Our 236. [1]

The New Zealand Legation have now let us have a note of discussion
between Fraser, McIntosh and Berendsen and State Department
Officials on Pacific Bases.

The Americans are seeking the right to operate jointly with New
Zealand, Bases in Western Samoa (confined for the present to Upolu
Island) with the United States having the right in an emergency to
assume sole operational control of the strategic area involved.

The Civil administration would remain in New Zealand hands. The
State Department want to incorporate this arrangement in a
bilateral agreement with New Zealand to be concluded in advance of
New Zealand's submission of a Trusteeship agreement for approval
by the United Nations organisation. They would like to limit
'States directly concerned' as regards Western Samoa, to
themselves and New Zealand but have expressed agreement to the use
by United Kingdom and Australia of proposed joint base facilities,
and would be prepared to include Australia and, perhaps the United
Kingdom as the 'States directly concerned' but not France. They
have put forward for consideration a draft agreement (which they
explain should not be taken as representing the views of the
United States Government) and have suggested certain clauses for
insertion in any Trusteeship agreement on Western Samoa between
New Zealand and the Trusteeship Council. They insist that the
authority of the Trusteeship Council in respect of non-military
matters in Western Samoa would not be infringed by their proposed
Bilateral agreement, which they hope will serve. as a model for
subsequent agreement with Australia on Manus.

New Zealand promised full consideration and made it plain that
they would have to discuss the suggested arrangement fully with
the Australian and United Kingdom [Governments], both of which
they insisted were States directly concerned. They also doubted
whether France could be excluded from consultation since New
Zealand would probably be asking for certain rights in New
Caledonia and France might therefore ask for reciprocal rights in
territories in which New Zealand and United States are interested.

New Zealand also questioned the proposal that United States New
Zealand agreement be concluded before the Trusteeship agreement
pointing out that the prominent part which New Zealand has taken
in all Trusteeship discussions imposes a certain moral obligation
not to support any action which might derogate from the prestige
of the Trusteeship Council. They expressed the view that the
military objectives desired by the Americans could be obtained
under the ordinary Trusteeship terms of the charter without any
special action to designate in such a small mandate a strategic
area subject to the Security Council. They expressed preference
for wider British Commonwealth United States talks on Pacific
defence problems, and advocated a conference in Canberra. The
Americans promised to consider this but their main concern is
apparently to conclude Bilateral agreements with individual
Governments.

The New Zealanders questioned several clauses in the suggested
draft agreement notably the provision giving the United States
right to assume sole operational control of military installations
and facilities if conditions made such course necessary 'in its
judgment', and further provision for 'such control to continue for
such time as the United States considers necessary'.

In the course of the discussions Americans brought up United
States claims (at present held in the background) to sovereignty
over certain British Pacific Islands including part of New Zealand
Territory. These claims appear to lack substance but Americans are
unwilling to drop them though it was hinted that they might be
prepared to do so if satisfactory agreement could be reached on
the security side.

United Kingdom representatives here have not yet had any detailed
discussions with the Americans on Pacific bases. We are informed
that they have had instructions to begin discussions, but to
confine them so far as possible to the military side, and that
arrangements have now been made for Field Marshal Wilson to handle
the matter.

You will presumably be receiving from Wellington a full account of
the New Zealand Discussions. Meanwhile please let us know if you
would like us to telegraph text of suggested draft agreement and
suggested clauses for insertion in Trusteeship agreement.