of the organization along five major lines: The general character and functions of an international organization, a general assembly, an executive council, an international court of justice, and arrangements for security. The latter included the following broad aspects: prevention and pacific settlement of disputes, regulation of armaments and armed forces, determination of threats to or breaches of the peace, nonmilitary measures of enforcement, supply and use of armed forces and facilities, and the nature and work of a security and armaments commission. The resulting papers constituted chapters of a charter and were intended for review by the Post-War Programs Committee and in due course-after further development, consultations with congressional leaders and others, and approval by the President-for use in the projected exchange of papers with the United Kingdom, the Soviet Union, and China.

Between March 16 and April 19, 1944, inclusive-the fourth stagethese papers were revised for the Secretary's use, primarily in the consultations he contemplated with Members of Congress. In the course of revision there were comprehensive discussions between the Secretary and various senior members of the Group on the main problems involved in the drafts. It will be recalled that in this period four meetings attended by representatives of the armed services were held. During these meetings all papers were opened for study and all security aspects of the problems at issue were re-examined in detail. In the meetings of the Group not attended by the military representatives particular consideration was given to the question of membership, including the right of withdrawal, to questions concerning the establishment of the organization, and to further examination of the general character and functions of the organization with reference especially to the general assembly, the executive council, and the international court. Attention in these meetings was also given to the nature of the general administrative arrangements that should be provided, including the question of what principal officers, such as the head of the secretariat and possibly a president, the organization might need. This stage of consideration resulted in the comparatively full draft "Possible Plan" that the Secretary used in his congressional consultations a few days later.

The fifth stage began April 20 and ended July 8. During these weeks, the drafts were more fully matured and became the proposals made by this Government for negotiation. The military representatives attended five of the meetings in this period and received the drafts and related papers on the whole "Plan." The full draft was supplemented and modified in the light of the congressional and other consultations then in progress and of the Group's own re-examination of the major problems it believed likely to arise in the then imminent Dumbarton Oaks negotiations. In the course of these meetings, fur

ther consideration was given to a large number of specific problems, including those concerning security arrangements, voting provisions, local and regional procedures and relationships, budgetary questions, and questions concerning entrance of this country into the organization, in view of the United States Constitution. In this period, the problems of dependent territories were discussed in terms of the possible establishment of international territorial trusteeships and of regional commissions for the development of dependent territories not placed under trusteeship. Several meetings were devoted to provisions concerning international economic and social problems within the structure of world security organization.

The Group's formulation of draft proposals in the economic and social fields had been postponed until over-all economic organization could be considered by the special interdivisional committee under Mr. Pasvolsky's chairmanship established in March. Extensive study had been made early in the preparation of the problem of the coordination of international activities in these fields by the Subcommittee on International Organization and by the political research staff. A joint drafting group composed of research officers from the Divisions of Political Studies and of Economic Studies had begun work in December 1943 on a proposal for an over-all economic body within the framework of the general organization. The Group's "Possible Plan" as submitted to the President on December 29 stated that the organization should have "an agency for cooperation in economic and social activities."

Following the President's approval of the "Possible Plan" on February 3, 1944, a proposal was drafted in the Division of International Security and Organization early in March for the creation of a general economic commission and a general social commission. This proposal had been referred to the special interdivisional committee, composed of experts from both the political and economic offices, for consideration prior to its submission to the Informal Political Agenda Group. Thereafter, primary drafting responsibility for the concrete proposal to be made in this field rested for a time in the newly created Office of Economic Affairs, which, in collaboration with the Division of International Security and Organization, developed by the middle of June a draft proposal for an Economic Council. This draft, together with certain proposals formulated in the latter Division and designed to provide as well for the coordination of both economic and social activities, was considered at a series of meetings of the International Organization Group, beginning June 14. These meetings produced the definitive draft for an Economic and Social Council. Similarly, the Agenda Group's consideration of specific proposals

with respect to dependent territories for inclusion in the "Possible Plan" was also long deferred, although provisions in this field had been contemplated as part of the plan for a general international organization from the beginning of the preparation in the Subcommittee on International Organization. The draft declaration of March 1943 on dependent peoples, however, which Secretary Hull had discussed with Mr. Eden at Quebec and with Mr. Eden and Mr. Molotov at Moscow, as described earlier, had left open the question of the relation of the arrangements projected therein to the proposed general organization. The amplification of this proposal desired by the Secretary had been begun in the interdivisional Committee on Colonial Problems late in the autumn of 1943, but no more definitive proposals had been formulated by the time the "Possible Plan" was sent to the President at the end of December. That "Plan" provided solely for "an agency for trusteeship responsibilities."

The interdivisional committee, which became the Committee on Colonial and Trusteeship Problems in January and then, in March, the Working Committee on Problems of Dependent Areas, continued its elaboration of the Secretary's original proposal throughout the early months of 1944, making only preliminary reference of certain basic recommendations to the Post-War Programs Committee in March.

