of such drugs; that there shall be established an advisory body to advise directly the Economic and Social Council on these matters; and that the existing agencies be regarded as autonomous agencies to be related directly to the Economic and Social Council".

The Delegation of Panama proposed the establishment of an International Office of Migration to help assure freedom of movement, which the Delegation considered essential to the development of world resources and in the interest of an expanding economy.

With regard to a declaration of the French Delegation recommending that there be convened within the next few months a general conference to draw up the Statute of an International Organization on Cultural Cooperation, the United States Delegate called attention to the fact that, though not a member of the Conference of Allied Ministers of Education in London, the United States had for more than a year been participating in its deliberations; that plans had there been laid for an international conference on an organization. for educational and cultural cooperation to continue and expand the work begun after the last war; and that the Conference of Allied Ministers had recently voted to ask the Government of the United Kingdom to call such an international conference soon after the San Francisco Conference adjourned.

The Brazilian Delegation issued a declaration recommending the establishment of a Commission of Women to study the status and opportunity of women and, particularly, any discriminations and limitations placed upon them on account of their sex. Although the United States Delegation did not favor the establishment of such a commission composed exclusively of women, it did express its full agreement with any move designed to eliminate such discriminations and limitations as may still exist. In this connection the Delegation requested that the following statement be incorporated in the records of the Committee before which the matter was discussed:

"The position of the United States on the subject of equal opportunity for women is so well established and has been so often demonstrated in action that it does not need to be elaborated here. We expect women to play a constructive role in the development of the international community which the United Nations are today striving to organize. We are confident, also, that they will share in the benefits which will flow to the people of all lands from the cooperative efforts of their governments to solve economic and social, educational and cultural, and related human problems. Where women as a group suffer from discriminations, we believe that the commission on human rights contemplated in the draft Charter of the United Nations will be effective in helping to bring about the eventual disappearance of such disabilities. Moreover, the Delegation of the United States hopes that the excellent work of the Committee of Jurists appointed by the League of Nations to study the legal status of women throughout the world may be continued in an appropriate form, either as an advisory body to the Economic and Social Council or as a part of the commission on human rights which this Council is intended to establish." Finally, the Delegations of Brazil and China submitted a joint declaration recommending that a general conference be convened

within the next few months for the purpose of establishing an International Health Organization which would be brought into relationship with the Economic and Social Council. This proposal met with the universal approval of all the delegations at the Conference.

LOOKING TO THE FUTURE

Chapters IX and X of the Charter re-affirm our faith in human progress. The Covenant of the League of Nations made no provision for any machinery for continued cooperation among its members on international economic and social matters, although Article 23 of the Covenant did contain general provisions looking toward the development of international activities. Their importance and the force of circumstances lead in time to the establishment of ad hoc committees and commissions and the elaboration of the work of the League of Nations Secretariat in these fields, while the activities of the International Labor Organization, in its somewhat restricted sphere, also made very material contributions. In the Charter of the United Nations, however, these issues have been recognized as parts of a single pattern of greatest importance for the maintenance of friendly relations among nations. Cooperation in these fields has been recognized as indispensable to the achievement of stability and wellbeing.

To achieve and strengthen such cooperation a new instrument has been forged. It promises to be an effective instrument. If properly used it may well become one of the most powerful means for the creation of an enduring peace among the nations.

DEPENDENT TERRITORIES AND ARRANGEMENTS FOR TRUSTEESHIP

(Chapters XI-XIII)

Three basic principles of far-reaching significance to the future of dependent territories and their peoples were embodied in the United Nations Charter at San Francisco: first, that nations responsible for the administration of dependent territories should recognize that they are accountable to the world community for the well-being and development of the peoples under their authority; second, that the political, economic, social, and educational advancement of dependent peoples is a primary concern; and, third, that dependent territories must be administered in such manner as to contribute to the maintenance of peace and security.

THE PROBLEM

The problem of the dependent territories from the point of view of international concern stems from the fact that approximately a quarter of the people of the world live in territories which are not fully self-governing. The peoples of the dependent territories, not having a sufficiently advanced political status, are, at the present stage of their development, ineligible to the United Nations membership. Their interests, therefore, must be represented in the world organization by those independent states which are responsible for their administration.

The objectives of the deliberations on this problem were two-fold: first, to establish a system of international trusteeship which would accommodate any of the existing mandated territories or territories detached from enemy states in this war which might, by subsequent agreements, be brought within the system, or such other territories as might be voluntarily placed under it by states responsible for their administration; and, second, to agree upon a Declaration of general standards and principles of colonial administration, including recognition of the political aspirations of the peoples and their right to self-government and free political institutions, which would apply to all dependent territories. It was considered desirable that any territories placed under the system of international trusteeship should be administered in such manner that the political, social, and economic welfare of their inhabitants would be safeguarded and promoted and that opportunity would be given to those peoples capable of self-government or independence to achieve the status to which they aspire.

The chapters of the Charter relating to dependent territories and trusteeship create the machinery to accomplish these purposes and at the same time to make it possible fully to protect the vital security interests of the United States with respect to any territories in the Pacific and elsewhere which, by later agreement, may be included in the trusteeship system. These chapters also reflect a logical development of the traditional American attitudes and policies toward dependent peoples.

It must be emphasized that although satisfactory trusteeship machinery has been created, that in itself does not automatically place any specific territories under the trusteeship system. The Charter provides that each trusteeship agreement must be individually negotiated and agreed to by the states directly concerned with respect to a particular territory before such territory can come within the system. The particular trusteeship agreement must also be approved by the United Nations. Provision is also made, in the interest of security, for the special designation of strategic areas and for the employment of the facilities and resources of trust territories for security needs.

