(c) crown copyright
Catalogue Reference:CAB/24/265
Image Reference:0003
Printed
for the Cabinet.
November
1936.
SECRET.
Copy No.
C P . 308 ( 3 6 ) .
CABINET.
PREPARATIONS
Memorandum
FOR
THE FIVE-POWER
by the Secretary
of State
CONFERENCE.
for Foreign
Affairs.
I N my m e m o r a n d u m C P . 278 (36), w h i c h I c i r c u l a t e d on t h e 2 3 r d October,
I pointed o u t the p o i n t s of difference w h i c h h a d been revealed as a r e s u l t of t h e
collation of t h e v a r i o u s r e p l i e s received from t h e four o t h e r G o v e r n m e n t s w h o
are concerned in t h e p r e p a r a t i o n s for t h e p r o p o s e d n e w W e s t e r n P a c t . O n t h e
4th November I a d d r e s s e d a m e m o r a n d u m t o each of these four P o w e r s , c a l l i n g
their a t t e n t i o n to t h e chief of these p o i n t s of difference. I n t h i s m e m o r a n d u m I
invited t h e views of e a c h G o v e r n m e n t as to how t h i s v a r i e t y of o p i n i o n could
best be reconciled, a n d s t a t e d t h a t i t w a s t h e i n t e n t i o n of H i s M a j e s t y ' s
Government t o c o m m u n i c a t e a t a n e a r l y d a t e t h e i r o w n views on these m a t t e r s .
I n o w s u b m i t t o m y colleagues a d r a f t of t h i s f u r t h e r c o m m u n i c a t i o n .
It
will be observed t h a t five d i s t i n c t q u e s t i o n s a r e d e a l t w i t h , i.e.:—
(1) T h e p r o p o s a l t h a t H i s M a j e s t y ' s G o v e r n m e n t s h o u l d be g i v e n a
g u a r a n t e e by F r a n c e a g a i n s t G e r m a n y a n d by G e r m a n y a g a i n s t F r a n c e .
(2) T h e p r o p o s a l t h a t B e l g i u m s h o u l d only receive g u a r a n t e e s a n d n o t
give any.
(3) T h e q u e s t i o n w h e t h e r t h e n o n - a g g r e s s i o n a r r a n g e m e n t s t o be embodied
in the n e w T r e a t y s h o u l d be s u b j e c t t o a n y exceptions, a n d , if so, w h a t s h o u l d be
the basis of those e x c e p t i o n s .
(4) T h e q u e s t i o n of t h e m a c h i n e r y t o be p r o v i d e d for r e a c h i n g a decision
as to w h e t h e r these n o n - a g g r e s s i o n a r r a n g e m e n t s h a d been v i o l a t e d i n a n y
p a r t i c u l a r case.
(5) T h e connexion b e t w e e n t h e p r o p o s e d n e w F i v e - P o w e r T r e a t y a n d t h e
solution of o t h e r m a t t e r s affecting E u r o p e a n peace.
I t m a y be convenient t o m y colleagues if I h e r e s u m m a r i s e t h e m a n n e r i n
which I a t t e m p t i n t h e p r e s e n t d r a f t n o t e t o deal w i t h these q u e s t i o n s .
A s regards the proposed guarantee to Great Britain, I have taken into
account t h e views of t h e C h i e f s of Staff a s s t a t e d i n t h e i r r e p o r t C C S . 522 of
the 9th November, b u t p e n d i n g f u r t h e r c o n s i d e r a t i o n of t h i s r e p o r t I still a d h e r e
to the view e x p r e s s e d i n m y m e m o r a n d u m of t h e 2 3 r d October, to t h e effect t h a t
we should n o t a b a n d o n o u r r e q u e s t for g u a r a n t e e s . I n t h e p r e s e n t d r a f t , however,
I leave i t o p e n to t h e G e r m a n a n d I t a l i a n G o v e r n m e n t s t o give a n y f u r t h e r or
more convincing r e a s o n s t h a n t h e y h a v e h i t h e r t o d o n e for a p p e a r i n g t o object
to a g u a r a n t e e b e i n g given t o t h e U n i t e d K i n g d o m .
A s r e g a r d s t h e r e f u s a l of B e l g i u m t o give a g u a r a n t e e u n d e r t h e n e w T r e a t y ,
I see no object i n a t t e m p t i n g t o p r e s s t h e B e l g i a n G o v e r n m e n t i n t h i s m a t t e r ,
more p a r t i c u l a r l y since t h e C h i e f s of Staff h a v e said i n t h e i r R e p o r t t h a t t h e y do
not a t t a c h a n y p a r t i c u l a r i m p o r t a n c e t o B e l g i u m g i v i n g g u a r a n t e e s .
