My telegram 22nd November D.2138. [1]

We have now given preliminary consideration to the United States
request and the following represent our provisional views.

(a) It is clearly to our advantage and, indeed on particular
grounds is of the highest importance, to take advantage of Mr.

Byrnes' approach in order to associate the United States to the
maximum extent in the defence of British Commonwealth territory.

It appears that the United States envisage dealing on a joint
basis with at least a number of places in British territory where
bases are being sought (full particulars of the actual United
States requests are contained in my immediately following telegram
[2]).

(b) As against this, Mr. Byrnes apparently contemplates concluding
arrangements in advance of the international system of security
under the United Nations Charter though apparently he envisages
that all bases acquired thereunder would be made available to the
Security Council on its call. This is clearly open to very serious
objection. It is of military importance to us that the United
Nations Organisation should be a success and therefore any action
taken now which tended to prejudice the establishment or success
of the world organisation must be subject to grave objections,
military as well as political. We are not convinced of the need
for hurried arrangements in advance of the Security Council. They
might even make us appear guilty of sharp practice and would give
the Russians gratuitous and justifiable cause for suspicion and
ground for making difficulties when we start setting up the
Security Council. It might also determine them to exert pressure
to obtain bases that they may require for example in the Straits.

(c) We should take the opportunity to secure reciprocal support
from the United States for our own requirements including the
right of joint user of such United States bases as may be thought
desirable.

(d) It is of great importance particularly in connection with the
United States request for our support for their negotiations for
bases in third party territories to know what if any demands they
may intend to make on other countries such as France or the
Netherlands.

(e) A clear definition must be drawn between the granting of
rights for military bases and the granting of facilities for civil
aviation. This should be borne in mind particularly as regards the
disputed islands in the Pacific both from the point of view of
preserving our right to facilities therein for civil aviation and
of obtaining such facilities in territory in the Pacific under
United States control.

2. We have put some of these points in a preliminary way to Mr.

Byrnes especially that under (b) above. Until he replies on that
particular point we feel it difficult to go further into the
matter with the United States. We should however, be very glad to
have from you at this stage any comments which you feel able to
offer. It seems to us of the greatest importance with a matter of
this kind and should so far as possible keep in step.

3. I would emphasise again the importance attached to maintaining
strictest secrecy in regard to this matter. Very special
precautions are being taken here with this object in view.

4. Since the above was drafted a further communication has been
received from Mr. Byrnes. We are examining this and will telegraph
further as soon as possible.