Reference Dominions Office telegram 151.  Before receipt of
this telegram we had had for some time under consideration the
general question of Civil Affairs arrangements for Pacific
theatres and had been in consultation with the New Zealand
2. We have concluded that it is desirable that a Committee on the
analogy of the London C.C.A.C.  should be set up in Australia
as an agency of Washington C.C.A.C. to consider Civil Affairs
policies and their application in territories within the areas of
South East Asia and South West Pacific Commands.
3. A consideration of first importance is that decisions on the
administration of enemy and enemy-occupied Pacific territories
immediately after Allied occupation, will have far-reaching
consequences, affecting the future of the region in which we have
a most vital interest, and it is therefore important that we
should be aware at first hand of developments in these territories
and should participate in decisions.
4. Present organisation does not provide for participation of
other interested Governments. Formative period of restoration of
administration in N.E.I. is very important to Netherlands
Government and only less so to us.
5. In general the proposed Committee would be a means of co-
ordinating the control of territories in this region during the
interim period between recovery and armistice and would help to
avoid developments which might prejudice the final settlement.
6. It is laid down in Charter  of C.C.A.C. that administration
should be delegated to civilian agencies as military situation
permits, and that Combined Chiefs of Staff will determine time and
extent of delegation on recommendation of area commander. For
advice on such recommendations in regard to European theatres
Combined Chiefs have in London C.C.A.C. a body in close contact
with Civil Affairs problems in the field, but there is no
comparable body for Pacific theatres. Position is of course the
same in regard to all other practical Civil Affairs problems.
7. In the absence of a Pacific agency of C.C.A.C. we would
anticipate serious delays and confusion due to lack of both co-
ordination and local knowledge.
8. Relief arrangements will require correlation with
administration from moment of recovery in every district.
Satisfactory organisation of civil affairs in the field is a
prerequisite for successful administration of relief in first
stages, and this field work involves co-ordination on regional
basis. Regional co-ordination of U.N.R.R.A. activities in Western
Pacific is being worked out and it is important that co-ordination
of civil affairs for this region should be arrived at as soon as
9. As Australia is the principal base for operations for recovery
of southern territories occupied by Japan and for the work of
rehabilitation and as it will be in touch with both South West
Pacific and South East Asia Commands, we would wish the Committee
to be located in Australia.
10. We suggest that the Committee should consist of two
representatives (one Military and one Diplomatic) of the United
Kingdom, United States, Australia, New Zealand, and the
Netherlands in the first instance and that French and Portuguese
representatives might be admitted as occasion arose.
11. Its functions would be-
(i) To formulate in consultation with Governments responsible for
territories recovered from Japan, directives as to the policies to
be followed in civil affairs matters;
(ii) To forward these to Washington C.C.A.C. for the Combined
Chiefs of Staff;
(iii) To consider and report to the Combined Chiefs of Staff
through Washington C.C.A.C. on such questions arising out of the
practical implementation of these directives in the field as were
referred to the Combined Chiefs of Staff by the Theatre
(iv) To co-operate with the Theatre Commanders and Governments in
regard to practical arrangements for administration and supplies;
(v) It would be necessary for the C.C.A.C. to maintain liaison
with Theatre Commanders, Governments, and such bodies as
U.N.R.R.A. and the Allied shipping authorities.
12. This framework would facilitate the execution of such
arrangements for civil affairs supplies as those outlined in
Dominions Office telegram 151 and would afford means for the
Governments chiefly interested to deal effectively with specific
interests such as those indicated in paragraph 3  of the same
13. From the general sense of Dominions Office telegram 151 and
such information as is available here, it seems likely that the
United Kingdom authorities will be receptive of proposals on the
above lines, and we would wish of course to be assured of United
Kingdom support before matter is taken up with Washington. It is
desired therefore that you represent fully to the London
authorities, at the appropriate level, the views set forth in
paras. 2 to 12 above. Developments here compel us to treat the
matter as one of urgency and you should explain that we would be
grateful for their earliest possible concurrence.
14. Please see also our telegram No. 180  to Dominions Office.