Abstract
As the Allied advance gained momentum American-Commonwealth relations were increasingly strained. The problems were fundamental in nature. American leaders were inclined to downgrade the importance of Anglo-American collaboration. Conversely, British and Dominion leaders continued to argue that the British Commonwealth had to avoid dependence on the United States in international affairs. Some called for Britain to work more closely with the Soviet Union. Sir Owen Dixon, the Australian Minister in Washington, noted American attempts to ‘play off one member of the Commonwealth against the other’ in discussions about the postwar settlement. The Dominions, he informed one British diplomat, could not understand why Britain did not respond by playing off Moscow against Washington since Stalin’s Russia might prove to be less of a threat to British interests than Roosevelt’s America.1 More typically, British and Dominion policy-makers argued that the British Commonwealth, possibly in conjunction with Western Europe, should chart a course between Russia and the United States and act as the world’s third ‘super-power’.2
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Notes and References
Report of conversation between Dixon and Campbell, 31 July 1944, PRO: FO115/3637.
OSS Research and Analysis report, The Conference of Dominions Premiers in London, May 1944’, 20 July 1944, WNRC: RG84, Wellington Legation, confidential files, 710. William Fox, an American international relations expert, coined the term’ super-power’ in 1944 to describe the military potential and global presence of the world’s three most powerful states: Britain, the Soviet Union and the United States. See Fox, The Super-Powers.
D’Alton to Evatt, 12 August 1944, NAA: A4231/2 1944/Wellington (part 1).
Cross to Churchill, 30 August 1944, IWM: Cross papers, 4/17; Horner, High Command, pp.335-337; Day, Reluctant Nation, pp.229-230, 241.
Note of conversation between Churchill and Roosevelt, 15 September 1944, FDRL: Map Room (Naval Aide’s) Files, box 168 and PRO: FO954/4/606; memorandum by King, 29 May 1944, USNA: RG218, CCS 373, box 152; USJSP study, ‘Employment of Royal New Zealand Air Force Squadrons’, 18 June 1944, ibid.
Horner, High Command, pp.384-385
Bartlett and Love, ‘Anglo-American Naval Diplomacy’, pp.214-215.
Bruce to Curtin, 14 March 1944, NAA: A5954/1 576/2.
Curtin to Churchill, 12 August 1944, doc. 248, DAFP, vol. 7, p.479. 10. Bartlett and Love, ‘Anglo-American Naval Diplomacy’, pp.214-215.
Minute by Shannon, 3 July 1945, PRO: D035/1687.
Halifax to FO, 21 March 1944, PRO: CAB87/66.
Radio address at Puget Sound Naval Yard, 13 August 1944, NAA: A6494 Tl SPTS/1/2.
PHPS paper,’ security of British Commonwealth and Empire interests in South-East Asia and the Pacific’, 21 February 1945, PRO: CAB121/69.
Johnson to Patton, 14 November 1944, WNRC: RG84, Wellington Legation, confidential files, 710.
British Commonwealth meeting, 5 April 1945, PRO: CAB99/30.
Johnson to Patton, 14 November 1944, op. cit.
Memorandum by the Secretary of State of conversation with the Prime Minister of New Zealand and the Minister for New Zealand in the United States, 19 April 1944, FRUS, 1944, vol. 3, pp.191-192.
Memorandum by the Secretary of State of conversation with the Prime Minister of Australia and the Minister for Australia in the United States, 24 April 1944, ibid., pp.275-277.
State Department summary of Evatt’s statement to House of Representatives, 8 September 1944, USNA: RG59, 847.00/9-1244.
Ibid. See also Bell, Unequal Allies, pp.158-159.
‘Australian-New Zealand Conference, Wellington: Informal background notes prepared by the NZ Department of External Affairs for diplomatic posts abroad’, n.d., NZNA: EA2 1945/17b.
UKCOS paper, ‘Future of the Japanese Islands in the Pacific’, 30 March 1945, PRO: CAB96/5.
PHPS paper, ‘Future of the Japanese Islands in the Pacific’, 23 March 1945, PRO: CAB121/69; draft reply by the Chiefs of Staff to the Far Eastern Committee, n.d., ibid.
CPD, vol. 179, p.235.
Memorandum of conversation with Fraser, 6 July 1944, USNA: RG59, lot 54D226, box 17.
Memorandum of conversation on United States Relations with New Zealand, 20 April 1944, USNA: RG59, Notter file, 1312–8.
