
still
more in the d e a t h s o f B r i t i s h
soldiers.
The r e a c t i o n s i n e i t h e r event, b o t h i n t h i s
c o u n t r y a n d among t h e t r o o p s m i g h t b e v e r y
unhappy.
( 3 )
The v i e w was e x p r e s s e d t h a t t h e
letter
c i r c u l a t e d a s an e n c l o s u r e t o C, P . (45)
165
showed, a c e r t a i n l a c k o f o b j e c t i v i t y
and
m i g h t be read, as I n d i c a t i n g a b i a s on t h e
p a r t of i t s w r i t e r t o w a r d s the Arab r a t h e r
' t h a n t h e J e w i s h c a s e .
I t was. p o i n t e d o u t
in this connection that while
isolated
phrases in the l e t t e r might bear
that
c o n s t r u c t i o n o t h e r p a r t s of the l e t t e r
w e r e s t r o n g l y c r i t i c a l o f the A r a b s and
t h a t t h e document must be j u d g e d a s a
whole.
THE SECRETARY OP S T A T E FOE THE COLONIES
drew a t t e n t i o n to the extreme
difficulties
w h i c h f a c e d t h e F a l e s 1 1 n e A d m i n i s t r a t i on
and t o t h e s k i l l a n d r e s o l u t i o n w i t h w h i c h
i t had d e a l t w i t h them.
A f t e r f u r t h e r d i s c u s s i o n , THE P R I M E M I N I S T E R
s a i d t h a t I t was c l e a r t h a t t h e r e w e r e
strong,
a r g u m e n t s f o r a p u b l i c s t a t e m e n t on t h e p o l i c y
of
H i s M a j e s t y ' s Government and o f t h e i r i n t e n t i o n i n
due c o u r s e t o p u t t h i s m a t t e r t o t h e W o r l d
Organisation.
-The q u e s t i o n o f t i m i n g w a s , h o w e v e r , o f
critical
I m p o r t a n c e and h e s u g g e s t e d t h a t t h e s i m p l e s t c o u r s e
w o u l d be t h a t t h e m a t t e r s h o u l d be d i s c u s s e d
further
between the L o r d P r e s i d e n t of the C o u n c i l , the S e c r e t a r y
of State for Foreign A f f a i r s ,
the Secretary of
State
f o r t h e C o l o n i e s , and h i m s e l f , w i t h a v i e w t o - f u r t h e r
d i s c u s s i o n once the p o s i t i o n i n r e l a t i o n to
timing
had been c l a r i f i e d ,
M e a n t i m e , t h e r e w o u l d be ­
a d v a n t a g e i n a f u r t h e r r e v i e w by the C h i e f s of
Staff
of the s e c u r i t y a s p e c t s of t h i s
problem.
T h e
Cabinet
( 1 ) Approved, the Prime M i n i s t e r ' s
suggestion
a t ' X ' and i n v i t e d t h e S e c r e t a r y
of
S t a t e f o r the C o l o n i e s , in
consultation
w i t h t h e L o r d P r e s i d e n t and 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 A f f a i r s , t o make
a r r a n g e m e n t s on t h e l i n e s p r o p o s e d .
( 2 )
Cabinet
Office,
.W.
1.
I n v i t e d the Chie: a o f S t a f f
t h e s e c u r i t y aspc: c t s o f t h e
to review
problem.
THIS DOCUMENT IS THE PROPERTY OF HIS BRITANNIC MAJESTY'S GOVERNMENT The circulation of this paper has been strictly limited. 7
It is issued for the personal use of..KV^
TOP
SECRET
f\^yy^^..^prs^^
Copy
G.l\k (U5)
NO....JQ..
32ND CONCLUSIONS
C o n f i d c n t i a 1 ,',nn e x
(15th
IBIPOLITANIA
Solonial Trusteeship (previous
Reference:
CM. (45)
30th
Conclusions,
Minute 5)
September,
1 945
-
11.15
a.m.)
A t t h e i r he g t i n g on 1 1 t h S e p t e m b e r t h e C a b i n e t
had a p p r o v e d p r o p o s a l s by the S e c r e t a r y o f S t a t e
for
F o r e i g n a f f a i r s f o r t h e l i n e t o be t a k e n b y h i m i n
d i s c u s s i o n s in the Council of Foreign M i n i s t e r s as
r e g a r d s the d i s p o s a l o f I t a l i a n c o l o n i e s and o f
I t a l i a n Mediterranean
Islands.
THE FOREIGN SECRETARY now r e p o r t e d t h e p r o g r e s s
of d i s c u s s i o n s in the Council of F o r e i g n M i n i s t e r s .
He h a d f o u n d h i m s e l f c o n f r o n t e d w i t h g r e a t
difficulties
in r e s p e c t of the I t a l i a n c o l o n i e s .
T h e r e had been
g e n e r a l a g r e e m e n t t h a t t h e y s h o u l d be p l a c e d under
international trusteeship.
The q u e s t i o n i n i s s u e
was h o w e v e r w h e t h e r t h a t t r u s t e e s h i p s h o u l d be t h a t
o f an i n d i v i d u a l s t a t e o r c o l l e c t i v e
trusteeship.
T h e r e w e r e i n d i c a t i o n s t h a t R u s s i a m i g h t be
a n x i o u s t o e s t a b l i s h h e r s e l f on t h e A f r i c a n
continent.
