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AN INQUIRY INTO THE DEVELOPMENT OP AMERICAN POLICY REGARDING THE POSTWAR GOVERNMENT OP GERMANY 1945-1949

A T h esis P resented to the F a c u lty of the School of I n te r n a tio n a l R e la tio n s The U n i v e r s i t y o f S o u t h e r n C a l i f o r n i a

In P a r t i a l F u lf illm e n t o f th e R equirem ents f o r t h e Degree M aster o f A rts

in I n te r n a tio n a l R elatio n s

hy M i t t i e A n n e t te Rugen June 1950

UMI Number: EP59895

All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion.

Dissertation Publishing

UMI EP59895 Published by ProQuest LLC (2014). Copyright in the Dissertation held by the Author. Microform Edition © ProQuest LLC. All rights reserved. This work is protected against unauthorized copying under Title 17, United States Code

ProQuest LLC. 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106- 1346

This thesis, written by

MITTIE ANNETTE RUGEN under the guidance of h. f i r . . . Faculty Com m ittee, and ap proved by all its members, has been presented to and accepted by the Council on Graduate S tu dy and Research in partial fulfill­ ment of the requirements fo r the degree of

MASTER OF ARTS

D ate ...... JUNE..195&.

Faculty Committee

Chairman

TABLE OP CONTENTS CHAPTER I .

PAGE

INTRODUCTION............................................................................................ The p r o b l e m S tatem en t

o f th e problem

Im portance o f th e stu d y

.

.

. .

.......................... ....

1

.

1

.

. -.

2

.‘ ...............

A

.......................................................................................

5

PRE“SURRENDER PLANNING ...................................................................

7

O rg an izatio n

O r i g i n a l em phasis T rain in g of

........................................................................

M i l i t a r y Government o f f i c e r s

.

10

* . .

13

a ....................................

15

...................................................................

21

T hree-Pow er d is c u s s i o n s Econom ic p o l i c y Zonal d i v is io n

^

.

.

.

o f Germ any

.

.

.

.

7

. .

A m erican p o l i c y o f u n c o n d i t i o n a l s u r r e n d e r

III.

. .* .

...................................................

S o u r c e s .........................................

II.

1

...................................................

31

POTSDAM AND THE ALLIED CONTROL COUNCIL ..........................

36

..............................................

36

P o litic a l p o lic ies

........................................................................

37

Econom ic p o l i c i e s

........................................................................

38

D e c l a r a t i o n o f J u n e 5* 1 9 ^ 5

Proposal of

'. .

41

...................................................

42

c e n tra l a d m in is tra tiv e ag en cies

•The A l l i e d C o n t r o l C o u n c i l

?

I V . "^ALLIED NEGOTIATIONS THROUGH THE COUNCIL OF FOREIGN MINISTERS

............................................................................................

London M e e tin g ,

Septem ber,

19^5

....................................

51 51

iii CHAPTER

PAGE

B yrnes-B idault n o tes P aris,

.

A pril to Ju ly ,

S t u t t g a r t A ddress

.

............................................... ■ .

.

52

1 9 4 6 ....................................................

5^

.

58

New Y o r k m e e t i n g .............................................

6l

Moscow, M a r c h ,

62

1947

.

.

* ....................................

E u ro p e a n R e co v e ry Program a n n o u n ce d D irectiv e

of J u ly 11,

..........................

66

1 9 4 7 ...................................................

67

f s —- B i z o n a l a g r e e m e n t .................................................. V.

THE AMERICAN Z O N E ............................................................................. The f e d e r a l p r i n c i p l e S i t u a t i o n i n Germany $

73

...................................................

74

Problem s o f A m erican M i l i t a r y Government

. . . .

....................................

. . H i s t o r i c a l b a s i s o f Land g o v e rn m e n t

..........................

77 8l 82

The L a e n d e r r a t ........................................

86

Laender c o n s titu tio n s '

..............................................................

88

o f p o w e r s ..............................................................

89

COMPARISON OF ALLIED ADMINISTRATIONS ...............................

97

D istrib u tio n

A m erican p o l i c y .B ritish

. . . . .

...................................................

98

. . . . . . .

104

. . . . . . .

Ill

p o lic y

French p o lic y

V II.

73

..............................................................

—M i l i t a r y G o v e r n m e n t a c h i e v e m e n t s

YJ.

68

..............................................

S o v i e t p o l i c y .............................................................

118

C o n c l u s i o n ............................................................................................

130

THE BIZONAL MERGER.............................................................................

135

iv CHAPTER

PAGE

F a ilu re to e s ta b lis h

c e n tr a l ag en cies

B r i t i s h a c c o r d on m e r g e r D ifficu ltie s

..........................

1 35

.........................................................

138

in dual a d m in istra tio n

...............................

138

....................................

139

........................................................................

143

.........................................................

1 53

.........................................................

153

O rg a n iz a tio n of B izonal a g e n c ie s P r o c l a m a t i o n No. 5 V III.

TOWARD A GERMAN STATE N e g o tia tio n s w ith France

T h re e -p o w e r c o n f e r e n c e a t London

....................................

154

..............................................................

158

.............................................................................

1 60

S i x - p o w e r London t a l k s L o n d o n co m m u n iq u e

P r e p a r a t i o n s f o r a German c o n s t i t u t i o n

.....................

l6 l

..........................

163

..........................

16 6

.........................................

167

The ^ P e o p l e ' s C o u n c i l o f t h e P e o p l e * s C o n g r e s s ” .

169

D raft c o n stitu tio n

171

P a r l i a m e n t a r y C o u n c i l a t Bonn . .

. .

A i d e M e m o ire f r o m M i l i t a r y G o v e r n o r s D raft c o n stitu tio n s

considered

........................................

P l e b i s c i t e .............................. The O c c u p a t i o n S t a t u t e

17 2 ..............................................................

The T r i z o n a l F u s i o n A g r e e m e n t

..............................................

17 4 175

Th e B a s i c L a w .........................

177

E lections*

180

The f i r s t

A u g u s t 14* 1 9 4 9 P arliam en t

. .

1 ...................................................

l8 l

The A l l i e d H i g h C o m m i s s i o n ...................................................

l8 l

S oviet o p p o sitio n

183

.............................................................................

V

CHAPTER IX.

PAGE

CONCLUSION.................................................................................................

188

Econom ic p o l i c y

.............................................................................

188

P o litic a l p o licy

.............................................................................

188

E valuation of p o lic y

...................................................................

19 5

CHAPTER I INTRODUCTION I.

THE PROBLEM

S tatem ent o f th e p ro b lem .

W ithin th e g e n e r a l E urop­

e a n p o l i t i c a l s c e n e t h e d e f e a t o f Germ an y on May 8 , m eant n o t o n ly t h e

end o f a t r a g i c

1945

c o n flic t but the b e g in ­

n i n g o f a new p o l i t i c a l e r a .

G e rm a ny n o l o n g e r wa s t h e

m i l i t a r y c o lo ssu s of E urope.

Germany,

i n s t e a d , h a d become

one o f t h e m a jo r p o l i t i c a l vacuums o f t h e w o r l d .

The l a s t

c o n f l i c t a l s o p r e c i p i t a t e d a n e n t i r e l y new w o r l d p o w e r s i t ­ u a t i o n in w hich, i n pow er,

s u p p l a n t i n g a number o f s t a t e s

th e U n ited S ta te s

t h e two s t r o n g e s t s t a t e s .

w ar Germany t h e i r is

equal

and t h e S o v i e t Union emerged a s The r e s u l t i n g p o l a r i z a t i o n

p o w e r a r o u n d t h e s e two s t a t e s and id e o lo g ic a l f a c t o r s .

fairly

is

added to

of

troublesom e s o c i a l

W ithin th e p o l i t i c a l v o id o f p o s t ­

in te re sts

meet h e a d -o n .

W h e t h e r G e rm a n y

t o b e c o m e t h e b u l w a r k o f w e s t e r n d e m o c r a c y a g a i n s t com­

m u n is m o r i s

t o become a n o t h e r l i n k i n t h e c o rd o n s a n i t a i r e

su rro u n d in g S o v iet R ussia Is One o f t h e o b j e c t i v e s

a p p a re n tly the u ltim a te

issu e.

o f th e W estern Powers h a s b e e n

to prom ote t h e e s t a b l i s h m e n t o f a ty p e o f governm ent i n Germany w h ic h t h e y b e l i e v e d w o u ld p r o b a b l y b e d e m o c r a t i c the w estern sen se,

i.e .,

w h ic h w ould g u a r a n t e e i n d i v i d u a l

in

2 lib e rty

so a s t o p r e v e n t t h e r i s e

above a l l ,

of a d ic ta to rs h ip and,

w h ich w ould p r e c l u d e t h e p o s s i b i l i t y o f a f u t u r e

c o n c e n t r a t i o n o f German m i l i t a r i s m

and econom ic pow er b e i n g

u s e d a g a i n s t them . T h i s s t u d y was u n d e r t a k e n a s a n i n v e s t i g a t i o n

in to

t h e t r e n d o f A m erican p o l i c y c o n c e r n i n g t h e d e s i r e d fo rm o f a fu tu re sis

German g o v e r n m e n t .

of th e

I t was n o t i n t e n d e d a s a n a n a l y ­

v alu es of fe d e ra lis m nor o f In d iv id u a lis m versus

c o llectiv ism .

R ath er i t s

o f A m erican p o l i c y , th e p o s s ib le

effects

p u r p o s e wa s t o

in d ic ate

th e n a tu re

th e im p lem en tatio n o f th a t p o lic y , an d on t h e i n t e r n a t i o n a l s c e n e .

The p r o b l e m

o f r e c o n s t r u c t i n g a German g o v e r n m e n t c l e a r l y c a n n o t b e i s o ­ l a t e d from o t h e r r e l a t e d c o n s i d e r a t i o n s . r e f e r e n c e m u s t b e made t o h i s t o r i c How ever,

and econom ic f a c t o r s .

such r e f e r e n c e s w ere i n te n d e d t o be c o n s i d e r e d

o n ly in t h e i r r e l a t i o n s h i p to tio n ,

Of n e c e s s i t y some

th e c e n t r a l them e.

t h e A m erican v ie w p o in t r e c e i v e d g r e a t e r

In a d d i ­

em phasis th a n

t h o s e o f t h e o t h e r powers c o n c e r n e d . Im portance o f th e

stu d y .

fo c a l p o in t fo r various re a so n s.

T o d a y Ge rm a ny i s

a v ita l

In a m ajor se n se ,

i t has

b e e n a n e x p e r i m e n t a l g r o u n d b e t w e e n t h e two o p p o s i n g p o l i t i c a l and i d e o l o g i c a l g ro u p s .

The s u c c e s s o r f a i l u r e

of n e g o tia ­

t i o n s r e g a r d i n g Ge rm a n y may w e l l i n d i c a t e t h e p r o b a b i l i t i e s of fu tu re

c o o p e r a tio n o r l a c k o f c o o p e r a tio n betw een

S o v i e t U n i o n a n d t h e W est*

the

3 By r e a s o n o f I t s

geographic p o s itio n ,

th e concern o f b o th g ro u p s. German p l a i n A sia tic

stra te g ic

In g e o p o l i t i c a l te rm s ,

th e N orth

form s a b r i d g e b e tw e e n W e ste rn E uro p e a n d th e

"h ea rtla n d ,"

d irec tio n .

G-ermany commands

a b r i d g e w h i c h may b e t r a v e r s e d i n e i t h e r

T h u s t h e c o n t r o l o f Ge rm a n y r e p r e s e n t s im po rtan ce to b o th geographic

areas :

a m atter of

to R ussia

r e m e m b e r i n g t h a t a l l w e s t e r n i n v a s i o n s h a v e come t h r o u g h Germany a n d P o l a n d , a n d t o P r a n c e a n d t h e L o w la n d s r e c a l l i n g German i n v a s i o n s s i n c e 1 8 7 1 . C oupled w i t h th e s t r a t e g i c I ts h ig h ly s ig n ific a n t

I m p o r t a n c e o f Germany i s

in d u s tr ia l cap acity .

m ig h t can b e u s e d f o r b o t h good a n d e v i l . siv e purposes

in

the p a s t has r e s u l t e d in

t h e p a r t o f Germany’ s n e i g h b o r s .

German I n d u s t r i a l Its

use f o r

ju stifia b le

aggres­ f e a r on

Y e t , on t h e o t h e r h a n d ,

the

p o s i t i o n o f German h e a v y i n d u s t r y a s t h e c e n t r e a n d b a c k b o n e - o f t h e e n t i r e E u r o p e a n e co no m y means t h a t

t h o s e same n e i g h ­

b o r in g c o u n tr ie s a r e dependent upon i t f o r w e lfa re in tim e of p e a c e . m ain tain in g th is

th eir

econom ic

W hether o r n o t t h e n e c e s s i t y o f

econom ic p o s i t i o n i s a l e g i t i m a t e o n e ,

p la n w hich I g n o r e s

e ith er its

any

p o t e n t i a l u s e f o r war o r f o r .

p e a c e may b e d a n g e r o u s l y u n r e a l i s t i c . F in a lly , im p o rtan t.

the p o lit ic a l p o sitio n

o f Germany i s no l e s s

At p r e s e n t p o l i t i c a l p a t t e r n s

w hat more d i s t i n c t , f a r from c l e a r .

a r e b e co m in g some­

alth o u g h fu tu re tre n d s,

of course, are

Even s h o u l d t h e p r e s e n t d i v i s i o n

o f Ge rm a n y

4 c o n tin u e,

a r e s u r g e n c e o f German n a t i o n a l i s m ,

h e r e n t l y d em an ds u n i f i c a t i o n ,

is

sin ce i t

in ­

l i k e l y t o become a d a n g e r o u s

c a t a l y s t b e tw ee n E a s t and W est.

II. P rim ary sources

SOURCES

c o n s i s t o f v a r i o u s docum ents p u b l i s h e d

by th e U n ite d S ta te s D epartm ent o f S t a te and b y th e O f f ic e o f M i l i t a r y Government

(U .S .),

as w e l l as s p e e c h e s

and r e p o r t s

of th e s u c c e s s iv e S e c r e t a r i e s o f S ta te and the F o re ig n M inis­ ters

o f t h e U n i t e d Kingdom, F r a n c e ,

Secondary sources In c lu d e : t io n s , books,

p erio d icals,

l is te d under p e rio d ic a ls , S tate B u lle tin

and th e S o v ie t U nion.

p u b lic atio n s by learned I n s t i t u ­ and newspaper a r t i c l e s . a rticle s

A lthough

from th e D epartm ent o f

sh o u ld be c o n s id e r e d as p rim a ry so u rc e m a te r­

i a l s in c e th e y r e p re s e n t th e o f f i c i a l view point o f th e S ta te D epartm ent. . Much h a s b e e n w r i t t e n c o n c e r n i n g t h e g e n e r a l p r o b l e m o f p o s t w a r Germany, a l t h o u g h t h e p r e s e n t p r o x i m i t y o f t h e su b ject o f th is a u th o rita tiv e

stud y r e s u l t s

an alyses.

of th eir d irect

in

som ewhat o f a s c a r c i t y o f

However s e v e r a l w r i t e r s ,

by reaso n

c o n t a c t w i t h t h e German s i t u a t i o n , h a v e

p r o d u c e d commendable s e c o n d a r y s o u r c e s *

The p r o b l e m s r e l a t i n g

t o A m erican M i l i t a r y Government a r e a b l y s e t Z i n k , who wa s a n o f f i c e r

in t h e

f o r th b y H aro ld

German C o u n t r y U n i t o f SHAEF.

5 D r . Jam es K e r r P o l l o c k ,

who was a p o l i t i c a l a d v i s o r

to G eneral

C a ly and th e D i r e c t o r o f t h e R e g io n a l Government C o o r d i n a t i n g O f f i c e i n t h e A m erican z o n e, h a s c o m p ile d i m p o r t a n t docum ents r e l a t i n g t o Germany.

A nother o f h i s b o o k s,

i n European G overnm ent, i s

p r o b a b l y one of t h e b e s t

on t h e A m e r i c a n p o l i c y r e g a r d i n g G e r m a n y . gang F ried m an , due t o h i s

Change and C r i s i s sources

P r o f e s s o r W olf­

German b a c k g r o u n d a n d c o n n e c t i o n

w i t h B r i t i s h M i l i t a r y G overnm ent,

is a b ly q u a lif ie d to p re s ­

en t t h e B r i t i s h p o in t o f view .

III. The b o d y o f t h i s four p a rts as fo llo w s: d e r o f Germany,

(b)

ORGANIZATION

s t u d y may b e l o g i c a l l y d i v i d e d i n t o (a)

developm ents p r i o r to

po st-surrender n e g o tia tio n s,

im p lem en tatio n o f p o l i c i e s

in

the four zones,

o p m e n t s l e a d i n g t o w a r d a German s t a t e .

the s u rre n ­ (c)

actu al

and (d)

One c h a p t e r i s

d ev el­ devot­

ed to t h e w a rtim e d e v e lo p m e n t o f A m erican p o l i c y to w a rd t h e e n tire to

German p r o b l e m a n d t h e n e g o t i a t i o n s

th e tim e o f th e s u r r e n d e r .

genesis o f, ta n t facto rs

is

i n t e n d e d t o show t h e

and t h e r e a s o n s f o r A m erican p o l i c y , in i t s

en countered in G overnm ent.

It

o f t h e A l l i e s up

developm ent,

t h e im por­

a n d some o f t h e d i f f i c u l t i e s

th e o r g a n i z a t i o n o f th e A m erican M i l i t a r y

T h e n e x t tw o c h a p t e r s i n d i c a t e t h e p r o b l e m s

volved in fo u r-p o w e r n e g o t i a t i o n s ;

first,

in ­

through th e A llied

6 C o n t r o l C o u n c i l i n Germany, a n d , of F oreign M in is te rs . concerned w ith

second,

through, t h e C o u n c il

T he t h i r d p a r t c o n s i s t s

o f two c h a p t e r s

(1) t h e i m p l e m e n ta t io n o f A m erican p o l i c y i n

the U n ited S ta te s

zone, and

ad m in istratio n s o f a l l

(2)

a com parison o f t h e r e s p e c t i v e

four zones.

F in ally ,

tw o c h a p t e r s

are

d e v o t e d t o t h e d e v e lo p m e n ts l e a d i n g to w a rd econom ic u n i f i c a ­ tio n ,

first

seen in

the b iz o n a l m erger,

a n d t h e n i n a German

p o l i t i c a l o rg a n iz a tio n o f th e th re e w estern zones. The sum m ary a n d c o n c l u s i o n p r e s e n t s ment o f t h e sio n s as

a b rief re -s ta te ­

s u b s ta n c e o f th e s tu d y and th e w r i t e r ’s c o n c lu ­

to i t s

f u t u r e s i g n i f i c a n c e i n term s o f i t s

re la tio n ­

s h i p t o t h e E u ro p e a n com m unity a n d t o A m erican f o r e i g n

p o licy .

CHAPTER I I PRE-SURRENDER PLANNING P r i o r t o t h e s u r r e n d e r o f Germany, t h e U n i t e d S t a t e s g o v e rn m e n t h a d c o n d u c t e d a c o n a i d e r a h l e amount o f p l a n n i n g for Its th is

fu tu re

occu p atio n o f t h a t c o u n try .

p l a n n i n g was c o n c e i v e d i n t h e l i g h t

A lth o u g h m ost o f

of our m istak es

In

t h e A l l i e d o c c u p a t i o n o f t h e R h i n e l a n d a f t e r W o r l d War I , the a c t i v i t i e s

o f v a r i o u s A m erican g o v e rn m e n ta l a g e n c ie s h a d

r e s u l t e d i n more e x t e n s i v e p l a n s

t h a n t h o s e made b y a n y o f

our A llie s

at

chapter is

i n t e n d e d t o r e v i e w t h e d e v e l o p m e n t o f %t h o s e p l a n s

w ith reg a rd to can p o l ic y as

t h e t i m e o f t h e s u r r e n d e r i n May, 1 9 4 5 .

th e ir re la tio n sh ip to , to th e

or

T his

e f f e c t upon, A m eri­

s t r u c t u r e o f a f u t u r e German g o v e r n ­

ment . At t h e s t a r t the o rg a n iz a tio n

e m p h a s i s was n e c e s s a r i l y p l a c e d u p o n

o f A m erican m i l i t a r y g o v ern m en t r a t h e r

upon th e grow th o f a b a s i c p o l i t i c a l p o l i c y . p l a n n in g f o r A m erican m i l i t a r y o c c u p a tio n

th an

The b u l k o f

o f f o r m e r enem y

c o u n t r i e s wa s p r e p a r e d b y t h e War D e p a r t m e n t a n d t h e g e n e s i s of th ese plans

appeared b e fo re th e U n ited S ta te s had o f f i c i a l ­

l y e n te r e d th e w ar.

