(c) crown copyright
Catalogue Reference:CAB/65/7/39
Image Reference:0001
T H I S DOCUMENT IS T H E P R O P E R T Y OF H I S BRITANNIC MAJESTY'S GOVERNMENT
Printed
for the War Cabinet.
May 1940.
SECRET.
Copy N o .
43
W . M . (40)
444th Conclusions.
TO
B E
K E P T
UNDER
LOCK
A N D
KEY.
It is requested that special care may be taken to
ensure the secrecy of this document.
W A R
CONCLUSIONS
CABINET
144 (40).
of a Meeting of the War Cabinet held at 10 Downing
S.W. 1, on Tuesday, May 28, 1940, at 1 1 - 3 0 A.M.
Street,
Present : T h e R i g h t H o n . W I N S T O N S. C H U R C H I L L , M . P . , P r i m e M i n i s t e r (in the
The R i g h t H o n . N E V I L L E CHAMBERLAIN,
M . P . , L o r d P r e s i d e n t of t h e Council.
The R i g h t Hon. VISCOUNT HALIFAX,
S e c r e t a r y of S t a t e for
Foreign
Affairs.
Chair).
T h e R i g h t H o n . C. R . A T T L E E , M . P . ,
L o r d P r i v y Seal.
T h e R i g h t H o n . A . GREENWOOD, M . P . ,
Minister without Portfolio,
6
T h e following w e r e also p r e s e n t :
The R i g h t H o n . A . V . ALEXANDER,
M . P . , F i r s t L o r d of t h e A d m i r a l t y .
The
Right
Hon.
Sir
ARCHIBALD
SINCLAIR,
Bt.,
M.P.,
Secretary
of
S t a t e for A i r .
The R i g h t Hon. ANTHONY EDEN, M.P.,
S e c r e t a r y of S t a t e for W a r .
T h e R i g h t Hon. Sir J O H N ANDERSON,
M . P . , S e c r e t a r y of S t a t e for t h e
H o m e D e p a r t m e n t a n d M i n i s t e r of
Home Security.
T h e R i g h t H o n . V I S C O U N T CALDECOTE,
S e c r e t a r y of S t a t e for D o m i n i o n
Affairs.
T h e R i g h t H o n . A . D U F F COOPER, M . P . ,
The
A i r Chief M a r s h a l S i r C Y R I L L . N .
N E W A L L , Chief of t h e A i r Staff.
Hon.
Sir
ALEXANDER
CADOGAN,
P e r m a n e n t U n d e r - S e c r e t a r y of S t a t e
for F o r e i g n Affairs.
A d m i r a l of t h e F l e e t S i r D U D L E Y
P O U N D , F i r s t Sea L o r d a n d Chief of
N a v a l Staff.
A d m i r a l of t h e F l e e t S i r R O G E R K E Y E S ,
Bt., M . P . (part of Item 1).
M i n i s t e r of I n f o r m a t i o n (Items
G e n e r a l S i r J O H N D I L L , Chief of
Lieutenant-Colonel
G.
M.
O.
3rd T h e K i n g ' s Own Hussars
of Item 1).
EDWARD BRIDGES.
Major-General H . L. ISMAY.
Captain A. D . NICHOLL, R . N .
Lieutenant-Colonel V . DYKES, R . E .
M r . G. N . F L E M M I N G .
[21355A]
the
I m p e r i a l G e n e r a l Staff.
Secretariat.
Sir
1-6).
B
DAVY,
(part
WAR
CABINET
144
(40).
CONTENTS.
Minute
No.
Subject.
Page
1
Belgium
...
Capitulation of the Belgian army.
Position of the B.E.P.
Belgian overseas possessions.
2
The Western Front
Progress of operations.
Arrangements for withdrawal.
Information for the public.
285
3
The A i r Situation
Air fighting on the 27th May.
286
4
Norway
Progress of operations.
286
5
I n v a s i o n of G r e a t B r i t a i n
...
...
...
Possibility of a German invasion from Norway.
6
Italy
Approach by President Roosevelt to Signor Mussolini.
Suggested direct approach to Signor Mussolini.
Possible plan for blocking the Suez Canal.
7
Home Defence
Action to deal with Fifth Column dangers:
Defence (Security) Executive.
8
...
"...
...
...
...
283
287
287
288
proposed
Home
Home Defence
288
Constitution of Home Defence Executive.
9
D i v e r s i o n of S h i p p i n g
...
...
...
...
...
288
10
Naval Construction
Suspension of long-term programme.
289
11
The Press
Power to deal with subversive newspapers.
289
12
Munition and aircraft factories
Protection against air attack.
13
The present situation ...
...
...
...
...
...
Proposed personal message from the Prime Minister to Ministers
of the Crown and High Government officials.
...
...
...
...
290
290
Capitulation of
the Belgian
Army.
(Previous
Reference:
W.M. (40) 143rd
Conclusions.)
Position of the
B.E.F.
1. The
fire a t 0400
Keyes, who
C a b i n e t his
Prime Minister s a i d t h a t t h e B e l g i a n A r m y h a d ceased
hours that morning. H e invited A d m i r a l Sir Roger
h a d j u s t r e t u r n e d from Belgium, to give t h e W a r
a p p r e c i a t i o n of t h e p r e s e n t position.