She h a d been v e r y s u c c e s s f u l i n e s t a b l i s h i n g h e r
the
position,
c o n s e q u e n t on t h e e n d o f t h e w a r , i n
v a r i o u s t e r r i t o r i a l a r e a s i n w h i c h s h e "was i n t e r e s t e d
and s h e was i n a v e r y
i n Europe and i n the F a r E a s t
There were however,
strong negotiating
position,
substance
from c e r t a i n p o i n t s o f v i e w . arguments of
to
against
encouraging, or a l l o w i n g , her
ab 1 i sh
h e r s e l f in Africa.
the
So f a r a s t h e D o m i n i o n s w e r e c o n c e r n e d ,
population
U n i o n o f Sbuth. A f r i c a , ' w h i c h w i t h i t s s m a l l
h a d s i n c e 191k h a d t o f i g h t i n t w o -wars a g a i n s t
Germany i n b o t h o f w h i c h i-ifrica had t o a g r e a t e r o r
l e s s e x t e n t been d i r e c t l y i n i s s u e , f e l t s t r o n g l y
that
no r i s k s h o u l d be r u n o f a s i t u a t i o n a r i s i n g a t any
f u t u r e date in w h i c h , because of the establishment
of
any f r e s h G r e a t Power i n A f r i c a , c o n t i n g e n t
arrangements
w o u l d a g a i n h a v e t o b e made t o p r o t e c t h e r
interests;
and s h e w o u l d be o p p o s e d a c c o r d i n g l y t o g r a n t i n g a n y
s p e c i a l p l a c e t o R u s s i a on t h e A f r i c a n
continent.
A u s t r a l i a a n d New Z e a l a n d w h i c h t h o u g h i n t e r e s t e d i n
the s a f e t y of the s e a - r o u t e s were g e o g r a p h i c a l l y more
r e m o t e , were a t t r a c t e d in p r i n c i p l e by the i d e a of
collective
trusteeship.
The U n i t e d S t a t e s , w h o , he t h o u g h t ,
realised
the p o s s i b l e t r e n d of Russian i n t e r e s t s , favoured a
s o l u t i o n on t h e b a s i s o f c o l l e c t i v e
trusteeship.
I n t h e s e c i r c u m s t a n c e s , Mr. B y r n e s had p r o p o s e d
i n t h e C o u n c i l o f F o r e i g n M i n i s t e r s a r r a n g e m e n t s as
r e g a r d s L i b y a under w h i c h t h a t a r e a would, r e c e i v e a
promise of independence a f t e r a 10-year period of
t r u s t e e s h i p u n d e r an a d m i n i s t r a t o r a p p o i n t e d b y t h e
T r u s t e e s h i p C o u n c i l of the U n i t e d N a t i o n s .
' All
States
members o f t h e C o u n c i l o f F o r e i g n M i n i s t e r s w o u l d have
a v o i c e in the s e l e c t i o n of t h i s a d m i n i s t r a t o r .
He
w o u l d b e a s s i s t e d b y an A d v i s o r y C o m m i t t e e
inexuding
r e p r e s e n t a t i v e s of a l l S t a t e s menbers o f the C o u n c i l
o f F o r e i g n M i n i s t e r s e x c e p t C h i n a , and a l s o
represent­
a t i v e s o f L i b y a a n d I t a l y , who w o u l d b e a b l e t o p r o v i d e
i n f o r m a t i o n r e l a t i n g to the t e r r i t o r y w h i c h w o u l d be
o f v a l u e to t h e C o m m i t t e e .
I f the administrator
f a i l e d to d i s c h a r g e h i s r e s p o n s i b i l i t y t o the
s a t i s f a c t i o n o f a n y o f t h e S t a t e s r e p r e s e n t e d on t h e
C o m m i t t e e , a n y o n e o f t h e m w o u l d be e n t i t l e d t o b r i n g
the m a t t e r b e f o r e the T r u s t e e s h i p C o u n c i l .
T h i s a r r a n g e m e n t w o u l d , i t was s u g g e s t e d ,
give
an a s s u r a n c e t o a l l t h a t t h e f o r m e r I t a l i a n C o l o n i e s
would n o t be d e v e l o p e d to the m i l i t a r y a d v a n t a g e
of
any one n a t i o n .
I t w o u l d be l e f t t o t h e
Security
C o u n c i l to d e t e r m i n e w h e r e , i f n e c e s s a r y , any s t r a t e g i c
b a s e s m i g h t be l o c a t e d .
Mr. B y r n e s had urged t h a t such a p l a n would
g i v e h e a r t to the peoples of the w o r l d , since i t would
show t h a t t h e G r e a t P o w e r s s i n c e r e l y i n t e n d e d t o
give
them a t t h e e a r l i e s t p o s s i b l e o p p o r t u n i t y f r e e d o m t o
determine the t y p e of government under which they
wished to l i v e .
M r . B y r n e s ' p r o p o s a l w a s o f c o u r s e an a t t r a c t i v e
one f r o m the p o i n t o f v i e w of p u b l i c o p i n i o n ;
and,
r e a l i s i n g t h e impo.rtar.ice a t t a c h e d b y t h e C h i e f s o f
Gtaff
with their r e s p o n s i b i l i t y for defending Egypt,
and f o r the p o s i t i o n t h e r e , t o s e c u r i n g our p o s i t i o n
i n C y r e n a i c a , h e , the F o r e i g n S e c r e t a r y , had thought
i t w i s e r t o p l a y f o r t i m e and a v o i d t a x i n g
too
d e f i n i t e a l i n e on i t f o r t h e m o m e n t .
He h a d
a c c o r d i n g l y p o i n t e d out that t h e U n i t e d S t a t e s
memorandum r e f e r r e d t o L i b y a ;
but that L i b y a in f a c t
c o m p r i s e d two t e r r i t o r i e s - C y r e n a i c a and T r i p o l i t a n i a ,
a n d h a d a s h e d w h e t h e r t h e s e t e r r i t o r i e s c o u l d be n a m e d
separately?
To t h i s Mr. B y r n e s had a g r e e d .
5
He ( t h e F o r e i g n S e c r e t a r y ) h a d t h e n e n q u i r e d
whether, i f t h i s matter were r e m i t t e d f o r examination ­
t o the D e p u t i e s , ' i t c o u l d be u n d e r s t o o d t h a t the
D e p u t i e s were empowered t o study n o t o n l y the p r o p o s a l s
i n t h e U n i t e d S t a t e s memorandum, b u t a l s o any such
o t h e r p r o p o s a l s a s m i g h t be p u t f o r w a r d by o t h e r S t a t e s
members o f t h e C o u n c i l o r by o t h e r U n i t e d N a t i o n s a t
war w i t h I t a l y ?