The f i r s t

sp ecific

e x a m p l e was a n Army

f i e l d m a n u a l known a s PM 2 7 - 5 a n d wa s c o m p l e t e d i n J u n e 3 0 ,

8 1940.1

T h i s m a n u a l was d e c i d e d l y l i b e r a l i n t o n e a n d r e ­

f l e c t e d t h e h u m a n e i d e a s o f L i e b e r ’ s C o d e ^ a n d t h e H a gu e C o n v e n ti o n s o f 1899 a n d 1 9 0 7 . n ot yet in v o lv ed in th e g ov ernm en ts, retrib u tiv e

As t h e U n i t e d S t a t e s was

stru g g le ag ain st th e to ta lita r ia n

A m erican em o tio ns w ere n o t y e t c o m m itte d to a p o l i c y a n d t h e A m erican c o n c e p t o f m i l i t a r y

o c c u p a t i o n a t t h e o u t b r e a k o f t h e war l e a n e d t o w a r d l e g a l • re stra in ts

as d e fin e d a c c o rd in g to i n t e r n a t i o n a l law .

th e progress

o f th e war w i t h t h e c o n s e q u e n t

upon p u b lic o p in io n m o d ifie d t h i s th is

p o sitio n

em otional e f f e c ts co n sid erab ly .

t i m e , h o w e v e r , PM 2 7 - 5 was m o r e o f a r e f l e c t i o n

v io u s A m erican e x p e r i e n c e s an a n t i c i p a t i o n

L ater

At

of p re ­

i n o c c u p y i n g enemy c o u n t r i e s

than

o f t h e a c t u a l problem s w hich w ere to a r i s e

o u t o f W o r l d War I I . 3 P robably th e f i r s t

t o p - l e v e l d e c l a r a t i o n o f A m erican

p o l i t i c a l a i m s was t o b e f o u n d i n t h e A t l a n t i c

C h arter,

a

j o i n t d e c l a r a t i o n m ad e b y P r e s i d e n t R o o s e v e l t a n d P r i m e M in ­ ister

C h u r c h i l l on t h e 1 4 t h o f A u g u s t ,

1941.

At t h i s

tim e

1 C a r l J . F r i e d r i c h an d a s s o c i a t e s , A m erican E x p e r­ i e n c e s i n M i l i t a r y G o v e r n m e n t i n W o r l d War I I . (Hew Y o r k : R i n e h a r t a n d Company^ 1 948)",' p . 2 4 . ^ L i e b e r ’ s C o de i s t h e A r m y Ts G e n e r a l O r d e r s H o . 1 0 0 w h i c h wa s p r e p a r e d d u r i n g t h e A m e r i c a n C i v i l W a r . ^ F r i e d r i c h , o p . c i t . , p p . 24 f . FM 2 7 - 5 was r e v i s e d In Decem ber, 1943. C f . U n i t e d S t a t e s Army a n d N a v y M a n u a l o f M i l i t a r y Government a n d C i v i l A f f a i r s . (W ashington, D . C . : U n i t e d S t a t e s Government P r i n t i n g O f f i c e , 19 43 )•

9 tootli l e a d e r s d i s c l a i m e d a n y d e s i r e izem ent and p rom ised t h a t f u t u r e b e made o n l y i n

for t e r r i t o r i a l

aggrand­

t e r r i t o r i a l changes w ould

'’a c c o r d w i t h t h e f r e e l y

e x p re ssed w ishes

of

the people c o n c e rn e d .” H o w e v e r , C o r d e l l H u l l s a i d i n a b r o a d c a s t on A p r i l 8,

194-4 t h a t h e c o n s i d e r e d t h e A t l a n t i c

e x p re ss io n o f fu n d am en tal p r i n c i p a l s ,

n o t a c o d e o f lav/ f r o m

w hich d e t a i l e d answ ers to e v e r y q u e s t i o n W inston C h u r c h i l l a l s o reg ard to th e fu tu re before

C h a r t e r t o b e ’’t h e

c a n b e d i s t i l l e d . ” 4-

c l a r i f i e d A nglo-A m erican p o l i c y w ith

statu s

o f German t e r r i t o r y

t h e H o u s e o f Commons on F e b r u a r y 2 2 ,

in an a d d re ss

1944:

T h ere w i l l b e no q u e s t i o n , f o r i n s t a n c e , o f th e A t l a n t i c C h a r t e r a p p l y i n g t o G e rm a n y a s a m a t t e r o f r i g h t and b a r r in g t e r r i t o r i a l tr a n s fe r e n c e s or a d j u s t m e n t s i n e n em y c o u n t r i e s . No s u c h a r g u m e n t s w i l l b e a d m i t t e d b y u s a s w e r e u s e d b y G e rm a n y a f t e r th e l a s t w ar, sa y in g t h a t t h e y s u r r e n d e r e d in c o n ­ sequence o f P r e s i d e n t W ils o n fs F o u rte e n P o i n t s . 5 W hile a v o id i n g s p e c i f i c son^

F ourteen P o in ts ,

term s su c h as w ere in c l u d e d i n W il­ t h e tw o l e a d e r s a g r e e d t o t h e

d eterm in atio n p r in c ip le , to

choose

th at i s ,

t h e i r own f o r m o f

th e

rig h t of a l l

self-

p eo p les

g o v e rn m e n t.6

4 W illiam A r n o ld - F o r s te r , C h a rte rs o f th e P e a c e . A C o m m e n t a r y on t h e A t l a n t i c C h a r t e r a n d t h e D e c l a r a t i o n s o f Moscow. C a i r o a n d T e h r a n . ( LoiTdon; V. G o l l a n z , 1 9 4 4 ) , p . 22 f . 5 L e l a n d M. G o o d i c h a n d M a r i e J . C a r r o l , e d i t o r s , D o c u m e n t s on A m e r i c a n F o r e i g n R e l a t i o n s . ( B o s t o n : ’W o r l d P e a c e F o u n d a t i o n ) V o l . V I ( J u l y , 1 9 4 3 - J u n e , 19 4-4), p . 2 1 0 . 6 F ried rich ,

op . c i t . , p.

35.

10 S h o rtly a f t e r P e a rl H arbor, serious tio n

t h e War D e p a r t m e n t b e g a n

s tu d y o f t h e problem s r e l a t i n g t o m i l i t a r y o c c u p a ­

of te rrito rie s

b o th du rin g and a f t e r h o s t i l i t i e s .

D epartm ent re c o g n iz e d t h a t

co n tro l of c iv ilia n

i n some c a s e s w o u l d b e e s s e n t i a l t o t h e s u c c e s s

That

po p u latio n s of m ilita ry

o p e r a tio n s and a ls o t h a t th e c i v i l a d m i n i s t r a t io n o f o ccu p ied a r e a s w ould p r o b a b l y be to o com plex to b e h a n d l e d s u c c e s s f u l l y by ta c tic a l o ffic e rs w ould b e r e q u i r e d .

alo n e . It

T h is meant t h a t s p e c i a l p e r s o n n e l

fo u n d, how ever,

t h a t to o few A m ericans

were e x p e r t s i n t h e f i e l d o f f o r e i g n a d m i n i s t r a t i o n , f e w e r b e i n g a v a i l a b l e t o t h e War D e p a r t m e n t a t t h i s to t h e i r need in o t h e r w artim e a g e n c ie s .

even t i m e , due

T h e r e f o r e t h e War

D epartm ent e s t a b l i s h e d a s p e c i a l t r a i n i n g program to p re p a r e o fficers for

the

job o f c i v i l a d m i n i s t r a t i o n .

In Decem ber, C iv il A ffairs

1 9 4 1 , t h e S e c r e t a r y o f War a p p r o v e d t h e

T r a i n i n g Program .V

A m i l i t a r y governm ent

s e c t i o n o f t h e P r o v o s t M a r s h a l l G - e n e r a l was c r e a t e d u n d e r t h e War D e p a r t m e n t a n d t h e f i r s t

m ilita ry

g o v e r n m e n t s c h o o l was

e s t a b l i s h e d on t h e c a m p u s o f t h e U n i v e r s i t y o f V i r g i n i a a t C h a rlo tte sv ille .®

L a t e r t h e p r o g r a m was e n l a r g e d a n d C i v i l

^ H ajo H o lb o rn , A m erican M i l i t a r y G o v e rn m e n t: I t s O rg an izatio n and P o l i c i e s . ( i n f a n t r y J o u rn a l P r e s s , 1947), p. 3. many.

® H a r o ld Z in k , A m erican M i l i t a r y Governm ent i n G er­ (New Y o r k : The M a c m i l l a n Company^ 1 9 4 7 ) , p . 6 .

11 A ffairs

T r a i n i n g S c h o o l s w e r e e s t a b l i s h e d on v a r i o u s

es a l l o v e r t h e c o u n t r y . ^

The a im o f t h i s

campus­

p r o g r a m was t o

p r o d u c e m i l i t a r y a d m i n i s t r a t o r s who w o u l d b e c o m p e t e n t t o ' rev iv e v i t a l a d m in istra tiv e se rv ic e s so t h a t

f u t u r e A m erican p o l i c i e s w o u ld p ro v e w o r k a b le .

A c tu ally , tic al

in occupied t e r r i t o r i e s

th e program d id n o t a tte m p t to

task s ahead, b u t co nfined i t s e l f

t i c a l co n sid eratio n s

of ad m in isterin g

envisage

the p o l i ­

to t h e Im m ediate p r a c ­ c iv ilia n

po p u latio n s

as e f f i c i e n t l y as p o s s i b l e . M i l i t a r y G o v e r n m e n t was f a c e d w i t h i t s d u r in g t h e N o rth A f r i c a n cam paign i n Stim son s t a t e s

1943.

task

S e c r e t a r y o f War

t h a t t h e N o r t h A f r i c a n l a n d i n g s w ere so h a s t i l y

prepared th a t

only s l i g h t

c iv il a ffa irs

p o lic y and, although

p rep aratio n

c o u l d b e made f o r a

th e French w ere a b le t o

t a k e o v e r a number o f a d m i n i s t r a t i v e t a s k s , f o u n d h e was h a m p e r e d b y n u m e r o u s c i v i l i a n of th e

first

d iffic u lty ,

according to

S tim son,

G e n e ra l E isen h o w er p r o b l e m s . 10

Part

la y In th e f a c t

t h a t n e a r l y e v e r y d e p a r t m e n t o f t h e A m erican Governm ent seem ed to be c o n c e rn e d w ith h a v in g a v o ic e In c i v i l a f f a i r s in te r f e r e n c e se rv e d to co m p licate m a tte rs f u r t h e r .

and t h e i r Stim son

0 F o r a d e t a i l e d a c c o u n t o f t h i s p r o g r a m , s e e : G. S . H y n e m an , " T h e A r m y ! s C i v i l A f f a i r s T r a i n i n g P r o g r a m , " A m eri­ c a n P o l i t i c a l S c i e n c e R e v i e w , XXXVIII ( 1 9 4 4 ) , p p . 3 4 2 f f . 10 H e n r y L e w i s S t i m s o n a n d M eGeorge B u n d y , 0 n _ A c t i v e S e r v i c e i n P e a c e a n d W ar. (New Y o r k : H a r p e r a n d B r o t h e r s , 1 9 4 8 ) , p p . 554 f .

12 w anted t o

send John J .

h is C iv il A ffairs

Mc Cloy o v e r t o h e l p E l s e n h o w e r o r g a n i z e

s ta ff but

encountered d i f f i c u l t y in o b ta in ­

ing th e P r e s i d e n t ’s a p p ro v a l,

R o o sev elt h ad c o n fe rre d w ith

E isenhow er a s h o r t tim e p re v io u s

to th is

suggestion

th a t he h im s e lf had s e t t l e d th e e n t i r e m a tte r. Stim son c r i t i z e d term ed i t ,

th is

S ecretary

t!t r u l y R o o s e v e l t i a n p o s i t i o n ’*

a n d i n t h e e n d was a b l e t o p e r s u a d e

t o p e r m i t M cCloy’ s t r i p .

and f e l t

as he

the P re s id e n t

I n

I n 1 943 t h e War D e p a r t m e n t e s t a b l i s h e d a C i v i l A f f a i r s D i v i s i o n w i t h M a j o r G e n e r a l J o h n H. H i l l d r i n g In th e f i e l d

as i t s

d i r e c t o r . 12

G e n e ra l E isenhow er c r e a t e d a m i l i t a r y governm ent

s e c t i o n o f t h e Army f o r t h e

cam paign i n S i c i l y an d t h i s

sectio n

p r o v e d so s u c c e s s f u l t h a t i t becam e a f u l l - f l e d g e d g e n e r a l s ta f f d iv isio n

c a l l e d G-5.

On t h e b a s i s

ie n c e in N o rth A f r ic a and S i c i l y ,

o f Am erican e x p e r ­

G -5 d e c i d e d t h a t i t s

pro­

gram s h o u l d b e e x p a n d e d t o p r e p a r e f o r s i m i l a r w ork i n o t h e r c o u n t r i e s w hich w ould p r o b a b l y b e o c c u p i e d b y Am erican t r o o p s f o r a tim e a f t e r

the c e s s a t i o n o f h o s t i l i t i e s .

In th e U n ite d S t a te s reached i t s

peak o f a c t i v i t i e s

G e r m a n y was c o m p l e t e d i n

^

t h e Army S p e c i a l T r a i n i n g P r o g r a m i n 1943,

and a re a t r a i n i n g

1 9 4 4 when m o s t o f t h e o f f i c e r s

» P* 5 5 5 .

12 H o l b o r n , o p . c i t . , p . 8 . In A p r i l o f 1946 H i l l ­ d r i n g was a p p o i n t e d A s s i s t a n t S e c r e t a r y o f S t a t e i n c h a r g e o f Am erican o c c u p a ti o n p o l i c i e s .

for

15 train ed for

G e rm a n y w e r e s e n t t o Sh .r ive n h.am , E n g l a n d t o

work w i t h t h e B r i t i s h and t o

a w a it f u r t h e r d e v e lo p m e n ts .13

A n g l o - A m e r i c a n p l a n n i n g b e g a n on t h e

field

le v e l w ith th e

e s t a b l i s h m e n t o f a m i l i t a r y governm ent s e c t i o n SHAEF, t h e S u p r e m e H e a d q u a r t e r s , Forces.

In a d d itio n

(.G-5) o f

A llie d E x p ed itio n ary

t o t h e ASTP o f f i c e r s

a t Shrivenham ,

G-5 s e t u p a s o - c a l l e d German C o u n t r y U n i t a s a s t a f f o f SHAEF.1 ^

The o r g a n i z a t i o n o f t h i s

governm ental s t r u c t u r e and i t s

s ta ff p a ra lle led

p u r p o s e was t o

f o r th e c o n tr o l o f th e R eich m i n i s t r i e s .

It

German

d ra ft plans succeeded in

d raftin g a series

o f p la n s w hich, a c c o rd in g to

p robably su p e rio r

to th e p o lic ie s a c t u a l l y accep ted l a t e r ,

th e p r i n c i p a l d isa d v an tag e o f i t s

Z in k ,15

work b e i n g t h a t i t

were

was

c o n d u c t e d w i t h a l m o s t no o f f i c i a l g u i d a n c e on p o l i c y fro m W ashington. One o f t h e p o i n t s w h i c h a f f e c t e d o u r p o l i c y t o w a r d t h e t r e a t m e n t o f G e r m a n y was t h e d e c l a r a t i o n o f u n c o n d i t i o n a l s u r r e n d e r w h i c h was f i r s t

announced by P re s id e n t R o o sev elt a t

the C asab lan ca C onference in Ja n u a ry o f 1943. • S e c r e t a r y H u ll opposed th e p o l i c y b e c a u se h e f e l t

13 Z i n k ,

op. c i t .,

Ib id . , p. 13 I b i d . ,

pp.

p.

42. 42 f f .

12.

t h a t I t m ight p ro lo n g th e

war b y i n c r e a s i n g A xis r e s i s t a n c e , would r e q u i r e

th e v ic to rio u s

and th a t

A llies

to

phase o f governm ental a d m in i s tr a tio n c o u n tries. comm ented,

tak e over every

in

th e counquered

As t o t h e f e a s i b i l i t y o f t h e l a t t e r

c o u r s e , he

f,We a n d o u r A l l i e s w e r e i n n o w ay p r e p a r e d t o

u n d ertake t h is v e lt

such a p o lic y

v a s t o b l i g a t i o n .16

se e m s t o h a v e b e l i e v e d t h a t

How ever,

t h e s e d i s a d v a n t a g e s w ould

be outw eigh ed b y th e p r o b a b i l i t y t h a t negate th e p o s s i b i l i t y

P re s id e n t R oose­

th at a fu tu re

su c h a p o l i c y would German p r o p a g a n d a

m a c h i n e c o u l d c l a i m t h a t t h e German a r m i e s h a d n o t b e e n d e ­ f e a t e d . 1^ The d e c l a r a t i o n o f u n c o n d i t i o n a l s u r r e n d e r was p r e ­ d o m i n a t e l y an A m e ric a n p o l i c y b e c a u s e e a c h o f t h e A l l i e d G overnm ents h a d p r e v i o u s l y o n l y co m m itted i t s e l f no s e p a r a t e h is

peace w ith th e A xis.

view s to w a rd t h e

t o make"

R o o sev elt l a t e r

d efin ed

German p e o p l e i n a n a d d r e s s t o t h e C a n a ­

d i a n P a r l i a m e n t on A u g u s t 2 5 ,

19 4 3 when h e s t a t e d :

Except f o r the r e s p o n s ib le f a s c i s t l e a d e r s , t h e p e o p le o f t h e A xis n e e d n o t f e a r u n c o n d i t i o n a l s u r r e n d e r t o t h e U n i t e d N a t i o n s . . .The p e o p l e o f A x i s - c o n t r o l l e d a r e a s may b e a s s u r e d t h a t when th ey agree to u n c o n d itio n a l s u rre n d e r th ey w i l l n o t be t r a d i n g A xis d e s p o tis m f o r r u i n u n d e r t h e

York:

16 C o r d e l l H u l l , The M e m o irs o f C o r d e l l H u l l . (New The M a c m i l l a n Company^ 1 9 4 8 ) , V o l . I I , p . 1 5 7 0 . 17 I b i d . . p .

1582.

15 U nited N a tio n s. The g o a l o f t h e U n i t e d N a t i o n s i s to perm it l i b e r a t e d p eo p les to c re a te a f r e e p o l i t i c a l l i f e o f t h e i r own c h o o s i n g a n d t o a t t a i n e c o n o m i c s e c u r i t y . 18 Up t o

th is

p e rio d th e re had been l i t t l e

o r no A l l i e d

a g r e e m e n t r e g a r d i n g t h e t r e a t m e n t o f d e f e a t e d Germany. The f i r s t

co n crete

e v id e n c e o f an a tte m p t

A llie d p o lic y in t h i s

to fo rm u la te an

r e s p e c t ap p eared d u rin g th e C onference

a t Moscow i n N o v e m b e r o f 1 9 4 3 a n d was e m b o d i e d i n a d o c u ­ m e n t known a s t h e T his d e c l a r a t i o n

" D e c l a r a t i o n o f German A t r o c i t i e s . " 1 9 expressed th e n e g a tiv e n a tu re o f A llie d

p o l i c y up t o t h a t

tim e in

th at i t

d e a lt only w ith th e p u n ish ­

ment o f war c r i m i n a l s . The f a c t

t h a t th e to p governm ental l e v e l s handed

down a n e g l i g i b l e

a m o u n t o f g u i d i n g p o l i c y wa s o n e o f t h e

co n tin u in g e rro rs

o f m i l i t a r y governm ent p la n n in g .

How ever,

a t Moscow a n o t h e r s t e p v/as t a k e n w h i c h r e p r e s e n t e d a m o re p o sitiv e

actio n

e ra l p o licy .

in

the d ire c tio n

In o r d e r to

o f th e developm ent o f gen­

in te g ra te A llie d p o lic y d e cisio n s,

H u ll had p re v io u sly su g g ested th a t re p r e s e n ta tiv e s .each o f t h e G overnm ents m eet p e r i o d i c a l l y t o problem s

in v o lv ed .

from

stu d y th e

A t Moscow F o r e i g n M i n i s t e r A n t h o n y E den

1® The New Y o r k T i m e s , A u g u s t 2 6 ,

1943,

p.