Sir Roger Keyes said t h a t t h e B e l g i a n A r m y h a d been completely demoralised by incessant b o m b i n g from l a r g e n u m b e r s of
G e r m a n a i r c r a f t . T h e G e r m a n s a p p e a r e d to h a v e m a i n t a i n e d a r i n g
of fighter p a t r o l s r o u n d t h e b a t t l e a r e a and, a l t h o u g h our
fighters
h a d been seen i n m a n y e n g a g e m e n t s w i t h t h e G e r m a n fighters, t h e y
h a d been unable to b r e a k t h r o u g h t h e r i n g in o r d e r t o a t t a c k t h e
G e r m a n bombers, w h i c h h a d circled r o u n d a t low a l t i t u d e s , b o m b i n g
t h e Belgian t r o o p s w i t h i m p u n i t y .
S i r R o g e r Keyes commented on t h e p r e c i p i t a t e flight of t h e
B e l g i a n Government. K i n g Leopold h a d s a i d t h a t h e w i s h e d to h a v e
n o t h i n g more to do w i t h them. I n his (Sir R o g e r Keyes's) view t h e
B e l g i a n G o v e r n m e n t were e n t i r e l y responsible for t h e chaos caused
by the evacuation of the civil p o p u l a t i o n , w h o h a d been told t h a t
a s y l u m would be f o u n d for t h e m in E n g l a n d or F r a n c e . I t h a d
been noticeable t h a t t h e Local A u t h o r i t i e s h a d in most cases been
t h e first to get a w a y .
H e h a d seen L o r d G o r t on t h e 26 th M a y , b u t h a d been unable
to get in touch w i t h him on t h e 27th. L o r d G o r t ' s h e a d q u a r t e r s
h a d been a t Cassel, b u t they h a d l a t e r been shelled out of t h e town.
L o r d Gort, w h o w a s in very good h e a r t , h a d s a i d t h a t a n y a t t a c k
to t h e s o u t h w a r d w a s out of t h e question. A l t h o u g h L o r d G o r t
h a d not said so, S i r R o g e r Keyes d i d not t h i n k t h a t h e r a t e d very
h i g h the chances of e x t r i c a t i n g t h e B . E . F . from t h e i r d a n g e r o u s
situation.
S i r R o g e r Keyes t h o u g h t , however, t h a t i t m i g h t be possible
for the line of t h e Yser to be held to cover t h e r e t i r e m e n t .
There
were i n d i c a t i o n s t h a t B r i t i s h t r o o p s were w i t h i n 10 miles of
N i e u p o r t . T h e flood w a t e r s were r i s i n g r a p i d l y a n d t a n k s would
be unable to move except on the roads. T h e l a t t e r w e r e in good
condition, b u t w e r e c r o w d e d w i t h B e l g i a n g u n s a n d t r a n s p o r t .
R e f e r r i n g to t h e efforts of t h e B r i t i s h G o v e r n m e n t to p e r s u a d e
t h e K i n g of t h e B e l g i a n s to leave t h e c o u n t r y , S i r R o g e r Keyes
expressed t h e view t h a t only the K i n g ' s p e r s o n a l i t y h a d held t h e
B e l g i a n A r m y t o g e t h e r for the last four days. I f t h e K i n g h a d
left when pressed to do so by H i s M a j e s t y ' s G o v e r n m e n t t h r e e
d a y s ago, t h e morale of t h e A r m y w o u l d h a v e cracked at once. H e
asked t h a t he m i g h t be sent back to D u n k i r k where he t h o u g h t t h a t
h i s presence m i g h t be of value in p r e v e n t i n g p a n i c .
The Prime Minister expressed t h e W a r C a b i n e f s w a r m a p p r e ­
c i a t i o n of w h a t S i r R o g e r Keyes h a d done i n such difficult a n d
d a n g e r o u s c i r c u m s t a n c e s . H e d i d n o t t h i n k , however, t h a t S i r
R o g e r Keyes should r e t u r n to B e l g i u m , a t a n y r a t e for t h e moment.
( A t t h i s p o i n t S i r R o g e r Keyes w i t h d r e w . )
The P r i m e Minister said t h a t the K i n g of.the Belgians would
n o w p r e s u m a b l y become t h e p u p p e t of H i t l e r , a n d m i g h t possibly
o b t a i n better t r e a t m e n t for his people t h a n if he h a d left t h e
c o u n t r y a n d c o n t i n u e d to resist from f o r e i g n soil. No doubt h i s t o r y
w o u l d criticise t h e K i n g for h a v i n g involved u s a n d t h e F r e n c h i n
B e l g i u m ' s r u i n . B u t i t w a s not for u s to p a s s j u d g m e n t on h i m .
L a t e r in t h e m e e t i n g Lieut.-Col. D a v y gave the W a r C a b i n e t
f u r t h e r i n f o r m a t i o n on t h e o p e r a t i o n s of t h e B e l g i a n A r m y .
He
h a d left t h e K i n g a n d t h e B e l g i a n A r m y a t 8 P . M . t h e p r e v i o u s
evening. A l l c r e d i t should be given to t h e B e l g i a n s in a n y p u b l i c
a n n o u n c e m e n t s for t h e i r loyal co-operation w i t h the B . E . F . t h r o u g h ­
out t h e r e t i r e m e n t . T h e y h a d m e t all our requests for r e a d j u s t ­
m e n t s of b o u n d a r i e s , movements of r e a r g u a r d s , & c , w i t h o u t d e m u r .
On the line of t h e E s c a u t they h a d successfully c o u n t e r - a t t a c k e d
[ 2 1 3 5 5 A ]
B 2
^ , .