I do,
however, p r o p o s e t o a s k t h e B e l g i a n G o v e r n m e n t for c e r t a i n a s s u r a n c e s a s t o t h e
manner in w h i c h t h e y w i l l i n p r a c t i c e i n t e r p r e t t h e i r i n t e n t i o n t o f o r b i d access
to Belgian t e r r i t o r y .
8884
[14091]
B
A s r e g a r d s t h e q u e s t i o n of exceptions to t h e proposed non-aggression
a r r a n g e m e n t s , i t is essential, for t h e reasons given in p a r a g r a p h 2 of my
m e m o r a n d u m C P . 278 (36) of t h e 2 3 r d October, t h a t there should be certain
exceptions. T h e G e r m a n G o v e r n m e n t have s a i d t h a t from t h e i r p o i n t of view
n o exceptions a r e necessary, a n d i n a n y case object t o t h e e x c e p t i o n s b e i n g based
on A r t i c l e 16 of t h e C o v e n a n t . I n t h e s e c i r c u m s t a n c e s i t a p p e a r s t o m e essential
for t h e success of t h e n e g o t i a t i o n s t o m a k e a n a l t e r n a t i v e p r o p o s a l w h i c h would
cover all cases in w h i c h a n e x c e p t i o n could p r o p e r l y be made, a n d w h i c h i t would
be difficult for t h e G e r m a n s t o reject. T h e s u g g e s t i o n m a d e i n t h e d r a f t is that
t h e b a s i s of the e x c e p t i o n s should be a n a t t a c k by a s i g n a t o r y of t h e n e w Treaty
u p o n a n o n - s i g n a t o r y in violation of some o b l i g a t i o n w h i c h is b i n d i n g u p o n that
s i g n a t o r y , w h e t h e r a g e n e r a l one, such as the P a c t of P a r i s o r t h e C o v e n a n t of
the L e a g u e , or a special n o n - a g g r e s s i o n a g r e e m e n t w i t h t h e non-signatory
concerned. T h i s w o u l d involve a d e p a r t u r e from t h e scheme of L o c a r n o , but it
should a d e q u a t e l y s a f e g u a r d t h e F r e n c h p o s i t i o n a s r e g a r d s t h e i r a r r a n g e m e n t s
for m u t u a l a s s i s t a n c e w i t h P o l a n d , Czechoslovakia a n d the Soviet U n i o n , as well
a s o u r own a r r a n g e m e n t s w i t h E g y p t a n d I r a q , a n d w o u l d do so in a m a n n e r to
w h i c h i t w o u l d be difficult for t h e G e r m a n s to t a k e reasonable objection.
A s r e g a r d s t h e q u e s t i o n of t h e m a c h i n e r y to be p r o v i d e d for determining
w h e t h e r a breach of t h e n o n - a g g r e s s i o n u n d e r t a k i n g s h a s taken place, t h i s assumes
p a r t i c u l a r i m p o r t a n c e if t h e r e a r e to be e x c e p t i o n s to t h o s e u n d e r t a k i n g s ,
especially as t h e G e r m a n c o m p l a i n t a g a i n s t t h e F r a n c o - S o v i e t P a c t w a s really
t h a t u n d e r i t F r a n c e w o u l d herself decide w h e t h e r she w a s e n t i t l e d , without
v i o l a t i n g her L o c a r n o o b l i g a t i o n s , t o come t o t h e a s s i s t a n c e of t h e Soviet Union
a g a i n s t G e r m a n y . A l t h o u g h t h i s c o m p l a i n t w a s not, i n fact, well-founded, the
p o i n t is one w h i c h m u s t c e r t a i n l y be met if t h e n e g o t i a t i o n s a r e to have a
successful issue. A p a r t from t h e f a c t t h a t I d o n o t w i s h to see t h e L e a g u e side­
t r a c k e d in t h i s m a t t e r , I c a n t h i n k of no better a r r a n g e m e n t for t h i s p u r p o s e than
t o confide the decision t o t h e C o u n c i l of the L e a g u e , as w a s done i n L o c a r n o , and
t h i s course h a s a c c o r d i n g l y been a d v o c a t e d i n t h e d r a f t m e m o r a n d u m , w h i c h also
p r o p o s e s to m a i n t a i n t h e L o c a r n o system for d e a l i n g w i t h s u d d e n a t t a c k s where
i m m e d i a t e action of t h e g u a r a n t o r s is necessary, subject to a s u b s e q u e n t reference
t o t h e Council.
