Foreign Relations of the United States, 1947, Council of Foreign Ministers; Germany and Austria, Volume II

CFM Files: Lot M–88: Box 86: CFM (47) (L) Documents

Joint Note of the Belgian, Netherlands and Luxemburg Governments on Allied Policy With Regard to Germany, November 26, 1947⁷⁴

November 26, 1947

1. The Governments of the Netherlands, Belgium and Luxemburg have been invited in the beginning of this year to communicate their views on the future status of Germany to the Deputy Members of the Council of Ministers of Foreign Affairs.

To this end they have submitted the following Memoranda:

Memoranda Submitted by the Netherlands Government

November 5, 1946—Memorandum of the Netherlands Government concerning the territorial and economic claims of the Netherlands in respect to Germany;⁷⁵

January 14, 1947—Memorandum of the Netherlands Government on Allied policy with regard to Germany;⁷⁶

January 25, 1947—Additional Memorandum of the Netherlands Government with regard to the demarcation of the future Netherlands-German frontier and related problems.⁷⁶

Memoranda Submitted by the Belgian Government

November 14, 1946—Memorandum of the Belgian Government concerning a rectification of the German-Belgian frontier;⁷⁷

January 17, 1947—Memorandum of the Belgian Government relating to the Belgian claims with regard to Germany;⁷⁸

January 17, 1947—Views of the Belgian Government on the policy of the Allied Powers with regard to Germany;⁷⁸

Memorandum Submitted by the Luxemburg Government⁷⁹

February 1, 1947—Memorandum on:

a) The policy of the Allied Powers with regard to Germany;

b) The Luxemburg claims with regard to Germany;

c) Annex. Memorandum of November 27, 1946.

In addition to the above, the Representatives of the aforementioned Governments orally developed the views of their respective Governments, in the course of January and February, 1947, at the same time giving the explanations they had been asked for.

Finally, the three Governments collaborated in drawing up Appendix B, relating to the German problems, annexed to the General Report of the Commission on European Economic Co-operation which met in Paris in July, August and September, 1947.⁸⁰

The Council of Ministers of Foreign Affairs has decided to meet in London on November 25, 1947, with a view to settle pending questions with regard to the future of Germany and the treaty of peace ultimately to be concluded with that country.

The Governments of the aforementioned three countries were not invited on this occasion to formulate their views again. They, never theless, feel that the geographical proximity of their territories to that of Germany, the fact that their economic interests are entwined with those of that country, the close relation between their security and the political regime in Germany, and finally, the experience they have gained in their relations with that country, would justify them in putting forward the following observations on the questions which will be examined by the Council of Ministers of Foreign Affairs of the Great Powers.

2. Although in the aforementioned Memoranda each of the three Governments formulated its views on the German problem in a different way, it is worth noting that these documents prove to have certain fundamental conceptions in common. These may be summarized as follows:

They do not aim at attaining their security, with regard to Germany, through a large scale reduction of the German economic capacity except for such machinery or material as is typically destructive, the production of which should be forbidden. Apart from the fact that such a reduction probably would prove to be a fiction, that it would seriously impair the economy of the aforementioned countries, and not less that of Europe at large, of which the German economy has always been a principal factor, it will be advisable to leave the Germans, now that they have been deprived of their political ambitions, such scope of activity as would provide them a satisfactory level of material life as well as hopeful prospects.

The economic unity of the German territory, in other words, the removal of artificial restrictions on the free movement of persons, commercial and financial traffic in this territory, is a primary condition for the economic rehabilitation of Germany.

It will be necessary, however, to obtain guaranties against such use of economic power—possibly resulting from the suggested easing of restrictions—as might be a threat to the political equilibrium of Europe and impair the security of Germany’s neighbors. To achieve this end, the following measures have been recommended:

a) the gradual restoration of autonomy and political responsibility in Germany within the framework of a federal constitution;

b) control of the whole German economy with a view to ensure the disarmament and demilitarization of the Reich in accordance with the plan proposed by Mr. Byrnes, Secretary of State, in April 1946,⁸¹

c) special international control of the industrial Ruhr district in order to ensure that the abovementioned supervision will actually take place and to harmonize the development of the production of this region with that of the whole of Europe. The three Governments have claimed the right to participate in this control.

d) in the event that the present Military Government in Germany and the military occupation of the Whole country should be abolished, maintenance of the military occupation restricted to certain centres, ensuring strict control of the country such as ports, aerodromes, traffic centres or special regions such as the Rhine valley, which control should be exercised as part of the international regime.

The recommendations sub (c) and (d) are not of a restrictive nature and not meant to exclude such similar measures as may be deemed appropriate in the eastern part of Germany.

On the other hand, certain economic guaranties should be obtained, such as the decentralization of the German economic system, provided that legitimate Allied interests shall be safeguarded.

