Papers Relating to the Foreign Relations of the United States, 1919, Russia

Paris Peace Conference 180.03401/37

Appendix I to C. F. 37—Despatch to Admiral Kolchak⁹⁰

Paris, 26th May, 1919.

M. 190 (Final Revise)

The Allied and Associated Powers feel that the time has come when it is necessary for them once more to make clear the policy they propose to pursue in regard to Russia.

It has always been a cardinal axiom of the Allied and Associated Powers to avoid interference in the internal affairs of Russia. Their original intervention was made for the sole purpose of assisting those elements in Russia which wanted to continue the struggle against German autocracy and to free their country from German rule, and in order to rescue the Czecho-Slovaks from the danger of annihilation at the hands of the Bolshevik forces. Since the signature of the Armistice on November 11th, 1918, they have kept forces in various parts of Russia. Munitions and supplies have been sent to assist those associated with them at a very considerable cost. No sooner, however, did the Peace Conference assemble than they endeavoured to bring peace and order to Russia by inviting representatives of all the warring Governments within Russia to meet them in the hope that they might be able to arrange a permanent solution of Russian problems. This proposal and a later offer to relieve the distress among the suffering millions of Russia broke down through the refusal of the Soviet Government to accept the fundamental condition of suspending hostilities while negotiations or the work of relief was proceeding. Some of the Allied and Associated Governments are now being pressed to withdraw their troops and to incur no further expense in Russia on the ground that continued intervention shows no prospect of producing an early settlement. They are prepared, however, to continue their assistance on the lines laid down below, provided they are satisfied that it will really help the Russian people to liberty, self-government, and peace.

The Allied and Associated Governments now wish to declare formally that the object of their policy is to restore peace within Russia by enabling the Russian people to resume control of their own affairs through the instrumentality of a freely elected Constituent Assembly and to restore peace along its frontiers by arranging for the settlement of disputes in regard to the boundaries of the Russian state and its relations with its neighbours through the peaceful arbitration of the League of Nations.

They are convinced by their experiences of the last twelve months that it is not possible to attain these ends by dealings with the Soviet Government of Moscow. They are therefore disposed to assist the Government of Admiral Koltchak and his Associates with munitions, supplies and food, to establish themselves as the government of all Russia, provided they receive from them definite guarantees that their policy has the same objects in view as that of the Allied and Associated Powers. With this object they would ask Admiral Koltchak and his Associates whether they will agree to the following as the conditions upon which they accept continued assistance from the Allied and Associated Powers.

In the first place, that, as soon as they reach Moscow they will summon a Constituent Assembly elected by a free, secret and democratic franchise as the Supreme Legislature for Russia to which the Government of Russia must be responsible, or if at that time order is not sufficiently restored they will summon the Constituent Assembly elected in 1917 to sit until such time as new elections are possible.

Secondly, that throughout the areas which they at present control they will permit free elections in the normal course for all local and legally constituted assemblies such as municipalities, Zemtsvos, etc.

Thirdly, that they will countenance no attempt to revive the special privileges of any class or order in Russia. The Allied and Associated Powers have noted with satisfaction the solemn declaration made by Admiral Koltchak and his associates that they have no intention of restoring the former land system. They feel that the principles to be followed in the solution of this and other internal questions must be left to the free decision of the Russian Constituent Assembly; but they wish to be assured that those whom they are prepared to assist stand for the civil and religious liberty of all Russian citizens and will make no attempt to reintroduce the régime which the revolution has destroyed.

Fourthly, that the independence of Finland and Poland be recognised, and that in the event of the frontiers and other relations between Russia and these countries not being settled by agreement, they will be referred to the arbitration of the League of Nations.

Fifthly, that if a solution of the relations between Esthonia, Latvia, Lithuania and the Caucasian and Transcaspian territories and Russia is not speedily reached by agreement the settlement will be made in consultation and co-operation with the League of Nations, and that until such settlement is made the Government of Russia agrees to recognise these territories as autonomous and to confirm the relations which may exist between their defacto Governments and the Allied and Associated Governments.

Sixthly, the right of the Peace Conference to determine the future of the Roumanian part of Bessarabia, be recognised.⁹¹

Seventhly, that as soon as a Government for Russia has been constituted on a democratic basis, Russia should join the League of Nations and co-operate with the other members in the limitation of armaments and of military organisation throughout the world.

Finally, that they abide by the declaration made by Admiral Koltchak on November 27th, 1918, in regard to Russia’s national debts.⁹²

The Allied and Associated Powers will be glad to learn as soon as possible whether the Government of Admiral Koltchak and his associates are prepared to accept these conditions, and also whether in the event of acceptance they will undertake to form a single government and army command as soon as the military situation makes it possible.

• G. Clemenceau
• D. Lloyd George
• V. E. Orlando
• Woodrow Wilson
• Saionji

90. The minutes of the meeting of the Council of Four (C. F. 37) of May 27, 1919, 4 p.m., are not printed.
91. The insertion of the foregoing clause was approved at the meeting of May 27, 4 p.m.
92. Ante, p. 356; cf. Foreign Relations, 1918, Russia, vol. ii, p. 447.