A s r e g a r d s t h e c o n n e x i o n between t h e p r o p o s e d n e w T r e a t y a n d t h e solution
of o t h e r m a t t e r s affecting E u r o p e a n peace, a l t h o u g h t h e q u e s t i o n falls into a
s o m e w h a t different c a t e g o r y from those a l r e a d y d e a l t w i t h , I have t h o u g h t it
n e c e s s a r y a t t h i s p o i n t t o r e a s s e r t t h e view of H i s M a j e s t y ' s G o v e r n m e n t that
t h e y consider t h a t t h e successful conclusion of t h e n e w T r e a t y is n o t a n end in
itself, b u t is i n t e n d e d t o lead to t h e solution of o t h e r questions w h i c h a r e of direct
i n t e r e s t to the peace of E u r o p e .
A . E.
November
11, 1936.
N E W WESTERN TREATY.
Draft
of Memorandum
for communication
to the French,
Italian
Governments,
Belgian,
German
and
I N t h e i r m e m o r a n d u m of t h e 4 t h November H i s M a j e s t y ' s Government in
t h e U n i t e d K i n g d o m h a d t h e h o n o u r to i n v i t e t h e B e l g i a n , F r e n c h , G e r m a n and
I t a l i a n G o v e r n m e n t s t o c o n s i d e r f u r t h e r a n u m b e r of m a t t e r s i n o r d e r to see
w h e t h e r the v a r i o u s views e x p r e s s e d by the five G o v e r n m e n t s t h e r e o n could be
reconciled. I n t h a t e v e n t i t w o u l d be possible to a g r e e on c e r t a i n fundamental
p r i n c i p l e s as a basis for t h e p r o p o s e d conference. H i s Majesty's Government
a d d e d t h a t it w a s t h e i r i n t e n t i o n to m a k e k n o w n a t a n e a r l y d a t e t h e i r own views
on these matters.
2. T h e first of t h e s e m a t t e r s concerns t h e g u a r a n t e e s to be p r o v i d e d in the
n e w t r e a t y , a n d i n t h i s m e m o r a n d u m H i s M a j e s t y ' s G o v e r n m e n t wish, in
p a r t i c u l a r , t o deal w i t h t h e q u e s t i o n s of a g u a r a n t e e to t h i s c o u n t r y by France
a n d G e r m a n y a n d of a g u a r a n t e e by B e l g i u m to t h o s e t w o c o u n t r i e s .
3. A s r e g a r d s a g u a r a n t e e to t h e U n i t e d K i n g d o m , t h e G e r m a n G o v e r n m e n t
have s u s p e n d e d a final expression of t h e i r views u n t i l they h a v e l e a r n e d those of
the o t h e r G o v e r n m e n t s , a n d t h e I t a l i a n G o v e r n m e n t h a v e g i v e n r e a s o n s w h y t h e y
doubt t h e d e s i r a b i l i t y of e x t e n d i n g t h e n o n - a g g r e s s i o n a n d g u a r a n t e e o b l i g a t i o n s
of t h e n e w t r e a t y beyond t h e l i m i t s of t h e T r e a t y of L o c a r n o .
4. H i s M a j e s t y ' s G o v e r n m e n t see no r e a s o n to a b a n d o n t h e i r view t h a t t h e
U n i t e d K i n g d o m s h o u l d receive g u a r a n t e e s f r o m F r a n c e a n d G e r m a n y , b u t t h e y
would a p p r e c i a t e a f u r t h e r e x p o s i t i o n of t h e views of t h e G e r m a n a n d I t a l i a n
G o v e r n m e n t s on t h i s p o i n t . I n t h i s c o n n e x i o n H i s M a j e s t y ' s G o v e r n m e n t w o u l d
recall t h a t i n t h e discussions on t h e s u b j e c t of t h e p r o p o s e d A i r P a c t between t h e
five P o w e r s i n t h e s p r i n g of 1935 i t w a s p r o p o s e d t h a t t h e g u a r a n t e e s to be g i v e n
should i n c l u d e one t o G r e a t B r i t a i n by G e r m a n y a n d F r a n c e ; a n d H i s M a j e s t y ' s
Government w e r e t h e n u n d e r the i m p r e s s i o n t h a t t h i s p r o p o s a l w a s a g r e e a b l e to
G e r m a n y a n d I t a l y . I t is t r u e t h a t on t h a t occasion only a i r a t t a c k w a s u n d e r
c o n s i d e r a t i o n ; b u t it is difficult to c o n t e m p l a t e a n a i r a t t a c k w h i c h w i l l n o t
involve t h e o t h e r a r m s .
