Refugees.

We have been giving further thought to the question of the form
which the proposed new International Refugee Organisation should
take. There seems to be five possibilities.

(1) The new Organisation could have been an integral part of the
United Nations as we have always urged. This solution has been
turned down by the Refugee Committee [1] as a result of joint
pressure from the United States and Soviet Delegates supported by
Latin American and Slav groups respectively. it could not now be
adopted without complete reversal by the Economic and Social
Council of the Committee's recommendations and seeing how deeply
committed the United States Government seem to be opposing it
there seems little prospect of securing this.

(2) There might be a specialised agency including Slav powers as
full partners but under ultimate control of the United Nations. We
have tried to leave the door open for this. In our view if the
Slav powers are to be full partners, ultimate United Nations
control will be essential if we are to avoid danger of their being
able to block all effective action. In view, however, of the
determined efforts in the Refugee Committee to prevent any kind of
United Nations control, it may be difficult to avoid inclusion in
the Committee's report of a recommendation against such a
solution. In that case we should consider submitting a minority
report.

(3) There might be a specialised agency including Slav powers as
full partners which however would not be under any effective
United Nations control. This is the solution likely to be
recommended by the special Committee. We consider, however, that
it would probably be unworkable and would in any case be most
unsatisfactory as Slav powers have made it clear that their
purpose is to prevent any effective assistance being given to
political dissidents who constitute the majority of Refugees whom
we want to help and their opportunities for obstruction in such a
body would be almost unlimited.

(4) There might be specialised agency not under United Nations
control but from which Slav powers would be excluded. This seems
to be what the United States State Department have in mind, but is
likely to be very difficult to secure now that Slav powers have
become so deeply committed to the principle of having an effective
voice in what is done about their dissident Nationals. Moreover
recent indications are that they are determined not to be left
out.

(5) There might be a specialised agency not under United Nations
control but in which Slav powers should only participate to a
strictly limited extent. This limitation might perhaps be secured
by arranging that the Executive Committee of the new agency should
consist only of representatives of powers making a material
contribution to operational expenses of the new body. We are
trying for this but if we are out voted may have to reserve our
right to re-open the question before the Economic and Social
Council. if this solution were adopted it might make it less
difficult to secure eventual exclusion of Slav powers as suggested
under (4).

2. His Majesty's United Kingdom Minister Washington has been
authorised to discuss the whole question with the United States
State Department before matter comes up in Economic and Social
Council.