‘Australian and New Zealand Interests in the Future World Organisation: Review by the Defence Committee of the Future of the South-West Pacific Region — Regional Arrangements for Security — Defence Co-operation with New Zealand’, 24 October 1944, NAA: A1066/1 245/6/1; Wellington conference paper,’ security — in relation to the South Pacific’ (paper submitted by New Zealand delegation), October 1944, NAA: A3300/2 5; NZCOS minutes, 1 December 1944, NZNA: EA1 81/4/2a (part 4).
For example, Sir Atwell Lake, the New Zealand Chief of Naval Staff, envisaged an Anglo-Australian-New Zealand South Pacific fleet participating in exercises with the US Navy’s Central Pacific fleet. NZCOS minutes, 1 December 1944, op. cit.
Bruce to Curtin, 22 November 1944, NAA: A6494 Tl SPTS/1/2. Interestingly, the Indian government continued to worry about a ‘Nanking-Washington Axis’, which might serve to encourage Chinese economic expansion in South-East Asia. Shai, Britain and China, p. 176.
Halifax to Eden, 5 December 1944, PRO: FO954/30/589-594.
Thorne, Allies of a Kind, 456–457, 464, 596–600; Hess, The United States’ Emergence as Southeast Asian Power, p.369; Louis, Imperialism at Bay, p.567.
Reynolds, ‘H. V. Evatt’, pp.255-256.
Sbrega, Anglo-American Relations, p. 149.
Watt to Hood, 23 January 1945, NAA: A1066/1 P45/153/2 (part 1).
Halifax to Eden, 3 January 1945, PRO: FO954/30/589-594.
Balfour to Bevin, 9 August 1945, PRO: CAB122/1036.
‘Australian and New Zealand Interests in the Future World Organisation: Review by the Defence Committee of the Future of the South-West Pacific Region — Regional Arrangements for Security — Defence Co-operation with New Zealand’, 24 October 1944, op. cit.
PHPS paper,’ security of British Commonwealth and Empire interests in South-east Asia and the Pacific’, 21 February 1945, op. cit.
Horner, High Command, p.399.
Shedden to Strahan, 17 January 1945; Garnett to Strahan, 20 January 1945; Garnett to Strahan, 26 January 1945; Shedden to Strahan, 19 March 1945, all items in NAA: A1066/1 P45/136/4.
Coakley and Leighton, Global Logistics and Strategy, pp.565-567; Hayes, The History of the Joint Chiefs of Staff, pp.697-699.
USJSP report,’ south-West Pacific Area Boundaries’, 27 April 1945, USNA: RG165, ABC 323. 31, Pac. Ocean Area (1-29-42) sec. 3a, box 176.
State Department Inter-Divisional Committee on the Far East minutes, 19 May 1944, USNA: RG59, Notter file, T1197.
Note to General Lincoln, 16 May 1945, USNA: RG165, ABC 323. 31, Pac. Ocean Area (1-29-42) sec. 3a, box 176.
State Department policy paper, ‘An estimate of conditions in Asia and the Pacific at the close of the war in the Far East and the objectives and policies of the United States’, 22 June 1945, FRUS 1945, vol. 6, pp.574-580; State Department policy paper, ‘A brief estimate of situation of the United Kingdom, Australia, and New Zealand in the South Pacific on the conclusion of the war in the Far East’, n.d., USNA: RG59, lot 54D224, box 2.
Foltos, ‘The New Pacific Barrier’; Leffler, ‘The American Conception of National Security’.
Memorandum of conversation with Fraser, 6 July 1944, op. cit.
McKinnon, Independence and Foreign Policy, pp.57-62; Wood, New Zealand People at War, pp.374-379.
Plant, ‘Origins and Development of Australia’s Policy and Posture at UNCIO’, p.358.
State Department Research and Analysis Branch paper,’ survey of Australia’, 19 October 1945, USNA: RG59, R. & A 3324.6.
State Department Research and Analysis Branch paper,’ survey of New Zealand’, 31 December 1945, USNA: RG59, R. & A 3590.
Note by the Under Secretary of State for Air, ‘Provision for Commonwealth Co-ordination in Air Transport Development’, 27 May 1944, PRO: CAB87/62.
NZPMD memorandum, ‘Commonwealth Air Transport (with particular reference to Pacific), 9 October 1944, NZNA: EA2 1946/13b (part 1).
Batterbee to Shannon, 22 February 1945, RHL: Batterbee papers, 8/5.
Dobson, Peaceful Air Warfare, pp.142-146, 150–151, 160–161.