5. T h e second q u e s t i o n a r i s i n g o u t of t h e d i s c u s s i o n s a s to t h e form of t h e
new t r e a t y c o n c e r n s a g u a r a n t e e by B e l g i u m to F r a n c e a n d G e r m a n y . I n t h e i r
m e m o r a n d u m of t h e 2 2 n d October t h e B e l g i a n G o v e r n m e n t h a v e e x p l a i n e d w h y
they consider t h a t i t w o u l d be u n d e s i r a b l e t h a t B e l g i u m s h o u l d give a reciprocal
g u a r a n t e e t o a n y of her co-signatories. H i s M a j e s t y ' s G o v e r n m e n t observe t h a t
the B e l g i a n G o v e r n m e n t u n d e r t a k e t o forbid access to t h e t e r r i t o r y of B e l g i u m ,
and t h a t t h e y s t a t e t h a t B e l g i u m w i l l c o n t i n u e to observe in respect of t h e
obligations of t h e C o v e n a n t of t h e L e a g u e of N a t i o n s t h e s c r u p u l o u s fidelity w h i c h
she h a s a l w a y s s h o w n in t h e p a s t . H i s M a j e s t y ' s G o v e r n m e n t i n t e r p r e t t h i s a s
implying t h e i n t e n t i o n of t h e B e l g i a n G o v e r n m e n t t o f o r b i d access t o B e l g i a n
territory by l a n d a n d also t h e flight a c r o s s B e l g i a n t e r r i t o r y of f o r e i g n a i r c r a f t
to a t t a c k a t h i r d P o w e r ; a n d , f u r t h e r , t h e i r i n t e n t i o n to t a k e , s h o u l d t h e case
arise a n d in a c c o r d a n c e w i t h p a r a g r a p h 3 of a r t i c l e 16 of t h e C o v e n a n t , " t h e
necessary s t e p s t o afford p a s s a g e t h r o u g h t h e i r ( B e l g i a n ) t e r r i t o r y t o the forces
of a n y of t h e m e m b e r s of t h e L e a g u e w h i c h a r e c o - o p e r a t i n g to p r o t e c t t h e
Covenants of t h e L e a g u e . "
6. T h e t h i r d q u e s t i o n w h i c h i t is n e c e s s a r y to c o n s i d e r is w h e t h e r t h e
proposed n o n - a g g r e s s i o n a r r a n g e m e n t s w o u l d be s u b j e c t to e x c e p t i o n s , a n d , if so,
what the n a t u r e of these e x c e p t i o n s s h o u l d be. O n t h i s p o i n t t h e r e is a difference
of opinion b e t w e e n t h e views e x p r e s s e d by H i s M a j e s t y ' s G o v e r n m e n t a n d t h e
French G o v e r n m e n t on t h e one h a n d a n d t h e G e r m a n G o v e r n m e n t on the o t h e r .
While t h e t w o f o r m e r G o v e r n m e n t s c o n s i d e r e d t h a t c e r t a i n e x c e p t i o n s would be
necessary, t h e G e r m a n G o v e r n m e n t " h a v e n o m o t i v e for w e a k e n i n g t h e s e c u r i t y
for peace w h i c h lies i n t h e conclusion of such a n a g r e e m e n t for t h e r e n u n c i a t i o n
of aggression by d e m a n d i n g e x c e p t i o n s of a n y k i n d w h a t e v e r . I n e a s e the o t h e r
Governments concerned should t h i n k i t n e c e s s a r y t o i n s i s t on m a k i n g e x c e p t i o n s
of this k i n d , i t would be for t h e m to p u t f o r w a r d p r o p o s a l s t o t h i s e n d . "
7. H i s M a j e s t y ' s G o v e r n m e n t fully a p p r e c i a t e t h a t t h e p o s i t i o n of t h e
German G o v e r n m e n t m a y in t h i s respect differ f r o m t h a t of o t h e r s i g n a t o r i e s t o
the proposed t r e a t y . G e r m a n y is n o t a t p r e s e n t a m e m b e r of t h e L e a g u e of
Nations, a n d i s not, so f a r a s H i s M a j e s t y ' s G o v e r n m e n t a r e a w a r e , a p a r t y t o
any special a r r a n g e m e n t s for the r e n d e r i n g of m u t u a l a s s i s t a n c e a g a i n s t
aggression. T h e o t h e r s i g n a t o r i e s to t h e p r o p o s e d t r e a t y , however, a r e all b o u n d
by the p r o v i s i o n s of t h e C o v e n a n t of t h e L e a g u e of N a t i o n s , a n d some of t h e m
have, in a d d i t i o n , a r r a n g e m e n t s for m u t u a l a s s i s t a n c e i n c e r t a i n c i r c u m s t a n c e s
with S t a t e s w h o w o u l d n o t be s i g n a t o r i e s t o t h e n e w t r e a t y . I t is obvious t h a t
the t r e a t y m u s t n o t be i n c o n s i s t e n t w i t h t h e o b l i g a t i o n s r e s u l t i n g from t h e
instruments r e f e r r e d t o ; i t w o u l d , for i n s t a n c e , be impossible for H i s M a j e s t y ' s
Government t o become a p a r t y t o a r r a n g e m e n t s w h i c h m i g h t be i n c o m p a t i b l e
with the p r o v i s i o n s of t h e i r t r e a t i e s w i t h I r a q a n d E g y p t .