2:2 -6 .

19 " D e c l a r a t i o n o f German A t r o c i t i e s , " The D e p a r t ­ m e n t o f S t a t e B u l l e t i n , I X , N o . 22 8 (N o v e m b e r 6^ 1 9 4 3 ) , " p . 310.

16

r e c i p r o c a t e d with, a s u g g e s t i o n t h a t a E u r o p e a n A d v i s o r y C om m ission,

composed o f a r e p r e s e n t a t i v e

U nited S ta te s ,

t h e U n i t e d Kingdom,

e s t a b l i s h e d i n London f o r

th is

each from t h e

and t h e U .S .S '.R . h e

purpose.

P in al d ecisio n

?/as r e a c h e d b y t h e two f o r e i g n m i n i s t e r s a n d H u l l a t Mos­ cow o n O c t o b e r 2 2 ,

194 -3 .2 0

D esp ite the f a c t t h a t i t ,

la c k e d g u id a n c e from to p p o l i t i c a l a prom inant r o l e The l a t e scene is

lev els,

e n t r a n c e o f t h e S t a t e D e p a r t m e n t on t h e t o u n d e r s t a n d in view o f t h e f a c t t h a t

t h e P r e s i d e n t 7/as c o n v i n c e d t h a t b a s i c should a t a l l

d ecisio n s

t i m e s b e made b y t h i s

m ent r a t h e r t h a n b y t h e D e p a r t m e n t o f War. S tim so n d i s a g r e e d v/ith t h i s liev ed th a t

t h e EAC p l a y e d

in th e developm ent o f A l l i e d p la n n in g .

d iffic u lt

c iv il a ffa irs

to o ,

as t o D epart­

S ecretary

vieT /point i n so f a r a s h e b e ­

d e t a i l e d p l a n s h a d o f n e c e s s i t y t o b e m ade b y

t h e m i l i t a r y . 21

The w o r k o f t h e War D e p a r t m e n t came i n t o

c o n f l i c t w i t h t h e o p i n i o n s o f a number o f R o o s e v e l t f s a d ­ v iso rs,

b u t S t i m s o n 7/as c a r e f u l t o m a i n t a i n a f r i e n d l y

u nd erstan d in g w ith H u ll. S tate

D epartm ent p la n n in g a p p a r e n t l y began aro u n d

M a r c h o f 1 9 4 3 7/hen t h e P r e s i d e n t a d v i s e d H u l l t o c o n s u l t w ith S tim son a s v/ell as t h e B r i t i s h .

20

w H u ll,

^

op.

Stim son,

o i t . , p. op.

c i t .,

1283. p.

560.

A fter freq u en t

17 discu ssio n s

a S t a t e D e p a r t m e n t d r a f t wa s p e r f e c t e d w h i c h

H ull in fo rm a lly p re se n te d to th e B r i ti s h d e le g ates

at

t h e Moscow C o n f e r e n c e . ^

and R u s s ia n

In p r i v a t e ,

H ull

t o l d M o l o t o v t h a t t h e d r a f t was n o t a f o r m a l A m e r i c a n p r o ­ p o s a l f o r t h e p o s t w a r t r e a t m e n t o f Germany, b u t o n l y a p erso n al su g g estio n .

So m ewhat t o h i s s u r p r i s e ,

d eleg ate accep ted i t

as

ex p ressin g

th e R ussian

" R u ss ia ’s th o u g h ts about

G e r m a n y e x a c t l y a s I f we h a d e x p r e s s e d t h e m . th o se tho u g h ts b u t have n o t been a b le to

We h a v e h a d

express

t h e m . "2 3

He a l s o a d d e d t h a t S t a l i n wa s w h o l l y i n a c c o r d w i t h t h e d raft.

The t e x t o f t h i s

p o litic a l p rin cip le s:

d r a f t co n tain ed th re e

im portant

(1) u n c o n d i t i o n a l s u r r e n d e r ,

I n t e r - A l l i e d C o n t r o l C om m ission d u r i n g t h e

arm istice

(2) an in ­

v o l v i n g a minimum a m o u n t o f i n t e r f e r e n c e w i t h l o c a l g o v e r n ­ m ent, a n d , m ost im p o r ta n t to t h e pro blem o f t h i s a d e cen tralized p o litic a l

due t o

upon h a v in g a v o ice in th e

22 H u l l ,

0£ .

23 I b i d . , p .

(3)

s t r u c t u r e t o b e e s t a b l i s h e d . 24

The a p p a r e n t w i l l i n g n e s s o f t h e R u s s i a n s tw o p o i n t s may h a v e b e e n

paper

to a c c e p t th e l a s t

th e im portance th e y p lac ed

c o n t r o l o f Germany.

c i t . , pp.

As t h e

1284 f .

1285.

2^ X b l d . , p p . 1285 f f . W h eth er Germany w o u ld r e m a in u n i t e d o r b e c o m e d i v i d e d I n t o s e v e r a l s e p a r a t e s t a t e s was s t i l l under stu d y . The S t a t e D e p a r t m e n t d i d e x p r e s s i t s v i e w , h o w e v e r , t h a t t h e t h r e a t o f p o t e n t i a l German a g g r e s s i o n w o u l d b e l e s s e n e d b y d e c e n t r a l i z a t i o n o f t h e German p o l i t i c a l stru c tu re .

18 outcom e o f

t h e w a r was n o t e n t i r e l y c e r t a i n

a t t h a t tim e,

t h e y w e r e s t i l l w i l l i n g t o make c o n c e s s i o n s . A l t h o u g h p l a n n i n g f o r p o s t w a r p r o b l e m s was g r a d u a l l y com ing t o t h e f o r e ,

t h e main e m p h a sis a t

p l a c e d on w i n n i n g t h e w a r . t o w a r d Germany, R o o sev elt,

if

was t o

th is

t i m e wa s

T he p r i n c i p a l A m e r i c a n v i e w

j u d g e d f r o m s t a t e m e n t s made b y P r e s i d e n t d i s a r m Germany so a s t o p r e v e n t h e r

e v e r a g a i n becom ing a t h r e a t

to th e peace o f th e

from

w o r ld .

25

T h i s o b j e c t i v e wa s a c c e p t e d b y a l l A m e r i c a n p l a n n i n g a g e n c i e s as w e ll a s b y th e A l l i e d G overnm ents, ever,

th e m ethod o f Im p le m e n tin g i t

U n f o r t u n a t e l y , how­

s t i r r e d up a c o n s i d e r ­

a b l e a m o u n t o f c o n t r o v e r s y — a c o n t r o v e r s y b e t v / e e n t h o s e who a d v o cated th e s o - c a ll e d th e s o - c a lle d

,!h a r d !f p e a c e a n d t h o s e who f a v o r e d

" s o f t 11 p e a c e .

T he e f f e c t o f t h i s

c o n tro v ersy

wa s t o u n d e r m i n e t h e s o l i d a r i t y o f o u r own v i e w s s o t h a t a c l e a r - c u t p o l i c y was i m p o s s i b l e t o a c h i e v e . Except f o r th e th ree

t h e ’' D e c l a r a t i o n o f German A t r o c i t i e s , "

G o v e rn m e n ts r e a c h e d no r e a l a g r e e m e n t on p o l i t i c a l

p o l i c y a t Moscow.

The F o r e i g n M i n i s t e r s

decided to pass

t h e p r o b l e m on t o t h e E u r o p e a n A d v i s o r y C o m m i s s i o n , w h i c h , how ever,

could h a r d ly be ex p ected to c r e a te a l i n e

w here t h e h i g h e r a u t h o r i t i e s h a d f a i l e d ,

of p o lic y

D e ta ile d plan s

25 D e p a r t m e n t o f S t a t e , O c c u p a t i o n o f G e r m a n y ; P o l i c y and P r o g r e s s , 1945-1946. (W a sh in g to n : U .S . Government P r i n t in g O ffic e , 1947), pp. 1 f f .

19 r e s u l t e d f r o m t h e w o r k o f t h e EAC, t h e G -5 d i v i s i o n o f SHAEF,

and o th e r o r g a n i z a t i o n s ,

y e t no b a s i c

r e a c h e d i n h i g h Government l e v e l s .

T his d is c r e p a n c y l e d to

th e a n o m a lo u s 's itu a tio n of s i g n i f i c a n t te d by th e T re a s u ry D epartm ent r a t h e r D epartm ent.

The r e s u l t

d e c i s i o n s were

p o lic y b ein g n e g o tia ­ than by th e S ta te

o f t h e Quebec C o n f e r e n c e o f S e p t e m b e r ,

1944, t h e M orgenthau P la n , b e a r s

some s t u d y .

A f t e r D-Day, t h e p r i m a r y c o n s i d e r a t i o n s o f w in n in g t h e war w h i c h h a d so l o n g o v e rs h a d o w e d t h o s e o f p o s t w a r p o l ­ i c y were a t v icto rie s groups.

l a s t rep laced by the r e a liz a tio n

w ere o u t s t r i p p i n g t h e a c h ie v e m e n ts o f p l a n n in g V arious

o p in io n s as to th e p o l i t i c a l tre a tm e n t o f

Germany h a d a p p e a r e d f r o m t i m e t o th at

th at m ilita ry

t i m e a n d i t was i m p e r a t i v e

th e se o p in io n s be in te g r a te d in to

in a s h o rt tim e.

a w orkable p la n w ith ­

The German p r o b l e m may b e c o n s i d e r e d a s

h a v in g t h r e e p r i n c i p a l f a c e t s w hich a r e q u i t e n a t u r a l l y in terrelated : d itio n s,

and

(a) (c)

te r r ito r ia l stru c tu re ,

(b)

econom ic c o n ­

p o litic a l o rg an izatio n .

In r e g a r d to th e t e r r i t o r i a l s t r u c t u r e o f postw ar G e r m a n y , t h e p r i m a r y a n d m o s t c o n t r o v e r s i a l q u e s t i o n was c o n ­ cerned w ith th e p r a c t i c a b i l i t y in to issue

a number o f s m a l l e r lie s

fo r th e

in th e f a c t

sta te s.

th at i t

econom ic a n d p o l i t i c a l

co n sid ered .

of p a r t i t i o n i n g

For a tim e t h i s

th at

co u n try

The i m p o r t a n c e o f t h i s

must b e r e s o l v e d i n o r d e r issu es

to be r e a l i s t i c a l l y

p r o b l e m was a d o m i n a n t i s s u e

20 i n th e P r e s i d e n t ’s C a b in e t.

In tb e S t a te D epartm ent U nder­

s e c r e t a r y W e l l e s b a d draw n up a p l a n i n vdiich b e a d v o c a t e d t b a t E ast P ru s s ia be ceded to P o lish loss

of te rrito ry

P o lan d as com pensation f o r

east of

th e Curzon L in e ,

t h e r e m a i n d e r o f Germany b e d i v i d e d i n t o sta te s H u ll,

acco rd in g to c u l t u r a l ,

h isto ric

and th a t

th ree sep arate

a n d e c o n o m i c f a c t o r s . 26

on t h e o t h e r h a n d , wa s c o n v i n c e d t h a t f o r c i b l e

t i o n o f Germany w o u ld b e u n w i s e

and d i f f i c u l t

p a rti­

to e n fo rc e .

I n s t e a d o f a f o r c e d p a r t i t i o n h e recom mended t h e p r o m o tio n o f a f e d e r a l sy stem o f governm ent and th e In to

sm aller

s t a t e s . 27

w i t h H u l l on t h i s M orgenthau f e l t after

S tim so n seem s t o h a v e b e e n i n a c c o r d

m atter, b u t S ecretary

th at

of th e T re a s u ry

ftt r u n k 51 G e r m a n y , t h a t w h i c h r e m a i n e d

t e r r i t o r i a l cessio n s,

Germ an S t a t e

d iv isio n o f P ru ssia

should b e

d iv id e d in to a N orth

a n d a S o u t h German S t a t e . 28

At T e h e ra n t h e

lead er o f the

,fB i g T h r e e 15 a p p a r e n t l y

a g r e e d f,i n p r i n c i p l e 55 t o a s u g g e s t i o n t h a t f u t u r e E u r o p e a n s e c u rity req u ired th e d iv isio n

o f G e rm a n y i n t o a n u n s p e c i ­

f i e d number o f i n d i v i d u a l s t a t e s .

R oosevelt

su b m itted a

26 James P. W a rb u rg , G erm any, B r i d g e o r B a t t l e g r o u n d . Hew Y o r k : H a r c o u r t a n d B r a c e Com pany, 1 9 4 7 ) , p . 2 7 1 . C f. S u m n e r W e l l e s , The Time f o r D e c i s i o n . (Hew Y o r k a n d L o n d o n : H a r p e r a n d B r o t h e r s P u b l i s h e r s , 1 9 4 4 ) , map f a c i n g p . 3 4 2 . 27 H u l l ,

op. c i t .,

p.

1607.

2 8 H e n r y M org en t h a u , J r . , G e rm a n y I s O u r P r o b l e m . (New Y ork and L o ndon: H a r p e r a n d B r o t h e r s , 1 9 4 5 ) , p . - 1 - I n f r o n t ­ a l sectio n .

21 p l a n f o r f i v e a u t o n o m o u s German s t a t e s th a t P ru ssia

sh o u ld he s e p a r a te d from th e r e s t

■with t h e s o u t h e r n L a e n d e r

(sta te s)

a D anuhian C o n f e d e r a t i o n .

S ta lin ,

th u siastic

a h o u t e i t h e r p r o p o s a l . 29

te rp re te d C h u rc h ill’s p o sitio n Germany i n p l a n .

and C h u rc h ill agreed o f Germany,

d e ta c h e d to form p a r t o f h o w e v e r , was n o t in fact,

en­

he l a t e r

in ­

as an a t t e m p t t o t h r e a t e n

c a se o f h ad b e h a v io r r a t h e r th a n as a p o s i t i v e

30

t h e t h r e e Powers c o n c l u d e d no a c t u a l a g r e e ­

m ent, t h e y r e f e r r e d t h e G e rm a ny t o

e n tire

t h e E u ro p ean A d v is o r y Com m ission.

On t h e s e c o n d i s s u e , p o sitio n

q u estio n of p a r titio n in g

th a t o f th e fu tu re

econom ic

o f G e r m a n y , t h e d i v e r g e n c e o f o p i n i o n was c o n s i d e r ­

ab ly g r e a te r .

Many A m e r i c a n s b e l i e v e d t h a t German m i l i t a r y

m ig h t h a d b e e n s u p p o r t e d l a r g e l y b y G erm any’ s econom ic p r e ­ dom inance i n E u ro p e ,

a p redom inance w hich a l s o

ex ten d ed to

o th er p a rts

o f ' t h e w o r l d d ue t o t h e u s e o f i n t e r n a t i o n a l

c a r t e l s . 31

_&t t h e o u t s e t o f t h e a r m i s t i c e p e r i o d A m e r i c a n

H isto ry .

R o b e r t S h e r w o o d , R o o s e v e l t a n d H o p k i n s , An I n t i m a t e (Hew Y o r k : H a r p e r a n d B r o t h e r s ^ 1 9 4 8 ) , p . 7 9 8 .

30 James B y r n e s , and B r o th e r s , 1947), p.

S peaking F r a n k l y . 26.

(Hew Y o r k :

H arper

3 1 U. S . C o n g r e s s , S e n a t e C o m m i t t e e on M i l i t a r y A f f a i r s , E l i m i n a t i o n o f German R e s o u r c e s f o r W a r . H e a r i n g s b e f o r e a s u b c o m m i t t e e on M i l i t a r y A f f a i r s , U n i t e d S t a t e s S e n a t e , 7 9 t h C o n g r e s s , f i r s t s e s s i o n , p u r s u a n t t o S e n a t e R e s o l u t i o n 107 ( 7 8 t h C o n g r e s s ) a n d S . R e s . 1 4 6 ( 7~9th C o n g r e s i l a u t h o r i z i n g a s t u d y o f w a r m o b i l i z a t i o n p r o b l e m s . . . ( W a s h i n g t o n : U. S . Government P r i n t i n g O f f i c e , 1 9 4 5 •) P a r t 6, p . v i .

22 p o l i c y was m ark e d b y a d e t e r m i n a t i o n i n t e r n a t i o n a l m onopolies o f v a rio u s it

lo g ic ally

follow ed' t h a t

to d e stro y th e

G-erman c o r p o r a t i o n s a n d

e f f e c t i v e d i s a r m a m e n t o f G e rm a n y

m u s t i n c l u d e so m e s o r t o f c o n t r o l o v e r The dilem m a o f t h i s

ex ten siv e

t h e Germ any-econom y.

p o l i c y i s w h e th e r t h e economy o f t h e f o r m ­

e r i n d u s t r i a l i z e d c e n t r e s o f Europe can b e s t i f l e d w i t h o u t d is r u p tin g the

economy o f t h e r e s t

o f E urope.

S e c r e t a r y M orgenthau b e l i e v e d t h a t

the heavy in d u s tr ie s

o f Germany c o u l d b e a b o l i s h e d w i t h o u t a d v e r s e l y a f f e c t i n g the

econom ic w e l l - b e i n g o f G erm any’ s n e i g h b o r s .

S upporting

t h i s argum ent he w r o te : The r e a s o n f o r s e l e c t i n g h e a v y i n d u s t r i e s i s t h a t w i t h them Germany c a n q u i c k l y a n d t e r r i b l y c o n v e r t on ce more to w ar. W ithout t h e m , n o m a t t e r how s a v a g e h e r a g g r e s s i v e a i m s may b e , s h e c a n n o t make w a r . 3 2 He c o n t e n d e d t h a t

Germany h a d o b t a i n e d a m o n o p o ly

o v e r E u r o p e a n commerce t h r o u g h a r t i f i c i a l means a n d t h a t i f t h i s m onopoly w ere d e s t r o y e d ,

o t h e r E uropean n a t i o n s w ould

a u t o m a t i c a l l y assume t h e i r r i g h t f u l p o s i t i o n s of heavy in d u s trie s

t h e m s e l v e s .33

T his s o - c a l l e d

!l M orgen t h a u P l a n , 51 w h i c h was i n i t i a l l e d

by R o o sev elt and C h u rc h ill a t 1944,

as producers

t h e Quebec m e e t i n g i n S e p t e m b e r ,

o r i g i n a t e d w h en M o r g e n t h a u v i s i t e d L o n d o n i n t h e s p r i n g

M orgenthau, 55 I b i d . , p .

op_. c i t . , p .

46.

16.

23 oT t h a t

year.

The S t a t e D e p a r t m e n t h a d r e f e r r e d i t s

p lan ,

w hich h a d a p p a r e n t l y r e c e i v e d t h e a p p r o v a l o f M olotov and E d e n a t Moscow, don.

to

th e E u ro p ea n A d v i s o r y Com mission i n Lon­

T h a t b o d y h a d d o n e c o n s i d e r a b l e work i n

d e ta ils

for

draw ing up

t h e p o s t w a r c o n t r o l o f Germany a n d i t s

ach iev e­

m e n t s h a d b e e n b a s e d on n u m e r o u s

e x c h a n g e s o f v i e w s among

th e th re e

When M o r g e n t h a u e x a m i n e d

its

co u n tries

in v o lv e d .

o ccu p atio n d r a f t s ,

how ever, he im m e d ia te ly r e a c t e d

a g a in st th e re c o n s tru c tiv e On r e t u r n i n g t o to

34

a n d f,s o f t n l i n e

th e U n ited S ta te s ,

th ey fo llo w ed .

he com m unicated h i s

view s

th e P re sid e n t. On A u g u s t 2 6 ,

1944, R o o se v e lt

b o th Stim son and H u ll p r o t e s t i n g

s e n t a m em orandum t o

a g a in s t th e m ild p o l ic y

o f a h a n d b o o k w h i c h t h e War D e p a r t m e n t h a d d r a w n u p f o r t h e g u id a n c e o f m i l i t a r y governm ent o f f i c i a l s .

