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

794.5 MSP/7–1053

No. 660
Memorandum by the Acting Assistant Secretary of State for Far Eastern Affairs (Johnson) to the Secretary of State

top secret

[Washington,] July 10, 1953.

Subject:

• Negotiation of a Mutual Defense Assistance Agreement with Japan and Japanese Defense Planning.

Discussion

On June 30, the Japanese Foreign Office formally proposed to our Embassy in Tokyo the initiation of negotiations for an agreement under the Mutual Security Program. The Japanese Government is anxious to submit the Agreement to this session of the Diet which is scheduled to adjourn in early August.

Ambassador Allison has therefore urgently requested the final draft of the proposed Mutual Defense Assistance Agreement with Japan and authorization to initiate such discussions as soon as possible. It had been our preliminary position that an official confidential understanding should be reached with the Japanese Government with respect to force goals prior to the formal negotiation of the bilateral agreement. However, the Japanese have such serious political difficulties on the general question of rearmament that we now believe it should be left to the discretion of the Ambassador and CINCFE to seek Japanese agreement, either formal or verbal, to meet limited force goals over a five year period or to increase defense forces as the political and economic situation permits. This course of action accords with the recommendation of Ambassador Allison and CINCFE.

Attached is a draft of the proposed Mutual Defense Assistance Agreement (Tab A)¹ which will serve as a basis for negotiation with the Japanese Government. It follows closely the standard type agreement, with minor deviations to take into consideration Japanese sensitivities with respect to rearmament.

The major difference between the proposed draft and the standard agreement is the deletion of a provision that, the Military Assistance Advisory Group will in its relations with the Japanese Government, operate under the direction and control of the Chief of the Diplomatic Mission. This provision is inconsistent with the existing Presidential Memorandum of April 23, 1952² governing the relationships between the Ambassador and CINCFE. Ambassador Allison strongly believes that the authority of the Ambassador to coordinate the military assistance activities of United States officials in Japan should be indicated in the Agreement He believes that the absence of such language would have an unfortunate political reaction in Japan (Tab B).³ Mr. Robertson who has discussed this question with Mr. Lourie and Mr. Matthews continues to feel that now is not a good time to raise this question with Defense. In view of the desirability of proceeding rapidly with the negotiation of the bilateral agreement it is our view that this clause can be deleted, leaving the eventual status of the MAAG to be resolved at a later date.

Recommendation

I recommend that you authorize me to send appropriate telegraphic instructions to Ambassador Allison:

1) authorizing him to undertake the negotiation of a Mutual Defense Assistance Agreement with Japan along the lines of the attached draft, and

2) leaving it to his discretion, in consultation with CINCFE, to determine the extent and nature of the commitments with respect to force goals to be secured from the Japanese in the course of the negotiations.⁴

Concurrences

The Department of Defense and the Office of the Director of Mutual Security have concurred in the draft Agreement and the foregoing recommendations.

1. Not printed.
2. See the attachment to Document 557.
3. Telegram 22 from Tokyo, Document 658.

4. A handwritten addition is inserted after this paragraph: “3) not recede in MAAG under Embassy, but only defer. JFD”.

   The Department in telegram 131 to Tokyo, July 14, amplified the Secretary’s decision as follows: “MAAG should be attached Embassy same basis as elsewhere in world. Pressing this question to resolution merely being deferred in view time pressures commence negotiations with Japanese.” The Department added that the Defense Department and CINCFE were being informed of this position. (794.5 MSP/7–1453)

   Revisions to the U.S. draft of an MDAA with Japan, as well as instructions in accordance with the recommendations above, were transmitted to the Embassy in telegram 128 to Tokyo, July 14. (794.5 MSP/7–153) Negotiations commenced on July 15.