Foreign Relations of the United States, 1952–1954, China and Japan, Volume XIV, Part 2

611.94/2–1152

No. 508
Memorandum by the Joint Chiefs of Staff to the Secretary of Defense (Lovett)

top secret

Washington, 11 February 1952.

Subject:

• Proposed Changes to the Draft Administrative Agreement Between the United States and Japan

1. In accordance with the request contained in your memorandum dated 9 February 1952, the Joint Chiefs of Staff have considered the cable from the Supreme Commander for the Allied Powers (SCAP) to the Secretary of State (DA IN 102899, dated 8 February 1952)¹ in which Mr. Rusk queried his Department as to the United States position regarding certain proposed changes in Article XXII of the Draft Administrative Agreement Between the United States and Japan.

2. From the United States military point of view, not only the present governmental authorities, but also all future governments of Japan throughout the period in which the U.S. Japan Security Treaty is in effect must, in the event of hostilities or imminently threatened hostilities in the Japan area, be unequivocally bound to:

a. Respect the rights of the United States to insure the security of its forces in Japan; and

b. Consult with the Government of the United States with a view to taking appropriate combined measures for the defense the Japan area, such measures normally, and unless otherwise mutually agreed in the light of the ability of Japan increasingly to assume responsibility for its own defense, to include the establishment of a combined command and the designation by the United States of a commander thereof to exercise operational command over all United States forces in the Japan area and over all Japanese security organizations in Japan, except local police, capable of contributing to the defense of Japan.

3. The right to insure the security of United States forces in Japan (see subparagraph 2a above) in the event of hostilities or imminently threatened hostilities, must be specifically recognized by the Government of Japan in order to insure that the Commander in Chief, Far East will enjoy the requisite degree of freedom of action in providing for this security. Such arrangements are an essential concomitant to the retention of United States forces in a sovereign Japan.

4. Although it might be possible at some future date to make certain adjustments in command arrangements, as warranted by increase in the capability of Japan for its own defense, or by the coming into force of such individual or collective security dispositions as are envisaged in Article IV of the United States–Japan Security Treaty, the Joint Chiefs of Staff feel that the Administrative Agreement must include provision for the establishment of a combined command and the designation of a commander thereof by the United States without which the defense of the Japan area will be jeopardized. This requirement, however, does not preclude future review of these command arrangements.

5. In consonance with the foregoing, and in light of the developments in the negotiations, the Joint Chiefs of Staff recommend that Article XXII of the Draft Administrative Agreement with Japan be revised to read as follows:

“In the event of hostilities, or imminently threatened hostilities, in the Japan area, the United States may take such actions as may be necessary to insure the security of its forces in the Japan area, and the Governments of Japan and of the United States shall immediately consult together with a view to taking necessary measures for the defense of that area and to carry out the purpose of Article I of the Security Treaty. Pending the coming into force of such individual or collective security dispositions envisaged in Article IV of the U.S.–Japan Security Treaty as will satisfactorily provide for the maintenance of international peace and security in the Japan area, it is agreed that a unified command, under a commander to be designated by the United States, would be established. This commander would exercise operational command over all United States forces in the Japan area and over all Japanese security forces in Japan, except local police, capable of contributing to the defense of Japan. As Japan becomes capable of assuming responsibility for its own defense, this arrangement may be modified by mutual agreement.”

6. It will be noted that the language suggested permits such necessary adjustments as may be warranted by future increases in the capability of Japan to provide for its own defense. Additionally, the language, by reference to Article IV of the US–Japan Security Treaty, implies that the suggested command arrangements may be subject to review in the eventuality of the establishment of other collective defense arrangements in the area. In any event, reference to the establishment of a command organization for the defense of Japan is necessary in order to provide the basis for pre-planning for the contingency of hostilities.

7. In connection with all of the foregoing, the Joint Chiefs of Staff recommend that you insist that military considerations are overriding in the requirement that the substance of the matter in paragraph 2 above be included in the Administrative Agreement and that the United States Government position be in consonance therewith.

For the Joint Chiefs of Staff:

J. Lawton Collins

Chief of Staff, U.S. Army

1. Telegram 1649 from Tokyo, Document 500.