CO-OPERATION IN BRITISH COMMONWEALTH DEFENCE

I would refer to the discussions at the Conference of Prime
Ministers last year on Responsibilities and Organisation for
Commonwealth Defence, and to the views expressed by the Australian
Government Representatives, both verbally and in documents
submitted by them to the Conference.

2. In regard to the documents submitted by the United Kingdom, I
said that it would be necessary to refer the proposals for
detailed examination to the Australian Government's advisers,
after which they would be considered by the Government. The
proposals would then be reviewed and a memorandum based on the
conclusions would be prepared in relation to the Australian
machinery for further consideration on the Inter-Governmental
level.

3. I am now forwarding a memorandum dated 23rd May, 1947, which
contains the Australian Government's views and conclusions on:

Part I-Responsibilities for British Commonwealth Defence.

Part II-Machinery for Co-operation in British Commonwealth
Defence.

Part III-Australian Joint Service Staff in the United Kingdom.

Part IV-Australian Joint Service Staff in the United States.

In the succeeding paragraphs, I briefly traverse the main points
in the Memorandum.

Part I- Responsibilities for British Commonwealth Defence

4. In regard to the requirements of a Main Support Area, the views
expressed by me in London are repeated in paragraph 3. The
establishment of Machinery for Cooperation referred to in Part 11
is an essential instrumentality for the examination of matters of
mutual interest in this direction, though considerable progress
has been made in Research and Development and Intelligence by
direct discussions.

5. With reference to the responsibility for development and
defence of Main Support Areas, as stated in paragraph 4, the
primary responsibility of Australia for the development and
defence of its territory is in accordance with the principle of
responsibility for Local Defence accepted by the Self-Governing
Dominions at the Imperial Conference of 1923.

6. On the development and defence of Regions of Strategic
Responsibility, paragraph 5 repeats the views stated by me to the
Conference on the method of approach to this question in the
Pacific. It also refers to the provisions of the Australian - New
Zealand Agreement and expresses the Australian Government's
willingness that its Machinery should undertake the development of
the defence aspect of matters relating to Regional Security in the
Pacific in accordance with the principles and procedure outlined
in Part II. Finally, as stated by me to the Prime Minister's
Conference, it is recognised that, in the future, Australia must
make a larger contribution towards the defence of the British
Commonwealth in the Pacific. Commitments have already been
undertaken in respect of the Guided Missiles Project and the Joint
Intelligence Machinery. The Government is prepared to examine
other measures relating to the development and defence of
Australia as a main support area and the associated area of
regional defence. These measures would be considered in relation
to the priority and importance of other Defence proposals and
commitments, and to the amount that can be provided for Defence.

7. The protection of lines of communication between Main Support
Areas is dealt with in paragraph 6, and this again is a matter for
initial examination by the machinery referred to in Part II.

8. In regard to Areas of Strategic Importance-Other than Main
Support Areas, paragraph 7 outlines the broad principles to which
the methods and procedure on political policy must conform, and
observes that the machinery outlined in Part 11 provides a means
by which military policy and measures can be examined and
considered.

Part II-Machinery for Co-operation in British Commonwealth Defence

9. Paragraph 8 refers to the principles on which a general measure
of agreement was reached at the Conference of Prime Ministers and
the conditions which any system must fulfil, and in paragraph 9
reference is made to the Australian Government's views as
expressed by me at the Conference, and to certain additional
conditions and principles.