8. I t a p p e a r s t h e r e f o r e t o H i s M a j e s t y ' s G o v e r n m e n t t o be inevitable t h a t
the proposed n o n - a g g r e s s i o n a r r a n g e m e n t s should be s u b j e c t t o s u c h e x c e p t i o n s a s
may be necessary t o m a k e t h e m a c c e p t a b l e by those s i g n a t o r i e s w h o s e p o s i t i o n i s
as indicated above. I f so, t h e q u e s t i o n a r i s e s of w h a t s h o u l d be t h e b a s i s of s u c h
exceptions. I n t h e i r m e m o r a n d u m of t h e 1 7 t h S e p t e m b e r H i s M a j e s t y ' s G o v e r n ­
[14091]
2
B
m e n t e x p r e s s e d t h e view t h a t t h e y should be on t h e lines which w e r e l a i d down
i n a r t i c l e 2 of t h e T r e a t y of L o c a r n o . T h e G e r m a n G o v e r n m e n t in t h e i r note of
t h e 12th October p o i n t o u t t h a t in a r t i c l e 2 of t h a t t r e a t y t h e i m p o r t a n t exceptions
a r e l a i d d o w n w i t h r e f e r e n c e to the C o v e n a n t , a n d in p a r t i c u l a r to a r t i c l e 16
thereof, a n d t h e y give reasons w h i c h in t h e i r view p r e c l u d e the r e p e t i t i o n of the
u s e of t h i s m e t h o d .
9. I n these c i r c u m s t a n c e s , H i s M a j e s t y ' s G o v e r n m e n t desire t o s u g g e s t for
t h e c o n s i d e r a t i o n of t h e o t h e r G o v e r n m e n t s concerned the possibility of t a k i n g as
t h e basis of t h e e x c e p t i o n s ( a p a r t from t h e case of l e g i t i m a t e self-defence) a n act
of a g g r e s s i o n by a s i g n a t o r y t o t h e n e w t r e a t y a g a i n s t a n o n - s i g n a t o r y w h i c h
c o n s t i t u t e s a v i o l a t i o n of some i n s t r u m e n t by w h i c h t h e s i g n a t o r y i n q u e s t i o n is
b o u n d . A l l t h e p r o p o s e d s i g n a t o r i e s t o t h e n e w t r e a t y a r e bound by the P a c t of
P a r i s , t o w h i c h a l m o s t all t h e n a t i o n s of t h e w o r l d a r e also p a r t i e s ; all of them,
e x c e p t a t p r e s e n t G e r m a n y , a r e bound by t h e p r o v i s i o n s of the C o v e n a n t of the
L e a g u e of N a t i o n s ; a n d a n y of t h e m m a y also be p a r t i e s to non-aggression
a r r a n g e m e n t s w i t h p a r t i c u l a r c o u n t r i e s . I t seems to H i s M a j e s t y ' s G o v e r n m e n t
e n t i r e l y l e g i t i m a t e , a n d i n d e e d necessary, t h a t a n a t t a c k by a s i g n a t o r y to the
n e w t r e a t y u p o n a n o n - s i g n a t o r y , i n v i o l a t i o n of a t r e a t y which is b i n d i n g upon
b o t h S t a t e s , s h o u l d e n t i t l e a n y of the o t h e r s i g n a t o r i e s t o come t o t h e a s s i s t a n c e
of t h e v i c t i m of a g g r e s s i o n w i t h o u t t h e r e b y v i o l a t i n g i t s non-aggression u n d e r ­
t a k i n g s t o w a r d s t h e s i g n a t o r y concerned.
