Papers relating to the foreign relations of the United States, Japan, 1931–1941, Volume II

711.94/23445/25

Statement Handed by the Japanese Ambassador (Nomura) to the Secretary of State on September 4, 1941⁹⁷

September 4, 1941

Unofficial, Exploratory
and Without Commitment

The Governments of the United States and of Japan accept joint responsibility for the initiation and conclusion of a general agreement of understanding as expressed in a joint declaration for the resumption of traditional friendly relations.

Without reference to specific causes of recent estrangement, it is the sincere desire of both Governments that the incidents which led to the deterioration of amicable sentiment between their countries should be prevented from recurrence and corrected in their unforeseen and unfortunate consequences.

It is our earnest hope that, by a cooperative effort, the United States and Japan may contribute effectively toward the establishment and preservation of peace in the Pacific area and, by the rapid consummation of an amicable understanding, encourage world peace and arrest, if not dispel, the tragic confusion that now threatens to engulf civilization.

For such decisive action, protracted negotiations would seem ill-suited and weakening. Both Governments, therefore, desire that adequate instrumentalities should be developed for the realization of a general understanding which would bind, meanwhile both Governments in honor and in act.

It is the belief of the two Governments that such an understanding should comprise only the pivotal issues of urgency and not the accessory concerns which could be deliberated later at a conference.

Both Governments presume to anticipate that they could achieve harmonious relations if certain situations and attitudes were clarified or improved; to wit:

1. The concepts of the United States and of Japan respecting international relations and the character of nations.

2. The attitudes of both Governments toward the European War.

3. Action toward a peaceful settlement between China and Japan.

4. Commerce between both nations.

5. Economic activity of both nations in the Pacific area.

6. The policies of both nations affecting political stabilization in the Pacific area.

7. Neutralization of the Philippine Islands.

Accordingly, the Government of the United States and the Government of Japan have come to the following mutual understanding and declaration of policy:

I. The concepts of the United States and of Japan respecting international relations and the character of nations.

Both Governments affirm that their national policies are directed toward the foundation of a lasting peace and the inauguration of a new era of reciprocal confidence and cooperation between our peoples.

Both Governments declare that it is their traditional, and present, concept and conviction that nations and races compose, as members of a family, one household living under the ideal of universal concord through justice and equity; each equally enjoying rights and admitting responsibilities with a mutuality of interests regulated by peaceful processes and directed to the pursuit of their moral and physical welfare, which they are bound to defend for themselves as they are bound not to destroy for others; they further admit their responsibilities to oppose the oppression or exploitation of other peoples.

Both Governments are firmly determined that their respective traditional concepts on the character of nations and the underlying moral principles of social order and national life will continue to be preserved and never transformed by foreign ideas or ideologies contrary to those moral principles and concepts.

II. The attitudes of both Governments toward the European War.

The Government of Japan maintains that the purpose of the Tripartite Pact was, and is, defensive and is designed to contribute to the prevention of an unprovoked extension of the European War.

The Government of the United States maintains that its attitude toward the European hostilities is and will continue to be determined solely and exclusively by considerations of protection and self-defense; its national security and the defense thereof.

III. Action toward a peaceful settlement between Japan and China.

The Government of Japan having declared that the general terms, within the framework of which the Government of Japan will propose the negotiation of a peaceful settlement of the China Affair, are implied in the Konoe principles and in the practical application of those principles, the President of the United States, relying upon the policy of the Government of Japan to establish a relation of neighborly friendship with China, will suggest to the Government at Chungking that it enter with the Government of Japan into a negotiation for a termination of hostilities and resumption of peaceful relations.

(Note: Words underscored⁹⁸ not contained in the U. S. draft of June 21st. The other differences are simply by omission of certain phrases contained in the American draft.)

IV. Commerce between both nations.

When official approbation to the present understanding has been given by both Governments, the United States and Japan shall assure each other mutually to supply such commodities as are, respectively, available and required by either of them. Both Governments further consent to take necessary steps to resume normal trade relations as formerly established under the Treaty of Commerce and Navigation between the United States and Japan. If a new commercial treaty is desired by both Governments, it would be negotiated as soon as possible and be concluded in accordance with usual procedures.

V. Economic activity of both nations in the Pacific area.

On the basis of mutual pledges hereby given that Japanese activity and American activity in the Pacific area shall be carried on by peaceful means and in conformity with the principle of nondiscrimination in international commercial relations, the Japanese Government and the Government of the United States agree to cooperate each with the other toward obtaining non-discriminatory access by Japan and by the United States to commercial supplies^* of natural resources (such as oil, rubber, tin, nickel) which each country needs for the safeguarding and development of its own economy.

VI. The policies of both nations affecting political stabilization in the Pacific area.

Both Governments declare that the controlling policy underlying this understanding is peace in the Pacific area; that it is their fundamental purpose, through cooperative effort, to contribute to the maintenance and the preservation of peace in the Pacific area; and that neither has territorial designs in the area mentioned.

VII. Neutralization of the Philippine Islands.

The Government of Japan declares its willingness to enter at such time as the Government of the United States may desire into negotiation with the Government of the United States with a view to the conclusion of a treaty for the neutralization of the Philippine Islands, when Philippine independence shall have been achieved.

[Annex 1]

Annex and Supplement on the Part of the Government of Japan

III. Action toward a peaceful settlement between Japan and China.

The basic terms as implied in the Konoe principles and the practical application of those principles are as follows:

1. Neighborly friendship.

2. Cooperation to prevent the extension of injurious subversive activities which threaten national security.

3. Economic cooperation. Japan does not intend (a) to exercise economic monopoly in China; (b) nor to limit the interests of third powers in China.

4. Mutual respect of sovereignty and territories.

5. Mutual respect for the inherent characteristics of each nation cooperating as good neighbors and forming an Eastern Asia nucleus contributing to world peace.

6. Withdrawal of Japanese armed forces from Chinese territory as promptly as possible with the restoration of peace, within a period of two years and in accordance with an agreement to be concluded between Japan and China.

• (Note A.—Under Clause 2—The question of stationing troops has been entirely dropped in accordance with the suggestion of the American Government.)
• (Note B.—Under Economic Cooperation—It should be sufficient to refer to the general statement in Clause 5 of the Understanding. The economic relations of Japan with China shall be conducted in the same fashion and according to the same rules which the United States would use in dealing with China, and any third power would use in dealing with China.)

[Annex 2]

Annex and Supplement on the Part of the Government of the United States

IV. Commerce between both nations.

It is understood that during the present international emergency Japan and the United States each shall permit export to the other of commodities in amounts up to the figures of usual or pre-war trade, except, in the case of each, commodities which it needs for its own purposes of security and self-defense. These limitations are mentioned to clarify the obligations of each Government. They are not intended as restrictions against either Government; and, it is understood, both Governments will apply such regulations in the spirit dominating relations with friendly nations.

97. This document was submitted without the approval of the Japanese Government and was subsequently withdrawn by the Japanese Ambassador.
98. Printed in italics.
99. for the production and procurement. [Footnote in the original.]