He s t a t e d t h a t

t h i s h a n d b o o k g a v e t h e i m p r e s s i o n t h a t G e r m a n y was t o b e re s to re d to

its

prew ar p o s i t i o n

as q u i c k l y a s p o s s i b l e :

There e x i s t s a sc h o o l o f th o u g h t b o th in L o n d o n a n d h e r e w h i c h w o u l d , i n e f f e c t , do f o r G e r m a n y w h a t t h i s G o v e r n m e n t d i d f o r i t s own c i t i z e n s i n 1 9 3 3 when t h e y w e r e f l a t on t h e i r

rL he New Y o r k T i m e s , S e p t e m b e r 6 , 194-4, s 1 0 : 5 . Mem­ b e r s o f t h e EAC w e r e : J o h n G. W i n a n t , U . S . A m b a s s a d o r t o L o n ­ don; S i r W illiam S tra n g o f th e B r i t i s h F o reig n O ff ic e ; and F e d o r G u ssev , t h e R u s s i a n member. The C o m m i s s i o n d i d n o t h a v e i n t i m a t e c o n t a c t w i t h A m erican m i l i t a r y p e r s o n n e l , y e t i t s d r a f t d i r e c t i v e s d i d make a n i m p o r t a n t c o n t r i b u t i o n t o A m e r i ­ c a n M i l i t a r y Governm ent p o l i c y i n Germany. See: H olborn, o p . c i t . , p . 22 a n d Z i n k , o p . c i t . , p . 6 8 .

24 backs. I s e e no r e a s o n f o r s t a r t i n g a W .P .A ., a P . W . A . , o r C . C . C . f o r G e rm a n y when we go in w i t h o u r arm y o f o c c u p a t i o n .3 5 S tim son s u g g e s te d to work o u t a l l t h e d e t a i l s R o o sev elt a c c e p te d t h i s m ittee

to a s s i m il a te

the P re sid e n t th a t

of

o ccu p atio n h im s e lf and

la te r,

on S e p te m b e r 3 , agenda.

t h e work w h ic h h a d b e e n done b y p l a n ­

H arry H opkins.

facto r,

Stim son,

Mor­

T he c o m m i t t e e m e t f i r s t

1944 a t w h ic h tim e H u l l p r e s e n t e d a d r a f t

Stim son a g re e d to

l a t i n g to th e

th at i f

s u g g e s t i o n a n d e s t a b l i s h e d a com­

n in g a g e n c ie s a n d to w hich he a p p o in te d H u l l , gen t h a u a n d ,

he couldn o t

th is agenda except f o r p a r ts

econom ic c o n t r o l o f Germany.

re­

R egarding t h i s

t h e S e c r e t a r y o f War a p p a r e n t l y h e l d t h e m o s t c o n ­

s e r v a t i v e view f o r h e s a i d : I , t o my t r e m e n d o u s s u r p r i s e , f o u n d t h a t H u l l was a s b i t t e r a s M o r g e n t h a u a g a i n s t t h e G erm an s a n d was r e a d y t o jump a l l t h e p r i n c i p l e s t h a t h e h a d been la b o rin g fo r in re g a rd to tra d e fo r th e p a s t tw elve y e a r s . He a n d M o r g e n t h a u w i s h e d t o w r e c k c o m p l e t e l y t h e immense R u h r - S a a r a r e a o f Germany and tu r n i t in to a s e c o n d -ra te a g r i c u l t u r a l lan d r e g a r d l e s s o f a l l t h a t t h a t a r e a meant n o t o n l y to Germany b u t t o t h e w e l f a r e o f t h e e n t i r e E u ro p ea n , c o n t i n e n t .36 S e c r e t a r y M orgenthau, h is

on t h e o t h e r h a n d , ' p r e s e n t e d

o r i g i n a l p la n w hich c a l l e d f o r p a r t i t i o n i n g

in te rn atio n aliza tio n

^

H ull,

o f t h e Ruhr a r e a w h ic h ,

oj>. c i t . ,

36 r b i d . , p .

570.

p.

1602,

Germany,

in tu rn ,

w ould

25 ■be c o m p l e t e l y s e v e r e d f r o m G e r m a n y ’ s e c o n o m y , e n i n g o f t h e r e s t o f Germany so t h a t come a h i g h l y i n d u s t r i a l i z e d

a r e a .

it

and a weak­

co u ld n o t ag ain b e ­

3*7

The S t a t e D e p a r t m e n t r e c o m m e n d e d p r o m o t i n g a f e d e r a l ­ i z e d governm ent i n

Germany i n s t e a d o f p a r t i t i o n .

I t a lso

p o i n t e d o u t t h a t t h e w ork o f t h e E u ro p ean A d v is o r y Com m ission w ould have to u n d e rg o c o n s i d e r a b l e m o d i f i c a t i o n M orgenthau p l a n were a c c e p t e d . w ould be im p o s s ib le to

obtain

if

th e

H u ll, h im se lf, b e lie v e d i t a g r e e m e n t on t h e

plan

from

E ngland and R u s s ia . M o r g e n t h a u was f i r m l y c o n v i n c e d t h a t n o p l a n w o u l d b e re a listic

w h i c h i n v o l v e d a n a r b i t r a r y i m p o s i t i o n o f a de m o ­

c ra tic

f o r m o f g o v e r n m e n t on t h e German p e o p l e .

trary ,

he f e l t

th em selv es.

t h a t t h e G e rm a n s w o u l d h a v e t o

On t h i s

On t h e c o n ­

e a rn dem ocracy

p o in t he s ta te d :

Dem ocracy i s one o f t h o s e p r i c e l e s s t h i n g s t h a t cannot be given to anyone. I t must b e t a k e n ; i t must b e w orked f o r ; i t m ust b e e a r n e d . The r e a l way t o h e l p d e m o c r a t i c Germ ans t o p l a y a w o r t h - w h i l e p a r t i n th e developm ent o f freedom In t h e i r c o u n tr y i s n o t to s a d d l e them w i t h t h e i m p o s s i b l e job o f governing a b e a te n , b i t t e r n a tio n . The r e a l w ay i s to g i v e them t h e o p p o r t u n i t y to be h e a r d w ith o u t t h e r e s p o n s i b i l i t y f o r t h e h a r d s h i p s t h a t must come.38

in g th e

3*7 Mor g e n t h a u , op. c i t . 11Mor g e n t h a u P l a n . 11 38

I b i d - ^ P-

141.

See f r o n t a l s e c t i o n

c o n tain -

26 Thus t h e T r e a s u r y p l a n p r o v i d e d f o r p o l i t i c a l d e c e n t r a l i z a ­ tio n

as a n e c e s s a r y component o f an y p l a n

to p rev e n t the

m i l i t a r y r e v i v a l o f Germany. The S t a t e D e p a r t m e n t r e c o m m e n d e d t h r e e jec tiv e s

in

Germany:

(a)

econom ic o b ­

th e s ta n d a rd o f l i v i n g o f the

German p e o p l e t o b e h e l d down t o s u b s i s t e n c e

lev e ls,

(b)

G e r m a n y 1s e c o n o m i c p r e d o m i n a n c e o v e r E u r o p e t o b e d e s t r o y e d , and

(c)

Germ any’ s econom ic c a p a c i t y a l t e r e d so t h a t i t

co u ld

n o t b e r e c o n v e r t e d t o t h e p r o d u c t i o n o f w a r m a t e r i a l s . 39 S tim son opposed t h e f i r s t

of th ese o b je c tiv e s b u t agreed to

m o s t o f t h e r e s t o f t h e m em orandum . also

H a r r y H opkins a p p a r e n t l y

a g r e e d t o m ost o f t h e d o c u m e n t . 40 On S e p t e m b e r 6 ,

R o o sev elt,

1944,

t h e C a b i n e t C o m m ittee met w i t h

a t w h i c h t i m e t h e r e was no c o n c i l i a t i o n b e t w e e n

t h e S t a t e a n d War D e p a r t m e n t r e c o m m e n d a t i o n s on t h e o n e s i d e a n d t h o s e o f M o r g e n t h a u on t h e o t h e r . 4 1

When t h e

P r e s i d e n t met w i t h C h u r c h i l l f o r t h e S e c o n d Q uebec C o n f e r ­ en ce a few days l a t e r , perm ission was a l s o

to b e p r e s e n t .

in p ro g ress

39 H u l l ,

^

M o rg e n th au p r e v a i l e d upon him f o r

ojd.

at

th is

c it.,

Sherwood,

ojd.

H u ll,

c i t .,

ojd.

As t h e D u m b a r t o n Oa ks C o n f e r e n c e

p .

c i t ., p.

tim e and,

1609. p.

818.

1609.

on b e i n g a s s u r e d b y

27 t h e P r e s i d e n t t h a t t h e Q u e b e c C o n f e r e n c e was t o b e p u r e l y a m ilita ry a ffa ir, A short

H u ll d ecid ed to

t i m e l a t e r h e was a s t o u n d e d

from R o o se v e lt s t a t i n g a c c e p te d as a b a s i s The P r e s i d e n t in d u stries

r e m a in i n W a s h i n g t o n .42 to r e c e iv e

a memorandum

t h a t ’ t h e M orgenthau p la n h a d b e e n

f o r A n g l o - A m e r i c a n p o l i c y t o w a r d Germany*

e m p h a s i z e d Mr. M o r g e n t h a u ' s a r g u m e n t t h a t

o f t h e Ruhr h a d so e a s i l y b e e n c o n v e r t e d t o w a r­

tim e i n d u s t r i e s

t h a t t h e b e s t m ethod o f p r e v e n t i n g f u t u r e

G-erman r e a r m a m e n t wa s t o u p r o o t t h e s e i n d u s t r i e s to

the

and p e rh a p s

s e n d them to t h o s e c o u n t r i e s w h ic h h a d b e e n r a v i s h e d b y

German a g g r e s s i o n .

E x cerp ts

from t h i s

m em orandum s t a t e d :

The i n d u s t r i e s r e f e r r e d t o i n t h e Ruhr a n d i n t h e S a a r w ould t h e r e f o r e b e n e c e s s a r i l y p u t o u t o f a c t i o n an d c l o s e d down. I t v/as f e l t t h a t t h e tw/o d i s t r i c t s s h o u l d b e p u t u n d e r somebody u n d e r t h e W orld O r g a n i z a t i o n w hich w o u ld s u p e r v i s e t h e d i s ­ m a n t l i n g o f t h e s e i n d u s t r i e s a n d m ak e s u r e t h a t t h e y w e r e n o t s t a r t e d u p a g a i n b y some s u b t e r f u g e . T his p ro g ram f o r e l i m i n a t i n g t h e w a r-m a k in g i n d u s ­ t r i e s in t h e Ruhr a n d in th e S a a r I s lo o k in g f o r w a r d t o c o n v e r t i n g Germany i n t o a c o u n t r y p r i m a r i l y a g r i ­ c u l t u r a l a n d p a s t o r a l i n i t s c h a r a c t e r . 43 Why R o o s e v e l t a n d C h u r c h i l l a g r e e d t o plan

for the

economy o f Germany i s p e r h a p s

of co n jectu re. co n d itio n at

such a d r a s t i c

still

Stim son b e l i e v e d t h a t P r e s i d e n t 's

a m atter p h y sical

t h a t t i m e m ay h a v e b e e n p a r t l y r e s p o n s i b l e

42 J b l d . ,

p.

1602.

43 I b i d . , p .

1610.

28 for h is

approval o f th is

out th a t he l a t e r tie s

p o l i c y , 44 w h i l e H o p k i n s p o i n t e d

a d m itte d h a v in g y ie ld e d to

o f an o l d f r i e n d . 45

R o o sev elt,

H u ll,

a fte r.a

c o n v ersa tio n w ith

concluded t h a t he d id n o t r e a l i z e

t h e mem oran dum w h i c h h e h a d a p p r o v e d .

t h a t he h a d n o t com m itted h i m s e l f to

P la n .^

S i x v/eeks l a t e r h e i n d i c a t e d h i s th is

p o lic y hy stopping a l l

Germany.

In a l e t t e r

to H u ll,

the n a tu re o f

In f a c t ,

sta te d

in itia le d

the im p o rtu n i­

th e P resid en t

t h e M orgenthau

r e g r e t a t h av in g

d e ta ile d p lanning fo r

he w ro te,

nI d i s l i k e m a k i n g

44 S t i m s o n , o p . c i t . , p . 5 7 5 . The a u t h o r q u o t e d f r o m h i s d i a r y o f Septem ber 11, 1944: ,fI h a v e b e e n m uch t r o u b l e d b y t h e P r e s i d e n t s p h y s i c a l c o n d i t i o n . . .1 r a t h e r f e a r f o r t h e e f f e c t s o f t h i s h a r d c o n f e r e n c e on h im . I am p a r t i c u l a r ' l y t r o u b l e d . . . t h a t h e I s g o in g up t h e r e w ith o u t an y r e a l p re p a r a tio n fo r the s o lu tio n o f th e u n d e rly in g and fu n d a ­ m e n t a l p r o b l e m o f how t o t r e a t G e r m a n y . So f a r a s h e h a d e v i d e n c e d i n h i s t a l k s w i t h u s h e h a s h a d a b s o l u t e l y no t r a i n i n g i n t h e v e r y d i f f i c u l t p r o b l e m w h i c h we h a v e t o d e ­ c i d e , n a m e l y o f h o w f a r we c a n i n t r o d u c e p r e v e n t a t i v e m e a s u r e s t o p r o t e c t t h e w o r l d f r o m Germany r u n n i n g amuck a g a i n a n d how f a r we c a n i n t r o d u c e p r e v e n t a t i v e m e a s u r e s w h i c h w i l l s i m p l y p r o v o k e t h e v

Tb-e New Y o r k T i m e s ,

(September

6,

1948),

p.

7:4,5.

168 th at

G e r m a n y w o u l d "be u n i t e d

g o v ernm ent.

They d i f f e r e d

and u n d e r a f e d e r a l fo rm o f

on t h e

d istrib u tio n

o f power

b e tw e e n c e n t r a l a n d l o c a l g o v e rn m e n t a n d on t h e p o s i t i o n of

the e x e c u tiv e .

The t w o l e f t i s t

P e o p le !s C o u n cil),

d rafts,

(SPD a n d t h e

fa v o re d c o n c e n t r a t i n g a u t h o r i t y w ith the

f e d e r a l governm ent, w h ile th e H erren ch iem see d rafts

d e s ir e d to

more p r e r o g a t i v e s

lim it to

the

c e n t r a l a u th o r i ty and to a ssig n

th e L aender.

p r o v i d e d f o r no p r e s i d e n t w h i le went to

th e o th e r

extrem e,

and E llw angen

O n l y t h e Memzel d r a f t

th e P e o p le 's

C ouncil d r a f t

ad v o catin g a M in is te r-P re s id e n t

who w o u l d b e n a m e d b y t h e s t r o n g e s t p o l i t i c a l

p a r t y w hich

w ould n o t n e c e s s a r i l y h av e t o b e a m a j o r i t y o r c o a l i t i o n p a r t y . 32 Of t h e

six ty -fiv e

c o a litio n and th e seven s e a t s .

w hat more c e n t r a l i z e d

D em ocrats

of th e

t r o l over re lig io u s

32 L o c . c i t .

each h o ld in g tw en ty -

t h e SPD d e l e g a t e s

of so c ializ a tio n .

S o cialists

dom inated by C a th o lic

t h e CDU/CSU

f a v o r e d a som e­

s t r u c t u r e w h ich w ould p e rm it

p o licies

(C h ristian

p rero g ativ es

a t Bonn,

SPD p r e d o m i n a t e d ,

In g e n e ra l,

c a rry out th e ir

d eleg ates

in B a v a ria ),

in flu en ces,

sta te s,

them t o

The C h r i s t i a n larg e ly

j e a lo u s ly guarded th e

p a r t i c u l a r l y w ith re g a rd to

ed u catio n .

con­

T he s t r o n g h o l d o f s t a t e s ’

169 rig h tism

l a y i n B a v a r ia w h e re, By t h i s

tim e,

th e extrem e

r i g h t i s t B a v a r i a n P a r t y was b e g i n n i n g t o r i v a l

t h e CSTJ.

The B a v a r i a n P a r t y h a s p r o v e d d e t r i m e n t a l t o t h e f a c t o r s fav o rin g fed e ralism

in

th at i t

rep resen ts

extrem e B a v a ria n

home r u l e b o r d e r i n g on s e p a r a t i s m . 3 3 By D e c e m b e r 1 6 , th eir f i r s t

draft

o f th e B asic

P re sid e n t had f e l t c il

1948 t h e d e l e g a t e s h a d c o m p l e t e d Law.

th e d e le g a te s

to

O rig in a lly th e M in iste rs t h e P a r l i a m e n t a r y Coun­

s h o u ld p ro d u c e a s im p le document w h ich w ould c o n t a i n

o n ly t h o s e p r o v i s i o n s w hich w ere a b s o l u t e l y e s s e n t i a l to th e

e s t a b l is h m e n t o f a p r o v i s i o n a l governm ent.

d raft,

how ever,

t h e w ork a p p ro a c h e d t h e

document and i t s

p ro v isio n s

In i t s

fin al

l e n g t h o f t h e W eim a r

approxim ated a f u l l - f l e d g e d

c o n s t i t u t i o n .^4 C o n c u rre n tly w ith th e p ro g re ss U n i o n was o r g a n i z i n g r e s i s t a n c e a te

governm ent

m ents a t

a t Bonn,

to th e c re a tio n

i n W e s te r n Germany.

th e S o v iet of a separ­

A larm ed b y t h e d e v e l o p ­

th e s i x - p o w e r London C o n f e r e n c e ,

th e S o v ie t had

s p o n s o r e d a n a l l - G e r m a n .’’P e o p l e ’ s C o u n c i l o f t h e P e o p l e ’ s C o n g r e s s ” i n March o f 1 9 4 8 . ^ 5 p resen te d th e

T his group s u p p o s e d ly r e ­

German p e o p l e i n a l l

zones.

Its

o b j e c t i v e wa s

33> OMGUS, M i l i t a r y G o v e r n m e n t W e e k l y I n f o r m a t i o n B u l l e ­ t i n , No. 145 (O c to b e r 5, 1 9 4 8 ) , ( B e r l i n , Germany: O ffice of M i T i t a r y G o v e r n m e n t ’f o r G e r m a n y (US) ) , p . 9 . ^ M o n t h l y R e p o r t of_ t h e M i l i t a r y G o v e r n o r , N o . ( D e c e m b e r , "1 9 4 8 ), p i 1 2 , 3 3 The New Y o r k T i m e s ,

(M arch 17,

1948),

p.

42

10:1.

170 to attem p t

to s e t up a c e n t r a l governm ent f o r a l l

alo n g S o v ie t l i n e s . c o n stitu tio n s

Germany

One o f t h e f o u r p r e l i m i n a r y d r a f t

was p r e p a r e d b y t h i s

so -called

tfP e o p l e ’ s

C o u n c il” w hich p ro v e d t o b e q u i t e a v a lu a b le pro p ag an d a weapon f o r t h e R u s s i a n s . On A p r i l c risis,

6,

1948,

d u rin g the f i r s t

t h e S o v i e t U nion an n o u n ce d t h a t a p l e b i s c i t e w o u ld

be h e ld in i t s w ishes o f th e

z o n e b e t w e e n May 13 a n d 23 t o d e t e r m i n e t h e German p e o p l e on t h e q u e s t i o n o f German u n i t y .

The P e o p l e ’ s C o u n c i l r e q u e s t e d t h a t be h e ld in request as

sta g e o f the B e r lin

a sim ila r p le b is c ite

t h e A m e r i c a n Z o ne b u t G e n e r a l C l a y r e f u s e d t h i s

on t h e

g r o u n d t h a t s u c h a p l e b i s c i t e was u n n e c e s s a r y

German d e s i r e f o r

the r e s t o r a t i o n

u n i t was a l r e a d y a n o b v i o u s C o u n c il demanded t h a t

f a c t .

In a d d itio n

for a l l

Germany,

n e g o tiatio n s

to

L ater the P e o p le ’s

t h e W e ste rn Pow ers a ck n o w led g e G e r­

man u n i t y b y g i v i n g u p t h e i r sta te .

36

o f Germany as a s i n g l e

plans

f o r a W e s t e r n German

th e pro m u lg atio n

of a co n stitu tio n

t h e y demanded t h e r e s u m p tio n o f p e a c e

and th e w ithdraw al of a l l

Such an a g re e m e n t,

o c c u p a t i o n f o r c e s . 37

o f c o u rs e , w ould le a v e

th e f i e l d

open

f o r w e l l - t r a i n e d Com munist o r g a n i z e r s .