T h i s a p p e a r s to H i s M a j e s t y ' s
G o v e r n m e n t t o be t h e scheme of t h e G e r m a n - P o l i s h d e c l a r a t i o n of the
2 6 t h J a n u a r y , 1934, since i t is t h e r e s t a t e d t h a t t h e t w o G o v e r n m e n t s have
d e c i d e d t o base t h e i r m u t u a l r e l a t i o n s on t h e p r i n c i p l e s of the P a c t of P a r i s . If
t h i s scheme w e r e a d o p t e d , t h e r e n d e r i n g of a s s i s t a n c e in such c i r c u m s t a n c e s to a
n o n - s i g n a t o r y w o u l d n o t b r i n g i n t o o p e r a t i o n , on one side or the o t h e r , the
g u a r a n t e e s to be p r o v i d e d i n t h e n e w t r e a t y . I t a p p e a r s to H i s M a j e s t y ' s
G o v e r n m e n t t h a t a n e x c e p t i o n on t h i s b a s i s w o u l d cover all the cases for w h i c h it
i s p r o p e r t h a t p r o v i s i o n should be m a d e , a n d they desire to commend this
s u g g e s t i o n t o t h e c o n s i d e r a t i o n of t h e o t h e r G o v e r n m e n t s concerned.
10. T h e n e x t a n d f o u r t h q u e s t i o n w h i c h a r i s e s is how a decision should be
r e a c h e d a s to w h e t h e r t h e n o n - a g g r e s s i o n a r r a n g e m e n t s in t h e new t r e a t y h a v e been
v i o l a t e d . I f these a r e to c o n t a i n e x c e p t i o n s , s u c h a s those suggested above, this
q u e s t i o n a s s u m e s p a r t i c u l a r i m p o r t a n c e , f o r i n o r d e r to d e t e r m i n e w h e t h e r the
n o n - a g g r e s s i o n a r r a n g e m e n t s h a v e been v i o l a t e d i t m i g h t be necessary t o d e t e r m i n e
w h e t h e r a s i g n a t o r y h a d a t t a c k e d a n o n - s i g n a t o r y i n breach of an i n s t r u m e n t
w h i c h w a s b i n d i n g between t h e m .
I t a p p e a r s a c c o r d i n g l y to H i s M a j e s t y ' s
G o v e r n m e n t to be of p a r t i c u l a r i m p o r t a n c e to p r o v i d e a m e t h o d of d e t e r m i n i n g
t h i s q u e s t i o n w h i c h should be efficacious, r a p i d i n i t s action, a n d such as t o com­
m a n d t h e confidence of t h e G o v e r n m e n t s c o n c e r n e d a n d of t h e i r peoples.
11. F r o m t h i s p o i n t of view, H i s M a j e s t y ' s G o v e r n m e n t r e m a i n of the
o p i n i o n , w h i c h t h e y expressed i n t h e i r m e m o r a n d u m of t h e 17th S e p t e m b e r , t h a t
t h e best m e t h o d of d e t e r m i n i n g t h i s q u e s t i o n w o u l d be t o confide t h e decision to
t h e C o u n c i l of t h e L e a g u e of N a t i o n s . I n t h e i r v i e w t h e Council, both as r e g a r d s
i t s c o m p o s i t i o n a n d t h e c o n d i t i o n s i n w h i c h i t w o r k s , w o u l d be a more effective
b o d y for t h e p u r p o s e i n q u e s t i o n t h a n a n y o t h e r . I n t h i s connexion t h e following
c o n s i d e r a t i o n s a r e , i n t h e o p i n i o n of H i s M a j e s t y ' s G o v e r n m e n t , relevant. W h a t ­
ever c h a n g e s m a y be i n t r o d u c e d i n t h e w o r k i n g of t h e L e a g u e it a p p e a r s probable,
a n d i t is c e r t a i n l y t h e view of H i s M a j e s t y ' s G o v e r n m e n t i n the U n i t e d K i n g d o m ,
t h a t t h e p e a c e - p r e s e r v i n g f u n c t i o n s of t h e C o u n c i l w i l l become even more
i m p o r t a n t t h a n i n t h e p a s t . I t i s t h e r e f o r e p r o b a b l e , to s a y t h e least, t h a t i n the
e v e n t of i t s b e i n g n e c e s s a r y t o d e t e r m i n e w h e t h e r a b r e a c h of the non-aggression
a r r a n g e m e n t s h a d o c c u r r e d , t h e Council w o u l d h a v e been d e a l i n g w i t h t h e case
p r a c t i c a l l y f r o m t h e o u t s e t a n d w o u l d be i n full possession of t h e f a c t s ; and
t h e r e f o r e from t h e p o i n t of v i e w b o t h of t h e a u t h o r i t y w h i c h i t s decision would
c a r r y a n d t h e r a p i d i t y w i t h w h i c h such a decision could be given t h e Council
w o u l d be a m o r e effective i n s t r u m e n t t h a n a n y o t h e r e x t r a n e o u s body.