Besides, the three Governments feel that, on account of equity as well as for economic reasons, it would be intolerable to improve the German economy by any measure which would favour it in comparison with the economy of Allied countries or which would be detrimental to the latter. The prosperity of the Netherlands, Belgium and Luxemburg, and their co-operation in restoring general welfare and maintaining security, deserve at least as much consideration as the interests of Germany.

As long as Germany is governed by or submitted to the supervision of an international regime, participation in this regime by nationals of the three countries which have gained so much experience in their relations with Germany, will be desirable.

The three Governments trust that, either in solving the German problem in general, or that of the Ruhr district in particular, no decision will be taken without previous consultation with, and the approval of, the three Governments having such vital interests in the solution of the German problem. To achieve this end, they would appreciate to be heard by the Conference of the Ministers of Foreign Affairs.

3. Although no observation whatsoever has been made with regard to the views developed by the three Governments, it is interesting to note that, in several respects, the policy followed by the Great Powers in Germany and their achievements in various fields, have been directed towards aims similar to those marking the recommendations of the three governments.

The theoretical level of the German production-capacity in the British and American zones has been considerably raised pursuant to the plan of August 27, 1947, as compared with that of March 26, 1946.⁸²

The majority of the Great Powers have declared themselves in favour of the economic unity of Germany. As a matter of fact, the British and American zones have been merged into one economic unity, and a joint organization has been established with a view to carry these plans into effect.

In every zone the political structure has tended towards the institution of a certain number of states (Länder) as a necessary basis for the ultimate federal organization.

At the saem time there has been an increase in the degree of self-government granted to the Germans for the control of their public affairs and the government exercised by the Control Council has taken a less military character.

The American Secretary of State, Mr. Marshall, recently expressed his intention of approaching the Council of Ministers of Foreign Affairs meeting in London, with a view to repeat the proposal of Mr. Byrnes, his predecessor, inducing the four Great Powers, participating in the occupation of Germany, to conclude a Treaty to ensure the disarmament and demilitarization of that country for a period of forty years. The three Governments wish to state again that they fully endorse this plan which, in their opinion, constitutes one of the mainstays of the future peace, and they would earnestly recommend it for adoption.

4. Although they have noted with satisfaction that the Great Powers, in respect to their policy with regard to Germany, have accepted the abovementioned general principles, the three Governments are constrained to express their regret that the occupation authorities, in many respects, have not given adequate consideration to the vital interests of the three countries, particularly those in the economic field.

5. It is the wish of the three Governments that the policy with regard to Germany be pursued along the lines indicated by them, for the following reasons:

On the one hand they are of the opinion that it is imperative to determine the definite political and economic statute [status?] of Germany with a view to put an end to the uncertainty and confusion, which are hampering the restoration of general stability, and to allow Germany to recover within the framework of a peaceful and successful organization of Europe and the world at large. They feel that, in making these recommendations, they are offering an acceptable compromise between their demands for safeguarding their security as well as their welfare, and the reasonable aspirations of the German people.

On the other hand they have the firm belief that unanimity of views of the Great Powers on the German problem, as the basis of world peace, is a matter of vital importance.

They feel that, in making their recommendations, they have given such consideration to the various political views of the Great Powers as would enable the latter to use them as a basis for the German statute which is likely to meet with their approval.

74. This joint note, copies of which were submitted to the Council of Foreign Ministers by the Netherlands Ambassador in London on November 26, 1947, was circulated to the Council as document CFM(47) (L)5, November 26, 1947.
75. Foreign Relations, 1946, vol: ii, p. 1016.
76. The substance of the views of the Netherlands Government on Germany as set forth in formal papers and oral statements to the Deputies for Germany during their meetings in London, January 14–February 25, 1947 is included in the Report by the Deputies to the Council of Foreign Ministers, February 25, 1947, pp. 40, 50.
76. The substance of the views of the Netherlands Government on Germany as set forth in formal papers and oral statements to the Deputies for Germany during their meetings in London, January 14–February 25, 1947 is included in the Report by the Deputies to the Council of Foreign Ministers, February 25, 1947, pp. 40, 50.
77. Foreign Relations, 1946, vol. ii, p. 1162.
78. As in the case of the Netherlands Government (footnote 76 above), the views presented to the Deputies for Germany by the Belgian Government were summarized in Report by the Deputies to the Council, February 25, pp. 40, 42.
78. As in the case of the Netherlands Government (footnote 76 above), the views presented to the Deputies for Germany by the Belgian Government were summarized in Report by the Deputies to the Council, February 25, pp. 40, 42.
79. The substance of the views of the Luxembourg Government are also summarized in the Report by the Deputies to the Council.
80. Committee of European Economic Co-operation, volume i, General Report, Paris, September 21, 1947, Department of State Publication 2930, European Series 28, p. 69.
81. Reference to the draft treaty on the disarmament and demilitarization of Germany, submitted by Secretary of State Byrnes to the Council of Foreign Ministers in Paris on April 30, 1946; for the text, see Foreign Relations, 1946, vol. ii, p. 190.
82. For documentation regarding the revised level of industry plan for the American and British zones of occupation in Germany, see pp. 977 ff.