810.24/5–3044
The Secretary of State to Admiral William D. Leahy, Chief of Staff to the Commander in Chief of the Army and Navy
My Dear Admiral Leahy: I refer to your letter to me of May 3018 and to previous correspondence concerning the holding of bilateral staff conversations with representatives of the armed forces of other American republics.
The Department of State is anxious to do everything in its power to ensure the success of these conversations as the first step in promotion of future inter-American military and naval cooperation for the defense of the hemisphere. As you will readily understand, such conversations are not only important for the future relationships between the armed forces of the United States and those of the other American republics concerned but the manner in which they are conducted may also have substantial effects on the political relationship between the United States and those countries. For that reason I believe that it is essential that there be a clear understanding between this Department, the military authorities of the United States in Washington, the United States diplomatic officials in the several countries, and the officers who will be charged with conducting these conversations as to the relationship which should exist between the diplomatic missions and the officers concerned.
While recognizing that the technical questions with which these conversations are to be concerned are primarily military matters, I feel that the chiefs of diplomatic missions, on whom the responsibility squarely rests for maintaining friendly relations, and who are fully cognizant of political forces and personalities within the individual countries, should be in a position to guide the conversations within proper channels.
As you are doubtless aware the Department of State has already requested its chiefs of diplomatic missions in Brazil, Mexico, Chile, Ecuador, Peru, Colombia, Uruguay, Venezuela and Cuba to propose to the governments of those countries that bilateral exploratory staff [Page 114] conversations be held. It will shortly instruct its chiefs of diplomatic missions in all other American republics (except Argentina) to make similar proposals after word has been received from the nine countries named that they are prepared to appoint officers to join with representatives of the United States Army and Navy in such conversations.
As soon as replies have been received, the appropriate officers of the War and Navy Departments will be informed of the fact. It is my understanding that upon receipt of favorable replies officers will be ordered to proceed to the several capitals in an order suggested by the Department of State.
These officers should report upon arrival in each country to the chief of diplomatic mission who will make the necessary arrangements to introduce them to the proper officials of the other government and to facilitate the holding of conversations. The officers should not enter upon any formal discussions with representatives of the other government until after the chief of mission has indicated to them that all the arrangements are complete.
The chief of diplomatic mission should be kept regularly informed of the progress of the conversations, and shall, if he so desires, appoint a political officer on his staff to be present during the discussions. This political officer would not participate directly but would be present to advise the officers on political questions. The officers should be guided by the judgment of the chief of diplomatic mission. It is assumed that the officers in charge will consult regularly with the Military and Naval Attachés and the Military Attachés for Air.
Special exception to the above should be made with respect to the following countries: Cuba, Mexico, Colombia, Panama. In the first three cases, it is regarded as of the utmost importance that not only the preparations for, but the actual conduct of the conversations be under the active direction of the chief of diplomatic mission. The political situation in those countries and the relations between the military and civilian authorities of the governments are such that, unless this is done, the purpose of holding the conversations may be defeated. The question as to what part the ambassador should play in these conversations should be left to his determination. If he considers it advisable, he should himself take charge of the actual conversations, in whole or in part, being advised on all technical matters, of course, by the military and naval officers.
The situation in Panama is unique in that Panama has no army or navy. Nevertheless, it is believed to be desirable that conversations on military cooperation be held with the Panamanian Government with a view to ascertaining the plans and expectations of that government in so far as future military collaboration is concerned. In this connection it is well to bear in mind that provision must be made in [Page 115] due course for arrangements following the termination of the Defense Sites Agreement of 1942.19 Because of the local situation it is the opinion of this Department that the conversations should be conducted with the Foreign Office of Panama by the American Ambassador in collaboration with the commanding officers of the Caribbean Defense Command and the Panama Sea Frontier, or officers designated by them.
It is the opinion of this Department that conversations should be held with Brazil and Mexico before they are initiated with any other republic. It is believed desirable, for political reasons, that conversations should be inaugurated with Colombia, Chile and Uruguay as nearly simultaneously as possible after those with Brazil and Mexico are completed. The Department of State has no further recommendations to make at present with respect to the order to be followed. However, it may be that political considerations will make it desirable to furnish further information on this point at a later date.
While the Department would like to see these conversations initiated in the immediate future, present indications are that neither Brazil nor Mexico will be ready for several weeks and in consequence there must be some further delay in the inauguration of these talks.
It is requested that a copy of this letter be furnished to the officers who will conduct the staff conversations. Similarly this Department will transmit to each chief of diplomatic mission the substance of those sections of the letter which are of general interest and those which refer to his particular country, as well as a copy of the instructions as agreed upon by the Joint Advisory Board on American Republics and representatives of this Department.
Sincerely yours,
- Not printed; in this letter Admiral Leahy stated that the Joint Chiefs of Staff approved the suggestion of bilateral exploratory conversations with representatives of the American Republics and indicated that the main responsibility for their conduct would rest with Army and Navy representatives (810.24/5–3044).↩
- For correspondence on the conclusion of this agreement, see Foreign Relations, 1942, vol. v, pp. 577 ff.↩