12. T h e G e r m a n m e m o r a n d u m of t h e 31st M a r c h , 1936, proposed such an
e x t r a n e o u s b o d y i n t h e i n s t i t u t i o n of an i n t e r n a t i o n a l c o u r t of a r b i t r a t i o n which
w o u l d h a v e c o m p e t e n c e i n r e s p e c t of t h e o b s e r v a n c e of t h e v a r i o u s agreements
c o n c l u d e d . T h i s p r o p o s a l is n o t r e p e a t e d i n t h e G e r m a n m e m o r a n d u m of the
1 2 t h October, b u t H i s M a j e s t y ' s G o v e r n m e n t d e s i r e to say t h a t for t h e purposes
of d e c i d i n g t h e q u e s t i o n n o w u n d e r c o n s i d e r a t i o n such a court, w h i c h is a p p a r e n t l y
i n t e n d e d t o be a n ad hoc t r i b u n a l a n d m i g h t w e l l be m e e t i n g for t h e first t i m e
w h e n i t h a d t o d e c i d e w h e t h e r a n i n f r a c t i o n of t h e n o n - a g g r e s s i o n a r r a n g e m e n t s
h a d t a k e n place, w o u l d n o t in t h e i r o p i n i o n p r e s e n t , from t h e p o i n t of v i e w
e i t h e r of r a p i d i t y of decision, full a c q u a i n t a n c e w i t h t h e f a c t s or t h e a u t h o r i t y
w h i c h i t s decision would c a r r y , t h e same a d v a n t a g e s a s w o u l d t h e Council of t h e
League.
13. T h e G e r m a n G o v e r n m e n t now s u g g e s t t h a t t h e decision should be
r e a c h e d by a common decision of t h e s i g n a t o r i e s to t h e t r e a t y who are, i n a
given case, n o t d i r e c t l y p a r t i e s t o t h e conflict. H i s M a j e s t y ' s G o v e r n m e n t do n o t
see t h a t t h i s solution w o u l d p r e s e n t a n y a d v a n t a g e s over t h e course of l e a v i n g
each g u a r a n t o r to d e c i d e for itself. A n d i t is o p e n t o a p a r t i c u l a r objection
w h i c h is m e n t i o n e d i n t h e n e x t p a r a g r a p h .
14. I n t h e i r o b s e r v a t i o n s on t h i s q u e s t i o n t h e F r e n c h G o v e r n m e n t , t h e
G e r m a n G o v e r n m e n t a n d H i s M a j e s t y ' s G o v e r n m e n t all m e n t i o n t h e case, w h i c h
w as d e a l t w i t h i n a r t i c l e 4 (3) of t h e T r e a t y of L o c a r n o , of i m m e d i a t e a c t i o n
by t h e g u a r a n t o r s p e n d i n g a s u b s e q u e n t decision as to w h e t h e r a v i o l a t i o n of
the n o n - a g g r e s s i o n a r r a n g e m e n t s h a d t a k e n place. H i s M a j e s t y ' s G o v e r n m e n t
note t h a t i n t h e G e r m a n G o v e r n m e n t s view ' ' a d i s t i n c t i o n between
flagrant
breaches of t h e t r e a t y a n d o t h e r k i n d s of b r e a c h e s of t h e t r e a t y such as w a s l a i d
down i n t h e old R h i n e P a c t w i l l n o longer come i n t o c o n s i d e r a t i o n i n t h e n e w
p a c t . " I n t h e view of H i s M a j e s t y ' s G o v e r n m e n t , however (and t h i s view is
confirmed by t h e discussions of t h e p r o p o s e d a i r p a c t w h i c h took place l a s t y e a r ) ,
it is n o less necessary n o w t h a n i t w a s p r e v i o u s l y to m a k e p r o v i s i o n for cases
where a s u d d e n a n d u n p r o v o k e d a t t a c k (such, for i n s t a n c e , as a n a i r a t t a c k ) is
made i n v i o l a t i o n of t h e n o n - a g g r e s s i o n a r r a n g e m e n t s . I n s u c h c i r c u m s t a n c e s
i m m e d i a t e a c t i o n by t h e g u a r a n t o r s m a y be essential, a n d i t w o u l d n o t be possible
to a w a i t a decision of t h e c o m p e t e n t body. I t a p p e a r s , however, to H i s M a j e s t y ' s
Government to be e s s e n t i a l t o p r o v i d e , a s w a s d o n e i n t h e T r e a t y of L o c a r n o , t h a t
g u a r a n t o r s , i n d e c i d i n g t o i n t e r v e n e , should k n o w t h a t t h e i r decision is s u b j e c t
