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S o
jjjRfflS D Q c t l M E N T IS THE P R O P E R T Y OF HER BRITANNIC MA JEST Y'S GOVERNMENT)
CAB.1NE i l)'r r-n
RECORD COPY
SECRET
C.(54) 10
COPY N o
3 l
11TH JANUARY, 1954
CABINET
THE P R O B L E M OF SECURITY IN EUROPE
M e m o r a n d u m by the S e c r e t a r y of State
for F o r e i g n A f f a i r s
General Considerations
T h i s w i l l be one of the m a i n s u b j e c t s r a i s e d by the R u s s i a n s in
the g e n e r a l setting of p r e v e n t i n g the r e v i v a l of G e r m a n m i l i t a r i s m .
The t h r e e
W e s t e r n G o v e r n m e n t s have g i v e n m u c h thought t o the p r o b l e m s i n c e the
P r i m e M i n i s t e r s s p e e c h of 11th May and a r e p r e p a r e d to d i s c u s s it in a
g e n e r a l w a y but without e n t e r i n g into d e t a i l e d n e g o t i a t i o n until the R u s s i a n s
show t h e m s e l v e s r e a d y to d i s c u s s s e r i o u s l y the p r o b l e m s of G e r m a n
reunification.
The c o u r s e p r o p o s e d b e l o w w a s g e n e r a l l y a g r e e d at the B e r m u d a
m e e t i n g in D e c e m b e r ,
l
2.
The R u s s i a n s have built up a m o s t e f f e c t i v e s e c u r i t y s y s t e m of
t h e i r own in E a s t e r n E u r o p e .
Their b a s i c objective n o w i s the w i t h d r a w a l of
the U.S.A. f r o m E u r o p e ,
T h e i r p o s i t i o n has therefore b e e n (i) that the G e r m a n
s e t t l e m e n t should l e a d to the withdrawal of W e s t e r n a r m e d f o r c e s , and
p a r t i c u l a r l y A m e r i c a n f o r c e s , f r o m G e r m a n y ; (ii) that a l l f o r e i g n b a s e s should
be e l i m i n a t e d ; and (iii) that the E u r o p e a n Defence C o m m u n i t y ( E . D , C . ) and
the North Atlantic T r e a t y O r g a n i s a t i o n ( N . A . T . O . ) should be abandoned.
The R u s s i a n s a r e l i k e l y to p o s e a s the c h a m p i o n s of 'Europe for the E u r o p e a n s " ,
including t h e m s e l v e s but not the A m e r i c a n s ,
3.
D e s p i t e the N * A , T , 0 . j the W e s t e r n P o w e r s have not y e t c o m p l e t e d
an e q u a l l y e f f e c t i v e s e c u r i t y s y s t e m of t h e i r own.
It m u s t be c o m p l e t e d by
a s s o c i a t i n g W e s t e r n Germany in the c o m m o n effort and so denying the
potential r e s o u r c e s of a reunited G e r m a n y to the S o v i e t Union and p r e v e n t i n g
a r e u n i t e d G e r m a n y f r o m playing off the W e s t e r n P o w e r s a g a i n s t the R u s s i a n s
or v i c e v e r s a .
We r e a l i s e h o w e v e r that the c o m p l e t i o n of our own s e c u r i t y
s y s t e m might disturb the R u s s i a n s and w e a r e t h e r e f o r e r e a d y to c o n s i d e r
further a s s u r a n c e s which could be given to the U . S . 5 . R , T h e s e would be
additional to the e x i s t i n g a s s u r a n c e s (a) in the United N a t i o n s C h a r t e r ,
(b) in the e s s e n t i a l l y d e f e n s i v e c h a r a c t e r of the N . A . T . O , and the E . D . C . ,
and (c) in the A n g l o - S o v i e t and F r a n c o - S o v i e t T r e a t i e s ,
4,
D i s c u s s i o n s with the R u s s i a n s on the b a s i s of a n e w pact of
mutual a s s i s t a n c e or of n o n - a g g r e s s i o n m i g h t a r o u s e f a l s e hopes in the W e s t .
They would give the R u s s i a n s the opportunity t o put f o r w a r d unacceptable
c o u n t e r - p r o p o s a l s and thus to drag out and confuse the n e g o t i a t i o n s .
in
p r e s e n t c i r c u m s t a n c e s t h e r e f o r e the b e s t and s a f e s t c o u r s e of a c t i o n would be
a u n i l a t e r a l d e c l a r a t i o n a t the p r o p e r t i m e defining the g e n e r a l p o l i c y we
intend to p u r s u e .