He h a d e m p h a s i s e d f u r t h e r t h a t h e
would l i n e the g o v e r n m e n t s of the B r i t i s h Dominions to
be g i v e n an o p p o r t u n i t y o f p u t t i n g t h e i r v i e w s t o
the
D e p u t i e s , and. h e h a d t o u c h e d on t h e f a c t t h a t i t w a s
n o t y e t known w h a t f o r m c o l l e c t i v e
administration
w o u l d t a k e , e . g . w h e t h e r t h e r e w o u l d b e an i n t e r n a t i o n a l
a d m i n i s t r a t i v e s e r v i c e f o r t h i s p u r p o s e , and a s y s t e m
f o r s h a r i n g t h e c o s t s of c o l l e c t i v e
administration.
He h a d a d d e d t h a t t h i s w a s a n e w e x p e r i m e n t w h i c h ,
if
a d o p t e d , we w o u l d t r y t o make w o r k , b u t t h a t H i s
M a j e s t y ' s G o v e r n m e n t w o u l d be p l a c e d i n a g r e a t
d i f f i c u l t y i f t h e y w e r e t o be c o m m i t t e d t o t h i s method
o f t r u s t e e s h i p w i t h o u t the p o s s i b i l i t y of a l t e r i n g
it
i f i t were found unworkable,
1 0
A l o n g d i s c u s s i o n had. f o l l o w e d .
M. M d l o t o v , A - "
w h i l e a g r e e i n g that the p r i n c i p l e of
international
t r u s t e e s h i p m i g h t be a p p l i e d t o t h e I t a l i a n
colonies,
had e x p r e s s e d t h e v i e w t h a t t h e A m e r i c a n scheme
presented d i f f i c u l t i e s ,
a n d hud p r e s s e d v e r y
strongly
t h a t t h i s s h o u l d b e on t h e b a s i s o f i n d i v i d u a l
trustee­
s h i p by a s i n g l e A l l i e d n a t i o n c h o s e n by t h e U n i t e d N a t i o n s a n d t h a t t h e S o v i e t G o v e r n m e n t s h o u l d b e made
r e s p o n s i b l e f o r the t r u s t e e s h i p of T r i p o l i t a n i a .
He
h a d j u s t i f i e d t h i s on t h e g r o u n d s , f i r s t , t h a t R u s s i a
had s u f f e r e d g r e a t l y at the hands of I t a l i a n
troops
f i g h t i n g o n t h e s i d e o f t h e G e r m a n s , and s e c o n d l y ,
that
t h e S o v i e t had w i d e e x p e r i e n c e i n e s t a b l i s h i n g
friendly
r e l a t i o n s between d i f f e r e n t n a t i o n a l i t i e s which they
c o u l d turn t o a d v a n t a g e i n one o f the I t a l i a n
colonies,
i n w h i c h t h e y w o u l d u n d e r t a k e t o use the a u t h o r i t y
g i v e n them by t h e U n i t e d N a t i o n s i n such a w a y as n o t
m e r e l y t o m a i n t a i n but t o enhance the p r e s t i g e o f
the
United Nations.
Mr. B y r n e s had^the re f o r e i n d i c a t e d t h a t i n h i s
v i e w i t was i m p o r t a n t t h a t t h e C o u n c i l b e f o r e
referring
t h i s question to the Deputies should themselves discuss
it,
s i n c e t h e r e w e r e q u e s t i o n s o f p o l i c y t h a t must be
determined before the Deputies could consider
the
details.
He h a d u r g e d t h a t i n p a r t i c u l a r t h e C o u n c i l
should themselves
decide:­
( i )
( i i )
( i i i )
( i v )
( v )
whether the
Italy;
Colonies
were
to
be
taken
from
whether they agreed t h a t the p r i n c i p l e
of
t r u s t e e s h i p s h o u l d be a p p l i e d t o t h e s e
t e r r i t o r i e s - on t h i s t h e F r e n c h h a d
e x p r e s s e d some r e s e r v a t i o n s , b u t t h e
o t h e r Powers a p p e a r e d to a g r e e ;
w h e t h e r , i f t h e r e were t o be a t r u s t e e s h i p
a r r a n g e m e n t , i t c o u l d be l i m i t e d to a
t e n - y e a r p e r i o d ' f o r L i b y a and E r i t r e a ;
w h e t h e r t h e c o l o n i e s w e r e t o be
administered
by p a r t i c u l a r S t a t e s or by i n d i v i d u a l s
s e l e c t e d by the T r u s t e e s h i p C o u n c i l of the
United Nations;
if
t h e c o l o n i e s w e r e t o be a d m i n i s t e r e d b y
i n d i v i d u a l S t a t e s , w h i c h S t a t e s s h o u l d be
r e s p o n s i b l e f o r which c o l o n i e s . -
Mr. B y r n e s had p o i n t e d out f u r t h e r t h a t t h e r e
was no h o p e o f s e c u r i n g r e p a r a t i o n s from t h e s e a r e a s
( i n r e p l y t o w h i c h M. M o l o t o v h a d s a i d t h a t h e h a d n o
such i n t e n t i o n ) , and t h a t t h e r e - w e r e s t r o n g a r g u m e n t s
against their being developed m i l i t a r i l y (in
reply
t o w h i c h M. M o l o t o v s a i d t h a t n o b o d y h a d s u g g e s t e d
u s i n g them f o r m i l i t a r y p u r p o s e s ) .
The F o r e i g n S e c r e t a r y c o n t i n u e d t h a t the
d i s c u s s i o n h a d come b a c k t o t h e q u e s t i o n w h e t h e r we
were going to have i n d i v i d u a l or c o l l e c t i v e
trusteeship.
I t had been . a d j o u r n e d u n t i l t h i s a f t e r n o o n and, w h i l e
he had e m p h a s i s e d t h e i m p o r t a n c e o f o u r i n t e r e s t s , he
had r e f r a i n e d from c o m m i t t i n g h i m s e l f i n any way.
B u t t h e p o i n t t h a t now h a d t o be s e t t l e d , and on w h i c h
he w i s h e d f o r t h e g u i d a n c e o f t h e C a b i n e t , was what
w a s t h e p o s i t i o n o f t h e B r i t i s h C o m m o n w e a l t h i f we
d e c i d e d to have c o l l e c t i v e
t r u s t e e s h i p on t h e m o d e l
p r o p o s e d by M r . B y r n e s , e x c l u d i n g any i n d i v i d u a l
trustee­
ship.
