The American delegation has consistently upheld and will continue to insist on complete implementation of the Marshall-Molotov agreements which guarantee wide-scale participation of Korean democratic parties and social organizations in consultation and freedom of expression of opinion by all Koreans.

The Joint Commission is continuing its meetings in an attempt to resolve these basic differences.

7. Further attempt to resolve differences by diplomatic means; proposal for four-power conversations on the Moscow agreement

Letter of Acting Secretary of State Lovett of August 26, 1947 (excerpt):

For almost two years the Government of the United States has devoted its utmost efforts to carrying out the terms of the Moscow agreement on Korea. The present stalemate in the Joint Commission negotiations and the failure of that Commission to accomplish even the first task of its mission have made it abundantly clear to all that bilateral negotiations on the subject of consultation with Korean political parties and organizations will only serve to delay the implementation of this agreement and defeat its announced purpose of bringing about early independence for Korea. The United States Government cannot in good conscience be a party to any such delay in the fulfillment of its commitment to Korean independence and proposes that the four powers adhering to the Moscow agreement meet to consider how that agreement may be speedily carried out.

The United States Government therefore submits for the consideration of your government the enclosed outline of proposals designed to achieve the aims of the Moscow agreement on Korea. The United States Government proposes that these suggestions be considered at an early date by the powers adhering to that agreement. It is, therefore, hoped that the Soviet Chargé d'Affaires at Washington or an authorized deputy may be designated to participate in four-power conversations on this problem at Washington beginning on September 8, 1947.

United States proposals regarding Korea

1. In both the U. S. S. R. and United States zones of Korea there shall be held early elections to choose wholly representative provisional legislatures for each Voting shall be by secret, multiparty ballot on a basis of universal suffrage, and elections shall be held in accordance with the laws adopted by the present Korean legislatures in each zone.

zone.

2. These provisional zonal legislatures shall choose representatives in numbers which reflect the proportion between the populations of the two zones, these representatives to constitute a national provisional legislature. This legislature shall meet at Seoul to establish a provisional government for a united Korea.

3. The resulting Provisional Government of a United Korea shall meet in Korea with representatives of the four Powers adhering to the Moscow agreement on Korea to discuss with them what aid and assistance is needed in order to place Korean independence on a firm economic and political foundation and on what terms this aid and assistance is to be given.

4. During all the above stages the United Nations shall be invited to have observers present so that the world and the Korean people may be assured of the wholly representative and completely independent character of the actions taken. 5. The Korean Provisional Government and the powers concerned shall agree upon a date by which all occupation forces in Korea will be withdrawn.

6. The provisional legislatures in each zone shall be encouraged to draft provisional constitutions which can later be used as a basis for the adoption by the national provisional legislature of a constitution for all of Korea.

7. Until such time as a united, independent Korea is established, public and private Korean agencies in each zone shall be brought into contact with international agencies established by or under the United Nations and the presence of Korean observers at official international conferences shall be encouraged in appropriate cases

Reply of Foreign Minister Molotov of September 4, 1947 (excerpt): The Soviet Government considers inexpedient your proposal to submit the question of the establishment of a provisional Korean democratic government to the consideration of the Governments of the four countries inasmuch as the Joint Commission is still far from exhausting all its possibilities for working out

agreed recommendations, which is entirely possible. The "United States proposals concerning Korea" set forth in Mr. Lovett's letter are also unacceptable. These proposals cannot fail to entail the further division of Korea inasmuch as they envisage the establishment of separate provisional legislative assemblies in the south and in the north Korea (in the Soviet and American zones) whereas the vital task is to achieve as rapidly as possible the establishment of a single, even though provisional, organ of authority-the General Korean Provisional Democratic Government. The American proposal does not correct the situation now existing in Korea-the division of the country into two zones, to the liquidation of which all efforts should be directed-but on the contrary consolidates this abnormal situation.

