867.00/5–1247
Report by the State–War–Navy Coordinating Subcommittee for the Near and Middle East1
SWNCC 358/1
Survey of U.S. Assistance to Turkey
the problem
1. To consider the size, composition, method of operation, and terms of reference of a group of assistants to be dispatched to Turkey for the purpose of assisting the U.S. Ambassador in determining Turkey’s requirements for U.S. assistance within the scope of the Aid to Turkey Legislation.
[Page 154]facts bearing on the problem and discussion
2. Authority for assistance to Turkey will be included in legislation now under consideration by the Congress. It is estimated that this legislation will be passed during the week 27 April–3 May. Approximately $100,000,000 is expected to become available, subject to passage of necessary appropriations legislation, and subject to approval of the Department of State. The Department of State will have authority to allocate, within the limits of the total appropriations for assistance to Greece and Turkey, the portions to be provided for each country.
3. In his message to Congress of 12 March 1947 the President expressed the principle of assistance to Turkey and indicated its general scope and timing. The authority for such assistance is contained in a Bill currently being considered by Congress providing for a loan or gift to Greece and Turkey of up to four hundred million dollars. It is anticipated that approximately one hundred million dollars of this amount will be allocated to Turkey although the Bill itself does not contain any provision allocating the funds between the two countries. In addition to authorizing funds, the Bill contains authority for the President to detail a limited number of military personnel and civilian personnel of the U.S. Government to assist the countries in an advisory capacity, to transfer to Greece and Turkey military and civilian supplies, and to reimburse the Departments concerned for such supplies. It requires that expenditures be observed by U.S. Government representatives to insure their proper utilization.
4. Although British military authorities in Greece were able to provide reasonably accurate estimates of assistance required from the U.S. for the Greek Armed Forces, they are unable to provide similar estimates in the case of Turkey. The U.S. Ambassador in Turkey and particularly the Military and Naval Attachés have likewise been unable to determine the needs of the Turkish Armed Forces. It is concluded that any program of assistance to Turkey as envisaged by the legislation under consideration must be preceded by an overall study of the Turkish military and economic situation in order that the limited funds may be utilized most efficiently.
5. It appears necessary to dispatch to Turkey, with the least possible delay after the passage of the legislation, a small group of assistance [assistants] to aid the U.S. Ambassador to Turkey in making a survey of Turkey with the objective of making recommendations as to the most efficient expenditure of funds for assistance to Turkey within the limits of the program authorized by Congress. The current breakdown of the Turkish budget for its Armed Forces is approximately 60% for the Army, 30% for the Air Force and 10% for the Navy. In the group to assist the Ambassador, approximately twenty-six Army and Air Force representatives and twelve Navy representatives appears [Page 155] to be adequate. The State Department desires to include only one or two economists. These personnel estimates include the clerical assistance [assistants] required for the group since the U.S. Embassy does not have the facilities to support them while in Turkey. The Ambassador’s group should consist of planning personnel to include strategic, operational, and logistical planners and specialists in the fields of communication, transportation and munitions. In order to avoid a dominant military aspect, civilian experts should be used wherever practical.
6. Although certain preliminary steps have been taken to assemble the group, it appears that the middle of May is the earliest estimated date of departure practicable. Assembling the personnel in Washington and briefing them prior to their departure will require at least three weeks. Since the group is small and since time is an important factor, it should proceed from Washington to Ankara by fastest transportation available.
7. Because the Turks are a proud people, jealous of their sovereignty, it is considered desirable to have the survey group operate under the U.S. Ambassador to Turkey, utilizing his established position to avoid any aspect of unwarranted U.S. interference in Turkish affairs. He should be directed to make the survey and should be furnished adequate assistance as discussed above.
8. The final objective of the survey will be the preparation of findings and recommendations to the U.S. Government as to how the appropriated funds can best be expended to achieve objectives of U.S. assistance to Turkey. These recommendations should cover a wide scope, including specific requirements of the Turkish Armed Forces for equipment and supplies, relative priority of various items, such economic and industrial assistance as might be required, reorganization desirable in the Turkish Armed Forces, additional training to be accorded Turkish Armed Forces by the U.S. and British, the part to be played by the British in further assistance to Turkey, relationship between U.S. and British personnel, if both remain in Turkey, the phasing of supply of required items, and the degree of supervision to be exercised over the utilization of any assistance furnished.
9. As the report will be prepared by the Ambassador, it is desirable that it be written in Turkey. This will also permit easy access to further material while the report is under preparation. The report should be joint in nature and should be submitted to the Department of State for consideration and as a basis for a U.S. Governmental decision.
10. Since it is estimated that preparation of the report will require approximately six weeks and since certain token shipments of equipment or supplies, or provision of other assistance to Turkey, might be required prior to the completion of the report, authority should be [Page 156] given the Ambassador to recommend such interim assistance as he sees fit.
conclusions
11. It is concluded that:
- a.
- A group of special assistants to the U.S. Ambassador to Turkey should be furnished to assist him in making a survey of Turkey. It should be composed of not more than twenty-three individuals (including clerical assistants), with maximum representation as follows:
| State Department | 4 |
| War Department (Army & Army Air Forces) | 12 |
| Navy | 7 |
- b.
- Planning personnel, including strategic, operational and logistical planners, should be included from all three Services. In addition, specialists on communications, transportation, and munitions should be provided. Full use should be made of civilian experts.
- c.
- The personnel should depart from Washington for Ankara not later than 19 May 1947, proceeding by fastest transportation facilities available.
- d.
- Terms of reference indicated2 (Appendix) should guide the Ambassador in conducting the survey.
recommendations
12. It is recommended that:
- a.
- The above conclusions be approved by the State–War–Navy Coordinating Committee.
- b.
- After approval by SWNCC, the terms of reference (Appendix) be transmitted to the U.S. Ambassador to Turkey by the Department of State.
- c.
- Copies of the approved paper be forwarded to the State, War and Navy Departments for appropriate implementation and to the Joint Chiefs of Staff for information.