Belgian overseas
possessions.
the G e r m a n b r i d g e h e a d s established across t h e r i v e r . W h e n they
h a d r e a c h e d the line of t h e L y s , they h a d p o i n t e d out t h a t there
w a s n o o t h e r line on w h i c h they could r e t i r e w h i c h h a d an a n t i ­
t a n k obstacle, except the Yser, w h i c h w a s t h r e e d a y s ' m a r c h away.
T h i s w a s too b i g a w i t h d r a w a l to be c a r r i e d o u t successfully.
I t w a s for t h i s reason t h a t they h a d decided to fight i t o u t on the
line of t h e L y s . On t h e first d a y t h e G e r m a n s h a d p u s h e d b r i d g e ­
h e a d s across, b u t most of these h a d been d r i v e n back by the Belgians.
Even w h e n the B e l g i a n s h a d been t h r o w n back five miles behind
the L y s , they h a d a g a i n c o u n t e r - a t t a c k e d . F o r t h e last t h r e e d a y s
they h a d been subjected to incessant low-flying bombing and
m a c h i n e - g u n n i n g . T h e y h a d h a d v i r t u a l l y no a i r s u p p o r t of t h e i r
own, a n d t h e B r i t i s h fighters h a d been u n a b l e to get t h r o u g h to
them a s they h a d h a d to e x p e n d all t h e i r a m m u n i t i o n d e a l i n g w u h
the G e r m a n a i r c r a f t f u r t h e r to the s e a w a r d . I n one c o u n t e r - a t t a c k ,
w h i c h h a d been staged by t h e B e l g i a n s a f t e r a n h o u r s a r t i l l e r y
b o m b a r d m e n t n o r t h - w e s t of G h e n t , t h e whole of t h e a r t i l l e r y h a d
been destroyed by dive-bombers about half a n h o u r a f t e r the
b o m b a r d m e n t h a d begun. A B e l g i a n b a t t a l i o n w h i c h h a d been sent
down to t r y a n d fill the g a p between the B e l g i a n s a n d t h e B r i t i s h
to the e a s t of Y p r e s , h a d been w i p e d out by a w a v e of 60 enemy
bombers.
T h e K i n g h a d done all he could, ever since i t h a d become
a p p a r e n t t h a t t h e B r i t i s h E x p e d i t i o n a r y Force m i g h t h a v e to fall
back on t h e p o r t s , to s u p p o r t its w i t h d r a w a l . H i s a r t i l l e r y h a d
been o r d e r e d to r e m a i n a t t h e i r g u n s u n t i l t h e G e r m a n s reached
them, a n d then to d e s t r o y them. T h e B e l g i a n losses h a d probably
been very heavy indeed. T h e y h a d inflicted heavy losses on the
G e r m a n i n f a n t r y , b u t t h r o u g h lack of a i r c r a f t h a d been able t o do
very l i t t l e a g a i n s t the G e r m a n g u n s or a i r c r a f t .
T h e P r i m e M i n i s t e r t h a n k e d L i e u t . - C o l . D a v y for the
i n f o r m a t i o n h e h a d given.
( A t t h i s p o i n t Lieut.-Col. D a v y w i t h d r e w . )
T h e P r i m e M i n i s t e r t h e n read to the W a r C a b i n e t t h e t e r m s
of t h e a r m i s t i c e w h i c h the B e l g i a n s h a d a g r e e d w i t h the enemy,
as follows :—
(1) A l l B e l g i a n t r o o p movements f o r b i d d e n . B e l g i a n t r o o p s
m u s t line u p on t h e side of the r o a d to a w a i t orders.
They m u s t m a k e k n o w n t h e i r presence by m e a n s of w h i t e
signs, flags, &c.
(2) O r d e r s m u s t be given f o r b i d d i n g d e s t r u c t i o n of w a r m a t e r i a l
a n d stores.
(3) Geimian t r o o p s m u s t be allowed to proceed t o t h e coast.
(4) F r e e p a s s a g e to O s t e n d is d e m a n d e d a n d no d e s t r u c t i o n
permitted.
(5) A l l r e s i s t a n c e will be overcome.
'
The Secretary
of State for Foreign Affairs
said t h a t h e h a d
h a d a v i s i t from the B e l g i a n A m b a s s a d o r , w h o h a d r e p e a t e d the
s t a t e m e n t b r o a d c a s t by the B e l g i a n P r i m e M i n i s t e r t h a t the B e l g i a n
G o v e r n m e n t dissociated themselves e n t i r e l y f r o m the action t a k e n
by K i n g Leopold. T h e y w e r e the only legal c o n s t i t u t i o n a l Govern­
m e n t of B e l g i u m a n d they w o u l d c o n t i n u e t h e s t r u g g l e . H e proposed
to u r g e the B e l g i a n A m b a s s a d o r to e n s u r e t h a t i m m e d i a t e tele­
g r a m s w e r e sent to B e l g i a n overseas possessions to i n f o r m them
t h a t their Government had not surrendered.
The W a r Cabinet : ­
(1) Took note of the above discussion.
(2) 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 for F o r e i g n Affairs to e n s u r e
t h a t the G o v e r n m e n t s of B e l g i a n overseas possessions
w e r e i n f o r m e d w i t h o u t delay t h a t t h e B e l g i a n Govern­
m e n t h a d not s u r r e n d e r e d .
1 oo
I 03
The Western
Front.
2. The Chief of the Imperial
General Staff s a i d t h a t t h e
G e r m a n s were e v i d e n t l y p u s h i n g in two m a i n forces, one t h r o u g h
t h e B e l g i a n s a n d t h e other across the canal i n t h e H a z e b r o u c k a r e a .