Washington to FO, 2 May 1944, PRO: AVIA2/2518; Winant to Curtin, 4 May 1944, doc. 130, DAFP, vol. 7, pp.270-271.
Minute by Cribbett, n.d., PRO: AVIA2/2518.
Brewin, ‘British Plans for International Operating Agencies for Civil Aviation’, p. 102.
McVey to Bruce, 1 July 1944, doc. 209, DAFP, vol. 7, pp.429-430.
AG to Fraser, 12 July 1944, doc. 219, ibid., pp.445-446. See also Evatt to Curtin, 26 May 1944, doc. 165, ibid., pp.349-350; NZG to AG, 16 July 1944, doc. 223, ibid., pp.449-450.
AG to DO/NZG, 20 September 1944, PRO: PREM4/5/9.
Dobson, Peaceful Air Warfare, pp.161-162.
Memorandum by Minister for Civil Aviation, 25 October 1944, PRO: PREM5/9.
Australian-New Zealand Civil Aviation discussions, 10–11 October 1944, NZNA: EA1 157/3/1 (part lb); UKHCNZ to DO, 12 October 1944, PRO: AIR19/203.
NZPMD memorandum, ‘Commonwealth Air Transport (with particular reference to Pacific), 9 October 1944, op. cit.
NZPMD memorandum, ‘Proposals for British Commonwealth [Civil Aviation] Policy and Plan by Australian Director-General of Civil Aviation’, 24 July 1944, NZNA: EA1 157/3/1 (part lb).
Draft cablegram, ‘Australia’s plan for international services’, 26 September 1944, ibid.
AG to DO/NZG, 20 September 1944, PRO: PREM4/5/9.
War Cabinet memorandum, ‘Commonwealth Conference on Civil Aviation, October 1944’, 8 November 1944, ibid. Johnston to McVey, 25 October 1944, doc. 329, DAFP, vol. 7, pp.614-615; Drakeford to Evatt, 8 November 1944, doc. 341, ibid., pp.636-637.
War Cabinet memorandum, ‘Commonwealth Conference on Civil Aviation, October 1944’, 8 November 1944, op.cit.
Drakeford to Forde, 9 November 1944, doc. 342, DAFP, vol. 7, pp.638-639.
Dobson, Peaceful Air Warfare, pp.164-165.
Ibid., pp.165-170.
U.K. War Cabinet minutes, 22 November 1944, PRO: CAB65/48.
DO comments on notes of discussion with BOAC, 14 August 1944, PRO: BT245/65.
Note of conclusions of a discussion held on 14 August 1944 with BOAC on provisional plans for postwar air routes, PRO: BT245/65; notes of discussion on 28 September 1944 on provisional plans for postwar air routes, ibid.; Commonwealth Air Conversations: Committee on Operation of Military Routes, 27 October 1944, ibid.
Drakeford to Forde, 13 December 1944, doc. 373, DAFP, vol. 7, pp.688-692; NZDEA memorandum, ‘Commonwealth Air Conversations: Operation of Intra-Commonwealth Air Routes’, February 1945, NZNA: EA2 1946/13b (part 1).
Commonwealth Air Conversations: Committee on Operation of Military Routes, 27 October 1944, PRO: BT245/65; Memorandum, Post-War Air Routes, 14 October 1944, ibid.
Barclay to NZMEA, 18 July 1944, NZNA: EA1 63/5/3 (part 1); State Department memorandum, ‘The Anzac Zone of Defence’, 21 June 1944, USNA: RG 59, Notter file, 1520-H-182; notes on the Australian-New Zealand Conference, November 1944, NAA: A6494 T1 SPTS/1/2; JCS memorandum, ‘United States Post-War Military Requirements in Areas Under the Control of New Zealand’, 12 August 1944, USNA: RG 165, box 168, ABC 686 (6 Nov. 43) sec. 10.
Roosevelt to Churchill, 27 November 1944, Kimball (ed.), Churchill-Roosevelt Correspondence, vol. 3, p.417. See also Day, ‘P. G. Taylor and the Alternative Pacific Air Route’.
NZPMD memorandum, ‘Air Force Stations — Cook Islands and Samoa’, 25 August 1944, NZNA: EA 1 110/3/10.
PHPS paper,’ security of British Commonwealth and Empire interests in South-East Asia and the Pacific’, 21 February 1945, op. cit.; FO memorandum, ‘Future of the Japanese Islands in the Pacific’, 30 March 1945, PRO: CAB96/5; PHPS paper, ‘Future of the Japanese Islands in the Pacific’, 23 March 1945; draft reply by the UKCOS to the Far Eastern Committee, n.d., op. cit.