BACKGROUND OF UNITED STATES POLICY

In 1918, two principal views on this subject were advanced by President Wilson, namely, that colonies should be governed in the interest of the native peoples, and that the principle of equal economic opportunity for all nations should be generally recognized. The first view-native welfare-had emerged partly as a result of the Congo scandals toward the end of the nineteenth century. The secondequal economic opportunity-had been applied to the Congo Basin by the Berlin Convention of 1885 and the Brussels Convention of 1890, and it was proposed further to extend this principle.

American policy with respect to non-self-governing peoples had also been reflected in the grant of independence to Cuba; in the Jones Act of 1916 foreshadowing the independence of the Philippines; and in the Jones Act of 1917 granting full American citizenship and a substantial measure of home rule to Puerto Rico.

At the end of the war of 1914-1918, the United States Government took the position that none of the dependent territories which were detached from Germany and Turkey should be annexed by any of the Allied and Associated Powers.

In order to avoid annexation and to give effect to the two fundamental principles of native welfare and equal economic opportunity, the mandates system was devised. This placed upon the League of Nations responsibility for supervision over the administration of the dependent territories taken from Germany and Turkey. In this way, the welfare of the dependent peoples involved in the mandates system, and the actions of the mandatory powers specifically entrusted with responsibilities of administration over them, became matters of continuing international concern.

The United States, although not a member of the League or a party to the Treaty of Versailles, safeguarded its interests in the mandated territories, resulting from its membership in the Allied and Associated Powers, by a series of treaties with the mandatory powers which protected its national rights and its international position.

Early in 1942 when the United States Government began to develop its policies with respect to a new international organization, the need for the establishment of some international mechanism to replace the mandates system of the League of Nations was clearly recognized.

The projected new international machinery to deal with these territories came to be described as a trusteeship system, a description which differentiated it from the League of Nations mandates system. It was designed to be not only a substitute for, but also a definite improvement over, the old mandates system.

The trusteeship question was also the subject of study by the other governments which later participated in the Dumbarton Oaks Conversations. It had been tentatively placed on the agenda of these Conversations, but discussion of this subject was temporarily postponed pending completion of studies of the many complex factors involved. It was understood by the governments represented at Dumbarton Oaks that the question would be taken up later and placed on the agenda of the prospective United Nations Conference.

Subsquently, an Interdepartmental Committee on Dependent Area Aspects of International Organization was set up to examine further into the question and to draft proposals as to the kind of trusteeship system which this Government could support. This Interdepartmental Committee developed a program designed to reflect our historic attitude toward dependent peoples and to safeguard American security and economic interests in the future.

Secretary Hull, in 1943, had submitted to the President, who endorsed them, certain proposals on dependent territories. They set forth that there should be opportunity to achieve independence for those peoples who aspire to independence, and that it is the duty and purpose of those United Nations which have responsibilities for the future of colonial areas to cooperate fully with the peoples of such areas in order that they may become qualified for independent national status. The Hull proposals called on these governments to fix, at the earliest practicable moment, the dates upon which colonial peoples under their authority would be accorded the status of full independence within a system of general security. They also urged

that in order effectively to carry out these purposes and functions, the United Nations should establish an international trusteeship administration.

President Roosevelt was deeply interested in this question and took with him to Yalta certain recommendations on dependent territory and trusteeship matters as to proposals which might be advanced at the Crimea Conference. The subject was considered at Yalta by President Roosevelt, Prime Minister Churchill, and Marshal Stalin, and the following policy was agreed upon:

(a) That the five governments with permanent seats in the Security Council should consult each other prior to the United Nations Conference on providing machinery in the World Charter for dealing with territorial trusteeships, which would apply only to (a) existing mandates of the League of Nations; (b) territory to be detached from the enemy as a result of this war; and (c) any other territory that may voluntarily be placed under trusteeship.

(b) That no discussions of specific territories were to take place during the preliminary consultations on trusteeships or at the United Nations Conference itself. Only machinery and principles of trusteeship should be formulated at the Conference for inclusion in the Charter, and it was to be a matter for subsequent agreement as to which territories within the categories specified above would actually be placed under trusteeship.

Upon the basis of this new decision of general policy, the Interdepartmental Committee, after President Roosevelt's return from Yalta, reviewed its previous work and developed new proposals, within the limits of the Yalta agreement, for a Chapter on Trusteeship to be included in the proposed Charter of the new organization.

APPROVAL OF UNITED STATES POLICY BY PRESIDENTS ROOSEVELT AND TRUMAN

These revised proposals were approved by Secretary of State Stettinius and were transmiteed formally by the Secretary of State to the Secretaries of War and Navy. They were submited to President Roosevelt by the Secretary of State on April 10, together with recommendations that they constitute the basis of the position of this Government on the subject in the discussions at San Francisco. The President replied to the Secretary of State on April 10, saying that he approved in principle the draft proposal on international trusteeship. President Roosevelt died on April 12. On April 18 at a meeting held in the State Department at which were present the Secretary of State, the Secretaries of War and Navy, the United States Delegation to the San Francisco Conference, and the Advisers to the United States Delegation, including advisers from the Departments of War, Navy, and interior, a memorandum was prepared for President Truman and submitted to him by the three secretaries. The memorandum was approved in the following terms:

It is not proposed at San Francisco to determine the placing of any particular territory under a trusteeship system. All that