10. In accordance with the principle that the system for co-
operation should be based upon the national defence organisations
to be maintained in the United Kingdom and in each Dominion,
paragraph 10 outlines the Higher Defence Machinery on which the
system will be based in so far as the Australian machinery is
concerned. Paragraph 11 refers to the cardinal principles on which
Australian Policy relating to machinery for co-operation is based,
and paragraph 12 to the procedure relating to the use of the
Australian Defence Machinery for matters of co-operation in
British Commonwealth Defence. I would emphasize, as stated in
paragraph 12, that the use of the Australian Machinery must be in
accordance with paragraphs 8 to 11 and the procedure relating to
representation must be as stated in paragraph 12. Accordingly, the
Government of the United Kingdom is invited to maintain in
Australia a joint Service Representative and Staff who will be
accredited to the Defence Department on this basis. Reciprocally,
as mentioned in paragraph 13, the Australian Government would
welcome the right of similar representation on the same basis as
mentioned in paragraphs 11 and 12 on the corresponding machinery
of the United Kingdom, and would be glad to know whether the
United Kingdom Government is agreeable to this.

11. Paragraph 14 refers to the adaptability of the Australian
Higher Defence Machinery for the representation of other parties
to a Regional Arrangement. This was demonstrated during the recent
war when representatives of the United States Forces were
integrated in the Australian machinery. Paragraph 15 expresses the
view that the principles and procedure furnish a sound footing for
adaptation in war.

Part III-Australian Joint Service Staff in the United Kingdom

12. Paragraph 16 refers to the status and functions of an
Australian Defence Representative in the United Kingdom, one of
the latter being:

'To be the Accredited Representative of the Australian Defence
Department, the Defence Committee, and the Chiefs of Staff
Committee, to their corresponding bodies in the United Kingdom.'

Paragraph 17 outlines the staff to be provided for the Defence
Representative and their duties. The Australian Government would
be glad of the United Kingdom Government's concurrence to its
proposals for establishing a Joint Service Staff in London on the
lines indicated. Paragraphs 18 and 19 relate to domestic matters
of the channel of communication for the Defence Representative and
his relation to Australian Service Representatives in London.

Part IV-Australian joint Service Staff in the United States

13. This Part relates to the parallel subject of an Australian
Joint Service Staff in the United States. In regard to the
accreditation of the Australian Defence Representative to the
Combined Chiefs of Staff, if this body continues to exist in the
post-war period, and to representation on the Military Staff
Committee of the United Nations if, and when, invited, the
Australian Government would wish to establish the closest liaison
with the United Kingdom representatives on these bodies.

Attachment

Memorandum (extracts) [1] 23 May 1947

TOP SECRET

CO-OPERATION IN BRITISH COMMONWEALTH DEFENCE AUSTRALIAN GOVERNMENT
MEMORANDUM

Part I-Responsibilities for British Commonwealth Defence

1. UNITED KINGDOM PROPOSALS
2.

The following were the proposals in document PMM.(46)5 which was
submitted to the Prime Ministers' Conference by the United Kingdom
Government:-

Each member of the Commonwealth should:-

(i) Accept responsibility for the development and defence of their
Main Support Area and the strategic zone around it.

(ii) Accept the principle of joint responsibility between members
of the Commonwealth concerned for the protection of lines of
communication between Main Support Areas.

(iii) Agree that it is in their strategic interest to assist both
politically and militarily in maintaining our position in those
protective areas which directly affect the security of their
territory and communications.

[matter omitted]

4. RESPONSIBILITY FOR DEVELOPMENT AND DEFENCE OF MAIN SUPPORT
AREAS

The primary responsibility of Australia for the development and
defence of its territory is in accordance with the principle of
responsibility for Local Defence accepted by the Self-Governing
Dominions at the Imperial Conference of 1923.

5. DEVELOPMENT AND DEFENCE or REGIONS OF STRATEGIC RESPONSIBILITY

(i) Basis of Approach
The Australian Government's view on the method of approach to this
question in the Pacific was stated as follows to the Prime
Ministers' Conference:-

As indicated in the memorandum submitted to the Conference on
Regional Security in the Pacific, including the use of bases by
the United States, the view of the Australian Government is that
the question of Bases must be related to an overall plan in which
the United States should be associated in the maintenance of
security in the Southwest Pacific.

If an arrangement can be reached with the United States, it should
then be possible to prepare a strategical appreciation which would
indicate the nature and strength of the forces to be provided by
each of the parties to the agreement.