^ T h e B r o o k i n g s I n s t i t u t i o n , Sum m ary o f D e v e l o p ­ m ents i n M ajor P ro b le m s o f U n i t e d S t a t e s F o r e i g n P o i l c y , V o l. I , No. 8 ( A p r i l , 1 9 4 8 ) , p p . 6 f . ^

The New Y o r k T i m e s ,

(June 17,

1948),

p.

12:3.

171 By J u n e o f t h a t

year,

C onference had c r y s t a l i z e d ,

S oviet

o p p o sitio n

to t h e London

whereupon R u ss ia n r e p r e s e n t a t i v e s

met w i t h t h e F o r e i g n M i n i s t e r s

o f seven o th er, c o u n t r i e s 0^

a t W arsa w t o d r a w u p a d e c l a r a t i o n w h i c h c r i t i c i z e d London pow ers f o r a l l e g e d l y v i o l a t i n g and h y -p a s sin g four-pow er c o n tr o l. also

demanded t h e

o ccu p atio n tro o p s

In O c to b er, c o n stitu tio n

t h e P otsdam A greem ent

T h i s W arsaw D e c l a r a t i o n

e s t a b l is h m e n t o f a governm ent f o r th e

w h o le o f Germany a n d t h e c o n c l u s i o n w hich a l l

th e

1948,

for a l l

a fter

s h o u l d h e w i t h d r a w n . 39

th e P e o p le ’ s C o u n cil d r a f t e d i t s

a ll-G e rm a n governm ent w h ic h c o n c e n t r a t ­

ed g o v e rn m e n ta l a u t h o r i t y The C om m unists f e l t

of peace tr e a ty ,

in

th e low er l e g i s l a t i v e h o u s e .

t h e y w ould b e v i r t u a l l y g u a r a n t e e d of

a c o n tin u in g m a jo rity

in

t h e lo w e r h o u s e as t h a t b o d y w ould

be r e p r e s e n ta tiv e not o n ly of p o l i t i c a l p a r t i e s , b u t v ario u s

o th er

so c ia l o rg an izatio n s

farm c o o p e r a tiv e s .

ted

Due. t o

the

su c h as l a b o r u n io n s

as

c o n stitu tin g

extrem e c e n t r a l i z a t i o n

th e f e d e r a l governm ent,

th is

such o rg a n iz a ­

o f powers

co n stitu tio n

left

These c o u n tr ie s w e re: Rum ania, A l b a n i a , C z e c h o slo v a k ia , P o lan d and H ungary. ■ZQ

P o llo ck ,

and

O n ly Com munist o r C o m m u n i s t - f r o n t

g ro u p s w ould b e i n t e r p r e t e d tio n s.

also

Germany U n d e r O c c u p a t i o n , p .

p erm it­ only

B u lg aria,

268.

172 m in o r powers to

the

made n o p r o v i s i o n t o

sta te

govern m ent.

At t h e

d e t e r m i n e w h e th e r t h e

same t i m e i t

p rin cip les

of

th e c o n s t i t u t i o n w ere v i o l a t e d b y t h e c e n t r a l g o v e rn m e n t,4 0 Thus t h e C om m unists w o u ld h e a s s u r e d o f n e a r l y c o m p l e t e c o n tro l over a l l

lev els

o f g o vern m en t.

P ro b ab ly th e R u ssian s t r a te g y b eh in d t h i s was p r i n c i p a l l y a n a t t e m p t t o Bonn A s s e m b l y o n t h e

co u n teract

German p e o p l e .

le a d e r o f th e P e o p le ’ s C o u n cil, for

the reason th a t

the face

th e

H err

attack ed

c o n stitu tio n

effect

G rotew ohl,

of th e the

the f e d e r a l concept

s u c h a g o v e r n m e n t w o u l d b e p o v ^ rerles s i n

o f A m e ric a n i m p e r i a l i s m . 41

s u p p o s e d l y weak fo rm o f g o v e rn m e n t, group c a l c u l a t e d t h e i r

in c o n tra s t

to t h is

th e S o v ie t-sp o n so re d

demand f o r a s t r o n g ,

u n i t e d Germany

w o u l d h o l d a s t r o n g a p p e a l f o r m any G e r m a n s . D u r i n g March a n d A p r i l o f 1949, again

i n v i t e d t h e Bonn C o u n c i l t o m e e t

co n sid er th e p o s s i b i l i t y Bonn d e l e g a t e s

rebuffed

of a tta in in g th is

th e P e o p le ’s C ouncil j o in t l y w ith i t German u n i t y .

in v ita tio n ,

to

As t h e

G rotew ohl d e te rm in e d

to p ro c e e d w ith p la n s f o r t h e convening o f a t h i r d P e o p le ’s C ongress.

How ever,

in

t h e 'm ea n tim e ,

W e ste rn Pow ers w i t h t h e r e s u l t s

^ ^

T h e Hew Y o r k T i m e s , . , O ctober 23,

a p lan -to

of a p leb isc ite

(O ctober 22, p.

2:5 .

present

the

in th e

1948),

p.

5:3,

173 S o v iet

zone show ing t h a t

th e

Germans w e r e s o l i d l y b e h i n d

th e R u ssia n p o l i c y boom eranged. .p resen ted can d id ates

t h e Germans i n

th eir

a n d a s k e d them t o

On May 15 a n d 1 6 t h e y zone w i t h a s i n g l e

vo te

list

of

eith er, a f f ir m a tiv e ly or

n e g a t i v e l y a s t o w h e t h e r t h e y f a v o r e d Germ an u n i t y i n t h e peace t r e a t y .

C o n tra ry to a c o n fid e n t a n t i c i p a t i o n

th e v o te w ould b e p r a c t i c a l l y u nan im ou s, v a l i d n e g a t i v e v o t e s were r e c o r d e d . B erlin ers

v o t e d a g a i n s t t h e Com munist

P e o p le ’ s C ongress ad o p tin g t h e i r present

to

convened as

draft

over fo u r m illio n

N early h a lf of th e c a n d i d a t e s

co n stitu tio n and e le c tin g

fo r the

.

42

Th.©

s c h e d u l e d on May 29 a n d 3 0 ,

th e C o u n cil of F o reig n M in is te rs

a m an ifesto c a llin g

th at

d eleg ates

m eetin g a t

to P aris

im m ediate e s ta b lis h m e n t o f a

p r o v i s i o n a l German g o v e r n m e n t a n d a " f a i r ” p e a c e t r e a t y . 43 A lthough th e d e le g a te s

a t B on n h a d a l m o s t c o m p l e t e d

t h e i r w o rk b y December o f 1948, co n stitu tio n am ong t h e of th e

th e f i n a l

d raftin g

wa s c o n s i d e r a b l y d e l a y e d d u e t o

t h r e e w e s t e r n powers

disagreem ent

concerning th e p ro v isio n s

p ro p o se d O ccu p atio n S t a t u t e .

had c re a te d a T r ip a r tite

The M i l i t a r y G o v e rn o rs

C om m ittee i n O c to b e r ,

wa s t o b e p r o m u l g a t e d s i m u l t a n e o u s l y w i t h

49

of the

1948 w h ic h

t h e German b a s i c

CuPPent D evelopm ents i n U n i t e d S t a t e s F o re ig n P o l i c y 1 9 4 9 , V o l . I I , No. 10 [ W a s h i n g t o n , D . C . : The B rookings I n s t i t u t i o n ) , p. 33. 43 I b i d . , p p .

33 f .

174 l a w a n d w h i c h was t o "be t h e over th a t ers

law .

H ow ever,

In stru m en t o f A l lie d guidance

d i v e r g i n g v ie w s o f t h e t h r e e pow­

on t h e q u e s t i o n o f t h e

e x t e n t o f pow ers t o b e r e t a i n e d

b y them p r e v e n t e d a g re e m e n t u n t i l A p r i l o f t h e f o l l o w i n g year.

At t h a t

tim e, t h e r e w ere i n d i c a t i o n s

U nion m ig h t o f f e r t o

lift

f o r W estern c o n se n t to conference to problem .

th e

renew c o n s i d e r a t i o n o f th e e n t i r e

German

T h e s e i n d i c a t i o n s h e l d o u t new p r o s p e c t s

ed b y c o n f l i c t i n g

in f u r t h e r d e la y in g t a c t i c s ,

fearin g

th e F o reig n M in iste rs

anyway,

S ta tu te ,

th at

the

m ig h t in d u lg e

S e c r e t a r y Acheson f e l t

sign

a d eci­

of B rita in

the N orth A tla n tic

T reaty ,

a n d F r a n c e m e t w i t h I.ir.

A cheson and a g re e d to a s i m p l i f i e d S t a t u t e rig h ts

the

c o u l d no l o n g e r be d e la .y e d .

W hile in W a sh in g to n t o

R egarding th e

to

w h i c h was i n c r e a s i n g l y d i v i d ­

p o l it i c a l fac tio n s

on t h e S t a t u t e

in r e tu r n

c o n v e n i n g o f a new f o u r - p o w e r

P a r l i a m e n t a r y C o u n c il a t Bonn,

under th is

the S o viet

t h e i r b lockade of B e r lin

Ge rman f o r a u n i t e d German R e p u b l i c a n d ,

sio n

th at

on A p r i l 8 . 4 4

o f t h e p r o v i s i o n a l German g o v e r n m e n t th e F oreign M in iste rs

sta te d :

S u b ject o nly to th e lim ita tio n s of th e S ta tu te , t h e German f e d e r a l s t a t e a n d t h e p a r t i c i p a t i n g Laender [ s t a t e s ] w i l l have f u l l l e g i s l a t i v e , e x e c u tiv e and j u d i c i a l pow ers, in a cco rd an ce w ith t h e b a s i c law a n d w i t h t h e i r r e s p e c t i v e

4 4 The B r o o k i n g s p.

25.

In stitu tio n ,

op. c i t .,

A p ril,

1949,

175 c o n s t i t u t i o n s .45 The O c c u p a t i o n S t a t u t e r e t a i n e d A l l i e d c o n t r o l i n such f i e l d s

as disarm am ent,

fo reig n a f f a ir s

and fo re ig n tra d e ,

th ree

G overnm ents

o th er

than

th e r i g h t

co n tro l of

ex p ected n o t to

th o s e en u m erated In to

purposes

in te rn atio n al

o b l i g a t i o n s .46

given to

W estern id e a s

to

In o r d e r to

seeks to en su re

as ex p erien c e

such a c t io n

c a rry out th e ir

th eir

P o llo ck ,

to th e

th e occupying a u t h o r i ­ ju risd ic tio n

of

should i n d ic a te t h e i r

to e i g h t e e n m onths w i t h t h a t

and scope o f t h e t r i p a r t i t e

docu­

abid an ce by

p o w e rs. a g re e d to re v ie w

The T r i z o n a l F u s i o n

^

th ey reserv ed

Germ an a u t h o r i t i e s u n d e r t h i s

th e approval of

th e th re e

w ith in tw elv e

(A p ril,

field s

A lth o u g h som ewhat e x t e n s i v e

g ra d u a lly ex ten d th e

t h e German a g e n c i e s

^

th e S ta tu te ,

in

o f d e m o c ra c y b y m aking a l l amendm ents

B a s i c Law s u b j e c t

cap a b ility ,

take a c tio n

of s e c u r ity o r to

the

It n ev erth eless

tie s.

A lthough th e

case th ey should c o n sid e r

necessary fo r

m ent,

etc .

German

" r e s u m e i n w h o l e o r i n p a r t ,f c o m p l e t e a u t h o r i ­

t y o v e r Germany i n

powers a r e

th e R uhr,

A greem ent47

th e S ta tu te

purpose

in view .

o u t l i n e d t h e form

c o n tr o l m ach in ery f o r th e th re e

Germany U n d er O c c u p a t i o n , p .

290.

M o n th ly R e p o r t o f t h e M i l i t a r y G o v e r n o r , No. 46 1 9 4 9 ) , Annex B . , p p . 116 f .

47 I b i d . ,

No.

46,

Annex C . ,

pp.

1 18 f .

176 zones.

It

rep la ce d three-pow er m ilita r y

governm ent w i t h an

A l l i e d H igh Com m ission com posed o f one H ig h C o m m issio n er from each o f th e to work w i t h i n

C o u n cil i s

th is th e

T h i s C o m m i s s i o n was

pov^ers.48

th e a u t h o r i t y given i t

S ta tu te and oth er v an tag e of

occupying

by th e O ccu p atio n

i n t e r n a t i o n a l ag reem en ts.

A m ajor a d ­

body over th e four-pow er A llie d C o n tro l

f a c t t h a t n o o n e p o w e r may v e t o t h e o r d i n a r y

day-by-day d e c isio n s

of th e

German a u t h o r i t i e s .

to th e p r o v i s i o n a l c o n s t i t u t i o n i n g t h e unanim ous

are

approval o f th e

On A p r i l 1 1 ,

th e only m a tte rs r e q u i r ­

t h r e e C om m issioners.

1949 t h e M i n i s t e r s - P r e s i d e n t

L a e n d e r i n W e s t e r n Germany m et t o S t a t u t e w hich th e

A m e n d m e n ts

German p a r t i e s

th e P a rlia m e n ta ry C o u n cil,

d iscu ss

of th e

th e O ccu p atio n

c ritic ize d .

K onrad A denauer,

C hairm an o f announced th a t

t h e d e l e g a t e s w o u l d m e e t b y May 1 1 t o h e a r t h e

f i n a l read in g

o f t h e B a s i c Law w h i c h h e p r o m i s e d w o u l d b e r a t i f i e d b y t h e fifte en th .

At t h a t

tim e th e

a g re e d upon th e d i v i s i o n

tw o m a j o r p o l i t i c a l

p arties

o f f i n a n c i a l a u t h o r i t y betw een

c e n t r a l a n d l o c a l governm ent a s w e ll as t h e s e p a r a t i o n po w ers b e tw e e n t h e two h o u s e s

of th e

of

fe d e ra l p a rliam e n t.

T h e Bonn C o u n c i l f i n a l l y

passed th e c o n s titu tio n

by a v ote o f f i f t y - t h r e e

to

on May 8

tw elv e w ith s i x o f t h e

d issen tin g

48 i j - i m e m b e r s o f t h e H i g h C o m m issio n a r e : J o h n J . M cCloy r e p r e s e n t i n g t h e U . S . , A n d r e F r a n c o i s - P o n c e t r e p r e s e n t ­ ing P ra n c e , and G eneral S ir B ria n R o b ertso n s t i l l r e p r e s e n t ­ ing G re at B r i t a i n .

177 v otes

corning f r o m t h e R i g h t - w i n g o f t h e B a v a r i a n C h r i s t i a n

D em ocratic p a r t y .

As t h i s

resurgence of se p ara tism the B avarian P a rty ,

it

d isaffectio n

i n B a v a r i a w h i c h was p r o m o t e d b y

seem ed u n l i k e l y

P a r lia m e n t w ould r a t i f y

c o in c id e d w ith the

th at

th e B avarian

t h e c o n s t i t u t i o n .49

By May 23 a l l L a e n d e r e x c e p t B a v a r i a h a d r a t i f i e d Bonn d o c u m e n t . to the

jo in

M oreover th e B a v a ria n govern m en t h ad v o te d

th e p ro p o se d governm ent i f

oth er It

it

w ere e s t a b l i s h e d b y

s t a t e s . 50 should be n o ted th a t

a re a l co n stitu tio n

Germany u n t i l a peace tr e a ty

the a d m in istra tio n

Germany r e g a i n s is

t h e B on n c o n s t i t u t i o n

is

not

in t h e o r d i n a r y s e n s e o f th e w ord, b u t

o n l y a p r o v i s i o n a l law f o r

sig n ed .

of W estern

s o v e r e ig n powers a t t h e

Thus b o t h t h e

tim e

I f a n d when s u c h a n e v e n t o c c u r s ,

t h e Bonn d o c u m e n t w i l l b e . s u p e r c e d e d b y a b o n a f i d e t i o n . 51

the

c o n stitu ­

Germans a n d t h e w e s t e r n o c c u p y i n g

powers hope t o a v o id t h e

im p ressio n

th at

th e p resen t

49 C f . ■C u r r e n t D e v e l o p m e n t s i n U n i t e d S t a t e s F o r e i g n P o l i c y , , V o l . I I , N o . 10~ ( M a y - J u n e , 1 9 4 9 ) , p . 3 3 . The M a n c h e s t e r G u a r d i a n W e e k l y . LX :19. (May 1 2 , 1 9 4 9 ) , p • 3« 50 C u r r e n t D e v e l o p m e n t s i n U n i t e d S t a t e s F o r e i g n P o l i c y , V o l. I I , No. 1 0 . ( M a y -J u n e , 1949TT~P* 3 5 . A rticle

54 P o l l o c k , 146.

Germany U n d er O c c u p a t i o n .

S u p p l e m e n t B,

178 d iv isio n

o f Germany i s

The B a s i c Law, sta te s

th at

estab lish es

e x p e c te d to be p erm an en t. a s t h e Bo n n c o n s t i t u t i o n

is

Germany s h a l l b e a f e d e r a l r e p u b l i c .

It

a b i c a m e r a l p a r l i a m e n t composed o f a B u n d e s ta g ,

t h e members o f w h i c h a r e t o b e e l e c t e d a c c o r d i n g tio n ,

c alle d ,

and a B undesrat

ed b y t h e L a n d t a g e .

c o n sistin g It

a lso

to

of re p re se n ta tiv e s

d eclares

to h av e com petence o v er t h r e e c l a s s e s

leg islatio n :

(a)

to

L a e n d e r , and

e x c l u s i v e pow ers in c e r t a i n

s ta te basic (c)

p rin cip les

field s,

(b)

to b e Im plem ented b y th e

th e L aen d er, th e r i g h t s

to be p ro te c te d b y p e rm ittin g

law s

of

c o n c u r r e n t pow ers w i t h t h e L a e n d e r .

o t h e r powers a r e r e s e r v e d to are

e le c t­

th a t th e fe d e ra l

governm ent I s

th e r i g h t

pop u la­

In so f a r as p o s s i b l e .

them .to

F or exam ple,

A ll o f w hich

ex ecu te f e d e r a l A r t i c l e 83 s t a t e s

th at: The L a e n d e r s h a l l e x e c u t e t h e f e d e r a l law s a s t h e i r own c o n c e r n I n s o f a r a s t h i s b a s i c l a w d o e s n o t o t h e r w i s e d e t e r m i n e o r p e r m i t . 52 The c o n s t i t u t i o n is

to

ex ercise

fu rth er

its

overcom e d i v e r g e n t of le g a l or

provides

th at

concurrent rig h ts in te re sts

52 I b i d . , A r t i c l e

83.

o n l y w he n n e c e s s a r y t o

among t h e L a e n d e r f o r t h e

econom ic u n i f o r m i t y .

o f th e c e n t r a l governm ent a r e

t h e f e d e r a l governm ent

In a d d i t i o n ,

th e

sake

powers

lim ite d by r e s t r i c ti n g

its

17 9 t a x i n g powers w h i l e t h e L a e n d e r a r e t o th ro u g h th e ir

own f i n a n c i a l

The f a c t is

th a t th e

a g e n c ie s .

p resid en t

lev y th e ir

own t a x e s

53

of th e f e d e r a l re p u b lic

to be s e le c te d by a c o n v en tio n o f d e le g a te s

from th e

L a e n d e r i n c o n j u n c t i o n w i t h t h e members o f t h e B u n d e s t a g is

sig n ific a n tly d ifferen t

from c o r r e s p o n d in g p r o v i s i o n s

o f t h e W eim a r C o n s t i t u t i o n w h i c h p e r m i t t e d t h e p r e s i d e n t t o be e le c te d by th e was e l e c t e d i n

p eo p le.

th is

manner r e p r e s e n t e d th e m i l i t a r i s t ,

elem ent in

Germany.

S o cialism ,

th e Junkers

it

enough t o

p a r tly aid ed H itle r

b ility

m istak en b e l i e f

c o n t r o l him f o r

is hoped t h a t

th eir

t h e Bonn c o n s t i t u t i o n

of a popular

F e d e ra l R ep u b lic.

Junker

A lthough th e y d id n o t fa v o r N a tio n a l

t o power b e c a u s e o f t h e i r strong

F i e l d M a r s h a l l Von I i i n d e n b e r g who

d uring h is r i s e th at

th e y w ere

own p u r p o s e s . may l e s s e n

d e m o g o g u e b e e o n l in e p r e s i d e n t By s t r i c t l y

lim itin g the

p r e s i d e n t and b y p e r m i t t i n g him t o

Thus

th e p o s s i­ of the

powers o f t h e

d e c l a r e an em ergency

o n l y on t h e r e q u e s t o f t h e G o v e r n m e n t w i t h t h e c o n s e n t o f th e B u n d e sra t, i t

v irtu a lly

governing by decree W eim ar p e r i o d .

