Your D.245 [2]-Post-war Civil Aviation.

Australian Government notes with surprise that State Department
should, without any prior intimation, have issued invitation to
discussions in Washington on a tripartite basis including Canada
as the only Dominion. This action is the more surprising in that
it is only four weeks ago that the United States Government was
acquainted by the Australian and New Zealand Governments with the
first public declaration of broad policy on this subject to be
issued by any of the Governments principally concerned, namely,
that contained in paragraphs 17 to 21 of the Australian-New
Zealand Agreement. [3] In view of this and of the very close
concern with which the Australian Government regards the question
of post-war civil aviation, His Majesty's Australian Minister in
Washington is being instructed [4] to make it clear to the State
Department that the Australian Government strongly protests
against its proposed exclusion from the discussions. Meanwhile, we
notice the prompt intervention with the State Department reported
in your D.247. [5]

2. Before receiving your D.245 we were about to send you some
observations in reply to paragraph 8 of your telegram 45 of 12th
February [6] regarding the Australian-New Zealand Agreement. While
being aware of your intention after the British Commonwealth
conversations in London in October last to make the next step an
informal approach on your part to the United States, we had felt
increasingly that in view of the nature of the conclusions reached
at the Commonwealth Conference and especially of the clear
definition of broad principles arrived at in January between the
Australian and New Zealand Governments, it would be preferable to
seek a further elaboration of general principles between the
members of the British Commonwealth before any further approach to
the United States authorities was made. We feel greatly reinforced
in this view because of the development reported in your D.245.

The discussions proposed by the United States, especially if they
include Soviet Union and China as well as all the Dominions,
obviously go very much beyond the informal and exploratory contact
previously contemplated. In such circumstances the Governments of
the British Commonwealth might find themselves at a serious
disadvantage without a clearer understanding of principles between
themselves than the October conversations were able to achieve.

3. Such a course is the more necessary because of your comment in
telegram 45 on the Section regarding civil aviation in the
Australian New Zealand Agreement. We think it essential that
before the matter goes further you should indicate support or
otherwise of the considered views of the Australian and New
Zealand Governments contained in paragraphs 17-21 of the
Agreement. We could not in any case have regarded it as
satisfactory that you should proceed to direct talks with United
States authorities without having given such expression of your
opinion.

4. Assuming that the discussions in Washington are to be on a
broad basis, including all the Dominions, the Australian
Government would therefore be glad if you could see your way to
support their postponement to allow time for a further exchange of
views between the Governments of the British Commonwealth. In
particular we would be glad to learn at as early a date as
possible, not only the detailed views held by the United Kingdom
authorities under the various heads of the Draft Agenda set out in
your D.246 [7] but also the major principles of policy which you
would be prepared to advocate at the discussions.

5. Meanwhile we are considerably embarrassed at leakage evidenced
by appearance in press on 7th March of report that plans for
exploratory discussions between the United Kingdom, United States,
U.S.S.R., China and Canada from which Australia is 'likely to be
excluded' are to be held in Washington in late March.