-1
Proposed Declaration
5.
We h a v e sought to make this a s far r e a c h i n g a s p o s s i b l e and to
l e a v e no doubt of the s i n c e r i t y of our i n t e n t i o n s .
We have i n mind a d e c l a r a t i o n
by the G e r m a n F e d e r a l G o v e r n m e n t (Annex A) t o g e t h e r with a D e c l a r a t i o n b y the
G o v e r n m e n t s of the United S t a t e s , United K i n g d o m and F r a n c e , e n d o r s i n g that
of the G e r m a n G o v e r n m e n t (Annex B ) . D r . Adenauer h a s s t a t e d that he is
p r e p a r e d to make a D e c l a r a t i o n in the t e r m s s u g g e s t e d and h a s no o b j e c t i o n to
the Draft D e c l a r a t i o n to be m a d e by the t h r e e G o v e r n m e n t s .
The only o u t ­
standing i s s u e is the r e l u c t a n c e of the A m e r i c a n s to go a s far a s we and the
F r e n c h c o n s i d e r d e s i r a b l e i n S e c t i o n (Z) of the l a s t p a r a g r a p h of the
tripartite Declaration.
Tactics
6.
The u s e to be m a d e of the p r o p o s e d D e c l a r a t i o n m u s t depend o n
the c o u r s e of the B e r l i n m e e t i n g .
The a d v a n t a g e of a D e c l a r a t i o n in t h i s f o r m
i s that no n e g o t i a t i o n i s r e q u i r e d .
It can be u s e d independently of S o v i e t
r e a c t i o n s , e i t h e r a t B e r l i n o r at a l a t e r s t a g e .
While we m u s t make our
general, p o s i t i o n c l e a r a t B e r l i n , i. e , that we intend to c o m p l e t e our own
s e c u r i t y s y s t e m but on a p u r e l y d e f e n s i v e b a s i s , we should a v o i d getting t o o
d e e p l y involved i n the s e c u r i t y q u e s t i o n a t the s t a r t of the c o n f e r e n c e .
We should o n l y r e v e a l our p o s i t i o n in m o r e d e t a i l if the R u s s i a n attitude
s h o w s that t h e y a r e g e n u i n e l y p r e p a r e d for a G e r m a n s e t t l e m e n t on a c c e p t a b l e
terms.
7.
If the R u s s i a n s p r o p o s e a f o r m a l pact we should point out that
t h i s could only f o l l o w on a G e r m a n s e t t l e m e n t which had defined G e r m a n y ^
eastern frontiers.
We should r e s i s t any S o v i e t p r o p o s a l for the
d e m i l i t a r i s a t i o n of G e r m a n y , s i n c e this w o u l d l e a v e a v a c u u m in Central
E u r o p e and would involve the withdrawal of A l l i e d f o r c e s f r o m G e r m a n y and
the abandonment of the E . D . C . and the N . A . T . O . We should e q u a l l y r e s i s t
a n y p r o p o s a l s for p a r t i a l d e m i l i t a r i s a t i o n , e. g. the w i t h d r a w a l of S o v i e t t r o o p s
behind the O d e r - N e i s s e l i n e and of A n g l o - A m e r i c a n t r o o p s behind the R h i n e ,
o r for l i m i t a t i o n of f o r c e s i n Germany, a s t h e s e would not s o l v e a n y of our
b a s i c p o l i t i c a l p r o b l e m s and would have g r a v e m i l i t a r y d i s a d v a n t a g e s for
the W e s t .
If the R u s s i a n s p r o p o s e quadripartite c o n t r o l of G e r m a n r e ­
a r m a m e n t , we could point out that p a s t e x p e r i e n c e s h o w s that a n i m p o s e d
c o n t r o l s y s t e m i s u n l i k e l y t o be e f f e c t i v e .
A solution could only be s o u g h t
i n the context of a b r o a d e r a g r e e m e n t on the l i m i t a t i o n and r e d u c t i o n of
armaments.
M e a n w h i l e , the E . D . C . p r o v i d e s the m o s t a c c e p t a b l e s a f e g u a r d .
In g e n e r a l we should avoid a l l o w i n g o u r s e l v e s to be put on the d e f e n s i v e .