I f he was to t
d e f i n i t e l i n e ( a s he f e l t h e
w o u l d have t o ) he must have a c l e a r l e a d f r o m t h e Cabii6t.
Ill
this
connection
he
wished
to
add
­
( i ) T h a t the C o n f e r e n c e of H.M.
representatives
i n t h e M i d d l e E a s t w h i c h was a t p r e s e n t s i t t i n g i n
t h e F o r e i g n O f f i c e h a d made i t c l e a r t o h i m t h a t t h e y
were n o t a l i t t l e concerned about the p o s i t i o n o f the
Senussl.
We h a d t o d e a l w i t h a n e x t r e m e l y
delicate
p o s i t i o n i n E g y p t , and t h e B e n u a s i , t h o u g h n o more t h a n
a n o m a d i c r u l e r , , p l a y e d , i t now a p p e a r e d , a l a r g e r
p a r t i n t h e E g y p t i a n m e n t a l i t y t h a n we h a d i n t h e p a s t
been i n c l i n e d t o a c c e p t .
T h e r e was t h e r i s k o f a
s t o r m i n E g y p t and t h e M i d d l e E a s t u n l e s s we h a n d l e d
t h i s " w h o l e i s s u e t a c t f u l l y and we m u s t r e m e m b e r t h a t
we h a d n o t o n l y i n t h e J e s t t h e S e n u s s i , b u t i n t h e
E a s t t h e s t i l l more i n t r a c t a b l e p r o b l e m o f P a l e s t i n e
and t h e J e w s .
( i i ) The r e a c t i o n o f our
on t h e p r o j e c t f o r a G r e a t e r
borne in mind.
decision in
S o m a l i a had
this
also
matter
t o be
The C a b i n e t f i r s t c o n s i d e r e d t h e g e n e r a l
a r g u m e n t s f o r a n d i a g a i n s t c o l l e c t i v e t r u s t e e s h i p on t h e
b a s i s p r o p o s e d by Mr. B y r n e s a s a g a i n s t
individual
t r u s t e e s h i p , w i t h p a r t i c u l a r r e f e r e n c e to the case of
Cyrenaica.
The
following
points
were
made:
( a ) Was i t n o t p r e m a t u r e t o t a k e t h i s i s s u e a t
S u r e l y the q u e s t i o n o f
collective
the present
stage?
t r u s t e e s h i p s h o u l d come up i n c o n n e c t i o n w i t h t h e
; ought to r e f u s e to a l l o w
World Organisation?
o u r s e l v e s t o b e r u s h e d., a n d s h o u l d f i r s t s e e t h a t t h e
f r a m e w o r k i n t o w h i c h c o l l e c t i v e t r u s t e e s h i p w a s t o be
fitted"was established.
THE F O R E I G N S E C R E T A R Y ,
w h i l e a c c e p t i n g the f o r c e of t h i s argument,
suggested
t h a t i n d e a l i n g w i t h t h e q u e s t i o n o f t i m i n g we s h o u l d
b e a r i n mind the f e e l i n g which he t h o u g h t he d e t e c t e d
i n t h e m i n d s o f M r . B y r n e s and t h e A m e r i c a n s t h a t
it
was o n l y i f a c o n c l u s i o n c o u l d b e r e a c h e d a t t h i s
moment t h a t C o n g r e s s w e r e l i k e l y t o a c c e p t
obligations
s u c h as t h o s e now i n v i e w .
He t h o u g h t t h e A m e r i c a n
l e a d e r s were trying to reach a settlement while United
S t a t e s p u b l i c o p i n i o n w a s i n a mood f o r o n e .
If
t h e r e was d e l a y , t h a t o p i n i o n m i g h t v e r y w e l l c e a s e
to take a c t i v e i n t e r e s t i n , o r be p r e p a r e d to t a k e a
share i n , the settlement of these problems.
He had.
not t h e r e f o r e thought i t w i s e to urge postponement
u n t i l t h e W o r l d O r g a n i s a t i o n p o s i t i o n was c l e a r e r .
(b) Security.
The C h i e f s o f S t a f f had s t r o n g l y
p r e s s e d t h e i m p o r t a n c e on s t r a t e g i c a l g r o u n d s o f o u r
securing r e s p o n s i b i l i t y for Cyrenaica.
Would i t not
b e b e t t e r t o c o n c e n t r a t e on s e c u r i n g t h i s , e v e n a t t h e
c o s t of g i v i n g R u s s i a a f r e e hand in a s i n g l e n e i g h ­
b o u r i n g t e r r i t o r y such as T r i p o l i t a n i a , r a t h e r than
a c c e p t a system o f c o l l e c t i v e s e c u r i t y which would
e n t i t l e R u s s i a , w h i l e n o t in s o l e c o n t r o l of a n y
sing1e ex-Italian"7fro1onlCJ;
t o h a v e a h a n d , as one o f
t h e U n i t e d N a t i o n s , i n t h e a f f a i r s o f e v e r y o n e o f them?
THE C H I E F S OF S T A F F e x p l a i n e d t h a t t h e i r o b j e c t i n
p r e s s i n g f o r C y r e n a i c a w a s r a t h e r t o d e n y i t to o t h e r
Powers whose presence t h e r e might r e p r e s e n t a p o t e n t i a l
l i a b i l i t y ^ f o r " u s than n e c e s s a r i l y to a c q u i r e i t
for
r .
.;s^
I f t h a t c o u l d be s e c u r e d f o r us o n l y a t
r
the c o s t o f h a v i n g . R u s s i a r e s p o n s i b l e f o r
Tripolitania,
a d i f f e r e n t s i t u a t i o n would a r i s e .