It was not until May 10, following Mr. Bowman's return after accompanying the Under Secretary on his Mission to London, that the Informal Political Agenda Group began intensive consideration of specific proposals concerning dependent peoples for inclusion in the "Possible Plan." The British reaction to certain of the American ideas on problems concerning dependent areas had been consistently unfavorable. At the meeting of the Group on May 10 and at another two days later, Mr. Bowman reported in detail on the relevant aspects of his recent conversations in London, where with the express approval of the President he had discussed at length these problems with British officials, including the Prime Minister and the Colonial Secretary, Col. Oliver F. G. Stanley.

The Group's consideration of definitive proposals in this field continued into June. Documentation was provided by the above Working Committee and the Division of International Security and Organization. The resulting drafts, after clearance with the Office of Economic Affairs, were reviewed in the Post-War Programs Committee on June 15, 16, and 22 and, with some amendment, approved. A definitive proposal for territorial trusteeships was then incorporated by the Group in the "Possible Plan."

The subjects of discussion during the five stages in the Group's drafting had many interrelationships and thus often had to be taken up in a number of different connections. At most meetings several prob

lems were scheduled for discussion; entire meetings were not usually devoted to any single problem. During the seventy meetings between December 9, 1943, and July 8, 1944, as many as thirty-six meetings, in whole or in part, considered the inherent character of any general international organization and the particular character of the specific organization under contemplation. The general assembly was discussed in thirty-four meetings, an executive council in fifty-three, an international court of justice in ten, pacific settlement of disputes in twenty-two, and determination of threats to or breaches of peace in fifteen. The Group took up the problems of initiation of enforcement action in seventeen meetings, nonmilitary measures in nine, and measures involving use of armed force in twenty-six. A security and armaments commission was discussed in fourteen, and regulation of armaments and armed forces in twenty-one. General administration, secretariat, and principal officers necessary for the organization were discussed in nine. Questions concerning the establishment and inauguration of the contemplated organization were before the Group at sixteen meetings. Regional procedures and agencies were particularly considered at seven meetings. Parts of thirteen meetings were devoted to the problems of territorial trusteeships and regional commissions in connection with dependent areas. Arrangements for economic and social cooperation and organization were the subject of twenty meetings in whole or in part.

The constitutional problems of American participation were taken up in connection with all subjects excepting some of a detailed, technical character. Similarly, the obligations and rights of members came into consideration at most meetings. The provisions for voting entered under the consideration of all problems relating to the functions and powers of the organization and the relationships of members to it. This basic question appeared at the start of the drafting and was not resolved to the satisfaction of all participants even by the last meeting of the Group.

EXCHANGE OF OUTLINES

No IMPORTANT Step directed specifically toward arranging for negotiations on general international organization was taken for two months following the conversation at the Department on November 26, 1943, described above. On January 29, 1944, however, a member of the British Foreign Office, John Ward, and a member of the PostHostilities Planning Committee in London, Col. C. W. Walker, joined Paul Gore-Booth of the British Embassy in a further conversation at the Department on this question. In this conversation, an exchange of papers on posthostilities security arrangements, appropriately cleared as representing the views of experts, but on which official policy

had not yet been determined, was projected subject to approval by higher authorities in order to obtain better understanding at an expert level of trends in thought and lines of preparation on both sides. Such preliminary exchange, however, did not take place before a more advanced procedure came under consideration in the spring of 1944. All steps toward exchange of views on substantive problems in this field then became direct moves leading into negotiations.

On February 1, 1944, further inquiries from the British Embassy were received in regard to the level of the future discussions and their coverage. A principal factor affecting this matter was that the views of the President on the basic ideas or "Plan" that the Secretary had presented to him on December 29 continued to be unknown. The Informal Political Agenda Group had proceeded for working purposes on the assumption of his general approval. The awaited approval was given on February 3, 1944, when the President, in discussion with the Secretary and some of the "consulting group," eliminated several of the alternatives that had been submitted on given points and initialed the paper. The drafting of specific United States proposals could now be expedited with no further uncertainty regarding the fundamental direction in which to move, and preliminary exchanges of views looking toward substantive negotiations could be carried forward with the other signatories of the Moscow Declaration.

At the Group's next meeting, February 8, it was told of the need to have a preliminary agenda with supporting papers for exchange purposes ready by March 15, and a projected outline was circulated and considered. On the same day, the British and Soviet Embassies were orally informed, on directive of the Secretary, by Assistant Secretary Dunn and Mr. Pasvolsky of the readiness of the United States to proceed toward "discussions" in Washington. The Department officials suggested that each of the three Governments prepare for exchange before these discussions papers on the general framework and functions of an organization for international peace and security and stated that an outline of proposed topics on which an exchange of views was believed necessary would be circulated shortly. The Embassies were also told that this Government would inform the Chinese as the discussions progressed; that, although at this stage we did not ask for Chinese participation in the discussions, we might later raise this question. The President had taken the position that after matters had proceeded a little further Generalissimo Chiang Kai-shek should be apprised but that for a time it would be well to restrict the number of those involved in these very confidential developments. The United States Embassies in Moscow and London were informed of the above steps by telegrams on February 10, 1944, with the explanation that at this stage no commitments by this Government were intended.