Progress of
T h e l a t t e r w a s believed to consist of 5 to 8 a r m o u r e d divisions,
operations.
s u p p o r t e d by m o t o r divisions. A t t h e bottom of t h e pocket t h e r e
(Previous
w a s l i t t l e p r e s s u r e by t h e G e r m a n s , a n d t h e w i t h d r a w a l t h e r e w a s
Reference:
W.M. (40) 143rd being covered by small r e a r g u a r d s only. T h e 4 B r i t i s h divisions i n
t h e old fortifications w o u l d probably fall back to t h e line of t h e L y s
Conclusions.)
t h a t n i g h t . W e d i d n o t k n o w w h a t t h e s t a t e of t h e r o a d s w a s in
t h a t area, b u t t h e y were probably e x t r e m e l y congested. T h e t o t a l
n u m b e r of men i n the a r e a encircled by t h e G e r m a n s w a s p r o b a b l y
a b o u t 200,000. T h e r e w e r e a n o t h e r 160,000 in F r a n c e not e n g a g e d
in t h e o p e r a t i o n s i n t h e n o r t h .
Arrangements
The First Sea Lord s a i d t h a t t h e V i c e - A d m i r a l , Dover, h a d
for withdrawal. r e p o r t e d a t 11 A.M. t h a t 11,400 men h a d a r r i v e d t h e previous n i g h t
a n d 2,500 more w e r e i n p a s s a g e across t h e Channel. T h e r e w e r e
5 d e s t r o y e r s alongside a t D u n k i r k , each of w h i c h w a s t a k i n g on
a b o u t 1,000 men. Considerable n u m b e r s of troops were a r r i v i n g
back a t D u n k i r k .
A l a t e r message from C a p t a i n T e n n a n t a t D u n k i r k r e p o r t e d
t h a t t h e r e w e r e 2,000 t r o o p s on the beaches a n d 7,000 a m o n g t h e
s a n d dunes. A l l these were very b a d l y in need of w a t e r , w h i c h
t h e A r m y could n o t s u p p l y . V i c e - A d m i r a l , Dover, h a d i n f o r m e d
h i m t h a t a m a x i m u m effort would be m a d e t h a t n i g h t to send in
flat bottomed b o a t s to t a k e these men off t h e beaches. E m b a r k a ­
t i o n by t h i s m e a n s w a s impossible by d a y o w i n g to m a c h i n e - g u n
fire.
Destroyers, however, would be t a k i n g m e n off the q u a y s
t h r o u g h o u t the d a y . P r a c t i c a l l y all t h e m e n a r r i v i n g a t D u n k i r k
h a d t h e i r e q u i p m e n t w i t h them, a n d most of t h e m h a d their rifles.
M a n y also c a r r i e d t h e i r B r e n g u n s .
A message h a d been received t h a t S.S. Aboukir,
w h i c h h a d left
O s t e n d on the n i g h t of t h e 27th M a y w i t h about 1,000 men on
b o a r d , i n c l u d i n g t h e B r i t i s h Missions to t h e B e l g i a n s , h a d been
torpedoed, probably by a m o t o r torpedo boat, in t h e early h o u r s of
t h a t m o r n i n g . T h i r t y - t h r e e survivors h a d been p i c k e d u p .
S.S. Queen of the Channel,
t r a n s p o r t i n g troops, h a d been
bombed a n d w a s in a s i n k i n g condition, b u t it w a s believed t h a t t h e
s u r v i v o r s h a d been t a k e n off.
D u n k i r k itself w a s covered w i t h a p a l l of smoke, a n d ViceA d m i r a l , Dover, h a d been i n s t r u c t e d to use smoke from s h i p s to
a d d to t h i s if needed.
The Secretary of State for War s a i d t h a t t h e t r o o p s e v a c u a t e d
from F r a n c e w e r e being despatched a t once from the p o r t s of
d i s e m b a r k a t i o n to S a l i s b u r y P l a i n a n d A l d e r s h o t C o m m a n d . T h e y
w o u l d be a t t a c h e d to p a r e n t u n i t s in these places, w h o would r a t i o n
t h e m a n d look a f t e r them.
The Chief of the Air Staff said t h a t he h a d o r d e r e d c o n t i n u o u s
fighter p a t r o l s i n s t r e n g t h d u r i n g d a y l i g h t h o u r s over D u n k i r k
a n d t h e beaches t h r e e miles on either side of t h e town. T h e o t h e r
t a s k s allotted to F i g h t e r C o m m a n d w e r e t h e p r o t e c t i o n of our. o w n
bomber sorties a n d p a t r o l s over the B . E . F . a r e a .
The Minister
of Information
r e a d to the W a r C a b i n e t a
Information for
message he h a d j u s t received from S i r W a l t e r M o n c k t o n p r e s s i n g
the public.
for a f r a n k s t a t e m e n t of t h e d e s p e r a t e s i t u a t i o n of t h e B r i t i s h
E x p e d i t i o n a r y Force. H e feared t h a t , unless t h i s w a s given out,
p u b l i c confidence w o u l d be badly s h a k e n a n d t h e civil p o p u l a t i o n
w o u l d n o t be r e a d y to accept t h e a s s u r a n c e s of t h e G o v e r n m e n t of
t h e chances of o u r u l t i m a t e victory. T h e M i n i s t e r suggested t h a t
he should m a k e a s h o r t s t a t e m e n t in t h e 1 o'clock news of t h e
B.B.C.