Our p o l i c y w a s s o
f a r as p o s s i b l e , to k e e p any p o t e n t i a l l y h o s t i l e Power
away f r o m t h e s h o r e s o f t h e M e d i t e r r a n e a n , a n d t h e
of Russia, or a Russian base in the Mediterranean
be m o s t u n d e s i r a b l e f r o m t h e s t r a t e g i c a n g l e ,
^ s u g g e s t e d in t h i s c o n n e c t i o n that the a p p l i c a t i o n
y s t e m o f c o l l e c t i v e t r u s t e e s h i p , under which no
i n d i v i d u a l n a t i o n w o u l d be f r e e t o e s t a b l i s h b a s e s ,
w o u l d b e much t h e b e s t s a f e g u a r d a g a i n s t a m b i t i o n s t h a t
m i g h t be s t r a t e g i c a l l y e m b a r r a s s i n g t o u s .
( c ) I t w a s s t r o n g l y u r g e d , ^ n M i n t n e n ha-tarr-,
t h a t we h a d e v e r y t h i n g t o g a i n b y s u p p o r t i n g a p r o p o s a l
such as t h a t p u t f o r w a r d by t h e U i S . G o v e r n m e n t ,
unless
d e c i s i v e o b j e c t i o n s c o u l d be e s t a b l i s h e d , t o i t . .
If
it
w e r e a c c e p t e d i t w o u l d mean t h a t t h e U n i t e d S t a t e s w e r e
committed to p l a y i n g t h e i r p a r t in the a f f a i r s o f t h i s
p a r t o f t h e w o r l d and t o t a k i n g a s h a r e i n r e s p o n s i b i l i t y
for it.
T h e r e m i g h t be a p o s s i b i l i t y o f
their
p r o v i d i n g an A d m i n i s t r a t o r f o r c e r t a i n o f
these
territories.
Not o n l y would t h e y be c a r r y i n g a share
of p o l i t i c a l r e s p o n s i b i l i t y ;
we m i g h t a l s o
reasonably
hope t h a t t h e y would bear a p a r t o f the c o s t .
' ( d ) We m u s t c o n s i d e r a l s o t h e p r o b a b l e a t t i t u d e o f
public opinion generally.
The A m e r i c a n p r o p o s a l w a s
s u p e r f i c i a l l y a v e r y a t t r a c t i v e one from t h a t p o i n t o f
v i e w , w h i l e t h e a r g u m e n t s t h a t c o u l d be u r g e d a g a i n s t
i t w e r e n o t such a s c o u l d a l l o f them v e r y e a s i l y be
stated in ^public.
H a d we n o t made i t c l e a r t o o a t
San F r a n c i s c o t h a t the G r e a t P o w e r s w o u l d n o t s t r u g g l e
f o r ascendancy in the a p p l i c a t i o n o f systems of
collective trusteeship?
We m u s t r u n n o r i s k o f o u r
a t t i t u d e being misunderstood.
—
6. rogs-jQ^sg^^
( e ) THE SECRETARY OF S T A T E FOR DOMINION A F F A I R S
said that the Dominions, w h i l e not o b j e c t i n g t o the
p r i n c i p l e of t r u s t e e s h i p , a t t a c h e d the utmost
importance t o a c l e a r p r i o r u n d e r s t a n d i n g as t o what
They w i s h e d
the f o r m o f such t r u s t e e s h i p was t o b e .
t o s e e what e x a c t l y was i n v o l v e d .
Who, f o r i n s t a n c e ,
would appoint the A d m i n i s t r a t o r s ?
What w o u l d t h e i r
n a t i o n a l i t y , and t h e i r powers be?
The C h a r t e r
c o n t e m p l a t e d two o r t h r e e d i f f e r e n t f o r m s o f
trusteeship.
The D o m i n i o n s w e r e a n x i o u s ,
therefore,
t h a t w h a t e v e r was r e f e r r e d t o t h e D e p u t i e s s h o u l d be
r e f ^ r r c j d ^ a s an o p e n and n o t a d e c i d e d i s s u e .
that the form of
trusteeship
w h i c h w o u l d , on t h e A m e r i c a n b a s i s , b e r e m i t t e d t o t h e
D e p u t i e s t o e x a m i n e , w o u l d be c o l l e c t i v e , t r u s t e e s h i p ,
a n d t h a t t h e y w o u l d n o t be f r e e t o e x a m i n e a n y o t h e r
form o f
trusteeship.
( f ) THE P A R L I A M E N T A R Y UNDER S E C R E T A R Y . O F S T A T E
FOR THE COLONIES s a i d t h a t t h e S e c r e t a r y o f S t a t e f o r
the C o l o n i e s f e l t t h a t a v e r y c o m p l i c a t e d form o f
t r u s t e e s h i p was i n v o l v e d .
International
administration
i n t e r r i t o r i e s u n d e r t h e s u p e r v i s i o n o f an i n t e r ­
n a t i o n a l b o d y w i t h no fund o f e x p e r i e n c e t o draw on
and i n e x p e r i e n c e d i n the t e c h n i q u e o f
administration
w a s l i k e l y t o be v e r y
difficult.
n
Eritrea
Somalia
The C a b i n e t n e x t c o n s i d e r e d t h e r e a c t i o n s o f t h e
p r o p o s a l s now u n d e r d i s c u s s i o n o n t h e p r o p o s a l s f o r a
G r e a t e r S o m a l i a and the d i s p o s a l o f the I t a l i a n
colonies
i n E r i t r e a and e l s e w h e r e i n E a s t A f r i c a .
Under the
A m e r i c a n scheme E r i t r e a w o u l d be a c c o r d e d t h e same
t r e a t m e n t as L i b y a , though t h e r e w o u l d be a t e r r i t o r i a l
concession to E t h i o p i a which would g i v e E t h i o p i a
access
t o the s e a t h r o u g h t h e p o r t of A s s a b .
I n the case of
I t a l i a n Somaliland t h e r e would be a s i m i l a r
trusteeship
a r r a n g e m e n t , but w i t h o u t any f i x e d d a t e f o r
independence.
THE P R I M E M I N I S T E R e n q u i r e d w h e t h e r i t w a s
necessary to deal w i t h a l l the e x - I t a l i a n
colonies
on p r e c i s e l y t h e s a m e b a s i s ?
Need a d e c i s i o n in favour
of c o l l e c t i v e t r u s t e e s h i p f o r a l l r u l e out
e.g.
c o n s i d e r a t i o n of a p r o j e c t f o r a G r e a t Somalia?