Wellington conference paper,’ security — in relation to the South Pacific’ (paper submitted by New Zealand delegation), October 1944, op. cit.
‘Australian and New Zealand Interests in the Future World Organisation: Review by the Defence Committee of the Future of the South-West Pacific Region — Regional Arrangements for Security — Defence Co-operation with New Zealand’, 24 October 1944, op. cit.; Wellington conference paper, ‘Australian and New Zealand Interests in World Organisation’ (paper submitted by Australian delegation), October 1944, op. cit.
Johnson to Stewart, 12 October 1944, LC: Johnson papers, box 68.
See AG to Cranborne, 1 June 1944, doc. 178, DAFP, vol. 7, pp.378-381.
D’Alton to Evatt, 8 June 1944, NAA: A4231/2 1944/Wellington (part 1).
Long to Hodgson, 18 July 1944, NAA: A989 44/825/1; Mcintosh to Berend-sen, 1 August 1944, NZNA: EA 2 1945/6a.
Notes on points which emerged in Australian-New Zealand ministerial talks in Wellington, November 1944, NAA: A6494 Tl SPTS/1/2.
‘Australian-New Zealand Conference, Wellington: Informal background notes prepared by the NZ Department of External Affairs for diplomatic posts abroad’, n.d., op. cit.
See Hayes, The History of the Joint Chiefs of Staff, pp.697-699.
Foltos, ‘The New Pacific Barrier’, pp.321-322.
Stimson to President, 10 September 1945, HSTL: Truman papers, WHCF: CF 29.
D’Alton to Evatt, 3 June 1944, doc. 181, ibid., pp.384-386; Sinclair, Walter Nash, p.243.
Beasley to Evatt, 8 June 1944, doc. 187, DAFP, vol. 7, pp.392-393; Full Cabinet Submission by Chifley and Evatt, 10 June 1944, doc. 191, ibid., pp.396-397; Strahan to Evatt, 14 June 1944, doc. 194, ibid., pp.402-403; Sinclair, Walter Nash, pp.241-243.
Report by Melville on discussions at United Nations Monetary and Financial Conference at Bretton Woods, USA, 1–22 July 1944, doc. 260, DAFP, vol. 7, pp.495-508.
Memorandum by Tange,’ supplementary Notes on the Monetary Conference’, 1 August 1944, doc. 242, ibid., pp.467-470.
White slammed the Australians: ‘they have displayed what impressed us as wanting something and not wanting to give up anything’. Note of a discussion at Bretton Woods, 20 July 1944, FDRL: Morgenthau papers, R/217.
Strahan to Evatt, 14 June 1944, doc. 194, DAFP, vol. 7, pp.402-403.
Melville to Evatt and Chifley, 15 July 1944, doc. 224, ibid., pp.450-451; Melville to Evatt and Chifley, 21 July 1944, doc. 234, ibid., p.459.
AG to Melville, 17 July 1944, doc. 225, DAFP, vol. 7, p.451; Evatt to Dixon, 18 July 1944, doc. 226, ibid., p.452; report by Melville on discussions at United Nations Monetary and Financial Conference at Bretton Woods, USA., 1–22 July 1944, op. cit.
Note on Bretton Woods discussions, ‘Fund: Australia’, 20 July 1944, FDRL: Morgenthau papers, R/217.
Bell, Testing the Open Door Thesis in Australia’, pp.297-298; Ickes, Search for Solvency, p. 163; Curtin to Cranborne, 22 July 1944, doc. 232, DAFP, vol. 7, p.457.
Report by Melville on discussions at United Nations Monetary and Financial Conference at Bretton Woods, USA, 1–22 July 1944, op. cit.
Sinclair, Walter Nash, p.243.
Memorandum by Tange,’ supplementary Notes on the Monetary Conference’, 1 August 1944, op. cit.
Cabinet Submission by Chifley, ‘Bretton Woods Monetary Proposals’, 24 September 1945, doc. 263, DAFP, Vol. 8, pp.440-442.
Sinclair, Walter Nash, p.245.
State Department memorandum, ‘The Position of Australia Today’, 20 October 1944, USNA: RG59, Notter file, 1090-CAC-295.
DO note on the terms of trade with New Zealand, 2 February 1944, PRO: T160/1184 (F. 12715/8); note of conversation with Dr Campbell and other representatives of New Zealand, 1 March 1944, ibid.; BoT memorandum, ‘Imports into New Zealand from UK, USA and other sources’, 7 March 1944, PRO: T160/1184 (F.12715/9); Anderson to Nash, 1 April 1944, ibid.; NZG to NZHCUK, April 1944, ibid.