1949,

excludes th e p o s s i b i l i t y

in a m anner s i m i l a r

to th e

last

of of th e

O n ly o n e s u c h e m e rg e n c y may b e d e c l a r e d

55 T h e M a n c h e s t e r G u a r d i a n W e e k l y , 4 - 0 : 2 1 , p . 5.

May 2 6 ,

180 d u r in g a G overnm ent’s te rm o f o f f i c e

and i t

may n o t

last

m o r e t h a n s i x m o n t h s . 54 E le ctio n s on A u g u s t 1 4 ,

for

1949.

t h e new Ge rm a n P a r l i a m e n t

T he t w o m a j o r p o l i t i c a l f a c t i o n s

th e C h r is tia n D e m o c ra t--C h ristia n S o c i a l i s t h y D r. K urt Schum acher.

of a ll p arties,

e d i n a v i c t o r y f o r t h e CDTJ/CSU. B av arian w ing,

a c c e p ta b le to

How ever,

it

th e

is

to b e

man e c o n o m y c o n t i n u e .

th an

exp ected t h a t

C lose

d ecisio n s

co m pensating f o r any lo s s f u t u r e . 55

as

d ecisio n

o f governm ent pow ers.

certain

effo rts

^

^ oc * o i t

cen tralizin g

to r e s t o r e

c o l l a b o r a t i o n betw een

the

of d ire c t

G er­

t h e two

p a rtic ip a tio n

of

the

thus

com petence i n t h e

tren d of th is

th e C h r i s t ia n D em ocratic v i c t o r y free

a r e more

o f th e c e n t r a l governm ent,

T he a n t i - S o c i a l i s t

for

ele ctio n r e s u lt­

S o c ialists,

i s ’f a v o r a b l e t o A m e r i c a n p o l i c y a l t h o u g h i t in te rp ret

led

th e S o c i a l D em ocrats

h o u s e s o f P a r l i a m e n t may p e r m i t a c t i v e Laender in th e

c o alitio n ,

The C h r i s t i a n D e m o c r a t s ,

d e ce n tra liz atio n

ten d en cies w ill be in e v ita b le

th e

C h ristia n

the U n ited S ta te s

as t h e y f a v o r g r e a t e r

were

Preceded b y h ig h ly n a t i o n a l i s t i c

c a m p a i g n i n g on t h e p a r t

w ith t h e i r

took p la c e

e le ctio n is

too

a lso

soon t o

as a c l e a r

e n t e r p r i s e .56

.

55 O t t o K i r c h h e i m e r a n d A r n o l d H. P r i c e , ,fA n a l y s i s a n d E f f e c t s o f t h e E l e c t i o n s i n W e s t e r n G e r m a n y , ,! D e p a r t m e n t o f S t a t e , B u l l e t i n XXI, No. 5 3 7 , p . 5 9 2 . 56 I b i d . , p . 565.

181 • On S e p t e m b e r 7 t h e G e r m a n s o f W e s t e r n G e r m a n y c o n stitu te d

th eir f ir s t

P arliam en t,

e l e c t i n g K a rl A rnold as

p re s id e n t o f th e upper house and E ric h K oehler to t h a t p o sitio n

in t h e low er

C h ris tia n 'D e m o c ra tic h is

h o u s e .

p arty ,

57

A denauer,

as le a d e r o f th e

became C h a n c e llo r

and s e l e c t e d

c a b i n e t m e m b e r s p r i n c i p a l l y f r o m t h e CDTJ/CSTJ c o a l i t i o n .

Due t o

th e d isa ffe c tio n

o f th e B a v a r ia n w ing o f h i s

A denauer c a l l e d in h i s

p o litica l

er,

discuss

on S e p t e m b e r 10 t o

of th e F e d e ra l Free D em ocratic

R

e p u b l i c .

P arty ,

58

o p p o n e n t, D r. K u rt Schumach­

th e e le c tio n

Theodore H eu ss,

had th e support of

t h a t o f f i c e a n d wa s l a t e r

o f the P re s id e n t lead er of th e

t h e CDU/DSU f o r

ele cted .

On S e p t e m b e r 21 t h e W e s t e r n P o w e r s the m il i ta r y

p arty ,

f o r m a lly ended

governm ent phase of o c c u p a tio n an d t h e A l l i e d

Higjh C o m m i s s i o n e r s who s u c c e e d e d t h e M i l i t a r y G o v e r n o r s p ro c la im e d th e O ccu p atio n S t a t u t e ^

T h e Hew Y o r k T i m e s ,

to be in

(Septem ber 8,

e f f e c t . 59 1949),

p.

1:5 .

58 B a v a ria n C h r i s t i a n S o c i a l i s t s w ere e m b i t t e r e d ' by th e e l e c t i o n o f K a rl A rnold as p r e s i d e n t of th e B u n d e s r a t. Adenauer h ad p ro m ised t h i s p o s t to th e B a v a ria n M i n i s t e r P r e s i d e n t , Iians S h a r d . E d i t o r i a l b y J a c k R aym ond i n The Hew Y o r k T i m e s , S e p t e m b e r 1 1 , 194-9, s e c t i o n L, p . 2 4 . C f. E d i t o r i a l b y D re w M i d d l e t o n , I b i d . , J u l y 3 1 , 1 9 4 9 , p . 4 E : 3 - 5 . D r. K a r l A rn o ld , M i n i s t e r - P r e s i d e n t o f Land N o r th R h in e W e s t p h a l i a a n d a m em ber o f t h e C h r i s t i a n D e m o c r a t i c p a r t y , fa v o re d th e c e s s a t i o n o f th e d is m a n tlin g program o f th e A l l i e s a n d th e e s ta b lis h m e n t o f a European o r g a n i z a t i o n , com posed o f Germany a n d o t h e r E u r o p e a n c o u n t r i e s , to a d m i n i s t ­ er a l l E uropean h e a v y I n d u s t r y . U n d e r h i s p l a n Germany w o u ld p l a c e t h e a d m i n i s t r a t i o n o f t h e Ruhr u n d e r h i s a u t h o r i t y . 59 I b i d . , S e p t e m b e r 2 2 ,

p.

1:4 .

182 The H i g h C o m m is sio n w h i c h g o v e r n s W e s t e r n Germany u n d e r p ro v isio n s

of

the O ccu p atio n S t a t u t e

composed o f t h e com m ittees, are:

(a)

a re th e

p o litic a l

ad v iso rs o f

(b)

com m ittee

six

sp e cia liz ed

Two s i g n i f i c a n t

the P o l i t i c a l A ffa irs

The p u r p o s e o f t h i s on a l l

c o n s is ts o f th e C o u n cil,

th r e e ' H igh C o m m issio n ers,

and a s e c r e t a r i a t .

the

co m m ittees

C om m ittee whose t h r e e

m em b ers

th e r e s p e c t i v e C om m issioners. is

to

a d v ise th e com m issioners

p o l i t i c a l i s s u e s a n d d e v e l o p m e n t s i n W e s te r n Germany,

T he f o r e i g n T r a d e a n d E x c h a n g e C o m m i t t e e ,

composed o f

b o t h t h e econom ic a n d f i n a n c e a d v i s o r s o f e a c h C o m m issio n e r. Its

members a r e a l s o members o f

Agency w h ich c o n t r o l s a l l ive of th is in

com m ittee i s

German f o r e i g n to

E x p ort-Im rcort trad e.

One o b j e c t ­

e n c o u r a g e German p a r t i c i p a t i o n

t h e C o n v e n t i o n f o r E u r o p e a n Econom ic C o o p e r a t i o n .

o t h e r f o u r com m ittees F in a n c e C om m ittee, S e c u r ity B oard. upon th e

in

are:

t h e E conom ics C o m m itte e ,

t h e Law C o m m i t t e e ,

G e r m a n y .

R em iniscent

ad m in isters

The the

and th e M il i t a r y

The l a s t n am ed i s a s i g n i f i c a n t

Germans a s i t

ta riz a tio n

is

the J o i n t

re stric tio n

disarm am ent and d e m i l i ­

60

o f A m erican p r a c t i c e ,

t h e H ig h Com m ission

t o w ork t h r o u g h t h e a p p r o p r i a t e F e d e r a l a n d Land g o v e r n ­

ment a g e n c i e s

e x ce p t in su c h c a se s w here d i r e c t a c t i o n

^ " S u m m ary o f M a j o r D e v e l o p m e n t s i n C h a n g e - o v e r C i v i l i a n C o n t r o l o f G e r m a n y , n The D e p a r t m e n t o f S t a t e B u l l e t i n , V o l . XXI, H o . 5 2 3 . T J u l y 11, 1949)

to

may b e n e c e s s a r y . ® ? the

John J .

M cC lo y ,

form er p r e s id e n t

of

I n t e r n a t i o n a l Bank f o r R e c o n s t r u c t i o n a n d D ev elo p m en t,

was s e l e c t e d t o

s e r v e b o t h as t h e A m erican H ig h C om m ission­

e r a n d a s Econom ic C o o p e r a t i o n A d m i n i s t r a t i o n r e p r e s e n t a ­ tiv e

f o r Germany.

e x e rc is e b o th

Thus,

In t h i s

d u a l c a p a c i t y h e wa s t o

econom ic a n d p o l i t i c a l a u t h o r i t y

In W estern

G erm an y .^ The S o v i e t U n i o n made known i t s estab lish m en t n o tes

of a se p a ra te

of O ctober

3 to

sta te

t h e W estern Pow ers. th is

In th e s e n o tes actio n

form o f

^

I t also

t h e m a j o r i t y o f G e rm a n s do n o t w a n t a f e d e r a l

g o v e r n m e n t . 6 3

T a rl.e ,6 4

rep resen t­

o f t h e Potsdam A greem ent and s e r v e d to d e la y

t h e c o n c l u s i o n o f a p e a c e t r e a t y w i t h Germany. d eclared th at

to th e

o f W e s t e r n Germany I n I t s

t h e S o v i e t Government p r o t e s t e d t h a t ed a v i o l a t i o n

o p p o sitio n

A

R ussian r e p o r t e r ,

A cad em ician

a p p a re n tly co n sid ered th e f e d e r a liz a tio n

E .

of

^jOC * c i t .

^ I b id ., p. 22. C f. In fo rm a tio n B u l l e t i n (F eb ru ary 1950), p. 28. lie1. R o b e r t M. H a n e s l a t e r was a p p o i n t e d a s D i r e c t o r o f E c o n o m i c A f f a i r s a n d C h i e f o f ECA S p e c i a l M i s s i o n f o r W e s te rn Germany. I n f o r m a t io n B u l l e t i n ( F r a n k f u r t , G er­ many, O f f i c e o f t h e U .S . C o m m is sio n e r f o r Germany, O f f i c e o f P ublic A ffa irs , P u b lic R e la tio n s d iv is io n ) . F e b ru a ry , 1950, p. 28. 63 The Hew Y o r k T i m e s , 64

(O c to b e r 4,

1949),

p.

26:1.

A c a d e m i c i a n E. T a r l e , U n i f i c a t i o n o r F e d e r a t i o n ? 11 ( R e p r i n t e d f r o m I z v e s t i a , March 2 3 , 1 9 4 7 ) , S o v i e t P r e s s T r a n s l a t i o n s , V o l . I I , No. 1 0 , p . 1 0 .

184 Germany a s an A n g lo - A m e r ic a n schem e t o g a i n o v e r Germany a n d , u l t i m a t e l y ,

over a l l

econom ic c o n t r o l

of Europe by d i v i d i n g

and w eakening t h e w ork in g c l a s s e s . The R u s s i a n r e a c t i o n

a g a in s t th e fo rm atio n

of th e

F e d e r a l R e p u b l i c o f W e s t e r n Germany r e s u l t e d a s h o r t later

in

th eir

lic .

T his

estab lish m en t o f a se p a ra te

a ctio n

e lected

purpose o f sending d e le g a te s

ing o f th e C ouncil of F o reig n M in is te r s . isters

re fu sed to

German r e p u b ­

c lim a x e d t h e work o f t h e S o v i e t - s p o n s o r e d

" P e o p l e ’ s C o n g r e s s ” v / h i c h was f i r s t 1947 f o r t h e

East

tim e

receiv e

th is

i n N ovem ber,

t o t h e London m e e t­ The F o r e i g n M i n ­

d e l e g a t i o n w hereupon th e

P e o p l e ’ s C o n g ress became m e r e ly a p ro p ag a n d a a g e n c y w hich d e m a n d e d German u n i t y .

T hree days b e f o r e

of th e A l l ie d C o n tro l C o u n cil in p e titio n s

for

German u n i t y . 85

M arch,

p leb isc ite

1948,

in A p ril,

chairm an o f t h e S o c i a l i s t U n ity P a r t y ,

the d is s o lu tio n it

c o llec ted

O tto G rotew ohl,

d eclared th a t

co-

a

on w h e t h e r t h e G erm an p e o p l e w a n t e d a u n i f i e d

r e p u b l i c w ould b e r e a d y i n a few w e e k s .6 6 C o uncil o f th e P e o p le ’ s C o n g ress, by th e C ongress,

The P e o p l e ’ s

a sm aller body s e le c te d

was c o n s t i t u t e d i n J u n e a n d d r a f t e d a

/ 65 H e n r y B. C o x , “E s t a b l i s h m e n t o f S o v i e t - S p o n s o r e d E a s t German R e p u b l i c , " The D e p a r t m e n t o f S t a t e B u l l e t i n , V o l . XX I, N o . 5 4 4 . (Nove mbe r 2 1 , 1 9 4 9 ) , p . 7 6 1 . 66

T h e New Y o r k T i m e s ,

(A p ril 12,

1948) , p .

3 :3 .

185 c o n s t i t u t i o n w h i c h wa s c o m p l e t e d i n O c t o b e r , order to he

in a p o s itio n

to p la c e

Germany u p o n t h e W e s t e r n P o w e r s , approval of i t s h ad a g re e d to

in to

t h e blam e f o r s p l i t t i n g

after

t h e W e ste rn Pow ers

th e O ccu p atio n S t a t u t e .

a P e o p le 's

C ouncil m e re ly tra n s fo rm e d

Chamber a n d p r o c l a i m e d t h e

m e n t o f t h e German D e m o c r a t i c R e p u b l i c . d r a f t e d b y t h e C o u n c i l was d e c l a r e d i n Chamber e l e c t e d W ilh elm P i e c k , p arty ,

In

th e C o u n cil d e la y e d th e

c o n stitu tio n u n til

On O c t o b e r 7 t h e P e o p l e ' s itse lf

1948.

as P re sid e n t of th e

The c o n s t i t u t i o n effect.

le a d e r o f th e

eastern

e stab lish ­

R ep u b lic.

T h e new

German C o m m u n i s t O tto G rotew ohl

b e c a m e C h a n c e l l o r a n d t h e SED g a i n e d a d o m i n a n t p o s i t i o n the

cab in et.

the

tra n s fe r of a d m in istra tiv e fu n ctio n s

ment a n d i s

The S o v i e t

in

Government i m m e d ia te ly a n n o u n c e d

e x p e c t e d b y so m e s o u r c e s

to

t h e new g o v e r n ­

t o m ak e a s e p a r a t e

peace t r e a t y w ith E astern

G e r m a n y . 08

p r e s id e n t o f th e P e o p le 's

Chamber, a n d W ilh elm P i e c k a n n o u n c ­

ed t h a t

e le ctio n s

Jo h a n n e s D iekm ann,

f o r t h e E a s t G e rm a n p a r l i a m e n t w o u l d b e

h e l d on O c t o b e r 15.® ^ T h e German D e m o c r a t i c R e p u b l i c

6T C o x ,

op.

68 r b l d . , p .

c i t .,

p.

issu e d a tw en ty -p o in t

762.

761.

Tiie Mew Y o r k T i m e a ,

(O ctober 8,

1949),

p.' 1 : 5 .

18 6 m an ifesto

on O c t o b e r 4 which, d e m a n d e d a s i t s

first

p o in t :

R e s t o r a t i o n o f t h e p o l i t i c a l a n d econom ic u n i t y o f G-ermany b y a b o l i s h i n g t h e W e s t e r n German Gov­ e rn m e n t, t h e Ruhr S t a t u t e a n d t h e autonom y o f t h e S a a r and. t h e e s t a b l i s h m e n t o f a n A l l - G e r m a n Gov­ e r n m e n t .VO T h is document a l s o

demanded:

the co n c lu sio n

t r e a t y and th e w ith d raw al of a l l to ratio n

of f u l l

o ccu p atio n tr o o p s ,

s o v e r e i g n t y t o t h e German p e o p l e ,

tab lish m en t of a uniform cu rren cy , fo reig n

c o n tro l over

ending o f

the

th e i n i t i a t i v e

many G e r m a n s .

in th e ir

co m p e titio n w ith R ussia

T h e E a s t e r n g o v e r n m e n t may b e e x ­

Under th e

at th e

F e d e ra l R epublic

is

In a l l

same t i m e ,

the l e g i s l a t u r e

p r o b a b i l i t y spokesmen in E a s t e r n

o f the

c i t .,

G er­

propaganda advantage by c o n s ta n tly

Vhe New Y o r k T i m e s , op.

w ithout th e a sse n t

opposed to French c o n tr o l in th e Saar

m any w i l l e m p h a s i z e t h e i r

71 C ox ,

e m o t i o n s of.

t h r e e - p o w e r c o n t r o l i n W este rn G er­

Germans c a n w in no c o n c e s s i o n s

of Prance w h ile ,

^

of a l l

t h e W e s t e r n P o v /e r s

p e c te d to have an a p p e a l to t h e n a t i o n a l i s t i c

and R uhr.

es­

e sta b lish m e n t o f a s e p a ra te govern­

G e r m a n y m ay mean t h a t

German a l l e g i a n c e .

many, t h e

the

the d i s m a n t l in g program .V I

ment i n E a s t e r n

for

th e d is s o lu tio n

th e r e s ­

German e c o n o m y o r c a p i t a l a n d t h e

The e f f e c t o f t h e

have lo s t

of a peace

p.

(O ctober 8,

764.

1949),

p.

4 :4 .

18 7 c ritic izin g

p o l i t i c a l a n d econom ic

developm ents

in W estern

G erm any#^ Thus,

after

fo u r years

of o ccu p atio n hy four v i c t o r ­

ious n a t i o n s ,

Germany h a s

com peting f o r

ev en tu al c o n tro l over a l l

tri-z o n e,

w estern h a l f

two g o v e r n m e n t s ,

th ere

ex ists

o f Germany.

a fed eral,

form o f g overnm ent whose r e p r e s e n t a t i v e s a r e c h o s e n "by f r e e Id eals

e le ctio n s

o f t h e W est.

In

th e form al a s se n t o f th e of th e ir

suffrage

p o licy at

a ll

tim es.

a h ig h ly c e n tr a l­

e s ta b lis h e d w ith o u t

German p e o p l e - t h r o u g h t h e

pow er.

governm ent and t h a t

p arliam en tary

th e dem ocratic

zone i s

i z e d g o v e r n m e n t w h i c h wa s a r b i t r a r i l y

p arty ,

A u n i-p arty in

tu rn ,

is

In th e

and a d m in is tra to rs

a c c o rd in g to

th e S o v iet

each o f w hich i s

ex ercise

system d o m in ates t h i s su b serv ien t

to S o v ie t

P ro m ises from t h e E a st o f u l t i m a t e

German u n i t y v i e w i t h t h e h o p e o f a f r e e

dem ocracy in

the

W est.

^

New Y o r k T i m e s ,

(O ctober 8,

1949),

p.

4:3.