The f o l l o w i n g
connection:­
points
were
made
in
this
( a ) A G r e a t e r S o m a l i a c o u l d n o t e a s i l y be
e s t a b l i s h e d w i t h o u t the i n c l u s i o n of B r i t i s h Somaliland.
W h i l e there were arguments f o r such i n c l u s i o n ,
the
p o l i c y to. w h i c h t h e l a t e G o v e r n m e n t , w i t h t h e a p p r o v a l
o f t h e H o u s e o f Commons, h a d b e e n w o r k i n g , h a d b e e n
t h a t s u b j e c t p o s s i b l y t o m i n o r r e c t i f i c a t i o n s we s h o u l d
n e i t h e r a c q u i r e nor s u r r e n d e r any t e r r i t o r y as p a r t
o f the' p e a c e s e t t l e m e n t .
While that p o l i c y had not
b e e n f o r m a l l y r e a f f i r m e d by t h e p r e s e n t G o v e r n m e n t ,
i t s t o o d £it t h e moment on r e c o r d .
( b ) B r i t i s h S o m a l i l a n d w a s n o t an I t a l i a n
colony
and d i d n o t f a l l
t o be d i s p o s e d o f c o n s e q u e n t on t h e
terms o f the peace t r e a t y .
T h e S o m a l i s c o u l d m a k e up
t h e i r own m i n d s w h e t h e r t o s t a y w i t h u s o r
(assuming
t h a t we c o u l d s a f e g u a r d a r r a n g e m e n t s f o r f e e d i n g
them)
to become p a r t o f a l a r g e r t e r r i t o r i a l
unit.
:
^JJL -^JJLAXS^TI
M
J^*****J*J^'
:
( c ) THE C H I E F S OF S T A F F s a i d t h a t S o m a l i l a n d w a s
I t w a s on
o f gWrfMfc i m p o r t a n c e i n t e r m s ' o f s e c u r i t y .
the l o n g sea r o u t e to t h e Middle East i f the M e d i t e r ­
r a n e a n w e r e o u t o f o u r c o n t r o l , and i t was a l s o on t h e
s h o r t s e a r o u t e t o I n d i a , - A u s t r a l i a and the F a r E a s t
v i a t h e Red S e a .
An u n f r i e n d l y
administration
i n s t a l l e d i n i t m i g h t be v e r y e m b a r r a s s i n g t o u s .
The
p o i n t w a s made i n t h i s c o n n e c t i o n t h a t t h e c o n c e p t i o n
o f t r u s t e e s h i p w a s t r u s t e e s h i p u n d e r t h e United N a t i o n s
o r g a n i s a t i o n ; t h a t t h a t o r g a n i s a t i o n was f o r
collective
s e c u r i t y and t h a t m i l i t a r y b a s e s e t c . w o u l d f a l l
to^be s e t t l e d o n t h e adviceT^of the U n i t e d
Nations/fflVihvfiTsgj? S f e ^ and. n o t i n t e r m s o f t h e i n t e r e s t o f a p a r t i c u l a r country.
-
-I
( d ) I n t h e c a s e o f B r i t i s h S o m a l i l a n d we w e r e
c o m m i t t e d by r e p e a t e d p l e d g e s g i v e n i n the House o f
Commons, t h a t t h e r e s h o u l d b e n o t r a n s f e r o f
this'
t e r r i t o r y save' a f t e r c o n s u l t a t i o n w i t h i t s
people.
THE F O R E I G N SECRETARY p o i n t e d o u t t h a t n o
q u e s t i o n of the t r a n s f e r o f B r i t i s h S o m a l i l a n d a r o s e .
W o u l d i t be w e l l t h a t h e s h o u l d t a k e t h e l i n e t h a t
in
r e s p e c t o f the Somali areas the Cabinet had worked out
a plan intended to g i v e a b e t t e r economic u n i t ,
in
-which t h e p e o p l e c o u l d g r a z e a n d l i v e u n d e r c o n d i t i o n s
i
'X*
j
n o t a t t h e moment p o s s i b l e ;
and t h a t i n c o n s i d e r a t i o n
o f t h i s a r r a n g e m e n t h e w o u l d be p r e p a r e d t o a l l o w t h e
p o s i t i o n o f / B r i t i s h S o m a l i land- t o be c o n s i d e r e d b y
the Deputies'?
* He w o u l d c o m m i t h i m s e l f t o n o t h i n g
b e y o n d e x a m i n a t i o n and i t w o u l d o f c o u r s e be f o r t h e
C h i e f s o f S t a f f t o a d v i s e on t h e s t r a t e g i c a l
aspect.
He c o u l d , on t h e o t h e r h a n d , p l a y f o r t i m e o v e r t h e
w h o l e q u e s t i o n o f S o m a l i a and c o u l d i n a c c e p t i n g ,
if
t h a t was the s e n s e o f t h e C a b i n e t , Mr. B y r n e s ' s scheme
f o r c o l l e c t i v e s e c u r i t y , s a y t h a t t h e r e m i g h t be
t e r r i t o r i a l c o n s i d e r a t i o n s which governments might l i k e
to put to the D e p u t i e s ?
I f the m a t t e r went t o
the
D e p u t i e s on t h i s b a s i s t h a t w o u l d p r o v i d e an o p p o r t u n i t y
f o r t h e D o m i n i o n s and I n d i a t o come i n and h a v e t h e i r
views heard.
A f t e r f u r t h e r d i s c u s s i o n , THE P R I M E M I N I S T E R
s a i d t h a t the g e n e r a l s e n s e o f t h e C a b i n e t was c l e a r l y
t h a t on a b a l a n c e o f c o n s i d e r a t i o n s t h e a d v a n t a g e
r e s t e d w i t h s u p p o r t i n g the scheme p u t f o r w a r d by
M r . B y r n e s f o r c o l l e c t i v e t r u s t e e s h i p and was a g a i n s t
the a l l o c a t i o n o f r e s p o n s i b i l i t y f o r t r u s t e e s h i p to
individual separate States.