Planning relating to any regional arrangement will therefore be
governed by the progress of political negotiations.

There should be assigned to the Australian Government Machinery
responsibility for the development of the defence aspect of
matters relating to Regional Security in the Pacific, in which the
United Kingdom, Australia and New Zealand are concerned, and
provision should be made for the representation of the United
Kingdom and New Zealand at the appropriate levels on such
machinery.

(ii) Provisions of Australian - New Zealand Agreement [2]

The Australian - New Zealand Agreement provides that:-

The two Governments agree that, within the framework of a general
system of world security, a regional zone of defence comprising
the Southwest and South Pacific Areas shall be established and
that this zone should be based on Australia and New Zealand,
stretching through the arc of islands north and north-east of
Australia, to Western Samoa and the Cook Islands.

(iii) Australian Government's Conclusions
In accordance with the foregoing, the Australian Government is
willing that its machinery should undertake the development of the
defence aspect of matters relating to Regional Security in the
Pacific, in accordance with the principles and procedure outlined
in Part II for the functioning of the Australian Higher Defence
Machinery in this respect. The precise scope of the area to which
this would apply will be ultimately determined by the area of any
regional arrangement that may be reached.

As indicated above, the nature and strength of the forces to be
provided by each of the parties to a regional arrangement would be
stated in any agreement or understanding that may be reached. The
acceptance of the responsibility for development of the defence
aspect does not therefore imply the acceptance by the Australian
Government of the commitment of providing all resources and forces
required for the area concerned.

As stated by the Australian Prime Minister to the Prime Ministers'
Conference, it is recognised that, in the future, Australia must
make a larger contribution towards the defence of the British
Commonwealth in the Pacific. Commitments have already been
undertaken in respect of the Guided Missiles Project and the Joint
Intelligence Machinery. The Government is prepared to examine
other measures relating to the development and defence of
Australia as a main support area and the associated area of
regional defence. These measures would be considered in relation
to the priority and importance of other Defence proposals and
commitments, and to the amount that can be provided for Defence.

6. PROTECTION OF LINES OF COMMUNICATION BETWEEN MAIN SUPPORT AREAS

As stated by the Australian Prime Minister at the Prime Ministers'
Conference, the extent to which Australia is prepared to go in the
acceptance of the principle of joint responsibility between
members of the British Commonwealth concerned for the protection
of lines of communication between Main Support Areas is a matter
for examination in the light of other commitments and particularly
those of a British Commonwealth nature which have already been or
may be accepted.

The Australian Government appreciates that, parallel to the
principle of responsibility for the Local Defence of its
territory, there is also a primary obligation relating to the
protection of the lines of communication within the area of the
Australian Naval Station. In accordance with the terms of the
Australian - New Zealand Agreement, it will co-operate with the
New Zealand Government, whose area of naval responsibility is
adjacent, and also with the United Kingdom Government whose area
of naval responsibility borders on the Australian Naval Station.

7. AREAS OF STRATEGIC IMPORTANCE - OTHER THAN MAIN SUPPORT AREAS

The United Kingdom proposal in PMM.(46)5 is 'that each member of
the British Commonwealth agree that it is in their strategic
interest to assist both politically and militarily in maintaining
our position in those protective areas which directly affect the
security of their territory and communications'. The method of
implementing this general principle is also stated in broad terms
as follows-'each member of the Commonwealth therefore should agree
to take all steps, political and military, in those areas in which
they are directly concerned, so as to maintain conditions
favourable to the Commonwealth in peace, and to accept joint
responsibility for their defence in war'.

The practical application of this proposal involves several
important considerations. As pointed out by the Australian Prime
Minister at the Prime Ministers' conference, it absolutely
impinges on the sovereign control of Policy by Governments, and
this consideration must govern the method to be followed. The
strategic position of each part of the Empire differs though, from
the aspect of the collective security of the British Commonwealth,
they are all linked to a common strategic basis. As stated in sub-
paragraph 2(iii) above, the area of strategic importance of direct
concern to Australia is South-East Asia.