Having in mind that the proposal for the consideration of the question of Korea in a joint conference of the representatives of the four powers does not stem from the Moscow decision of the three Ministers for Foreign Affairs concerning Korea, and taking into consideration the views set forth above the Soviet Government sees no possibility of accepting the proposals advanced in Mr. Lovett's letter.

8. Proposal for withdrawal of troops

Letter of Foreign Minister Molotov of October 9, 1947 (excerpt):

The position of the United States of America delegation has made impossible the formation of a provisional Korean democratic government in accordance with the Moscow agreement, which hinders the reestablishment of Korea as a united democratic state.

In view of the situation which had been created the Government of the U. S. S. R. instructed the Soviet delegation to introduce in the Joint Commission at Seoul a new proposal, namely: To give to the Koreans the possibility of forming a government themselves, without aid and participation on the part of the United States of America and the Soviet Union, on condition that American and Soviet troops be withdrawn from Korea. If the Government of the United States of America should agree to the proposal for the withdrawal from Korea of all foreign troops at the beginning of 1948, the Soviet troops would be ready to leave Korea simultaneously with the American troops.

Notwithstanding the fact that this proposal was introduced by the Soviet delegation at the session of the Joint Commission on September 26, the United States of America delegation has unfortunately not replied to date, which cannot fail to delay the solution of the Korean question.

Reply of Acting Secretary of State Lovett of October 18, 1947 (excerpt):

The Secretary of State announced on September 17 that the problem of setting up an independent Government for a unified Korea would be presented to the General Assembly of the United Nations and on September 23 the General Assembly voted to place this question on its agenda. In the opinion of the United States Government the question of withdrawal of occupation forces from Korea must be considered an integral part of the solution of that problem.

In view of the continued inability of the Soviet and United States delegations in the Joint Commission to agree on how to proceed with their work and the refusal of the Soviet Government to participate in discussions on this problem with the other governments adhering to the Moscow agreement on Korea, the United States Government considers it is obligated to seek the assistance of the United Nations in order that, as the Secretary of State said on September 17, "the inability of two powers to reach agreement" should not further delay the early establishment of an independent, united Korea.

D. THE UNITED NATIONS AND THE KOREAN PROBLEM

1. The choice before the United States

Committee on Foreign Affairs, House Report No. 962 (81st Cong.) (excerpt):

The situation confronting this Government as a result of the Soviet refusal to cooperate in formulating a just and mutually acceptable solution presented three 69597-50-3

logically possible peaceful courses: To abandon all of Korea to the Soviets; to go to the other extreme and establish what would be in effect a United States protectorate over South Korea; or to provide the people of South Korea with sufficient assistance and support to enable them to progress through their own efforts toward their goal of freedom and independence, while at the same time allowing the United States progressively to reduce its commitment of men and money in Korea. The third course was the one determined upon-for it alone was compatible with American traditions and interests and with the obligations of this country to the Korean people.

2. Placing the issue before the General Assembly

Committee on Foreign Affairs, House Report No. 962 (81st Cong.) (excerpt):

This course involved laying the issue before the United Nations as the only appropriate avenue through which to reestablish Korea as an independent political entity. The first step in this direction was taken a month before the above-cited rejection of the Soviet suggestion of mutual withdrawal of forces. On September 17, 1947, the Secretary of State told the General Assembly of the United Nations: * * * It appears evident that further attempts to solve the Korean problem by means of bilateral negotiations will only serve to delay the establishment of an independent, united Korea.

It is, therefore, the intention of the United States Government to present the problem of Korean independence to this session of the General Assembly. Although we shall be prepared to submit suggestions as to how the early attainment of Korean independence might be effected, we believe that this is a matter which now requires the impartial judgment of the other members. We do not wish to have the inability of two powers to reach agreement delay any further the urgent and rightful claims of the Korean people to independence.”

