860n.00/5–644
Memorandum by Mr. George M. Abbott of the Division of Eastern European Affairs to the Secretary of State
Mr. Secretary:
The Baltic States and the Soviet Union
I Background.
In order to estimate the possible position of the Baltic states in any future union or world organization, it is necessary to review briefly their past history.
The Baltic states formed a part of the Russian Empire before 1917 and achieved their independence as a consequence of the defeat of both Russia and Germany. The United States recognized this change of status in 1922.49 By the Soviet-German agreement of 193950 Estonia and Latvia, and perhaps Lithuania, were assigned to the Russian “sphere of interests.” In October 1939, mutual assistance pacts, signed [Page 866] by each of the three Baltic states under Soviet ultimata,51 permitted the Soviet Union to station some 60,000 troops at specific air, naval and land bases. Some 60,000 German Baits were hastily evacuated by agreements between the German Government and the Baltic states. Apart from the suppression of criticism of the Soviet regime there was practically no interference in the internal life of the Baltic states until the fall of France. In June 1940 the entire territory of these states was occupied under new ultimata by large forces of Russian troops, and new governments were appointed by the Soviet authorities. Soon afterwards new parliaments of all three countries were elected from single lists of candidates nominated by Soviet-controlled governments.52
During the elections the possibility of the incorporation into the Soviet Union was refuted not only by the puppet governments but also by the emissaries sent by Moscow to supervise the elections. Nevertheless, the new parliaments met, requested, and received membership in the Union of Soviet Socialist Republics. The nationalization and distribution of the land, and the introduction of social and economic institutions characteristic of the Soviet system, proceeded rapidly until June 1941, when the region was invaded by the German army. Substantial revolts took place in the rear of the Red Armies and attempts were made to reassert the independence of the three states. Since the German conquest in the summer and early autumn of 1941 the area has been ruled by the German East Administration with powerless local governments operating under its control.
II Soviet Viewpoint.
The position of the Soviet Government is that the three Baltic states individually requested admission to the Soviet Union, and as a result of these requests, were duly admitted under the provisions of the Soviet Constitution. In each of the three countries, the decision to request admission to the Soviet Union was made by a parliamentary body which had been elected in the proper manner, by democratic processes; in other words, the Baltic states were in no way conquered or forced to join the Soviet Union; they joined of their own free will, and the decision was in accordance with the wishes of the overwhelming majority of the people.
As supplementary arguments in support of the Soviet viewpoint, it has been argued in many articles published under Soviet auspices that 1) the Baltic states were separated from Russia by force after the [Page 867] last war with German, Allied, and White Russian help; 2) during their independence, the Baltic states were a field of constant anti-Soviet intrigue; 3) from an economic point of view, the Baltic states formed an integral and essential part of the Soviet Union.
III Baltic States Viewpoint.
The point of view of the Baltic states as expressed by representatives abroad of the former independent governments is as follows: 1. The Baltic states have little or nothing in common with the Soviet Union as regards race, culture, or religion. 2. They had reached an economic plane considerably in advance of that of Russia. 3. During their period of independence, they demonstrated their right to be considered as separate states under generally accepted criteria. 4. The decision to join the Soviet Union did not represent the will of the people, but was forced on them following the military occupation of the country by Soviet troops. 5. The great majority of the people residing in the Baltic states today desire only independence, and have no sympathy with either the Soviet Union or Germany.
IV The Position of the American Government.
The point of view of the American Government was expressed by the Acting Secretary of State in a statement on July 23, 1940, reading as follows:
[Here follows text of statement by the Acting Secretary of State, printed in Foreign Relations, 1940, volume I, page 401.]
In conclusion, it should be pointed out that recognition of the annexation of the Baltic states is one of the principal Soviet war aims; the Soviet Government will, in all probability, insist upon it as a prerequisite to its participation in collective security arrangements.
- See Foreign Relations, 1922, vol. ii, pp. 869 ff.↩
- The text of the German-Soviet Boundary and Friendship Treaty, with protocols, signed in Moscow September 28, 1939, is printed in Documents on German Foreign Policy, 1918–1945, series D, vol. viii (Washington, Government Printing Office, 1954), p. 164. See also Foreign Relations, 1939, vol. i, pp. 477 ff.↩
- With regard to pressure used by the Soviet Union to conclude pacts of mutual assistance with these Baltic States, see Foreign Relations, The Soviet Union, 1933–1939, pp. 934 ff.↩
- Regarding the forcible occupation of the Baltic States and their incorporation into the Soviet Union, see Foreign Relations, 1940, vol. i, pp. 357 ff.↩