If the R u s s i a n s m a k e t h e i r u s u a l a c c u s a t i o n s a g a i n s t the N . A . T . O , and the
E . D . C . , we should point to the network of a l l i a n c e s i m p o s e d by R u s s i ?
on the S a t e l l i t e s and to the r e a r m i n g of E a s t e r n E u r o p e , including E a s t e r n
Germany.
A.E.
F o r e i g n Office, S . W . 1 . ,
10TH JANUARY, 1 9 5 4 .
3 7 -
ANNEX A
DECLARATION BY THE GERMAN FEDERAL, GOVERNMENT
The G e r m a n F e d e r a l Republic u n d e r t a k e s to a c c e p t the o b l i g a t i o n s
of the Charter of the United N a t i o n s and in p a r t i c u l a r of A r t i c l e 2 t h e r e o f ;
C o n s i d e r i n g that the p r o v i s i o n s of the T r e a t y e s t a b l i s h i n g the
E u r o p e a n D e f e n c e Community r e l a t i n g to the i n t e g r a t i o n of f o r c e s and pooling
of r e s o u r c e s and a r m a m e n t s of the m e m b e r S t a t e s on the E u r o p e a n continent
p r e c l u d e any individual a r m e d a c t i o n in E u r o p e on the part of t h e s e S t a t e s ;
Undertakes t o r e f r a i n f r o m a n y a c t i o n l i k e l y to r e v i s e or i m p a i r
e i t h e r t h e s e p r o v i s i o n s or the s t r i c t l y d e f e n s i v e c h a r a c t e r of the E u r o p e a n
D e f e n c e C o m m u n i t y of w h i c h the f o r c e s cannot be e m p l o y e d e x c e p t a g a i n s t an
a r m e d attack;
Undertakes i n c o n s e q u e n c e i n no c a s e to have r e c o u r s e to f o r c e and to
r e s o l v e by p e a c e f u l m e a n s any d i s p u t e s which m a y a r i s e between the F e d e r a l
R e p u b l i c and o t h e r S t a t e s .
ANNEX B
DECLARATION BY THE GOVERNMENTS OF THE
UNITED S T A T E S , UNITED KINGE- 1 M AND FRANCE
The G o v e r n m e n t s of the United S t a t e s of A m e r i c a , thw United Kingdom
of G r e a t B r i t a i n and N o r t h e r n Ireland and the F r e n c h Republic,
B e i n g r e s o l v e d t o devote t h e i r e f f o r t s to the strengthening of p e a c e i n
a c c o r d a n c e with the C h a r t e r of t h e United N a t i o n s and in p a r t i c u l a r with the
obligations s e t forth in A r t i c l e 2 of the Charter
(i) t o s e t t l e t h e i r international d i s p u t e s by p e a c e f u l m e a n s in
s u c h a m a n n e r that i n t e r n a t i o n a l p e a c e and s e c u r i t y and
j u s t i c e a r e not e n d a n g e r e d ;
(ii) t o r e f r a i n in t h e i r i n t e r n a t i o n a l r e l a t i o n s f r o m the t h r e a t o r
u s e of f o r c e a g a i n s t the t e r r i t o r i a l i n t e g r i t y or p o l i t i c a l
independence of any State or in a n y other manner
i n c o n s i s t e n t with the p u r p o s e s of the United N a t i o n s ;
(iii) t o give the United N a t i o n s e v e r y a s s i s t a n c e in any a c t i o n
i t t a k e s in a c c o r d a n c e with the C h a r t e r , and to r e f r a i n
f r o m giving a s s i s t a n c e to any State a g a i n s t w h i c h the
United Nations m a y take p r e v e n t i v e or e n f o r c e m e n t
action;
(iv) to e n s u r e that States which a r e not M e m b e r s of the United
Nations a c t in a c c o r d a n c e with t h e p r i n c i p l e s of the
C h a r t e r s o far a s m a y be n e c e s s a r y for the m a i n t e n a n c e
of international p e a c e and s e c u r i t y ;
Having r e g a r d to the p u r e l y d e f e n s i v e c h a r a c t e r of the Atlantic A l H a n c e
which i s m a n i f e s t in the North Atlantic T r e a t y , w h e r e i n t h e y r e a f f i r m t h e i r
faith in the p u r p o s e s and p r i n c i p l e s of the Charter of the United Nations and
their d e s i r e to l i v e in p e a c e with a l l p e o p l e s and a l l G o v e r n m e n t s , and undertake