3. The United States proposal and the Soviet position

Committee on Foreign Affairs, House Report No. 962 (81st Cong.) (excerpt):

The United States proposal.-The United States' position in the study of the problem by the First Committee was stated in a draft resolution recommending the following: (a) Elections in the two occupation zones of Korea by March 31, 1948. under observation of the United Nations "as the initial step leading to the creation of a National Assembly and the establishment of a National Government of Korea"; (b) creation of a national security force by the Korean National Government immediately upon its establishment, early transfer to that Government of the governmental functions exercised by the occupying powers, and early arrangements between it and the occupying powers for the withdrawal of their forces; (c) creation of a United Nations Temporary Commission on Korea to oversee the elections and to be available for consultation on each of the steps proposed for developing self-rule in Korea and the end of occupation in that country.

The Soviet position.-The Soviet contention reiterated the position that the United States alone had violated the Moscow agreement and had blocked the independence of Korea. It viewed the Korean question as one concerning the peace terms and, therefore, beyond the jurisdiction of the United Nations. It offered a counter proposition for mutual withdrawal of occupying troops as the first step and organization of a national government as the second.

4. Action of the General Assembly

Resolution of November 14, 1947 (excerpts):

A

INASMUCH AS the Korean question which is before the General Assembly is primarily a matter for the Korean people itself and concerns its freedom and independence, and

RECOGNIZING that this question cannot be correctly and fairly resolved without the participation of representatives of the indigenous population,

The General Assembly

1 Resolves that elected representatives of the Korean people be invited to take part in the consideration of the question;

2. Further resolves that in order to facilitate and expedite such participation and to observe that the Korean representatives are in fact duly elected by the Korean people and not mere appointees by military authorities in Korea, there be forthwith established a United Nations Temporary Commission on Korea, to be present in Korea, with right to travel, observe, and consult throughout Korea.

1. Decides that the Commission shall consist of representatives of Australia, Canada, China, El Salvador, France, India, Philippines, Syria, Ukrainian Soviet Socialist Republic;

2. Recommends that the elections be held not later than 31 March 1948 on the basis of adult suffrage and by secret ballot to choose representatives with whom the Commission may consult regarding the prompt attainment of the freedom and independence of the Korean people and which representatives, constituting a National Assembly, may establish a National Government of Korea. The number of representatives from each voting area or zone should be proportionate to the population, and the elections should be under the observation of the Commission;

3. Further recommends that as soon as possible after the elections, the National Assembly should convene and form a National Government and notify the Commission of its formation;

4. Further recommends that immediately upon the establishment of a National Government, that Government should, in consultation with the Commission: (a) constitute its own national security forces and dissolve all military or semimilitary formations not included therein: (b) take over the functions of government from the military commands and civilian authorities of north and south Korea, and (c) arrange with the occupying Powers for the complete withdrawal from Korea of their armed forces as early as practicable and if possible within ninety days; 5. Resolves that the Commission shall facilitate and expedite the fulfilment of the foregoing programme for the attainment of the national independence of Korea and withdrawal of occupying forces, taking into account its observations and consultations in Korea. The Commission shall report, with its conclusions, to the General Assembly and may consult with the Interim Committee (if one be established) with respect to the application of this resolution in the light of developments;

6. Calls upon the Member States concerned to afford every assistance and facility to the Commission in the fulfilment of its responsibilities;

7. Calls upon all Members of the United Nations to refrain from interfering in the affairs of the Korean people during the interim period preparatory to the establishment of Korean independence, except in pursuance of the decisions of the General Assembly; and thereafter, to refrain completely from any and all acts derogatory to the independence and sovereignty of Korea.

5. Frustration of the Temporary Commission

Committee on Foreign Affairs, House Report No. 962 (81st Cong.) (excerpt):

The United Nations Temporary Commission on Korea arrived in South Korea on January 8, 1948. It held its first meeting on January 12. North Korea was barred to it. The Soviet Commander in that area refused to even receive a communication suggesting an appointment for a courtesy call. The Ukrainian Soviet Socialist Republic, which had been designated to have a representative on the Temporary Commission, failed to send one. Efforts to elicit cooperation

from the Soviet authorities in Korea and from the Government of the Ukrainian Soviet Socialist Republic met only with rebuffs which reiterated the negative position of the Soviet Government in the General Assembly.

