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September 5, 1968

Wilhelm Grewe, 'Consequences of a potential German non-signing of the NP Treaty'

Chancellor Kiesinger asked the Foreign Office after the ‘Czech crisis’ of late August 1968 to examine the “political consequences” of a “hypothetical case of a German non-signing of the Non-Proliferation Treaty.” The request was forwarded by Director-General Hans Ruete to Wilhelm Grewe, Helmut Allardt, Ambassador to the Soviet Union, and Schnippenkötter who attended the UN Conference of Non-Nuclear Weapon States in Geneva. 

In Grewe’s judgment, it would be a “benefit” for the NATO alliance, “likely even a condition of her future viability,” if the NPT were to fail. And “if it was the missing German signature which brought the NPT down,” that would lead to “a severe stress test.” But as a NATO member state Germany could “get through” it if the government was determined to “operate with effective arguments” and showed “strength”

July 15, 1968

Letter, Minister Willy Brandt to Chancellor Kurt G. Kiesinger

After 1 July 1968, when the NPT had been opened for signature, Brandt brought up the accession question in a letter to the Chancellor, arguing that the “credibility of our détente policy” depended on Germany’s stance toward the NPT, which in his review it should sign by “early autumn." Brandt’s letter mirrored arguments made previously by Georg-F. Duckwitz, who was State Secretary in the Foreign Office.

February 15, 1967

Letter, Minister Franz J. Strauß to Chancellor Kurt G. Kiesinger

In a stern letter to the Chancellor Kiesinger, the Minister of Finance Franz Josef Strauß explained that he would “fight against” the NPT. Strauß was chairman of the Bavarian CSU and had served as Minister of Defense between 1956 and 1962. His point was that a decision to accede to the treaty was unthinkable as long as he remained minister in Kiesinger’s cabinet and, hence, with the CSU participating in the ‘grand coalition’. Strauß’ letter also indicated his suspicion of Foreign Minister Willy Brandt and his disposition towards the NPT which Strauß apparently regarded as submissive.

February 28, 1967

Note from Mr. Francis Perrin, High Commissioner for Atomic Energy, 'French foreign policy in terms of atomic armaments, particularly with regard to the proliferation of this armaments'

Nonproliferation talks entered their decisive phase after the submission of a joint U.S.-Soviet draft to the ENDC on February 21, 1967. One week later, High-Commissioner of the French Commissariat à l’énergie atomique, Francis Perrin, assessed France’s options. It was not “by accident,” he noted, the original five UN Security Council permanent members—the United States, the United Kingdom, France, the Soviet Union, and China—were in line for nuclear-club membership: “…they are the same profound reasons, of a geographical, demographic or other nature, which led to the choice [in 1945] … of the countries with special responsibilities in the maintenance of world peace.” After noting how advances in “India, Israel, Japan, Sweden, and also West Germany” portended the further spread of nuclear weapons—and acknowledging France had itself sought help with its weapon program—Perrin pondered whether proliferation might hasten nuclear disarmament by convincing the superpowers of its merits. In the end, however, fear of a “large and hostile” nuclear-armed PRC made him pessimistic. While he did not advise signing the NPT, it would be “very important” for France to affirm publicly, if unilaterally, “its constant policy since 1958 … not to cede any atomic weapon or any atomic explosive device to a country which does not possess it, and not to help any such country to manufacture them.” He dismissed internal opposition toward the NPT as defensive—"an a posteriori justification of the French decision to constitute an atomic armament." More significant was the likelihood West Germany would gain its own atomic arsenal, jeopardizing France’s “dominant political position among the Europe of the Six” members of the European Communities and reviving Cold War tensions in Europe. He finished with an eye-opening analysis of how the Kosygin proposal for nuclear-weapon states to extend negative security guarantees to non-nuclear-weapon states’ signatory to the NPT would not impede the use of French nuclear armaments against a West German blitzkrieg backed by the United States.

March 18, 1968

Note for the Directorate of Political Affairs, Disarmament, 'Non-proliferation treaty: Draft resolution on non-nuclear countries guarantees'

The finalization of a completed draft nuclear nonproliferation treaty, which the ENDC transmitted to by the United Nations without endorsement on March 18, 1968, launched a French review of the NPT’s implications for international law. The draft NPT was accompanied by a proposed United Nations Security Council Resolution (UNSC), whose soft guarantees against nuclear-weapon use or threats had been a compromise workd out between Washington and Moscow. An initial study by Foreign Ministry lawyers identified numerous “juridical reasons… to fight against a project that, in its letter if not its spirit, constitutes a revision of the [UN] Charter." The report elaborated on how the hierarchization of “forms of aggression” would “downgrade” non-nuclear (i.e. conventional) violence. Non-nuclear-weapon states treaty signatories would receive non-binding security guarantees. The “Anglo-Saxons and Soviets” would maintain “freedom of action as far as what measures they choose to adopt.” Although the French government’s foremost legal experts opted not to advise vetoing the UNSC resolution, they warned the NPT package could serve as a warrant for nuclear-armed permanent members of the UN Security Council to wage “preventive war” in the name of worldwide nonproliferation.