The views of the Prime Ministers' Conference on methods of
consultation and their flexibility to meet the varied situations
and the individual and collective needs of members of the British
Commonwealth were expressed as follows in the final communique of
the Conference:-

The existing methods of consultation have proved their worth. They
include a continuous exchange of information and comment between
the different members of the Commonwealth. They are flexible and
can be used to meet a variety of situations and needs, both those
where the responsibility is on one member alone, and where the
responsibility may have to be shared. They are peculiarly
appropriate to the character of the British Commonwealth, with its
independent members who have shown by their sacrifices in the
common cause their devotion to kindred ideals and their community
of outlook.

On the question of method, the following statement was submitted
in document PMM.(46)8 on the principle of Australia acting from
time to time on behalf of the British Commonwealth in matters
relating to the Pacific:-

An entirely new concept in British Commonwealth relations is now
emerging. This concept tends to reconcile full Dominion autonomy
with full British Commonwealth co-operation. The same principle
involves the possibility of a Dominion acting in certain regions
or for certain purposes on behalf of the other Members of the
British Commonwealth, including the United Kingdom itself. This is
evidence that the machinery between nations of the British
Commonwealth has now reached a stage where a common policy can be
carried out through a chosen Dominion instrumentality in an area
or in relation to a subject matter which is of primary concern to
that Dominion. This principle is capable of extension and suggests
the possible integration of British Commonwealth policy at a
higher level by a new procedure.

In regard to South-East Asia as the area of strategic importance
of direct concern to Australia, the following views of the
Australian Government were expressed by the Minister for External
Affairs in Parliament on 26th February 1947:-

I now wish to refer to a matter in which, I believe, all
honourable members will be closely interested, namely, the
changing situations in South-East Asia, India and the Far East.

They all merit close consideration by the House. The recent war
gave to peoples of the whole of this area an opportunity for
political development at a rate previously unprecedented... This
general trend should not suprise any student of foreign affairs.

It is, in fact, in accord with the principles of the Atlantic
Charter and the United Nations Charter, and, in particular, with
the obligations of colony-possessing powers to promote the
political development of non-self-governing or politically under-
developed countries. Australia is directly concerned with these
political developments and their consequences. Just as far as the
peoples of South-East Asia cease to be dependent upon the
decisions of European governments, so far do Australia's interests
in the councils of South East Asia increase. We must work for a
harmonious association of democratic states in the South-East Asia
area and see in the development of their political maturity
opportunity for greatly increased political, cultural and
commercial co-operation.

It will be apparent that methods and procedure on political policy
must conform to the broad principles that have been referred to
above. The machinery outlined in this memorandum provides a means
by which military policy and measures can be examined and
considered.

Part II-Machinery for Co-operation in British Commonwealth Defence

8. CONCLUSIONS OF PRIME MINISTERS' CONFERENCE

The Minutes of the tenth meeting of the Conference of Prime
Ministers held on 2nd May 1946, record that 'there appeared to be
a general measure of agreement on the broad principles at issue'.

The principles were outlined in document PMM.(46)20 as:-

(a) A centralised system of Commonwealth defence is unlikely to be
generally acceptable and might restrict freedom of action of the
individual members of the Commonwealth in making bilateral
arrangements for co-operation with allies.

(b) We must, therefore, set up some looser system for co-
ordination which, we suggest, should be based upon the national
defence organisations to be maintained in the United Kingdom and
in each Dominion.

(c) The essence of this system is that the United Kingdom should
maintain a mission in each Dominion, while the Dominions should
maintain similar missions in London and in other Dominions as
required.

(d) It may not be possible to bring this system fully into
operation immediately, but provided the essentials are agreed, the
necessary framework upon which the full organisation could grow
will be available.

It was also stated that any system devised must fulfil the
following conditions:-

(i) Ensure that final co-ordination of, and executive decisions
on, all matters of high defence policy are achieved by agreement
between Governments of the United Kingdom and of the Dominions.

