British Proposal Regarding the Austrian-Yugoslav Frontier
Yalta, February 10, 1945
Top secret
British Statement on Austro-Yugoslav Frontier
If the British proposals for the allocation of zones of occupation in Austria are approved, the whole length of the Austro-Yugoslav frontier will be a British responsibility. This may involve us in difficulties with Yugoslavia because though the Yugoslav Government have not so far asked for any alteration of the Styrian portion of this frontier they have advanced claims to Klagenfurt and those parts of Carinthia which they failed to obtain under the plebiscite held in 1919. Action may be required to resist Yugoslav efforts to assert these claims and to secure the withdrawal of Yugoslav partisans who in the course of operations may well advance into Carinthia and establish control over it. It would be invidious for HMG to be solely responsible for such action and after our experiences in Greece we must try to prevent British troops from becoming involved in fighting with Allied partisans. We hope, therefore that an agreement might be reached between the three powers for the maintenance of the 1937 Austro-Yugoslav frontier pending the final territorial settlement and for joint measures to ensure its maintenance and observance by Yugoslavia.
It is therefore suggested we should agree at the present conference:
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(a) that pending the final peace settlement the 1937 frontier between Austria and Yugoslavia shall be restored.
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(b) that the integrity of this frontier is the joint interest of the three powers, and that the USSR and the USA will support any action which HMG may see fit to take to preserve its integrity.
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(c) that the three powers should jointly inform the Yugoslav Government of decisions (a) and (b) above and request the Yugoslav Government to give an undertaking to preserve this frontier.
British Proposal Regarding Venezia Giulia
Yalta, February 10, 1945
Top secret
Notes for the Secretaries of State in Regard to Venezia Giulia
I should like to draw the attention of my colleagues to the fact that the province of Venezia Giulia in the northeast of Italy is a potential powder magazine. It is therefore likely that there will, as the war draws to a close, be clashes in this area between the Yugoslavs and the Italians, and we must prevent these outbursts to the best of our ability.
We had originally intended to set up Allied Military Government over the whole province up to the 1937 frontier but we now have doubts whether this would be a very satisfactory course for the following reasons. Tito has not yet put his views in writing but he has made it pretty clear that he will not agree to such a proposal. He certainly intends to administer himself the considerable areas which he claims for Yugoslavia and part of which are already controlled by his Partisans. Even if under extreme pressure he was forced to accept Allied (British) Military Government his Partisans would remain in arms throughout the district and it would be a miracle if sooner or later they did not obstruct our Military administration. We should then have to take forceful measures to assert our authority and fighting might begin. Alternatively, there might be clashes between the Yugoslav Partisans and the Italian Partisans, both trying to hold as much territory as they could. In that case also we should have to intervene to keep the peace by force. I would therefore ask my colleagues to agree to establish some body for the purpose of working out a provisional line of demarcation in the Venezia Giulia between the area to be controlled by Tito and the area over which we should establish Allied Military Government. We have made an attempt ourselves to draw up such a line based for the most part of ethnic considerations. But obviously we cannot jointly agree on a line now, all we can do is agree to the principle that there should be such a line and that some body of technicians should be established for the purpose of determining it. After that it would no doubt be for His Majesty’s Government to obtain Tito’s acceptance of it. But if they do this His Majesty’s Government would like to be able to say that both their Allies agree with the proposal.
Finally, I would point out that in any case, even if the area west of my suggested provisional line is allotted to Tito, it will be necessary, in the early stages at any rate, for our Supreme Commander to make use of the communications from Trieste northwards in which case he would have to take suitable measures to that end. It might later be possible for him to arrange for his communications to Austria to pass further to the west.
British Proposal Regarding the Allied Control Commission in Bulgaria
Yalta, February 10, 1945
Top secret
Allied (Soviet) Control Commission in Bulgaria
His Majesty’s Government regard it as essential (a) that their representatives in Bulgaria should enjoy reasonable freedom of movement and communication, and (b) that decisions about which they have not been consulted should not be taken in their name. In the case of Hungary, (a) has been satisfactorily dealt with in the “Statutes of the Allied Control Commission in Hungary,” and His Majesty’s Government suggest that identical Statutes should be adopted for the Control Commission in Bulgaria in order to meet the points made in the message from Mr. Eden which was delivered to M. Molotov on or about December 11, 1944.
His Majesty’s Government also consider that during the first period there should be prior consultation with the British and American representatives and that, should the Soviet Government feel obliged to take any unilateral action on military grounds not covered in the Armistice, it should be taken on their sole responsibility and in the name of the Soviet Government only.
During the second period, i.e. after the conclusion of hostilities with Germany, His Majesty’s Government wish to ensure that
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(a) The British and American representatives should take their places in the Control Commissions as full members and should have the right to attend all their meetings and to participate fully in the consideration of all questions before the Commissions. They should also have the right of direct access to the Bulgarian authorities.
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(b) Decisions of the Allied Control Commission should be unanimous and its name and authority should be used only where the representatives of all three powers are in agreement. If the Soviet High Command, being in de facto control of Bulgaria through the presence of Soviet troops, insist upon issuing directives to the local Government or taking action which has not been approved by both the British and American representatives they should act unilaterally in their own name.
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(c) The extent to which the British and Americans will share in the actual executive and administrative work of the Control Commission will be a matter to be settled on the spot. But they must certainly have the right to membership of any subcommittee or executive organ dealing with matters concerning British and American rights and property.