CHAPTER -IX CONCLUSION The U n i t e d S t a t e s h a s a l m o s t econom ic p o l i c y

ex actly rev ersed I t s

t o w a r d Germany f r o m an o r i g i n a l p l a n o f

d e m o l i s h i n g German h e a v y i n d u s t r y t o

one o f r e s t o r i n g

A lth o u g h t h e M orgenthau t h e o r y o f c o n v e r t i n g a w holly a g r i c u l t u r a l i t y was n e v e r t h e was,

in f a c t ,

p artm en ts,

it

sta te

o fficial

for reasons

became c o g n iz a n t o f t h e f a c t

to

b o th ev id en ce th e b a s ic S u sp icio n

of S o v iet

E urope as w e l l as

D uring th e

th at

th e r e s to r a tio n

d e p e n d e n t upon a v i a b l e

th e M i l i t a r y Governor in change-over

economy

1947

in econom ic p o l i c y .

e x p a n s i o n i s t m o ves i n

the p re ssin g

o f the

I n S e p t e m b e r 194-6 a n d

Ira n and E a s te rn

econom ic a n d p o l i t i c a l

blem s o f W estern Europe p r o b a b ly h a s t e n e d t h i s sh ift

t i m e Mr.

t h e A m erican Government

The S t u t t g a r t A d d r e s s

t h e J u l y 11 d i r e c t i v e

and

c a r r i e d c o n s id e ra b le w eight d u r ­

B y r n e s wa s S e c r e t a r y o f S t a t e ,

i n Germany.

of m ilita ry secur­

t o b o t h t h e S t a t e a n d War D e ­

in g 1945 and t h e e a r l y p a r t o f 1946.

e n -tir e E u ro p e a n economy i s

Germany i n t o

p o lic y of th e U n ited S ta te s

o b jec tio n a b le n ev erth eless

it.

pro­

in ev itab le

of p o licy . C onversely,

rem ain ed f a i r l y

A m erican p o l i t i c a l aim s in

co n sisten t.

Germany h a v e

A m ajor p re m ise i s

a l i s m w i l l p r o v i d e an a d e q u a t e

th at

environm ent f o r th e

feder­

grow th

189 o f dem ocracy.

P ro m t h e " b e g i n n i n g t h e U n i t e d S t a t e s h a s i

favored

ro o ts” train in g

is

to

"grass

say,

learn in g

in dem ocratic

d e m o c r a c y "by a c t u a l l y p r a c t i c i n g

Thus A m e ric an M i l i t a r y Governm ent g overnm ent,

first,

on c o n t r o l l e d

on more c e n t r a l i z e d pow er.

lev e ls

a v e rt th e

lo cal

lev els

and,

e x erciz in g a la rg e r

p o ssib ility

it.

e n c o u r a g e d German s e l f -

A c co rd in g to A m erican t h e o r y ,

hopes to

co n eep ts, - - th a t

degree of

th e U n ited S ta te s

of the fu tu re

m e n t "becom in g a h i g h l y c e n t r a l i z e d

later,

German g o v e r n ­

o rg an izatio n

g o v e r n e d "by

an u n d e m o c r a tic a n d a g g r e s s i v e h i e r a r c h y ,

"by d e c e n t r a l i z i n g

the

degree o f lo c a l

German s t a t e

so a s

to

perm it a la r g e r

autonom y. The D e p a r t m e n t o f S t a t e

sig n ific an tly

sta te d :

VJe r e a l i z e t h a t n o c o n q u e r i n g p e o p l e c a n " r e e d u c a t e 1' a n o t h e r p e o p l e ; i t c a n a t b e s t a s s i s t i n c r e a t i n g t h o s e c o n d i t i o n s w h i c h m ak e r e e d u c a ­ tio n p o ssib le .^ P o litic a l

sc ie n tists

in th e U n ite d S ta te s

e v id e n tly h o ld

t h a t a f e d e r a l form o f governm ent b e s t c r e a t e s co n d itio n s.

th e above

A p p a re n tly th e y hope t h a t a s i t u a t i o n

p e r m i t s more p e o p l e

to

t a k e an a c t i v e

in g process w i l l d e c re a se g iv in g up t h e i r

part

in th e

the p r o b a b i l i t y o f th o s e

power o f p o l i t i c a l d e c i s i o n

to

w hich govern­ p eo p le

o n e man o r

^ H e n r y A. B y r o a d e , " O u r German P r o b l e m T o d a y , " T h e D e p a r t m e n t o f S t a t e B u l l e t i n . XXI, N o . 5 4 0 ( N o v e m b e r 7, 1 9 4 9 ),"p . 705.

190 t o o ne o r g a n i z a t i o n .

For t h is

favored a d e c e n tra liz e d ,

r e a s o n A m erican p o l i c y h a s

p referab ly fed e ral,

ernm ent w hich w ould p e r m it s e l f - g o v e r n m e n t and e n co u rag e an e v a l u a t i o n o f i n d i v i d u a l d ecisio n .

T hu s t h e U n i t e d S t a t e s ,

o th e r occupying pow ers, has t h r o u g h G-erman a g e n c i e s powers o f t h e

in

form o f gov­ lo c a l areas

o p in io n and

more t h a n a n y o f t h e

c o n s i s t e n t l y w orked i n d i r e c t l y

and i n s i s t e d upon p r o t e c t i n g

the

in d iv id u a l L aender.

As t o t h e

effect of th is

p o licy ,

how ever,

D r. Hans

Ivleyerhoff o f t h e U n i v e r s i t y o f C a l i f o r n i a a t Los A n g e l e s sta te s : I t i s d o u b t f u l w h e t h e r t h i s aim [ f e d e r a l i s m ] h a s been acco m p lish ed anyw here. For th e m ost p a r t , th e e l i m i n a t i o n o f a c e n t r a l R e ic h a u t h o r i t y h as so f a r r e s u l t e d sim ply in a h ig h d eg ree o f r e g i o n a l c e n t r a l ­ i z a t i o n r a t h e r th a n i n 'a gen u in e m easure o f d e c e n ­ t r a l i z e d s e l f - a d m i n i s t r a t i o n on l o w e r l e v e l s . In­ s t e a d o f p l a c i n g t h e e m p h a sis as b e f o r e on one c e n ­ t r a l i z e d n a t i o n a l g o v e r n m e n t, t h e r e a r e now a num ber o f in d e p e n d e n t r e g i o n a l governm ents whose d e g re e o f c e n t r a l i z a t i o n , how ever, Is p a t t e r n e d a f t e r th e model o f th e o l d c e n t r a l a u t h o r i t y o f th e R e i c h . 2 On t h e o t h e r h a n d , a re a l th reat C ritic iz in g

to

th e

th e S o v iet

ex ten sio n

fed e raliza tio n

as

of its

view s f e d e r a l i s m as aim s I n Germany.

I m p r a c tic a l and r e a c ti o n a r y ,

one R u s s i a n c o r r e s p o n d e n t s t a t e d t h a t

it

w ould s e r v e

^ G a b r i e l A. A l m o n d , e d i t o r , T h e S t r u g g l e F o r D em o cracy I n Germany. (C hapel H i l l , N o rth C a r o l i n a : U n iv e rs I ty o f N o rth C a ro lin a P re s s , 1949), p. 205.

The

191 A n g l o - A m e r i c a n i n t e r e s t s toy d i v i d i n g a n d w e a k e n i n g t h e German w o r k i n g c l a s s e s

so

th at

th ey c o u ld n o t w ith s ta n d

e c o n o m i c s t r a n g u l a t i o n toy B r i t i s h A nother s ta te m e n t o f t h i s th e U n ited S ta te s

ty p e o f a Pravda r e p o r t e r a cc u sed

o f r e d u c i n g W e s t e r n Germany t o

an A m erican c o l o n y f o r t h e b e n e f i t B oth s t a t e m e n t s , iet

and A m erican c a p i t a l . 3

in

th e o p in io n

o f A m erican c a p i t a l i s t s . ^

of th e w rite r,

concern over th e u ltim a te c o n tr o l of It

v ita lly

the s ta tu s

s h o u l d toe r e m e m b e r e d t h a t t h e

im po rtant fo r s e v e ra l re a s o n s .

in d icate

Sov­

t h e German e c o n o m y . econom ic p i c t u r e

is

F o r som e t i m e G e r ­

m any h a s b e e n t h e n a t u r a l c e n t r e o f t h e E u r o p e a n e c o n o m y . The p r o p o s i t i o n respect is , trie s,

th at

how ever,

Germany m u s t r e m a i n d o m in a n t i n t h i s d i s p u t e d toy s e v e r a l n e i g h b o r i n g

p a r t i c u l a r l y France.

man w a r p o t e n t i a l a n d t o hub o f E u ro p e,

France has

B oth d e s i r i n g t o

d e s tr o y G er­

r e p l a c e Germany as t h e

econom ic

opposed any c e n t r a l i z a t i o n

Ge rman e c o n o m i c o r p o l i t i c a l p o w e r w h a t s o e v e r . can p o l ic y in r e s t o r i n g th e h eavy i n d u s t r i e s

coun­

of

Thus,

Am er-

o f t h e Ruhr i n

rz

A c a d e m i c i a n E . T a r l e , ’’U n i f i c a t i o n o f F e d e r ­ a t i o n ? ” , ( R e p r i n t e d f r o m I z v e s t i a , M arch 2 3 , ’1947) S o v ­ ie t Press T ra n s la tio n s . 2 : 1 0 , (May 3 1 , 1 9 4 7 ) , p . 9 . ^ Yur K o r o l k o v , ’’C o l o n i e s i n W e s t e r n G e r m a n y , 1’ ( R e p r i n t e d f r o m P r a v d a , .N o v e m b e r 4 , 1 9 4 7 ) S o v i e t P r e s s T r a n s l a t i o n s , 2 : 2 1 (December 15 , 1 9 4 7 ) , p . 2 8 4 .

of

192 order to

fa c ilita te

th e E uropean R eco v ery Program i s •

b a s i c a l l y u n a c c e p ta b le to th e F rench. German i n d u s t r y m u s t a l s o

com pete w i t h t h a t

is h fo r a lre a d y flo o d ed m ark ets. p rev a ilin g

o p in io n

assume a s t r a t e g i c For t h is e n tire

reason,

th at

At t h e

of the B r i t ­

Yet t h e r e

seems t o b e a

t h e Ruhr i n d u s t r i e s

im p o rta n c e in

th e

th e U nited S ta te s

sa m e t i m e

w ill c e rta in ly

ev en t o f a f u t u r e w ar.

d esires

to

o rien t

the

German e c o n o m y i n t o a r e g i o n a l a r r a n g e m e n t a s i n t h e

C o u n c i l o f E u r o p e a n Econom ic C o o p e r a t i o n . The I n t e r n a t i o n a l A u t h o r i t y o f t h e R u h r w e n t i n t o e f f e c t A p ril 28,

1949 w i t h t h e U n i t e d S t a t e s ,

F rance and th e B enelux c o u n tr ie s o b ject

of th is

o rg an izatio n

t h e Ruhr f o r t h e b e n e f i t economy a n d t o

is

as s i g n a t o r y pow ers.

to u t i l i z e

the

and p r o d u c tio n p r o c e s s e s

The

th e re so u rc e s

of

o f th e e n t i r e W estern E uropean

p rev en t u n i l a t e r a l use

b y Germany w h i l e a t

B rita in ,

of th o se

resources

sa me t i m e l e a v i n g t h e m a n a g e m e n t in th e hands of th e

G erm a n s.5

T he

^ (C o n tin u e d ) S o v ie t s t a t e m e n t s c o n c e r n in g t h e form o f G erm an y 's g o v e rn m e n t h a v e b e e n som ewhat c o n t r a d i c t o r y how ever. A t t h e Moscow c o n f e r e n c e o f t h e C o u n c i l o f F o r ­ e i g n M i n i s t e r s M o l o t o v s u g g e s t e d t h a t t h e W e im a r c o n s t i t u ­ t i o n b e u s e d a s a b a s i s f o r p l a n n i n g a new German c o n s t i t u ­ t i o n w hich w ould h a v e p r o v id e d f o r a f e d e r a l s t r u c t u r e . On th e o th e r h an d he denounced any d e c e n t r a l i z a t i o n or s e p a r a ­ t i o n o f Germany i n t o e a s t e r n a n d w e s t e r n z o n e s . T h e New York T im e s , (M arch 2 3 , 1 9 4 7 ) , p . 13. ^ Su m m ary o f M a j o r D e v e l o p m e n t s i n C h a n g e - o v e r t o C i v i l i a n C o n t r o l o f G e r m a n y , f! T h e D e p a r t m e n t o f S t a t e B u l l e ­ t i n , X X I , N o . 523 ( J u l y 1 1 , 1 9 4 9 7 , pp*. 2 2 f .

19 3 s i x pow ers a g r e e d t h a t f o l l o w i n g r a t i f i c a t i o n b y t h e F e d e ra l R ep u b lic,

G e r m a n y was t o h a v e a n e q u a l v o t e

A u th o rity w ith France, the

th e U n ited S ta te s

G e rm a n s d i d n o t a p p r o v e o f t h i s

German in th e

and B r i t a i n .

o rg an izatio n ,

W hile

C h an cello r

A d en au er h o p e d t o w in A l l i e d c o n c e s s i o n

on t h e r e d u c t i o n

of th e d is m a n tlin g program i n

T herefore he form al­

ly req u ested th a t

Germany.

Germany b e a d m i t t e d t o m e m b e rs h ip i n

A u t h o r i t y on D e c e m b e r B l u e c h e r on D e c e m b e r

1, 19

1 9 4 -9

and a p p o in te d D eputy C h a n c e llo r

as th e

G erm an

The q u e s t i o n o f w h a t r o l e n a tio n al a ffa irs present

tim e.

rem ains

at

stro n g est

force

the a

on e i t h e r

th e form o f th e f u t u r e

G er­

The m a j o r i t y o f G e rm a n s p r o b a b l y s y m p a t h i z e

t i m e , t h e y do n o t w a n t a w e a k c o n f e d e r a t e composed o f i n d e p e n d e n t , a fo rm e r chairm an of

P o licy .

in te r­

e x e r t i n g t h e m ost i n ­

p r e s e n t w i t h some f o r m o f f e d e r a l i s m b u t ,

is

at

Germany r e p r e s e n t s

cap ab le of

flu e n c e w i l l u n d o u b ted ly decide man g o v e r n m e n t .

Germany w i l l p l a y i n

As n o t e d p r e v i o u s l y ,

W hichever. forc.e i s

r e p r e s e n t a t iv e .6

th e forem ost c o n s id e ra tio n

pow er vacuum t o b e f i l l e d b y t h e sid e.

the

sovereign

t h e CDU i n

a t t h e sa me

ty p e o f governm ent

sta te s.

Jakob K a i s e r ,

th e S o v iet-Z o n e a p t l y s t a t e d :

T h e f u t u r e c o n s t i t u t i o n a l f o r m o f t h e German s t a t e determ ined, to a g re a t e x te n t, by th e w i l l o f th e

^ C u r r e n t D evelopm ents in U n ite d S t a t e s CDecember, 1 9 4 9 ) , pT 2 6 .

F oreign

19 4 o ccu p y in g p o w ers. . . I n view o f t h e s e c ir c u m s t a n c e s , we m u s t a l l a g r e e t h a t G e r m a n y ' s f u t u r e i n t e r n a l s t r u c t u r e w i l l assum e a f e d e r a t i v e fo rm . Let us e n d o rs e t h e law s o f f e d e r a t i v e o r g a n i z a t i o n . . . H o w e v e r , l e t u s u n i t e i n t h e w i l l t h a t we m u s t n o t l e t i t come a g a i n t o t h e d e v e l o p m e n t o f s t a t e s w ith in the s t a t e . May God p r e v e n t t h a t G e r m a n y e v e r h e throw n h a c k a g a i n i n t o an a s s o c i a t i o n o f s o v e r ­ e ig n s t a t e s ( S t a a t e n h u n d ) .7 B oth t h e U n i t e d S t a t e s the n e c e s s i t y o f c e n t r a l d istrib u tio n d irect th at

and B r i t a i n ,

econom ic a g e n c i e s ,

w hile r e a liz in g favor g reater

o f g o v e r n m e n t a l p o w e r s am o ng t h e L a e n d e r .

c o n tra s t to

th is

p o sitio n ,

In

t h e S o v i e t U nion h o ld s

Germany s h o u l d h a v e a h i g h l y c e n t r a l i z e d g o v e r n m e n t .

A ccording to

P ro fe s s o r M eyerhoff,

th e reasons

f o r S o v iet

p o lic y are t h a t : . . .th e S o v ie t c o n c e p tio n o f the s t a t e as w e ll as t h e M a r x is t vie?/ t h a t t h e w o rk in g c l a s s e s can o n l y h o p e to a t t a i n power in t h e s t a t e t h r o u g h h i g h l y c e n tra liz e d p o l i t i c a l and a d m in istra tiv e c o n tro ls h o th favor a s tr o n g n a t i o n a l g o v ern m en t.8 T he u l t i m a t e i s s u e Germany a s a w h o l e . Germany.

H ow ever,

a stru g g le fo r

B oth s i d e s

d esire

M oreover, as n e i t h e r

th e sid e

p o s itio n by p e rm ittin g

stru g g le

p.

the u n ific a tio n

of

213.

to th e n a t i o n a l l e v e l .

Is w i l l i n g t o weaken I t s

su ch a governm ent w ith o u t

^ Almond, o p . c l t . , p . 2 0 5 . [ B e r l i n ] , June 17, 1 9 4 6 .) 8 Ib id .,

suprem acy in

e s t a b l i s h i n g ■a c e n t r a l R e i c h g o v e r n m e n t

w ould m e r e ly t r a n s f e r

Z eitu n g

Is

present

stip u la tin g

( R e p r i n t e d f r o m ITeue

195 its

own p a r t i c u l a r

co n tro ls,

t h e d e a d l o c k b e tw ee n them

p ro b ab ly w i l l be prolonged u n t i l th e new f a c t o r

changes

Is

fed eralism

German a g g r e s s i o n ? If

so,

is

it

W ill i t

dem ocratic

for

i n Germany t o d a y ?

eign to

s e v e ra l q u estio n s

may

an a d e q u a t e g u a r a n t e e a g a i n s t p rom ote d e m o c ra tic one g o v e rn m e n t to

f o r m o f g o v e r n m e n t on a n o t h e r ? ab le

o f some

t h e u n d e r l y i n g power s i t u a t i o n .

In e v a l u a t i n g A m erican p o l i c y , be p e r t i n e n t .

in tro d u ctio n

And f i n a l l y ,

processes? im pose t h i s

Is

We know t h a t f e d e r a l i s m

it

p ra c tic ­

is not f o r ­

G e r m a n y a n d t h a t m any G e r m a n s t o d a y f a v o r

some s o r t

of fed eralism .

C e r t a i n l y a h i g h d e g r e e o f l o c a l autonom y

is

dem ocratic

conducive- to

t h o u g h t a n d m ay t h e r e b y r e s t r a i n

t h e a c c e p ta n c e o f a m i l i t a r y demagogue.

How ever,

be fo o lish

th e o n ly form of

to

suppose t h a t fe d e ra lis m

governm ent t h a t p e rm its g u aran tee a g a in s t d ecisiv e

is

dem ocracy or t h a t I t

ag g ressio n .

In th e

last

f a c to r w ill be the p r a c t i c a b i l i t y

Because of

th e c o m p lex itie s

s o c ia l co n d itio n s

th ere

is

is

it

w ould

an a b s o l u t e

an aly sis,

the

of fed eralism .

o f p r e s e n t d a y econom ic a n d a d e fin ite

tr e n d tow ard c e n t r a l ­

i z i n g t h e pow ers o f g overnm ent i n p r o b a b l y t h e m a j o r i t y o f c o u n tries.

T his

trend is

seen

th e F e d e r a l Governm ent v e r s u s S ta te s. ad ap table tio n s

M oreover, to

in th e p r e s e n t d e b ate S ta te s ’ rig h ts

even tho u g h f e d e r a l i s m

th e U n ited S ta te s ,

i n Germany a r e

over

in th e U n ite d

may b e q u i t e

econom ic an d s o c i a l c o n d i ­

c e r t a i n l y n o t analogous

to th o se found

19 6 here.

Germany i s

a c o n t i n e n t a l power o f a r a t h e r

compact

s i z e w h i c h I s hemmed i n b y i d e o l o g i c a l a n d p o w e r p r e s s u r e s on e i t h e r m ind a s

sid e.

There i s

to w hether a c o u n tr y l i k e

sta n d th o se p re s su re s is

some q u e s t i o n

lik e ly to

due t o

fe e l th at

it

its

in th e w r i t e r fs

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B I B L I O G R A P H Y

BIBLIOGRAPHY I.

PRIMARY SOURCES A.