The Prime Minister
s a i d t h a t he w o u l d also m a k e a s t a t e m e n t
i n t h e H o u s e of Commons in the a f t e r n o o n to t h e effect t h a t t h e
B 3
[21355A]
B r i t i s h E x p e d i t i o n a r y F o r c e w a s fighting i t s w a y back to the coast
u n d e r the p r o t e c t i o n of the R o y a l A i r Force, a n d t h a t t h e N a v y
w a s e m b a r k i n g t h e troops. I t would be idle to t r y to forecast t h e
success of t h i s o p e r a t i o n a t t h i s stage.
L a t e r in the m e e t i n g the Minister
of Information
t h e t e r m s of the b r o a d c a s t w h i c h he proposed to m a k e .
read out
The W a r C a b i n e t ­
(i) A p p r o v e d t h e t e r m s of the b r o a d c a s t by the M i n i s t e r of
Information.
(ii) I n v i t e d t h e P r i m e M i n i s t e r to m a k e a s t a t e m e n t i n t h e
H o u s e of Commons t h a t a f t e r n o o n .
3. The Chief of the Air Staff s a i d t h a t 50 G e r m a n a i r c r a f t ,
confirmed, h a d been destroyed t h e p r e v i o u s d a y i n c l u d i n g 20 bombers,
a n d 29, i n c l u d i n g 10 bombers, unconfirmed. W e h a d lost 14 fighters,
(Previous
b u t i n a d d i t i o n 40 to 50 fighters h a d been r e n d e r e d t e m p o r a r i l y
Reference:
W.M. (40) 141st unserviceable. A t o t a l of 81 fighters would probably be p u t i n t o
service t h a t d a y from n e w p r o d u c t i o n a n d r e p a i r . L a r g e n u m b e r s
Conclusions,
of enemy a i r c r a f t h a d almost c e r t a i n l y been r e n d e r e d unserviceable
Minute 2.)
a s a r e s u l t of combats. These h a d n o t been included in t h e figures
Air fighting on for t h e enemy losses w h i c h he h a d given.
the 27th May.
T h e Chief of t h e A i r Staff said t h a t he h a d issued a special
order to all C o m m a n d e r s - i n - C h i e f on the p r e v i o u s d a y e m p h a s i s i n g
the need for exceptional efforts to s u p p o r t t h e B . E . F . a n d t h e n a v a l
forces c a r r y i n g o u t t h e evacuation. H e h a d also o r d e r e d t h e A i r
Officer Command ing-in-Chief, F i g h t e r C o m m a n d , to m a i n t a i n
continuous p a t r o l s in s t r e n g t h over D u n k i r k a n d t h e beaches t h r e e
miles east a n d west of i t ; to provi de escorts for bomber sorties, a n d
s u p p o r t to the B . E . F . itself. H e h a d j u s t received a message from
the Vice-Chief of t h e A i r Staff who r e p o r t e d t h a t the A i r Officer
C o m m a n d i n g - i n - C h i e f w a s deeply concerned a t t h e effect of t h i s
o r d e r on t h e a i r defence of G r e a t B r i t a i n . O u r fighter defences
were almost a t c r a c k i n g p o i n t . I f t h i s exceptional effort h a d to
be r e p e a t e d over D u n k i r k on t h e following day, t h e s i t u a t i o n w o u l d
be serious. T h e Chief of t h e A i r Staff said t h a t he could not accept
the s t a t e m e n t t h a t our fighter defences were a t c r a c k i n g point, b u t
he t h o u g h t it only r i g h t to b r i n g t o t h e notice of the W a r C a b i n e t
the view of the A i r Officer C o m m a n d i n g - i n - C h i e f .
The Air
Situation.
The Prime Minister
observed t h a t t h e enemy m i g h t p e r h a p s
t a k e a d v a n t a g e of t h e s i t u a t i o n to send i n a heavy a t t a c k a g a i n s t
the U n i t e d K i n g d o m . O u r fighter defences m i g h t h a v e to be r e ­
disposed to meet it, b u t no cloubt t h e enemy w a s fully e x t e n d e d like
ourselves.
T h e War. C a b i n e t took note of the above s t a t e m e n t .
4. The Chief of the Air Staff s a i d t h a t t h e H u r r i c a n e s h a d
flown
off H . M . S . Glorious.
The G l a d i a t o r s h a d shot d o w n some
Progress of
4-engined
bombers.
A
r
e
p
o
r
t
h a d been received t h a t t h e r e w a s some
operations.
s h o r t a g e of a m m u n i t i o n for our a i r c r a f t , a n d H . M . S . Glorious h a d
(Previous
t u r n e d back to l a n d some. T h e r e were 42 tons of a m m u n i t i o n a t
Reference:
N a r v i k , b u t i t w a s possible, of course, t h a t some of t h i s h a d been
W.M. (40) 141st destroyed by enemy action.
Norway.
Conclusions,
Minute 3.)
Invasion of
Great Britain.
Possibility of a
German invasion
from Norway.
5. The Lord President
of the Council d r e w a t t e n t i o n to the
v a r i o u s i n d i c a t i o n s recently t h a t a G e r m a n move from N o r w a y w a s
i m p e n d i n g . T h e r e h a d been r e p o r t s of t r o o p movements from east
to west i n S o u t h e r n N o r w a y , a n d n e u t r a l missions in B e r l i n a n d Oslo
h a d been s t o p p e d from s e n d i n g cypher messages since the 24th May.