to settle t h e i r international disputes b y p e a c e f u l m e a n s i n a c c o r d a n c e with the
p r i n c i p l e s of the Charter and to r e f r a i n , in a c c o r d a n c e with t h o s e p r i n c i p l e s ,
f r o m the threat or u s e of f o r c e in their international r e l a t i o n s ;
Considering a l s o that the v e r y s t r u c t u r e of the E u r o p e a n D e f e n c e
Community p r o v i d e s a s s u r a n c e s that its f o r c e s cannot be u s e d for p u r p o s e s
of a g g r e s s i o n , and that the p r o v i s i o n s of the T r e a t y e s t a b l i s h i n g the C o m m u n i t y ,
which r e l a t e to the i n t e g r a t i o n of f o r c e s and the pooling o f r e s o u r c e s and
a r m a m e n t s of the m e m b e r States on the E u r o p e a n continent, preclude a n y
individual a r m e d a c t i o n in E u r o p e on the p a r t of t h e s e S t a t e s ;
TAKE NOTE that the F e d e r a l Republic of G e r m a n y h a s , under
A r t i c l e 3(l) of the Convention on R e l a t i o n s b e t w e e n the t h r e e P o w e r s and the
F e d e r a l Republic s i g n e d at Bonn on May 2 6 , 1952, a g r e e d to conduct h e r p o l i c y
in a c c o r d a n c e with the p r i n c i p l e s s e t forth in the Charter of the United N a t i o n s
and by a d e c l a r a t i o n dated
has u n d e r t a k e n in no c a s e t o
have r e c o u r s e to f o r c e c o n t r a r y to t h o s e p r i n c i p l e s , but t o r e s o l v e by p e a c e f u l
m e a n s a n y d i s p u t e s w h i c h m a y a r i s e b e t w e e n h e r and other S t a t e s ;
D E C L A R E THAT
(1)
in t h e i r r e l a t i o n s with the F e d e r a l Republic t h e y w i l l follow the p r i n c i p l e s s e t out in A r t i c l e 2 of the United Nations Charter; ^"United States v e r s i o n ­
(2)
t h e y w i l l r e g a r d a n y r e c o u r s e to f o r c e in v i o l a t i o n of the
undertakings noted above a s a t h r e a t to the i n t e g r i t y and
unity of the E u r o p e a n D e f e n c e C o m m u n i t y , and c o n s e q u e n t l y
t o their own s e c u r i t y .
T h e y w i l l t h e r e f o r e a c t in a c c o r d a n c e
with A r t i c l e 4 of the North A t l a n t i c T r e a t y in p a r t i c u l a r with
r e s p e c t to withholding support f r o m the G o v e r n m e n t c o n c e r n e d ;
and, to the e x t e n t that they c o n s i d e r n e c e s s a r y to this end,
w i l l r e g a r d t h e m s e l v e s a s r e l e a s e d f r o m their c o m m i t m e n t s
to itjJ7
^ U n i t e d Kingdom-French version ­
(2) t h e y w i l l r e g a r d a n y r e c o u r s e to f o r c e in v i o l a t i o n of the u n d e r ­
taking noted above a s a threat to t h e i r own s e c u r i t y .
Any
Government having r e c o u r s e to f o r c e in this m a n n e r j in v i o l a t i o n of the undertakings under the E . D . C . T r e a t y , w i l l be deprived b y the three G o v e r n m e n t s of any f o r m of m i l i t a r y support and a i d ; and they w i l l r e g a r d t h e m s e l v e s , to the extent that t h e y c o n s i d e r n e c e s s a r y t o this end, a s r e l e a s e d f r o m t h e i r c o m m i t m e n t s to that G o v e r n m e n t ,
F i n a l l y , they w i l l a c t in a c c o r d a n c e with A r t i c l e 4 of the N o r t h Atlantic T r e a t y with a v i e w to taking a n y o t h e r m e a s u r e s which t h e y may deem appropriate^/ (3) w i l l act s i m i l a r l y i n c a s e a unified G e r m a n y should have r e c o u r s e to f o r c e to modify the f r o n t i e r s settled by the t r e a t y of p e a c e ; (4) t h e y w i l l u s e t h e i r b e s t efforts t o obtain the a s s o c i a t i o n of the other m e m b e r States of the N o r t h Atlantic T r e a t y O r g a n i s a ­
t i o n with this d e c l a r a t i o n . .