to a s u b s e q u e n t p r o n o u n c e m e n t by t h e c o m p e t e n t body, so a s t o e n s u r e t h a t a c t i o n
w i t h o u t a p r e v i o u s f i n d i n g by t h a t body w o u l d n o t be t a k e n e x c e p t i n cases w h e r e
no reasonable d o u b t c a n exist. I f i t is decided t o a d o p t t h e C o u n c i l of t h e L e a g u e
as the body t o decide w h e t h e r a n i n f r a c t i o n of t h e n o n - a g g r e s s i o n a r r a n g e m e n t s
h a s t a k e n place, t h e r e w o u l d be no difficulty i n r e p r o d u c i n g t h e scheme of t h e
T r e a t y of L o c a r n o i n t h i s respect. If, however, t h e decision w e r e t o be t a k e n , a s
t h e G e r m a n G o v e r n m e n t suggest, by t h e s i g n a t o r i e s t o t h e t r e a t y w h o w e r e n o t
directly p a r t i e s t o t h e conflict, t h e following difficulty w o u l d a r i s e . I f all t h e
guarantors h a d immediately intervened to assist the signatory attacked, their
decision w o u l d not, i n fact, be s u b j e c t t o a n y s u b s e q u e n t control, because t h e y
evidently w o u l d n o t c o n c u r i n a finding t h a t t h e y h a d a c t e d w r o n g l y . If, o n t h e
other h a n d , some of t h e g u a r a n t o r s h a d i n t e r v e n e d a n d o t h e r s h a d not, i t w o u l d
seem u n l i k e l y t h a t i t w o u l d be possible for a u n a n i m o u s decision t o be r e a c h e d
a t all.
r
15. I n view of a l l t h e s e c o n s i d e r a t i o n s , H i s M a j e s t y ' s G o v e r n m e n t r e m a i n
of the o p i n i o n t h a t t h e best course w o u l d be to e n t r u s t t h e decision t o t h e C o u n c i l
of the L e a g u e .
16. L a s t l y t h e r e r e m a i n s t h e f u r t h e r p o i n t r a i s e d i n H i s M a j e s t y ' s G o v e r n ­
m e n t ' s m e m o r a n d u m of t h e 4 t h November, n a m e l y , t h e p o i n t t h a t o t h e r m a t t e r s
affecting E u r o p e a n p e a c e w o u l d , i n t h e w o r d s of t h e c o m m u n i q u e of t h e 2 3 r d J u l y ,
necessarily come u n d e r discussion if p r o g r e s s could be m a d e a t t h e F i v e - P o w e r
Conference. T h e G e r m a n G o v e r n m e n t , i n t h e i r m e m o r a n d u m of t h e 12th October,
state t h a t they m u s t reserve, u n t i l t h e r e s u l t of t h e F i v e - P o w e r Conference h a s
been reached, t h e i r a t t i t u d e w i t h r e g a r d t o t h e q u e s t i o n w h e t h e r , a n d if so, w h i c h ,
other problems m i g h t l a t e r be discussed. H i s M a j e s t y ' s G o v e r n m e n t feel obliged
to make i t clear t h a t t h e i m p o r t a n c e w h i c h they a t t a c h to t h e successful outcome
of the Conference of t h e F i v e P o w e r s is d u e n o t only to t h e i r w i s h to see a n e w
treaty t a k e t h e p l a c e of t h e T r e a t y of L o c a r n o , b u t also because t h e y c o n t i n u e t o
assume t h a t s u c h a successful o u t c o m e of t h e C o n f e r e n c e of t h e F i v e P o w e r s i s
intended t o l e a d t o t h e s o l u t i o n of o t h e r q u e s t i o n s w h i c h a r e of d i r e c t i n t e r e s t
to the peace of E u r o p e .
1 7 . H i s M a j e s t y ' s G o v e r n m e n t i n the U n i t e d K i n g d o m h o p e t h a t t h e y may
receive the v i e w s of t h e B e l g i a n ( F r e n c h ) ( G e r m a n ) ( I t a l i a n ) G o v e r n m e n t on the
q u e s t i o n s d e a l t w i t h i n t h i s m e m o r a n d u m a t as e a r l y a d a t e as possible.
1 8 . A s i m i l a r m e m o r a n d u m h a s been a d d r e s s e d to t h e F r e n c h , G e r m a n and
I t a l i a n (Belgian, G e r m a n a n d I t a l i a n ) (Belgian, F r e n c h a n d I t a l i a n ) (Belgian,
French and German) Governments.