795.00/10–250
Draft Memorandum by the Planning Adviser, Bureau of Far Eastern Affairs (Emmerson)
Subject: The Occupation of North Korea
A United Nations occupation of North Korea must be based on the concept that the purpose of the occupation is to establish peace and security in Korea and that to do this, unification of the country will be necessary. It should be recognized that the establishment of peace and security makes possible a solution of the Korean problem by the Koreans themselves. It should therefore not be the task of occupation forces to impose on the North Korean people a complete administration of government—staffed by non-Koreans. In the initial stages the occupation forces will concern themselves primarily with the restoration of law and order and the provision of emergency relief. Koreans will be used in these tasks to the maximum extent possible. The UN forces will act to restrain them from acts of reprisal and to assist them in re-establishing the minimum essential services. It should be recognized that during this interim period, while the Koreans will play the dominant role, the sovereignty of the Republic of Korea over the northern areas will not legally be extended until elections are held. During this interim period North Korea will therefore be in a status of occupation and will be subject to the authority of the Commanding General of the Unified Forces.
[Page 836]Three phases are envisaged in the post-hostilities period, as follows:
First Phase—From Cessation of Organized Resistance to Arrival of United Nations Commission.
1. Occupation of certain key cities in North Korea should be effected by units made up of UN forces, acting under the authority of the Unified Commander, who should consult with UNCOK to the extent practicable.
2. The composition of the units should be as follows:
- a.
- The Commanding Officer should be a military officer of appropriate rank from one of the UN member countries supporting the UN action in Korea.
It will be preferable if as many as possible of these officers are not Americans. Efforts should therefore be instituted as soon as possible to invite UN members to select highly competent officers to fill these posts. It would be highly desirable if as many Asiatic countries as possible were represented.
- b.
- Components of UN units should in general maintain a proportion of one-half ROK troops to one-half UN troops.
3. The tasks of the UN units during phase one will be in general as follows:
- a.
- Disarmament of North Korean forces.
- b.
- Provision of immediate relief to the civilian population.
- c.
- Re-establishment of essential public services.
- d.
- Filling of minimum essential governmental positions.
It should be made clear that the appointment of officials to fill local governmental posts is purely temporary pending the holding of elections. Selection of Koreans to fill these posts will be made by the Commanding Officer of the unit.
Second Phase—From arrival of UN Commission to Holding of national elections.
1. Following its arrival in Korea the UN Commission established by the General Assembly under the UK resolution, should visit the areas of North Korea occupied by UN forces.
2. The UN Commission should inspect conditions in each of the occupied areas and make recommendations regarding relief, reconstruction, rehabilitation, etc.
3. The UN Commission should make recommendations with regard to the withdrawal of UN forces occupying North Korea.
4. The UN Commission should make recommendations regarding the holding of elections:
- a.
- The Commission may recommend the holding of local elections in some areas pending elections to the National Assembly.
- b.
- The UN Commission should set a date for elections to the National Assembly.
Third Phase—From the Holding of Elections to the Withdrawal of Occupation Forces.
1. Elections to the National Assembly should be held under the supervision of the UN Commission.
[Page 837]2. Upon holding these elections, the Republic of Korea should assume jurisdiction over all parts of Korea where elections have been held.
3. Security forces should be established in Korea as recommended by the UN Commission.
4. Efforts should be made to obtain the neutralization of Korea through agreements by UN members and by the Republic of Korea.