Our a s s u m p t i o n w a s o f
c o u r s e t h a t i f we s u p p o r t e d t h e U n i t e d S t a t e s p l a n , a n d
i t was a c c e p t e d , t h e U n i t e d S t a t e s w o u l d p l a y i t s p a r t .
T h a t was v i t a l .
E q u a l l y we s h o u l d h a v e t o t a k e f u l l
a c c o u n t o f t h e g u a r a n t e e s w h i c h we h a d g i v e n t o t h e
S e n u s s i as r e g a r d s a s s o c i a t i n g him w i t h the administration
and t h e h o n o u r i n g o f o u r p l e d g e s , t h e r e t u r n o f
I t a l i a n a d m i n i s t r a t i o n , and most f u l l y honour o u r
p l e d g e s to him.
S u b j e c t t o t h i s , and t o t h e p o i n t s
r a i s e d i n t h e d i s c u s s i o n , he s u g g e s t e d t h a t t h e F o r e i g n
S e c r e t a r y s h o u l d , be a u t h o r i s e d t o s u p p o r t t h e p r o p o s a l
t h a t Mr. B y r n e s ' p l a n f o r c o l l e c t i v e
trusteeship
s h o u l d be r e m i t t e d f o r e x a m i n a t i o n t o the D e p u t i e s .
The C a b i n e t
-
Agreed w i t h the Prime M i n i s t e r ' s
s u g g e s t i o n a t ' X , and i n v i t e d t h e
S e c r e t a r y of State f o r F o r e i g n
Affairs
to proceed accordingly.
S
Cabinet
Office,
S.W.1.
THIS DOCUMENT IS THE PROPERTY OP HIS BRITANNIC MAJESTY'S GOVERNMENT
The circulation of this paper has been strictly limited.
It is issued for the personal use
TOP SECRET
of....^..."....lQ.Q^^
-
.'
Copy
l\lo,...l...
CM. (U-5) 55TH C O N C L U S I O N S , MINUTE 1
Confidential
(25th S e p t e m b e r ,
hOuNGIL OF
FOREIGN
IfllNISTERS
(Previous
Reference:
C M . (U5) 32nd
Gonclus i o n s )
; nnex
t
191+5 - 2.A/5 p . m . )
THE SECRETARY OF STATE FOR FOREIGN A F F A I R S s a i d
that he had f e l t i t r i g h t t o c o n s u l t h i s c o l l e a g u e s
w i t h regard t o the p o s i t i o n which had a r i s e n a t the
Council of
Foreign Ministers.
He w o u l d e x p l a i n
first
t h e d i s a g r e e m e n t on p r o c e d u r e w h i c h h a d a r i s e n .
When t h e
c o n f e r nee had begun i t h a d been
a r r a n g e d t h a t the r e p r e s e n t a t i v e s o f France and China
should a t t e n d a l l t h e n e e t i n g s and t h i s arrangement had
I n c o n n e c t i o n "with t h e
sittings.
h e l d f o r some f i f t e e n
d i s c u s s i o n o f t h e Pe ice T r e a t i e s w i t h B u l g a r i a and
basing
Roumania,
h o w e v e r , t ie S o v i e t D e l e g a t i o n ,
t h e m s e l v e s on idie t e r m s o f t h e P r o t o c o l o f t h e B e r l i n
Conferences
had t a k n t h e v i e w t h a t F r a n c e a n d China
s h o u l d be e x c l u d e d f r o m t h e d i s c u s s i o n s .
"While t h e
actual terms of the P r o t o c o l s t r i c t l y
interpreted,
l e n t some s u p p o r t t o t h e S o v i e t v i e w , h e f e l t n o d o u b t
t h a t t h e i n t e n t i o n had b e e n t h a t a l l members o f t h e
Council would take p a r t i n a l l i t s d e l i b e r a t i o n s .
Both the U n i t e d S t a t e s and the U n i t e d Kingdom D e l e g a t i o n s
were opposed to t h e e x c l u s i o n o f France and China.
i t w a s c l e a r t h a t a n y such e x c l u s i o n w o u l d
Moreover,
be e n t i r e l y u n a c c e p t a b l e t o F r a n c e a n d t h a t i f i t w e r e
p e r s i s t e d i n the French D e l e g a t i o n would be w i t h d r a w n .
Stalin
The P r i m e M i n i s t e r had c o m m u n i c a t e d w i t h P r e m i e r
taxen
but t h e r e p l y r e c e i v e d showed t h a t t h e a t t i t u d e
by t h e S o v i e t D e l e g a t i o n w a s f u l l y s u p p o r t e d b y
Premier Stalin.
T h i s d i s a g r e e m e n t on p r o c e d u r e w a s ,
of c o u r s e , only the outward m a n i f e s t a t i o n of the
f u n d a m e n t a l d i s a g r e e m e n t s on p r i n c i p l e w h i c h h a d a r i s e n
obviously
w i t h t h e S o v i e t D e l e g a t i o n , who w e r e
affect
determined t o oppose any p r o p o s a l s which might
zone
the t e r r i t o r i e s w i t h i n what they regarded, a s t h e i r
F o r t h i s reason i t had been found
of influence.
constructive
i m p o s s i b l e t o make a n y p r o g r e s s w i t h
p r o p o s a l s f o r the r e h a b i l i t a t i o n of Europe, such a s
the p r o v i s i o n o f food s u p p l i e s f o r A u s t r i a or t h e
control o f inland waterways.
M o r e o v e r , we w e r e
faced
w i t h i n c r e a s i n g h o s t i l i t y and d i s t r u s t between t h e
U n i t e d S t a t e s a n d S o v i e t D e l e g a t i o n s , e a c h o f whom
s o u g h t t o s t r e n g t h e n i t s own p o s i t i o n w i t h o u t r e g a r d t o
our p o i n t o f v i e w .
He h a d a l o n g p r i v a t e t a l k w i t h
M. M o l o t o v o n S u n d a y i n t h e h o p e o f b r i n g i n g h i m r o u n d
t o a more r e a s o n a b l e f r a m e o f m i n d , b u t h a d come t o t h e
conclusion
t h a t t h e r e was l i t t l e o r no h o p e o f making
f u r t h e r p r o g r e s s a t t h e p r e s e n t C o n f e r e n c e and t h a t t h e
r i g h t c o u r s e was t o a d j o u r n .