March 15, 1960

Maurice Couve de Murville to Prime Minister Michel Debré, 'Revision of the EURATOM Treaty,'

The French decision to join EURATOM was conditioned on the regional agency not impinging on national nuclear programs. As early as 1955, French Prime Minister Guy Mollet had instructed French negotiators that “Euratom will not be an obstacle toward the possible decision of France … to build nuclear weapons.”  While EURATOM’s jurisdiction would be limited to negotiating purchases of fissile materials, promoting trade with the United States and the United Kingdom, and exchanging reactors designs and civilian technology among members of the Atlantic community, Couve de Murville credited EURATOM with a fringe benefit: monitoring West Germany. In this spring 1960 letter to Prime Minister Michel Debré about revising the treaty, he warned against the removal of EURATOM controls over raw uranium and thorium or enriched uranium. Their removal, he cautioned, would create a dilemma: “either abandon the idea that German’s renunciation of atomic armaments could be enforced or support the enforcement of equivalent controls under the West European Union, which … would interfere in the direction of our programs and the development of our nuclear weapons.”

July 10, 1968

Ministry of Foreign Affairs, Directorate of Political Affairs, Disarmament, 'Note: The treaty on the non-proliferation of nuclear weapons'

This report recounts developments at the UN First Committee from the beginning of the special session, April 24, to the plenary vote on June 12, 1968. Among the interesting observations was how the “most important resistance cell had … surprisingly developed among the Black African states,” who had sought concessions from the United States on apartheid South Africa’s mandate over South West Africa (modern-day Namibia). The report notes the various changes forced on the superpowers by Italy and Mexico on behalf of the non-nuclear-weapon delegations. The aide-memoire concluded that “[a]lthough these concessions [were] more apparent than real, they served as a pretext for a number of delegations, under intense Soviet and American pressure, to go along with the draft resolution thus revised.” The French delegate to the United Nations, Armand Berard, explained to the General Assembly on June 12 the reasons for France’s abstention. In accordance with Francis Perrin’s recommendations, Berard elaborated that although France would not sign the NPT when “the real issue was effective nuclear disarmament,” it would nonetheless pledged to behave “[e]xactly in such a way as those States which opt to adhere to it.”

March 28, 1968

Ministry of Foreign Affairs, Directorate of Political Affairs, Disarmament, 'Note: Guarantees for non-nuclear-weapon States, Draft resolution of the Security Council'

 This short research note briefly explores the case for and against vetoing the UNSC resolution. As the United States, the United Kingdom, and the Soviet Union were serving as co-sponsors, and the Republic of China on Taiwan would welcome any international measure the People’s Republic of China opposed, France was the only state in a position to veto the UNSC resolution and perhaps torpedo the NPT when the UNGA special session met in late April. If France were to abstain, it would be henceforth bound by the resolution. Even so, the report cautioned whether “a negative attitude” should outweigh “the downside of defeating a project whose intention, if not whose content, fulfills the wishes of the vast majority of non-nuclear delegations.”

March 2, 1960

Maurice Couve de Murville, 'Reflections on France’s isolated pursuit of the constitution of an autonomous “deterrent”'

This Foreign Ministry analysis was written for French Foreign Minister Maurice Couve de Murville. It spells out the obstacles facing an independent deterrent two weeks after France’s first nuclear test on February 13, 1960. The author cautions that a “minor deterrent” of a few dozen 100-kilton atom bombs loaded on vulnerable, short-range Mirage IV A fighter-bombers would cost hundreds of billions of francs. Intermediate-range ballistic missiles with which to threaten Moscow would require an additional 8-10 years and a further cost of 500 billion francs (around $100 billion in 1960). In order to match the superpowers’ thermonuclear level, that figure could rise as a high as “several trillion” over more than a decade, during which time the United States and the Soviet Union might well leapfrog the French force de dissuasion.

April 3, 1968

Ministry of Foreign Affairs, Directorate of Political Affairs, Disarmament, 'Note: The Question of the Non-proliferation of Nuclear Weapons'

This 18-page memorandum was circulated to French embassies on the eve of the special UNGA session. The report recaps the series of events leading up to the international meeting, including the early history of the treaty, through an article-by-article analysis of the treaty text’s negotiating history. After reviewing the contexts in which the treaty was negotiated, the report concluded by citing three major elements as informing the French attitude. The first was the German question and, specifically, how the NPT would internationalize West Germany’s non-nuclear status, deepening its dependence on France. The second was the positive attitude of most nations—the vast majority of which lacked the wherewithal to build nuclear deterrents—to institutionalize their neighbors’ non-nuclear-weapon status. The third and “most remarkable element” was the U.S.-Soviet joint effort, undeterred by the Vietnam War, “to consolidate the current world balance under their dual control.” French “reservations” therefore boiled down to two critiques of the emerging regime: that it would “consolidate nuclear monopolies,” namely the U.S. and Soviet power blocs, “and legalize discrimination between States.”

Pagination