(ii) Provide the maximum degree of co-ordination on defence
matters which the sovereign status of the members of the
Commonwealth allows.

(iii) Provide for discussion of Dominion views on world security
problems.

(iv) Be sufficiently flexible to cope with the varying outlooks
and resources of the different countries of the Commonwealth.

(v) Be framed so as to allow the central direction of effort in
war to be carried out from an alternative location to the United
Kingdom.

(vi) Be capable of interlocking with that of the United States and
possibly of other potential allies.

9. AUSTRALIAN GOVERNMENT'S VIEWS

At the Conference, the Australian Prime Minister stated that:-

(a) It is fundamental to future arrangements for co-operation in
Defence that appropriate machinery should be created to provide
for an effective voice by the Governments concerned in policy and
in the higher control of planning on the official level.

(b) There should be assigned to the Australian Government
Machinery, responsibility for the development of the defence
aspect of matters relating to Regional Security in the Pacific, in
which the United Kingdom, Australia and New Zealand are concerned,
and provision should be made for the representation of the United
Kingdom and New Zealand at the appropriate levels on such
machinery.

(c) Corresponding provision would also be necessary for Dominion
representation on any parallel machinery in the United Kingdom. On
the official level, the Australian Government contemplates the
strengthening of its Joint Service Staff in London, as a
counterpart to the Defence Committee in Australia, and to provide
an agency for advice to the Resident Minister in London on Defence
matters.

(d) Consideration is also being given to the Australian Joint
Service Staff requirements in Washington and at the seat of the
United Nations. Development in this direction would depend on any
arrangement reached with the United States and machinery which may
be created for the purposes of implementing any agreement.

The Australian Government would also add the following conditions
and principles to those referred to above in paragraph 8 and in
this paragraph, to which the machinery for Co-operation in British
Commonwealth Defence must conform:-

(i) Be capable of functioning efficiently in war.

(ii) So function in peace that modifications necessary to meet
condition (i) can be introduced automatically and without any
disruption in the organisation.

(iii) Be capable of acting as the agents for the British
Commonwealth, either in peace or war in respect of Forces assigned
to the Australian Government and expansion, if necessary, to
undertake 8 (v).

[matter omitted]

11. PRINCIPLES

Under the Declaration of the Imperial Conference of 1926, the
sovereign control of Policy rests with the Government of each part
of the British Commonwealth.

The Australian Government, in document PMM.(46)8, referred to the
new concept in British Commonwealth relations which is now
emerging 'where a common policy can be carried out through a
chosen Dominion instrumentality in an area or in relation to a
subject matter which is of primary concern to that Dominion. This
principle is capable of extension and suggests the possible
integration of British Commonwealth Policy at a higher level by a
new procedure'. (See paragraph 7.)
As mentioned in paragraph 9, the Australian Prime Minister
emphasised to the Prime Ministers' Conference the following
cardinal principles on which Australian Policy relating to
machinery for co-operation is based:-

First, the Governments concerned must have an effective voice at
an early stage in the formulation of Defence Policy and in the
higher control of Planning. Secondly, responsibility for the
development of the Defence aspect of matters relating to regional
security in the Pacific should be assigned to the Australian
Government machinery, on which provision would be made for United
Kingdom and New Zealand representation. Thirdly, there should be
Dominion representation in the United Kingdom machinery
corresponding to any United Kingdom representation in the
Australian machinery. [3]

12. PROCEDURE

The use of the Australian Defence Machinery for matters of Co-
operation in British Commonwealth Defence will be in accordance
with paragraphs 8 to 11, and the following procedure relating to
representation thereon:-

(i) Government Representation
The High Commissioners of the United Kingdom and New Zealand will
be invited to attend meetings of the Council of Defence when
matters affecting those parts of the British Commonwealth are
under consideration.