T h e C h i e f s of Staff h a d themselves d r a w n a t t e n t i o n to t h e need for
o b t a i n i n g all i n f o r m a t i o n a b o u t possible G e r m a n e x p e d i t i o n s , a n d
he suggested t h a t special a t t e n t i o n m i g h t be given a t t h i s t i m e to
Norway.
T h e G e r m a n s m i g h t p e r h a p s be i n t e n d i n g a r a i d on
Scotland.
The First Sea Lord i n f o r m e d the W a r C a b i n e t of the p r e s e n t
d i s p o s i t i o n s of o u r n a v a l forces i n home w a t e r s . H e d i d not t h i n k
a seaborne e x p e d i t i o n w a s p r a c t i c a b l e , a l t h o u g h t h e r e w a s , of course,
t h e c h a n c e t h a t , if t h e G e r m a n s w e r e w i l l i n g t o t a k e t h e risk, i t
m i g h t slip t h r o u g h in b a d visibility. W e h a d s u b m a r i n e s w a t c h i n g
for movement from t h e B i g h t , the S k a g e r r a k a n d t h e coasts of
N o r w a y . A i r reconnaissances were also being c a r r i e d out.
The First Lord of the Admiralty
said t h a t a n a i r reconnaissance
on t h e previous d a y h a d f o u n d n o t h i n g in t h e N o r w e g i a n fjords
except t w o s h i p s .
The W a r C a b i n e t I n s t r u c t e d t h e C h i e f s of Staff to p a y special a t t e n t i o n to
the completeness of our reconnaissance a r r a n g e m e n t s off
the N o r w e g i a n coast, a n d to m a k e a special r e p o r t on the
following d a y on t h e likelihood of a G e r m a n e x p e d i t i o n
from N o r w a y d i r e c t e d a g a i n s t t h i s country.
6. The Secretary
of State
for Foreign
Affairs
drew the
a
t
t
e
n
t
i
o
n
of
t
h
e
W
a
r
C
a
b
i
n
e
t
to
t
e
l
e
g
r
a
m
No.
8
4
1
,
d
ated the
(Previous
2 7 t h M a y , 1940, from H i s M a j e s t y ' s A m b a s s a d o r a t W a s h i n g t o n ,
Reference:
W.M. (40) 142nd w h i c h r e a d as follows :—
Conclusions.)
' ' U n d e r - S e c r e t a r y of S t a t e to-day i n f o r m e d me t h a t the
response of S i g n o r Mussolini to t h e P r e s i d e n t s comApproach by
m u n i c a t i o n h a d been e n t i r e l y n e g a t i v e .
H e d i d not,
President
however, expect a c t i o n by I t a l y for t h e n e x t few days. I
Roosevelt to
t h e n s a i d to h i m t h a t I t h o u g h t the n e x t a n d most
Signor
i m p o r t a n t p o i n t w o u l d be S p a i n a n d t h a t a n y t h i n g t h e
Mussolini.
U n i t e d S t a t e s G o v e r n m e n t d i d to e n c o u r a g e S p a i n to
r e m a i n n e u t r a l w o u l d be of the u t m o s t i m p o r t a n c e from
the p o i n t of view both of G i b r a l t a r a n d P o r t u g a l . T h e
U n d e r - S e c r e t a r y of S t a t e agreed, b u t said t h a t he d i d n o t
t h i n k t h a t S p a i n would a b a n d o n h e r n e u t r a l i t y u n t i l
F r a n c o h a d been got r i d of."
Italy.
I n r e g a r d to t h e F r e n c h suggestions for a d i r e c t a p p r o a c h to
Suggested direct
S i g n o r M u s s o l i n i , a t e l e g r a m h a d been sent to t h e F r e n c h Governapproach to
m e n t on the lines a p p r o v e d by the W a r C a b i n e t on the previous
Signor
evening. M. C o r b i n h a d been told of the gist of t h e message a n d
Mussolini.
i t seemed t h a t h i s p e r s o n a l j u d g m e n t h a d a g r e e d w i t h our own.
Possible plan for
The First Sea Lord r e p o r t e d t h a t the I t a l i a n a i r c r a f t c a r r i e r
blocking the
Maraglia h a d d i s e m b a r k e d h e r a i r c r a f t a t B e n g h a z i a n d r e t u r n e d
Suez Canal.
to N a p l e s . T h e q u e s t i o n of s a f e g u a r d i n g t h e Suez C a n a l a g a i n s t
possible a c t i o n by t h i s s h i p t h e r e f o r e d i d n o t arise.
(Previous
Reference:
W.M. (40) 138th
Conclusions,
Minute 6.)
—.
—
Home Defence.
Action to deal
with Fifth
Column
dangers:
proposed Home
Defence
(Security)
Executive.
(Previous
Deference:
W.M. (40) 141st
Conclusions,
Minute 9 (3).)
Home Defence.
Constitution of
H o m e Defence
Executive.
7. T h e W a r C a b i n e t h a d before t h e m a M e m o r a n d u m by the
L o r d P r e s i d e n t of the Council, d e s c r i b i n g t h e a c t i o n w h i c h he h a d
a l r e a d y t a k e n to deal w i t h the d a n g e r of F i f t h C o l u m n activities
( W . P . (40) 172).
The Lord President
of the Council s a i d t h a t t h e H o m e Defence
(Security) E x e c u t i v e w h i c h w a s being set u p u n d e r t h e C h a i r m a n ­
s h i p of L o r d S w i n t o n as described in h i s M e m o r a n d u m w a s holding
i t s first m e e t i n g t h a t m o r n i n g , a n d would t a k e a n y necessary action.
