862i.01/141½
Memorandum of a Conversation between the Secretary of State and the Japanese Ambassador (Shidehara), June 3, 1921
(3) The Ambassador brought up the question of Yap.33 He said that his Government had instructed him to ascertain more definitely what was the American position. He referred to the fact that the [Page 288] mandate covered other islands north of the Equator, and inquired whether the United States claimed an interest in these islands.
The Secretary stated that the principle was of general application to all the overseas possessions of Germany, and that there was no reason why the United States should be denied an equal participation. The Secretary, however, said that while he would maintain this general principle, if it were contested, still the United States had no desire to advance the principle for the purpose of obtaining territory or of increasing its possessions, but merely for the purpose of protecting its interests so that wherever it is important, there should be no denial of equality of opportunity through any exclusive use by any of the other Powers of the possessions which formerly belonged to Germany. The Secretary said he did not see upon what grounds it could be maintained, after we had entered the war and participated in obtaining the victory, that those associated with us should attempt to deprive us of equal privileges in what were German possessions wherever we had interests to safeguard. The Secretary said that so far as the other islands north of the Equator were concerned, he was not advised that we had any interest with respect to which we desired to make representations, but that Yap was in a, strategic position and that we should have the same rights and privileges there that were enjoyed by the other Powers.
The Ambassador reviewed the proceedings of the Supreme Council and stated that after a good deal of discussion the islands, including Yap, had been awarded to Japan without any reservations whatever; that Great Britain had the better of the bargain, as they got the islands south of the Equator, and the islands north of the Equator were mostly small and of little consequence; that there had been no protest against the decision for over a year and then the United States had made its protest; that the fact that the islands had been allocated to Japan was known to the people of Japan and that it would produce a very painful impression if it appeared that, as a result of a protest made long after, Japan was asked to give up what was regarded as already hers; that to do this would be humiliating to Japan and that the people of Japan would not permit it.
The Secretary stated that he did not care to make any suggestion as to the policy which Japan should adopt to its own interests, but that he could not refrain from saying that if, when the question had been brought up, Japan had recognized the fact that the United States had not asked for an acre of land as a result of the war, and, finding that there was an interest in Yap by reason of its advantages for the purpose of communication, Japan [had?] frankly stated its desire that the United States should have equal participation [Page 289] in that island, it would have created a most friendly feeling throughout the United States; …
The Ambassador seemed to give assent to this view, but stated that the people of Japan had been led to believe that the island was theirs and they could not take a contrary view. The Secretary said that he agreed that the opinion of the people of the two countries should always be considered in adjusting their relations, but that it should not be forgotten that the people of the United States were a unit—however divided they might be in other questions—in insisting that they should have equal opportunity in the German possessions which came to the victorious Powers; that wherever one might go through the country he would find not the slightest division of sentiment upon this point, and that the Ambassador’s Government must consider not only the opinion of the people of Japan but the opinion of the people of this country, in suggesting a settlement.
The Ambassador said the first question was with regard to the ex-German cables; that he supposed that an agreement could be made with respect to their division; that, for example, the line from Yap to Guam could go to the United States and that other lines could be divided in a fair manner. The Secretary said that the question did not relate merely to existing cables but to all future rights and not alone to cables but to radio stations and all methods of communication. The Ambassador said that so far as radio was concerned, Guam, which was only two hundred miles away, would serve the United States just as well as Yap. The Ambassador inquired whether the United States would be satisfied if it had rights for existing and all future cables that it might want to lay. He said that the claim had been made that the islands should be internationalized for cable purposes; that this might be arranged but that if the United States pressed for anything more, it would be extremely difficult.
The Secretary said that if there was anything that the islands could be used for aside from cables, he saw no reason why the United States should not have its equal opportunity for such a use. He asked the Ambassador whether Japan desired to fortify the island. The Ambassador said that Japan did not. …
The Secretary said the type “C” mandate made the mandated territory part of the territory of the mandatory and that the United States could not consent to having Japan, as a sovereign power in possession of the territory, granting or withholding such licenses as it might see fit as a sovereign to grant or withhold; that the United States desired that whatever Power or Powers had administration of the island, their authority should be subject to the equality of right, and administration should be maintained under suitable terms which would assure the maintenance of the privileges, not as those [Page 290] granted by a sovereign power which was in possession of the islands, but as privileges in which all the Powers were entitled to share and subject to the exercise of which the island was administered.
The Ambassador again asked whether the United States would be satisfied if an attempt were made to internationalize the islands for cable purposes, and again suggested that his Government might be willing to go that far. The Secretary repeated that there should be equality in the enjoyment of all privileges afforded by the island, but that if these were secured, he thought there would not be any trouble with regard to a suitable arrangement for the civil administration; that this Government had no desire to humiliate Japan; that it was not intent upon mere questions of form of procedure provided the interests of the United States were conserved in substance, and that he felt that after a full consideration of what uses the island served, there should be no difficulty in arriving at an agreement with respect to the manner of administration.
The Secretary suggested that the Ambassador should prepare a memorandum which could be submitted informally, stating the proposition which he would like to have discussed; that the Secretary would go over the memorandum and make informally such counter suggestions as might occur to him; and that after the matter had been threshed out in this way the Governments could respectively make such representations as they thought best. The Ambassador stated he would prepare such a memorandum.