MOST IMMEDIATE

Your 74.

1. I am afraid that in your reporting you may lose sight of the
need for continuous activity for the purpose of personally
influencing the decisions that are to be taken.

2. It seems to me to be very wrong to extend membership of the
Information and Consultation Conference to States whose only
relationship with Germany was a nominal declaration of war. The
British inclusion of Persia is subject the same criticism.

3. Marshall's declaration in favour of a Peace Conference is
satisfactory so far as it goes, but again the inclusion of all
States which were at war with Germany may make the area too wide.

4. There is a real objection to a requirement of two-thirds or a
simple majority at the Conference if the inviting powers do as
they did at Paris, namely, agree amongst themselves in advance to
oppose any proposal which was not acceptable to all of them.

Bevin's reference to Caucus decisions is entirely misconceived. In
the long run there must be unanimity. I am strongly inclined to
the view that views should be expressed by all delegations on each
contested point without the necessity for any majority being
included as part of a rigid formula.

5. I see no objection to the hearing of German representatives.

This was done in the case of Italy and the satellite States and
the same principle should apply to the Germans.

6. The point I wish to emphasise is that despite the difficulties
I have mentioned, Marshall has gone much further towards a
democratic Conference than any of the other four nations and that
we are gradually becoming convinced that it is the British Foreign
Office which is frequently reducing the role of the belligerents
like the Dominions to one of extreme subordination. The excuse is
usually put forward that other powers will not support the claims
of Australia, Canada and the other nations. Marshall's demarche
shows that this excuse does not always count.

7. I, therefore, wish you to make contact with Marshall expressing
general appreciation of his attitude which is far more democratic
than that to which the other powers have as yet subscribed. The
Australian feeling in Parliament and the country is very hostile
to the complete departure by the Council of Foreign Ministers from
its original charter at Potsdam. Its function was not to make the
peace treaties, but to do preparatory work in connexion with the
peace treaties. Yet is has arrogated to itself rights which at the
first the powers never thought they were conferring upon
themselves. Secretary of State Byrnes made this point clear
subsequently by saying:

'At Berlin, it certainly was never intended that the three powers
present or the five powers constituting the Council should take
unto themselves the making of the final peace. The Berlin
declaration setting up the Council begins with the statement "The
Conference reached the following agreement for the establishment
of a Council of Foreign Ministers to do the necessary preparatory
work for the peace settlements". The Council was not to make the
peace settlements but to do the necessary preparatory work for the
peace settlement.'
8. At the same time you will be most busy and insistent in placing
our views before the attention of the Foreign Secretary himself.

You should also press the views on the American, Russian and
French authorities, remembering that you are the head of the
mission for the present moment and should not be fobbed off by
being required to deal with persons possessing little authority.

9. I wish the reports that you are making were more frank and
personal. Paragraph 4 of your 74 is most vague. [1] From whom did
you gather the British reaction? The present message to you relies
upon your discretion and is sent in complete frankness. The same
attitude is expected from you.

10. A great wrong will be done to the country you represent if
solemn promises given to us by the British leaders like Churchill
to participate in the Peace Conference are not honoured both in
spirit and in letter. Accordingly you will spare no effort towards
achieving the just and democratic treatment to which we are
entitled.

11. Since above I have received your 75. Your paragraph 2 again
shows British prefer a pretended or a parade Conference to a
genuine meeting place of active belligerents. Regarding paragraph
3, you will watch Australia's interests and protect them against
any sell-out in favour of Canada.

12. You are authorised to make any background statement suggesting
that United States wants a real Conference and Australia greatly
appreciates Marshall's support towards a democratic peace.