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(d) The detailed implications of these proposals should be worked out between the Soviet chairman and the British and American representatives on the Control Commission on the spot.
British Proposal on Yugoslav-Bulgarian Relations
Yalta, February 10, 1945
Top secret
Yugoslav-Bulgarian Relations
His Majesty’s Government recently communicated to the Soviet Government an expression of their views regarding a possible Yugoslav-Bulgarian federation. In replying to this communication, the Soviet Government informed His Majesty’s Government that they were aware that negotiations between Yugoslavia and Bulgaria for the conclusion of a pact of alliance and mutual assistance were proceeding and added that their attitude towards this was favourable. The Soviet Government, however, considered that the question of a Balkan federation, and in particular of a Yugoslav-Bulgarian federation, was not at present actual and was of no practical importance.
While His Majesty’s Government are glad to learn that the Soviet Government do not consider the question of a Yugoslav-Bulgarian federation to be actual at present and that they regard the matter as of no practical importance, they are disturbed to learn that a pact of alliance and mutual assistance between Yugoslavia and Bulgaria is under negotiation and that the attitude of the Soviet Government towards these negotiations is favourable.
His Majesty’s Government cannot but regard the pact now under negotiation as open to the same objections which they felt in regard to a possible federation. In their view an enemy state whose status is still regulated by an armistice regime must be debarred from entering into special treaty relations with another state, more particularly with another state with which she is still technically in a state of war except with the explicit permission of all the victorious Powers with whom the armistice was concluded.
Quite apart from the important question of principle involved, His Majesty’s Government are also anxious regarding the effect of the pact now under negotiation between Yugoslavia and Bulgaria upon the interests of Greece which has hitherto not received from Bulgaria the full reparation to which she is entitled under the terms of the armistice. This aspect of the matter is treated in greater detail in a separate aide-mémoire.
His Majesty’s Government accordingly consider that a communication should be made to the Bulgarian Government by all the victorious Powers with whom she recently concluded an armistice, stating that they cannot agree to her entering into special treaty relations with Yugoslavia at this stage and that full reparation must be made to Greece before there can be any question of such negotiations being resumed. His Majesty’s Government consider that Marshal Tito should simultaneously be informed of the objections seen by the victorious Powers to the conclusion of a Yugoslav-Bulgarian pact. His Majesty’s Government would be glad to learn the views of the Soviet Government upon this matter as soon as possible.
British Proposal Regarding Greek Claims on Bulgaria
Yalta, February 10, 1945
Top secret
Greek Claims Upon Bulgaria, More Particularly in Regard to Reparations
His Majesty’s Government are concerned regarding the position in regard to Greek claims against Bulgaria. On the occasion of the signature of the Armistice with Hungary, the Soviet Government informed the Czechoslovak and Yugoslav Governments that they might send representatives to be accredited to the Hungarian Control Commission for the purpose of dealing with all questions affecting their particular government.
On January 23, the Greek Government, with the support of His Majesty’s Embassy in Moscow, approached the Soviet Government with a request for facilities in Bulgaria similar to those granted to the Czechoslovak and Yugoslav Governments in Hungary. No reply has, however, yet been vouchsafed to this request by the Soviet Government.
The Greek people have suffered very seriously from Bulgarian depredations and are in the view of His Majesty’s Government entitled to early satisfaction and to immediate reparation deliveries of which Greece stands in urgent need. The Greek Government have already presented to the Bulgarian Control Commission a list of commodities necessary to the Greek economy and due to them in virtue of the Bulgarian Armistice Agreement, the delivery of which to Greece in the immediate future is essential to the maintenance of Greek economy. Deliveries which are more urgently required comprise, inter alia, food stuffs, locomotives, agricultural implements and livestock. Furthermore, in view of the decision incorporated in the Hungarian armistice terms allotting to Czechoslovakia and Yugoslavia fixed sums payable in commodities as reparations over a period of six years, it is in the view of His Majesty’s Government equitable that similar arrangements should be made to fix a lump sum due to Greece by Bulgaria to be paid similarly in commodities over a period of six years. In the view of His Majesty’s Government a corresponding sum should be allocated to Yugoslavia which has also suffered from Bulgarian occupation. In this connection his Majesty’s Government desire to make it clear that, while they are in general opposed to the fixing of lump sums for reparations to be exacted from enemy countries, they consider it only equitable, in view of the fact that lump sums have been allocated to the Soviet, Czechoslovak and Yugoslav Governments under the Rumanian, Finnish and Hungarian Armistices, that a similar lump sum should now be allocated to Greece and Yugoslavia under the Bulgarian Armistice.
His Majesty’s Government accordingly trust that the Soviet Government will accede to the proposals put to them on January 23 with the support of His Majesty’s Government concerning Greek representation on the Control Commission in Bulgaria. They further trust that the Soviet Government will agree to give explicit instructions to the head of the Control Commission in Bulgaria that immediate deliveries must be made to Greece in accordance with the terms of the armistice and that the list already presented by the Greek Government to the Soviet Government is to be taken as the basis for determining the nature and amounts of commodities to be delivered. Finally, His Majesty’s Government are of the opinion that immediate consideration should be given to the question of fixing the total Bulgarian reparation liability to Greece and Yugoslavia, if necessary in terms of money.