DOCUMENTS

^Lha~~A x r s i n D e f e a t ; A C o l l e c t i o n o f D o c u m e n t s on A m e r i c a n P o l i c y Toward Germany a n d J a p a n . U .S . D e p a r tm e n t o f S ta te p u b lic a tio n 2423. W a s h in g to n : U .S . Government P r i n t in g O ffice* 1945. 118 p p . T h e Bonn C o n s t i t u t i o n ; B a s i c Law f o r t h e F e d e r a l R e p u b l i c o f Germ any. W a s h in g to n : U .S . Government P r i n t i n g O f f i c e , 1949. 52 p p . B y r n e s , James F . , P a r i s M e etin g o f F o r e i g n M i n i s t e r s . R e p o r t o f S e c r e t a r y B y r n e s . W a s h in g to n : U .S . Government P r i n t ­ in g O f f ic e , 1946. 16 p p . D epartm ent o f S t a t e p u b l i c a ­ t i o n 2537, C o n fe re n c e S e r i e s 86. _________ , P a r i s C o n f e r e n c e o f F o r e i g n M i n i s t e r s , J u n e 1 5 J u l y 12, 1 9 4 6 . D epartm en t o f S t a t e p u b l i c a t i o n 2592, C onference S e rie s 89. W a s h in g to n : U .S . Government P r in tin g O ffic e , 1946. 20 p p . ._______, R e p o r t on t h e F i r s t S e s s i on o f t h e C o u n c i l o f F o r e ig n M i n i s t e r s . W a s h in g to n : U .S . Government P r i n t i n g O ffic e , 1945. 10 p p . C onference S e rie s 78. D epart­ ment o f S t a t e p u b l i c a t i o n 2398. _________ , R e s t a t e m e n t o f U.S_. P o l i c y on. G e r m a n y . A ddress by t h e S e c r e t a r y o f S t a t e d e l i v e r e d in S t u t t g a r t , Germany, S e p t e m b e r 6_, 1 9 4 6 . U . S . D e p a r t m e n t o f S t a t e p u b l i c a t i o n 2616, E uropean S e r i e s 13. W a s h in g to n : U .S . Government P r i n t i n g O f f ic e , 1946. 17 p p . * XJ • S_* Aims a n d P o l i c i e s i n E u r o p e . U . S . D e p a r t m e n t o f S t a t e p u b lic a tio n . 2670, E uropean S e r i e s 18. Wash­ in g to n : U .S . Governm ent P r i n t i n g O f f i c e , 1946. 12 p p . C o m m ittee o f E u r o p e a n Econom ic C o o p e r a t i o n . G eneral R e p o rt, P a r i s , Septem ber 2 1 , 1 9 4 7 . U .S . D ep artm en t o f S t a t e p u b l i c a t i o n 2930, European S e r ie s 29. W ashington: U .S . Government P r i n t i n g O f f i c e , 1947. V o l. 1.

198 L p e c l a r a t i o n R e g a r d i n g Germany b y t h e U n i t e d S t a t e s o f A m e ric a a n d t h e U n i t e d Kingdom o f G r e a t B r i t a i n a n d N o r t h e r n I r e l a n d , t h e U nion o f S o v i e t S o c i a l i s t R e p u b l i c s , an d t h e p r o v i s i o n a l governm ent o f t h e F re n c h R e p u b l i c , s ig n e d a t B e r l i n ~ J u n e 5 , 1 9 4 5 , e f f e c t i v e J u n e 5, 1 9 4 5 . U . S . D e p a r t ­ ment o f S t a t e p u b l i c a t i o n 268 4 , T r e a t i e s a n d O th e r I n t e r - , n a t i o n a l A cts S e r i e s 1520. W a s h in g to n : U .S . Government P r i n t i n g O f f ic e , 1946. 25 p p . The E u r o p e a n R e c o v e r y P r o g r a m , C o u n t r y S e r i e s : Wes t e r n G e r m any. U .S . Econom ic C o o p e r a t i o n A d m i n i s t r a t i o n . W ash­ i n g t o n : U .S . Government P r i n t i n g O f f i c e , 1 9 4 9 . 103 p p . ^ .p L aa y ln g s B e f o r e a_ S u b - Commit t ee o f t h e C o m m i t t e e on M i l i t a r y A f f a i r s , U .S . S e n a te , 7 9 th C o n g re s s , P a r t s 1 and 6. W a s h in g to n : U .S . Governm ent P r i n t i n g O f f i c e , 1945. M a r s h a l l , G e o r g e C . , The L o n d o n M e e t i n g o f t h e C o u n c i l o f F o r e i g n M inis t e r s . U .S . D e p a rtm e n t o f S t a t e . W ashing­ ton: U .S . Government P r i n t i n g O f f i c e , 1947. 10 p p . _________ , The P r o b l e m s o f E u r o p e a n R e v i v a l a n d Gorman a n d A u s tr ia n Peace S e t t l e m e n t s . U .S . D epartm ent o f S t a t e p u b l i c a t i o n 2990, European S e r i e s 31. W ashington: U .S . Governm ent P r i n t i n g O f f i c e , 1947. 14 p p . M o l o t o v , V.M. a n d M a r s h a l l V . L . S o k o l o v s k y , 0n_ t h e Q u e s t i o n o f Germ any. W a s h in g to n : I n f o r m a t i o n B u l l e t i n , Embassy o f t h e U nion o f S o v i e t S o c i a l i s t R e p u b l i c s , 1947. 31 p p . M o l o t o v , V . M . , S p e e c h e s a n d S t a t e m e n t s made a t t h e Moscow S e ss io n of th e C ouncil o f F o reig n M i n i s t e r s . Lo nd o n : !rS o v i e t " N e w s , !t 1 9 4 7 . 124 p p . _________ , S t a t e m e n t o f V.M. M o l o t o v t o t h e S o v i e t P r e s s on th e r e s u l t s o f th e P a ris C onference o f th e C ouncil o f . F o re ig n M i n i s t e r s . W ashington: In fo rm atio n B u lle tin , E m b a s s y o£_ t h e U n i o n o f S o v i e t S o c i a l i s t R e p u b l i c s , 1946. 15 p p . U n ite d S ta te s J o i n t C h iefs o f S t a f f , D i r e c t iv e R egarding the M i l i t a r y G overnm ent o f Germany J u l y 1 1 , 1 9 4 7 . U . S ." Dep a rtm en t o f S t a t e p u b l ic a t i o n 2913, European S e r ie s 27, W a s h in g to n : U .S . Governm ent P r i n t i n g O f f i c e , 1947. 23 p p .

19 9 B.

MILITARY GOVERNMENT PUBLICATIONS

M o n th ly R e p o r t o f t h e C o n t r o l C om m ission f o r Germany (B r i t i s h E l e m e n t Berlin: H e a d q u a r t e r s , C o n t r o l C om m ission f o r Germany. V o l . I,- 1946--*V o l . 5 0 , S e p t e m b e r 1 9 4 9 . • T r ic e o f - M i l i t a r y G overnm ent f o r Germany, ( U . S . ) , C e n t r a l Ge rman A g e n c i e s . S p e c ia l R ep o rt o f th e M i l i t a r y G overn­ or . B e rlin : OMGUS, May 1 , 1 9 4 6 . 15 p p . P lus A ppendix. s C iv il A d m in istratio n D iv isio n , C o n stitu tio n s of B a v a r ia , H esse and W uerttem P erg-B aden. B e r l i n : OMGUS, 1947. 74 p p . C i v i l A d m i n i s t r a t i o n D i v i s i o n , Con s t i t u t i o n s f o r t h e German L a e n d e r . B e rlin : 0L1GUS, 1 9 4 7 . 243 p p . , The E u r o p e a n R e c o v e r y P r o g r a m , U . S_. / U , K . O c c u p i e d A reas. J o i n t R e p o r t o f t h e U.§_. a n d U . K . M i l i t a r y G overnors. B e rlin : OMGUS, N o . 1, S e p t e m b e r , 1 9 4 8 . , C o n tro l O ffic e , In fo rm atio n B u l l e t i n . OMGUS, V o l . I , S e p t e m b e r 2 9 , 1 9 4 5 .

B e rlin :

, C i v i l A d m i n i s t r a t i o n D i v i s i o n , L a n d a n d L o c a l Gov­ e r n m e n t i n t h e U . S . Zone o f G e r m a n y . B e rlin : OMGUS 194-7. I l l pp. M onthly R e p o r t o f t h e M i l i t a r y G overnor o f Germ any, Zo^ e - B e r l i n : OMGUS, N o . 1 , J u l y , 1 9 4 5 — N o . 5 0 , S eptem ber, 1949. S t a t u s R e p o r t on t h e M i l i t a r y G o v e r n m e n t o f G e r m a n y , 5.* tL* Zone « B e r l i n : OMGUS, 1 9 4 6 . 46 p p . E conom ics D i v i s i o n , A r t h u r S t e e l , e d i t o r , A Y ear o f P o t s d a m , T h e German Econ o m y S i n c e t h e S u r r e n d e r . B e rlin : L i t h o g r a p h e d b y t h e A d j u t a n t G e n e r a l , OMGUS, 1 9 4 6 . 217 p p . i c l a l G a zette o f the A l l ie d C o n tro l C o u n c il, B e r l i n : A l l i e d S e c r e t a r i a t , No. 1, O c to b e r , 1945.

II. A.

SECONDARY SOURCES GOVERNMENT PUBLICATIONS

A c h e s o n , Dean G. , The C u r r e n t S i t u a t i o n i n G e r m a n y . U . S . D epartm ent o f S t a t e p u b l i c a t i o n 3506, E uropean and B r i t i s h C o m m o n w e a lt h S e r i e s 7 , W a s h i n g t o n : U . S . Gov­ ernm ent P r i n t i n g O f f i c e , 1949. 4 pp. C a s s i d y , Velma H a s t i n g s , A m e ric a n P o l i c y i n O c c u p i e d A r e a s . U .S . D ep artm en t o f S t a t e p u b l i c a t i o n 2794, W ashington: U .S . Government P r i n t i n g O f f i c e , 1947. 31 p p . D u l l e s , John P o s t e r , European U n i t y . U .S . D e p artm en t o f S ta te p u b lic a tio n 3364. E u r o p e a n a n d B r i t i s h Common­ w e a l t h S e r i e s 4 , ’W a s h i n g t o n : U . S . G o v e r n m e n t P r i n t i n g O f f i c e , 194-8. 14 p p . P r a n k , I s a i a h , C a r t e l s a n d Com bines i n t h e O c c u p i e d A r e a s . U .S . D e p artm en t o f S t a t e p u b l i c a t i o n 2889, C om m ercial P o l i c y S e r i e s 103. W a s h in g to n : U .S . Government P r i n t ­ ing O ffic e , 1947. 13 p p . P u l l e r , L eon W ., The P r o b l e m o f German P o l i t i c a l R e v i v a l . U .S . D epartm ent o f S t a t e p u b l i c a t i o n 2550, European S e r i e s 9, W a s h in g to n : U .S . Government P r i n t i n g O f f i c e , 1947. 22 p p . 4—H d l l d r i n g , J o h n H e n r y , G e r m a n y U n d e r O c c u p a t i o n , P o l i c y a n d P r o g r e s s . U .S . S t a t e D epartm ent p u b l i c a t i o n . W ashing­ to n : U .S . Government P r i n t i n g O f f i c e , 194 0 . M aking t h e P e a c e T r e a t i e s . U .S . D e p a r tm e n t o f S t a t e p u b l i ­ c a t io n 2774, European S e r ie s 24. W ashington: U .S . Government P r i n t i n g O f f i c e , 1947. 150 p p . ^"i g s c o w A g r e e m e n t , 1 9 4 5 . W ashington: in g O f f ic e , 1946. 11 p p .

U .S .

Government P r i n t ­

^ frerrupation o f Germ any, P o l i c y an d P r o g r e s s , 1945- 4 6 . U .S . D epartm ent o f S t a t e p u b l i c a t i o n 2783, European S e r i e s 23. W a s h in g to n : U . S . Government P r i n t i n g O f f i c e , 1947. 241 p p .

201 P a r i s C o n f e re n c e o f F o r e ig n M inis t e r a , Ju n e 1 5 - - J u l y 2 2 , 1 9 4 6 . U .S . D ep artm en t of S t a t e p u b l i c a t i o n 2592, C o n fe re n c e S e rie s 89. W a s h in g to n : U .S . Government P r i n t i n g O f f i c e , 1 9 4 6 . 20 p p . T h ir d S e s s io n o f F o re lg n M i n i s t e r s ♦ U .S . D epartm ent o f S t a t e p u b l ic a t i o n 2747, C onference S e r ie s 93. W ashington: U .S . Government P r i n t i n g O f f i c e , 1947. 13 p p . ed S t a t e s Econom ic P o l i c y Toward G erm any. U . S . D e p a r t ­ ment o f S t a t e p u b l i c a t i o n 2 6 3 0 , E u r o p e a n S e r i e s 1 5 , W a s h in g to n : U .S . Government P r i n t i n g O f f i c e , 1946. 149 p p .

B.

BOOKS

ht&femon d , G a b r i e l A . , e d i t o r , T h e S t r u g g l e F o r D e m o c r a c y i n G erm any. Chapel H i l l , N orth C a r o lin a : T he U n i v e r s i t y o f N o rth C a r o lin a P r e s s , 1949. 345 pp. /U A rtT Sld-Forster, W illiam , C h a rte rs o f th e P e a c e . A Commen­ t a r y on t h e A t l a n t i c C h a r t e r a n d t h e D e c l a r a t i o n s o f Moscow, C a i r o a n d T e h r a n . L o n d o n : V. G o l l a n z , 1 9 4 4 . 1 38 p p . V&e?-eh, J u l i a n S e b a s t i a n , A m e r i c a * s G e r m a n y . An A c c o u n t o f t h e O c c u p a t i o n . New Y o r k : Random H o u s e , 1 9 4 6 . 310 p p . n-es, Jam es F . , S p e a k i n g F r a n k l y . B r o t h e r s , 1947. 324 p p .

New Y o r k :

H arper and

F r i e d m a n n , W o lfg a n g , The A l l i e d M i l i t a r y G overnm ent o f G e r ­ man y . ( P u b l i s h e d u n d e r t h e a u s p i c e s o f t h e London I n s t i t u t e o f W orld A f f a i r s . ) London: S te v en s and Sons, L im ite d , 1947. 362 p p . in h , C a r l J . , an d A s s o c i a t e s , A m erican E x p e r ie n c e s in M i l i t a r y -G o v e r n m e n t i n W o r l d War I I . New Y o r k : R in e­ h a r t a n d C o m p an y , I n c . , 1 9 4 8 . 436 pp . G la s e r , K u r t, C om parative F e d e ra l C o n s t i t u t i o n s . B e r l i n : OMGUS, C i v i l A d m i n i s t r a t i o n D i v i s i o n , 1 9 4 8 . 280 p p . H i l l , R u s s e l l , S t r u g g l e F o r Germany. G o llan c z , L td ., 1947. 191 p p .

London:

V icto r

202 ^ H t f l b o r n , Ha j o , A m e r i c a n M i l i t a r y G o v e r n m e n t : I t s Or g a n i ­ z a tio n and P o l i c i e s . W ashington: In fa n try Journal P r e s s , 1947. 243 p p . M H u f l , C o r d e l l , The M e m o ir s o f C o r d e l l H u l l . T h e M a c m i l l a n C om p an y , 1 9 4 8 . 2 v o ls.

New Y o r k :

J o e s t e n , J o a c h i m , G e r m a n y : What Now? C h i c a g o : P u b l i s h i n g C o m p an y, 1 9 4 8 . 331 p p . ^SETauth, P e r c y , G e r m a n y i n D e f e a t . 1946. 23 3 p p .

New Y o r k :

Z iff-D av is

A. A. K n o p f ,

L e w i s , H a r o l d O v e r , New C o n s t i t u t i o n s i n O c c u p i e d G e r m a n y . W a s h in g to n : F o u n d a tio n f o r F o re ig n A f f a i r s , 1948. P am p h let 6, 145 p p . M S r g e n t h a u , H e n r y J r . , G e r m a n y I s Our P r o b l e m . New Y o r k a n d London: H arp er and B ro th e rs P u b l i s h e r s , 1945. 239 p p . ^ —- P o l l o c k , J a m e s K e r r , e d i t o r , C h a n g e a n d C r i s i s i n E u r o p e a n G o v e r n m e n t . New Y o r k : R i n e h a r t a n d Com pany, 1 9 4 7 . 253 pp. _________ , J a m e s H. M e i s e l a n d H e n r y L. B r e t t o n , G e r m a n y U n d e r O ccu p atio n . I l l u s t r a t i v e M a te r ia ls and D ocum ents. Ann A r b o r , M i c h i g a n : G e o r g e Wahr P u b l i s h i n g C o . , 1 9 4 9 . 305 p p . P r i c e , H o y t a n d C a r l E. S c h o r s k e , The P r o b l e m o f G e r m a n y . New Y o r k : C o u n c i l on F o r e i g n R e l a t i o n s , I n c . , 1 9 4 7 . 161 p p . P a m p h le t No. 5. S t o l p e r , G u s t a v , German R e a l i t i e s . H itc h c o c k , 1948. 341 p p .

New Y o r k :

R e y n a l and

< ^ ! i e r w o o d , R o b e r t ' E . , R o o s e v e l t a n d H o p k i n s , An I n t i m a t e H i s ­ t o r y . New Y o r k : H arper and B ro th e rs , 1948. 979 p p . A S l r r i n s o n . H e n r y L . , a n d M cG eorg e B u n d y , 0n_ Ac t i v e S e r v i c e i n P e a c e a n d W ar. New Y o r k : H a r p e r a n d B r o t h e r s ’^ 1 9 4 8 . 698 p p . I

Wa r b u r g . J a m e s P a u l , Y ork: H a r c o u r t,

G e r m a n y — B r i d g e o r B a t t l e g r o u n d . New B r a c e a n d C om pany, 1 9 4 7 . 386 p p .

W h i t e , W i l l i a m L i n d s a y , R e p o r t o n t h e G e r m a n s . New Y o r k : H a r c o u r t , B r a c e a n d Com pany, 194-7. 260 pp.

203 C -gfink, H a r o l d , A m e r i c a n M i l i t a r y G o v e r n m e n t i n G e r m a n y . Y ork: T h e M a c m i l l a n Com pan y, 1 9 4 7 . 272 p p .

- C.

Hew

PUBLICATIONS OP LEARNED INSTITUTIONS

m e t , R aym ond a n d R o b e r t K. T u r n e r , e d i t o r s , D o c u m e n t s on A m erican F o r e i g n R e l a t i o n s . ( P u b l i s h e d f o r t h e W orld P eace F oundation."] Norwood, M a s s . : P rin ceto n U n iv e rs ity P ress. V o ls. 8-9. ^fTe B r o o k i n g s I n s t i t u t i o n , Ma,jor P r o b l e m s o f U n i t e d S t a t e s F oreign P o lic y . S tudy G u id e. W ashington: The I n t e r n a ­ t i o n a l " S tu d ie s Group o f t h e B r o o k i n g s I n s t i t u t i o n , 1947, 1948. 2 v o ls. _______ , Man o r P r o b l e m s o f U n i t e d S t a t e s 3?or e i g n P o l i c y . 1 9 4 9 -1 9 5 0 . W ashington: The I n t e r n a t i o n a l S t u d i e s Group o f t h e B r o o k i n g s I n s t i t u t i o n , 1 9 4 9 . 492 p p . _________ , Sum m ary o f Ma.j o r P r o b l e m s o f U n i t e d S t a t e s F o r e i g n P o l i c y , V o l . 1, No. 1, S e p t e m b e r , 1947 "(From J u l y , 1 9 4 8 o n , name c h a n g e d t o C u r r e n t D e v e l o p ­ m ents i n U n i t e d S t a t e s F o r e i g n P o lic y " ] C a m p b e l l , J o h n C . , et_. a l . , The U n i t e d S t a t e s i n W o r l d A f f a i r s (1947- 1948). P u b lish e d f o r : C o u n c i l on F o r e i g n R e l a t i o n s , New Y o r k a n d L o n d o n : H arp er and B r o t h e r s , 1948.

D.

PERIODICALS

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Text

’’L o n d o n M e e t i n g o f t h e C o u n c i l o f B b r e i g n M i n i s t e r s : S t a t e m e n t s b y S e c r e t a r y o f S t a t e M a r s h a l l , ” December 14, 1947. 1 7 :1 1 8 3 -8 5 ,9 3 . t ^ & i f i ' t a r y G overnment o f Germany: Commander o f t h e U n i t e d S t a t e s O ctober 21, 1945. 13:596-607.

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