As the sovereign control of its Policy is retained by each member
of the British Commonwealth, and as the Council of Defence is a
statutory advisory body to the Australian Government, any
recommendations which it may make on subjects of a British
Commonwealth relation are matters for consideration by the
Governments concerned.

The proceedings of the Council will not limit, in any way, the
channel of direct communication between Governments, though
representatives of Governments will no doubt be authorised to
express the views and decisions of their Governments on matters
which have received the prior consideration of Governments, and on
which they have been able to instruct their representatives.

Should it be preferred on any occasion, or for any matter, that a
Minister should represent the United Kingdom or New Zealand
Governments, this would be arranged.

(ii) Representation on the Official Level
The Governments of the United Kingdom and New Zealand are invited
to maintain in Australia a Joint Service Representative and Staff
who will be accredited to the Defence Department.

The general principle in regard to representation on the official
level will be that the Joint Service Representative will be
invited to attend meetings of the Defence Committee and Chiefs of
Staff Committee when matters affecting his country are under
consideration. Where necessary, he would also accompany his
Governmental Representative to the Council of Defence as an
adviser.

As each member of the British Commonwealth is responsible for its
own Policy, and as the Defence Committee and Chiefs of Staff
Committee are part of the machinery of the Australian Defence
Department, which is administered by the Minister for Defence, the
Joint Service Representative will be responsible to and instructed
by his Government, High Commissioner, or Superior Service
Authority in such a manner as his Government may prescribe.

Similarly, members of the staff of the joint Service
Representative would be invited to attend meetings of the Joint
Service Machinery subordinate to the Defence Committee and Chiefs
of Staff Committee.

In view of the number of members of the British Commonwealth and
nations of the Pacific which will probably be represented, it is
essential that the number of persons authorised to attend and
speak at the various committees should be kept as low as possible,
and that only a single representative should be accredited to each
of the committees on the various levels. By arrangement, according
to the nature of the subject to be discussed, the Joint Service
Representative could be accompanied by members of his staff, and,
in cases where individual members of the staff are representing
the Joint Service Representative on subordinate committees, they
also could be accompanied by other members of the staff.

Should the United Kingdom and New Zealand also desire to maintain
individual Service Representatives accredited to the Australian
Service Departments in the same manner that Australian Service
Representatives are accredited to the Admiralty, War Office and
Air Ministry, this can be arranged. They should be clearly
designated as such, and should hold lower rank than the Joint
Service Representative accredited to the Defence Department.

13. RECIPROCAL ARRANGEMENTS

Reciprocally, the Australian Government would have the right of
similar representation on the same basis as mentioned in
paragraphs 11 and 12 on the corresponding machinery of the United
Kingdom and New Zealand.

Should matters dealt with by the Australian Government Machinery,
in accordance with the principles and conditions referred to in
paragraphs 8 and 9, give rise to questions having a relation to
other parts of the British Commonwealth, the Australian Government
would gladly extend an invitation to representatives of the other
Dominions to participate on the same basis as the United Kingdom
and New Zealand at any or all of the levels that have been
mentioned. The Australian Government would welcome the opportunity
of reciprocal representation should it be desired.

14. REPRESENTATION OF OTHER PARTIES TO A REGIONAL ARRANGEMENT

As stated in paragraph 5, the Australian Government's view on the
method of approach to Regional Security in the Southwest Pacific
is through an agreed plan between the United Kingdom, Australia,
New Zealand, the United States and other nations with possessions
in this area.

In accordance with sub-paragraph 8 (vi), the Australian Higher
Defence Machinery is capable of expansion to provide for the
representation of the United States and other nations, on the same
principles as outlined for members of the British Commonwealth, in
order to deal with the Defence aspect of Regional Security.

15. THE SITUATION IN WAR

The principles and procedure outlined are considered to establish
a satisfactory basis on which to deal with matters of British
Commonwealth co-operation in peace, and to furnish a sound footing
for adaptation in war in the light of the particular circumstances
then to be provided for.

[matter omitted]