I n d i s c u s s i o n t h e r e was g e n e r a l a g r e e m e n t t h a t gfdp,
we s h o u l d n o t y i e l d t o t h e S o v i e t d e m a n d f o r
the
e x c l u s i o n o f P r a n c e and C h i n a , and- t h a t n o t h i n g w o u l d
be g a i n e d by p r o l o n g i n g t h e p r e s e n t C o n f e x e n c e .
The
s u g g e s t i o n was a l s o made t h a t i t w o u l d be d e s i r a b l e
to
t r a n s f e r d i s c u s s i o n of the outstanding q u e s t i o n s t o a
c o n f e r e n c e on a w i d e r b a s i s , i n w h i c h a l l t h e U n i t e d
N a t i o n s , i n c l u d i n g the Dominions, could take p a r t .
T h e i n c l u s i o n o f t h e D o m i n i o n s w o u l d , among o t h e r
t h i n g s , s t r e n g t h e n our p o s i t i o n v i s - a - v i s the U n i t e d
S t a t e s and t h e d i s c u s s i o n o f t h e m a t t e r s a t i s s u e a t
a w i d e r c o n f e r e n c e would enable the f o r c e of world
o p i n i o n t o be b r o u g h t to b e a r m o r e e f f e c t i v e l y on t h e
Russian a t t i t u d e .
On t h e o t h e r h a n d , i t w a s p o i n t e d
out t h a t t h e r e was a d a n g e r t h a t a w i d e r
conference
would r e s u l t i n the a l i g n m e n t o f most o f t h e
smaller
Powers in s u p p o r t of R u s s i a o r the U n i t e d S t a t e s .
We s h o u l d , o f c o u r s e , s e e k t h e s u p p o r t o f o t h e r n a t i o n s
b y m a k i n g c l e a r o u r d e t e r m i n a t i o n t o s t a n d f o r an
i n t e r n a t i o n a l s e t t l e m e n t by open d i s c u s s i o n , but c a r e
w o u l d h a v e t o be t a k e n to a v o i d any a c t i o n w h i c h m i g h t
b r i n g us u n d e r t h e s u s p i c i o n o f a t t e m p t i n g t o s e t up
a Western B l o c .
,
With r e g a r d to the adjournment of t h e p r e s e n t
C o n f e r e n c e , i t w a s f e l t t h a t i t m i g h t be u n d e s i r a b l e
t o b r e a k on t h e n a r r o w i s s u e o f t h e p r o p o s a l t o e x c l u d e
P r a n c e a n d C h i n a f r o m t h e d i s c u s s i o n s on t h e P e a c e
T r e a t i e s w i t h B u l g a r i a a n d Rpumania and t h a t i t
would
be p r e f e r a b l e t o t a k e t h e l i n e t h a t , s i n c e i t h a d
become a p p a r e n t t h a t , b e c a u s e o f t h e l a c k o f time
for
the n e c e s s a r y p r e l i m i n a r y w o r k , the i n t e r e s t s of
the
p e o p l e s concerned i n the peace s e t t l e m e n t w e r e not
b e i n g a d e q u a t e l y s a f e g u a r d e d , i t had b e e n d e c i d e d t o
a d j o u r n t h e C o n f e r e n c e i n o r d e r t o g i v e more time f o r
t h e p r e l i m i n a r y w o r k t o b e d o n e , and t o e n a b l e
the
G o v e r n m e n t s c o n c e r n e d to e x p l o r e what w o u l d be the b e s t
p r o c e d u r e f o r c a r r y i n g on t h e w o r k o f p r e p a r i n g t h e
peace s e t t l e m e n t .
We s h o u l d i n a n y e v e n t t a k e a l l
p o s s i b l e s t e p s t o make i t c l e a r t o t h e w o r l d t h a t o u r
d e s i r e was f o r a peace s e t t l e m e n t r e a c h e d by
full
i n t e r n a t i o n a l d i s c u s s i o n a n d t h a t we -were a v e r s e t o
p l a y i n g power p o l i t i c s .
P e r t h i s purpose the F o r e i g n
S e c r e t a r y shoulel h a v e a P r e s s c o n f e r e n c e when t h e
Council of Foreign Ministers
adjourned.
Other
points
in
discussion
were:­
(a)
We s h o u l d make i t c l e a r t o t h e U n i t e d S t a t e s
G o v e r n m e n t t h a t i t w a s i m p o s s i b l e f o r us t o work w i t h
them i f t h e y c o n s t a n t l y t o o k a c t i o n i n t h e
international
s p h e r e , a f f e c t i n g our i n t e r e s t s , w i t h o u t
prior
c o n s u l t a t i o n with us.
( b ) The p o s s i b i l i t y o f g i v i n g p u b l i c i t y to
a t t i t u d e through the w o r l d Trade Union C o n g r e s s
w a s now m e e t i n g i n P a r i s s h o u l d b e c o n s i d e r e d .
our
which
( c ) A t t e n t i o n w a s d r a w n t o an e m b a r r a s s i n g
b r o a d c a s t on t h e s u b j e c t o f t h e C o u n c i l o f F o r e i g n
M i n i s t e r s w h i c h h a d b e e n g i v e n a t 9.15
on t h e p r e v i o u s
evening.
The F o r e i g n S e c r e t a r y u n d e r t o o k t o l o o k i n t o t h e
q u e s t i o n w h e t h e r a n y t h i n g c o u l d be done t o remedy t h e
i m p r e s s i o n which had been c r e a t e d by t h i s b r o a d c a s t ,
and,
i n p a r t i c u l a r , t o c o n s i d e r w h e t h e r some g u i d a n c e c o u l d - ­
n o t be g i v e n t o t h e B . B . C . w i t h - r e g a r d t o t h e
further
b r o a d c a s t on t h e same s u b j e c t w h i c h was d u e t o b e m a d e
in the f o l l o w i n g week.
ablnet
Of f i e e l
S.W.1.