T h e r e w a s n o t h i n g f u r t h e r for w h i c h h e r e q u i r e d t h e a u t h o r i t y of
t h e W a r Cabinet.
T h e W a r C a b i n e t took note of t h e above s t a t e m e n t .
8. T h e W a r C a b i n e t h a d before them a M e m o r a n d u m by the
L o r d P r e s i d e n t of the Council ( W . P . (40) 173) s e t t i n g o u t proposals
i n r e g a r d to t h e c o n s t i t u t i o n a n d staffing, of t h e H o m e Defence
Executive.
(Previous
The Lord President of the Council s a i d t h a t he h a d a l r e a d y been
Eef erence:
given full powers in t h i s m a t t e r by t h e W a r C a b i n e t , b u t t h a t he
W.M. (40)-132nd h a d t h o u g h t it r i g h t to a s k for t h e i r covering a p p r o v a l for the action
Conclusions,
w h i c h he h a d t a k e n .
Minute 12.)
The Chief of the Air Staff s a i d t h a t t h e C h i e f s of Staff h a d
u n d e r c o n s i d e r a t i o n a t t h e m o m e n t the q u e s t i o n of t h e a c t u a l control
of all the Forces a n d Services i n t h i s c o u n t r y in t h e event of a n
invasion. I t seemed possible t h a t u n d e r t h e e x i s t i n g p l a n s control
m i g h t still be in t h e h a n d s of a Committee, w h i c h would not be
satisfactory. T h e Chiefs of Staff were not, however, yet i n a position
to s u b m i t a definite r e c o m m e n d a t i o n .
The Prime Minister p o i n t e d out t h a t i t w a s equally i m p o r t a n t
not to overlook the need for d e c e n t r a l i s a t i o n of responsibility as
well as for full c o - o r d i n a t i o n a t the centre.
The W a r
Cabinet­
(1) Gave covering a p p r o v a l to t h e a c t i o n by t h e L o r d P r e s i d e n t
of t h e Council in t h e m a t t e r of t h e H o m e Defence
E x e c u t i v e as set o u t in his M e m o r a n d u m ( W . P . (40) 172).
(2) I n v i t e d t h e Chiefs of Staff to p u t f o r w a r d p r o p o s a l s i n
r e g a r d to the control of t h e Forces a n d Services i n t h i s
c o u n t r y in t h e event of invasion.
Diversion of
Shipping.
9. The First L,ord of the Admiralty
reminded the W a r
C a b i n e t t h a t , a t the M e e t i n g r e f e r r e d to i n t h e m a r g i n , it h a d been
a g r e e d t h a t t h e i n i t i a t i v e of r a i s i n g t h e q u e s t i o n of p u t t i n g into
(Previous
o
p e r a t i o n the scheme for t h e diversion of s h i p p i n g should rest w i t h
Reference:
W.M. (40) 131st h i m . B o t h he a n d the M i n i s t e r of T r a n s p o r t considered t h a t the
t i m e h a d now come t o issue t h e p r e - a r r a n g e d code t e l e g r a m s
Conclusions,
(Painstaker
Aggravated
Generally)
to t h e P o r t E m e r g e n c y Com­
Minute 11.)
mittees. T h i s would cause p r a c t i c a l l y no d i s l o c a t i o n of the w o r k i n g
of the p o r t s , b u t w o u l d e n s u r e t h a t t h e p r e p a r a t i o n s were b r o u g h t
to a h i g h s t a t e of r e a d i n e s s a n d t h a t the a r r a n g e m e n t s could be p u t
i n t o force for a n y of t h e p o r t s concerned a s soon a s necessary.
The W a r Cabinet—
A p p r o v e d t h e proposal t h a t t e l e g r a m s should be sent to
P o r t E m e r g e n c y Committees, a s p r o p o s e d above, in
p r e p a r a t i o n for a n y diversion of s h i p p i n g t h a t m i g h t be
necessary.
1 Q ^
1-0:3
289
Naval
Construction.
Suspension of
long-term
programme.
(Previous
Reference:
W.M. (40) 67th
Conclusions,
Minute 8.)
W . M . 144 ( 4 0 ) ,
10. The First Lord of the Admiralty
said it w a s p r o p o s e d to
send t e l e g r a m s o r d e r i n g a n i m m e d i a t e suspension of w o r k on c e r t a i n
ships u n d e r c o n s t r u c t i o n a s p a r t of o u r long-term n a v a l p r o g r a m m e
i n o r d e r to c o n c e n t r a t e t h e m a x i m u m effort on s p e e d i n g u p t h e
c o n s t r u c t i o n of vessels t h a t m i g h t become available i n t h e n e a r
f u t u r e . T h e vessels affected by t h e suspension included t h e b a t t l e ­
s h i p s Anson, Hoive, Lion, Temeraire
a n d Vanguard;
the aircraft
c a r r i e r Indefatigable;
t h e cruisers of t h e 1939 P r o g r a m m e ; a n d t h e
F o u r t h E m e r g e n c y Destroyer Flotilla.
The Minister
without
Portfolio
said t h a t t h e P r o d u c t i o n
Council w e r e receiving every possible a s s i s t a n c e from the A d m i r a l t y
a n d t h e o t h e r Service D e p a r t m e n t s i n t h e i r task of c o n c e n t r a t i n g
our p r o d u c t i v e resources on t h e most i m m e d i a t e r e q u i r e m e n t s . H e
w i s h e d to e m p h a s i s e t h a t the suspension of w o r k now o r d e r e d w a s
t e m p o r a r y a n d w o u l d be reconsidered a s soon a s t h e p r e s e n t
i m m e d i a t e crisis w a s over.