6. South Korean elections

Committee on Foreign Affairs, House Report No. 962 (81st Cong.) (excerpt):

On February 11, 1948, the Temporary Commission officially recognized the frustration of its objectives. It referred to the Interim Committee of the United Nations General Assembly the question of what to do next. On February 26,

1948, the Interim Committee instructed the Temporary Commission to proceed to carry out the United Nations program "in such parts of Korea as are accessible to the Commission." On February 29, 1948, the Temporary Commission announced that it would

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observe elections in such parts of Korea as are accessible to the Commission, not later than May 10, 1948, according to the terms of reference of the Resolutions of the General Assembly, and taking into account the recommendations made by the Interim Committee as to the conditions to be fulfilled for such elections, namely, 'that the elections to be held on the basis of adult suffrage and by secret ballot,' and in 'a free atmosphere wherein democratic rights of freedom of speech, press, and assembly would be recognized and respected.'

Conditions surrounding the election.-Responsibility for planning and preparing the mechanical details of the election was that of the United States military government. The spirit in which the electoral arrangements were made was indicated in a proclamation by the commanding general of United States forces calling upon all Koreans to support the election as

""* * * the greatest opportunity of all time for all Koreans to demonstrate that they can completely handle their own affairs in a democratic manner and can conduct fair and free elections under laws developed by Koreans themselves." The United Nations Temporary Commission on Korea maintained close touch with the United States headquarters and closely observed the situation in the field. It freely advised the United States commander regarding the conditions necessary to establish "a free atmosphere wherein democratic rights of freedom of speech, press, and assembly would be recognized and respected." It summed up its preliminary field observations with a finding that these conditions had been met. Following the election, and after minute study of all the evidence adduced by its observations before and during the balloting, the Temporary Commission recorded (resolution of June 25, 1948)

66* * * its opinion that the results of the ballot of May 10, 1948, are a valid expression of the free will of the electorate in those parts of Korea which were accessible to the Commission and in which the inhabitants constituted approximately two-thirds of the people of all Korea."

For their first democratic election approximately 75 percent of the eligible voters in South Korea had registered, and on election day, May 10, 1948, an estimated 95.2 percent of these cast their ballots. The fact that elections were held was a significant achievement of the collaboration among the United States authorities, the Korean people, and the representatives of the United Nations, for Communist elements in South Korea and Soviet authorities and their Korean followers in North Korea had spared no effort to obstruct the election. The obstructive efforts included large-scale terrorism and violence and a threat (carried out 4 days after the election) to shut off electric power supplied to South Korea from North Korea.

7. Establishment of Government-the National Assembly

Department of State, "Korea, 1945 to 1948," Publication 3305 (excerpt):

The representatives elected by the Korean people in the May 10 election convened as the National Assembly for the first time on May 31, 1948, and elected as chairman Syngman Rhee. In his inaugural speech Dr. Rhee expressed regret that the Koreans in the northern zone had not been permitted by the U. S. S. R. to participate in the May 10 election held in partial fulfillment of the November 14, 1947 resolution of the United Nations General Assembly and directed attention to the fact that seats proportionate in number to the population-about one-third of the entire population-had been left vacant for the later participation of the people of the northern zone. Following the selection of two vice chairmen, the National Assembly took up the major tasks before it in the establishment of an independent Korean government. It established rules of procedure, organized its committees, and set up a liaison system with the United Nations Temporary Commission on Korea and the United States military government. The National Assembly carried on its activities in extremely orderly and democratic fashion and with intense enthusiasm and purposefulness.

The United Nations Temporary Commission on Korea on June 10 informed the National Assembly, which had sought close consultative contact with the Commission, that it was prepared to consult with the National Assembly with respect to the implementation of the General Assembly resolutions. On June 12, in a further effort to promote unification, the National Assembly again appealed to the