Fraser to Chancellor, 28 June 1944, PRO: T160/1184 (F.12715/10).
State Department memorandum, ‘New Zealand’s Foreign Relations’, 30 May 1944, USNA: RG59, Notter file, 1230-CDA-319. See also Patton to Secretary of State, 25 July 1945, WNRC: RG84, Wellington Legation, general files, 631; and Keane to Curtin, 6 July 1944, doc. 216, DAFP, vol. 7, pp.438-443.
Notes on informal talk with Fowler [and Fuqua] by Berendsen, Fisher and Turner, 18 October 1944, NAA: A4231/2 1944/Wellington (part 2).
J. R. to Stewart, 1 June 1944, LC: Johnson papers, box 68.
Minter to Stewart, 6 December 1944, WNRC: RG84, Canberra Legation, confidential files, 800.
Memorandum by Hawkins of conversation with Fraser and Berendsen, 6 July 1944, USNA: RG59, 847H.50/7-644.
Fraser to AG, 7 November 1944, doc. 337, DAFP, vol. 7, pp.626-631; D’Alton to Evatt, 31 January 1945, doc. 19, DAFP, vol. 8, pp.29-32.
J. R. to Stewart, 1 June 1944, op. cit.; State Department memorandum, 3 February 1945, USNA: RG59, lot 54D224, box 5.
Memorandum by Jones, 29 August 1944, WNRC: RG84, Wellington confidential files, 710.
McMullin, Light on the Hill, pp.232-233; Sinclair, Walter Nash, p.241.
AG to Cranborne, 15 September 1944, doc. 283, DAFP, vol. 7, p.534.
Cranborne to AG, 23 October 1944, doc. 327, ibid., pp.611-13.
Notes on points which emerged in Australian-New Zealand ministerial talks in Wellington, November 1944, op. cit.
Fraser to AG, 7 November 1944, doc. 337, DAFP, vol. 7, pp.626-631; AG to Cranborne, 13 November 1944, doc. 345, ibid., pp.643-644.
UK War Cabinet minutes, 24 November 1944, PRO: CAB65/44.
Cranborne to AG, 24 November 1944, doc. 361, DAFP, vol. 7, pp.667-668; Cranborne to AG, 22 December 1944, doc. 381, ibid., pp.705-706.
Australian Legation in Washington to ADEA, 30 January 1945, doc. 18, DAFP, vol. 8, pp.28-29.
Wallace to Roosevelt, 1 December 1944, FDRL: Roosevelt papers, OF 264, box 1.
Watt to Hood, 20 February 1945, doc. 40, DAFP, vol. 8, pp.62-64.
J. R. to Stewart, 1 June 1944, op. cit.
Stettinius to President, 14 December 1944, USNA: RG59, 847H.504/12-1444; Roosevelt to Nash, 16 December 1944, FDRL: Roosevelt papers, OF 48-F, box 11.
Eggleston to ADEA, 16 March 1945, doc. 59, DAFP, vol. 8, pp.90-91.
See Hodgson to Evatt, 24 December 1944, doc. 384, ibid., p.709-711.
Halifax to FO, 19 August 1944, NAA: A6494 T1 SPTS/1/2.
Ickes, Search for Solvency, chapter 7; Woods, Changing of the Guard, pp.218-239.
Note of conversation between Hopkins and Campbell, 10 August 1944, PRO: FO115/3637.
Cranborne to AG, 19 September 1944, doc. 291, DAFP, vol. 7, pp.544-545.
Dobson, U.S. Wartime Aid to Britain, pp.196-197.
Gardner, Sterling-Dollar Diplomacy, pp. 178–179.
Morgenthau diary entry, 13 September 1944, FDRL: Morgenthau papers, microfiche card 20.
Morgenthau diary entry, 19 August 1944, FDRL: Morgenthau papers, microfiche card 17.
Woods, Changing of the Guard, pp.218-219; Gardner, Sterling-Dollar Diplomacy, pp. 150–153.
Dobson, U.S. Wartime Aid to Britain, p.200.
Ibid., p.208.
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Orders, P.G.A. (2003). Planning for Peace. In: Britain, Australia, New Zealand and the Challenge of the United States, 1939–46. Studies in Military and Strategic History. Palgrave Macmillan, London. https://doi.org/10.1057/9780230289079_6
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