T h e W a r C a b i n e t took note of these s t a t e m e n t s .
The Press.
Power to deal
with subversive
1 1 . The Secretary
of State for the Home Department
and
Minister
of Home Security
said t h a t he h a d been c o n s i d e r i n g
w h e t h e r f u r t h e r powers were needed to deal w i t h n e w s p a p e r s such
as Action a n d t h e Daily Worker w h i c h w e r e systematically a n d
newspapers.
continually f o m e n t i n g opposition to t h e successful prosecution of
the w a r . H e h a d i n t e n d e d to raise t h e m a t t e r in t h e H o m e P o l i c y
Committee, b u t t h e L o r d P r i v y Seal h a d suggested t h a t the m a t t e r
o u g h t to come before the W a r Cabinet. U n d e r the p r e s e n t r e g u l a ­
tions, action could only be t a k e n in a n u m b e r of successive stages,
w h i c h included a successful prosecution in t h e Courts. T h i s would
necessarily m e a n some considerable delay. H e t h e r e f o r e p r o p o s e d
t h a t a n e w Defence R e g u l a t i o n should be m a d e to confer on t h e
Executive p o w e r by O r d e r to p r o h i b i t the p r i n t i n g , p u b l i c a t i o n or
" X " I d i s t r i b u t i o n of a n y n e w s p a p e r w h i c h systematically p u b l i s h e d
m a t t e r of t h e k i n d in question. P o w e r would also be t a k e n to close
down a n y p r i n t i n g press used in t h e p r o d u c t i o n of such a news­
paper.
H e proposed t h a t t h e r e should be a r i g h t of a p p l i c a t i o n to t h e
H i g h C o u r t for leave t o use a p r i n t i n g press closed d o w n in t h i s
w a y in a n y case w h e r e i t could be shown t h a t the use of the p r e s s
for t h e p r o d u c t i o n of t h e offending n e w s p a p e r h a d been " d u e to
a m i s t a k e . " I f t h e R e g u l a t i o n s w e r e m a d e , he would propose,
before t a k i n g a n y action in any p a r t i c u l a r case, to consult the H o m e
Defence (Security) Executive, w h i c h would enable t h e m to s h a r e
the responsibility w i t h h i m a n d would not involve any delay.
T h e r e w a s g e n e r a l a g r e e m e n t w i t h the view t h a t t h e a s s u m p ­
tion of these e x c e p t i o n a l powers w a s fully justified in t h e p r e s e n t
s i t u a t i o n . A t t h e same time, i t would be r i g h t t h a t t h e W a r
C a b i n e t should be k e p t informed generally of the use m a d e of these
very w i d e powers.
T h e W a r C a b i n e t a g r e e d :—
T h a t a Defence R e g u l a t i o n g i v i n g t h e powers p r o p o s e d a t
" X "
above should be s u b m i t t e d f o r t h w i t h for t h e
a p p r o v a l of H i s M a j e s t y in Council.
Munition and
Aircraft
Factories.
Protection
against air
attack,
(Previous
Eef erence:
W.M. (40) 141st
Conclusions,
Minute 9 (8).)
12. The Secretary of State for Foreign Affairs r e f e r r e d to t h e
discussion on t h e p r e v i o u s day as to t h e i m p r o v e m e n t of passive
defence m e a s u r e s i n a i r c r a f t a n d m u n i t i o n factories. H e asked
w h e t h e r t h i s could be done by s u r r o u n d i n g these factories by
e a r t h w o r k s . N o doubt there w o u l d be considerable technical dim­
culties, but, in view of the risk involved, every possibility should be
explored.
The Minister
of Home Security
e x p l a i n e d t h a t the S u p p l y
D e p a r t m e n t s h a d full powers to a r r a n g e for protective w o r k s a t
t h e i r own e s t a b l i s h m e n t s a n d to m a k e g r a n t s in respect of Governm e n t w o r k s a t factories belonging t o c o n t r a c t o r s . H e t h o u g h t ,
however, t h a t i t w o u l d be very valuable if the S u p p l y D e p a r t m e n t s
w e r e to s t a t e w h a t h a d been done, a n d w h a t f u r t h e r p r o t e c t i o n could
be p r o v i d e d .
The W a r Cabinet : I n v i t e d t h e M i n i s t e r of S u p p l y , a f t e r consultation w i t h t h e
F i r s t L o r d of t h e A d m i r a l t y a n d the M i n i s t e r of A i r c r a f t
P r o d u c t i o n , to submit a r e p o r t to the W a r Cabinet s e t t i n g
out w h a t steps h a d a l r e a d y been t a k e n to p r o v i d e passive
defence measures in a i r c r a f t a n d m u n i t i o n factories, a n d
w h a t steps could be t a k e n to p r o v i d e f u r t h e r a d d i t i o n a l
protection.
The Present
Situation.
Proposed
personal
message from
the Prime
Minister to
Ministers of the
Crown and High
Government
Officials.
13. The Prime Minister r e a d to the W a r C a b i n e t a d r a f t of a
p e r s o n a l message w h i c h he i n t e n d e d to send out to all M i n i s t e r s a n d
H i g h G o v e r n m e n t Officials.
The W a r Cabinet
: ­
A p p r o v e d the terms of the message subject to c e r t a i n
d r a f t i n g a m e n d m e n t s w h i c h w e r e settled a t the conclusion
of t h e m e e t i n g .
Richmond
May
Terrace, S. W. 1,
28, 1940.