Notes:
Note 1: Sumner Welles, Seven Decisions That Shaped History (New York: Harper, 1950), 180; Harley Notter, Postwar Foreign Policy Preparation, 1939-1945 (Washington: U.S. Department of State, 1949), 19. Back.
Note 2: Harley Notter, "Memorandum on United States Participation in Peacemaking at the End of the War," November 13, 1939, box 54, folder 14, Welles papers, FDRL; Notter, "Division for the Study of Problems of Peace and Reconstruction," December 12, 1939, Appendix 1, in Notter, Postwar Foreign Policy, 453-454. Back.
Note 3: "Memorandum on the House Inquiry," July 15, 1941, box 8, Notter files, RG 59, National Archives. Colonel House enlisted Isaiah Bowman, head of the American Geographical Society, Archibald Carey Coolidge, a professor of history at Harvard, and the journalist, Walter Lippmann. Back.
Note 4: Harley Notter, "Memorandum on United States Participation in Peacemaking at the End of the War," November 13, 1939, box 54, folder 14, Welles papers, FDRL; Stanley Hornbeck memorandum to Welles, November 22, 1939, box 54, folder 14, Welles papers, FDRL. Back.
Note 5: "Division for the Study of Problems of Peace and Reconstruction," December 12, 1939, in Harley Notter, Postwar Foreign Policy, 453-54; "Memorandum on the House Inquiry," July 15, 1941, box 8, Notter files, National Archives, RG 59, National Archives; Sumner Welles, Where Are We Heading? (New York: Harper, 1946), 20. Back.
Note 6: "Subcommittee on Economic Problems of the Intradepartmental Committee on Peace and Reconstruction: Program of Work," January 3, 1940, Appendix 2, in Notter, Postwar Foreign Policy, 454-455. Back.
Note 7: Notter, Postwar Foreign Policy, 20-21; "Advisory Committee on Problems of Foreign Relations: Department of State Announcement, January 8, 1940," Department of State Bulletin II, 19. Back.
Note 8: Welles to Pearson, June 8, 1933, box 146, Welles papers, FDRL; Department of State Bulletin II, (January 13, 1940), 19; "Committee on Peace and Reconstruction," box 191, Postwar Foreign Policy file, 1940-41, folder 7, Welles papers, FDRL; "Subcommittee: Organization of Peace," January 3, 1940, box 191, Postwar Foreign Policy files, 1940-41, Welles papers, FDRL; Hugh Wilson, "Memorandum on World Order," January 22, 1940, box 191, Postwar Foreign Policy files, 1940-41, folder 7, Welles papers, FDRL. Back.
Note 9: Pasvolsky to Welles, January 29, 1940, box 155, folder 2, Welles papers, FDRL; Leo Pasvolsky, "The Bases of an International Economic Program in Connection with a Possible Conference of Neutrals," January 29, 1940, box 155, folder 2, Welles papers, FDRL; "Memorandum by Hugh R. Wilson Arising From Conversation in Mr. Welles's Office, April 19 and April 26," May 1, 1940, box 191, postwar files, 1940-41, folder 7, Welles papers, FDRL; "Subcommittee: Organization of Peace," January 3, 1940, box 191, postwar files, 1940-41, folder 7, Welles papers, FDRL. Back.
Note 10: Welles to Roosevelt, January 12, 1940, President's Secretary's File 76, FDRL; Welles to Roosevelt, February 1, 1940, President's Secretary's File 76, FDRL. Back.
Note 11: "Mission to Europe," Undersecretary of State Sumner Welles file, Overall History of Department of State, Division of Historical Policy Research, Department of State, War History Branch Studies, 4E3, 6/29/D, box 1, Record Group 59, National Archives, 44; Breckinridge Long Diary, March 12, 1940, box 5, Long Papers, Library of Congress. Roosevelt may also have been seeking a bold move to aid him in his efforts to secure an unprecedented third presidential term. See, for example, Herbert S. Parmet and Marie B. Hecht, Never Again: A President Runs For a Third Term (New York: Macmillan, 1968), 31-34, as well as Bernard F. Donahoe, Private Plans and Public Dangers: The Story of FDR's Third Nomination (South Bend, IN: University of Notre Dame Press, 1965). Back.
Note 12: Pasvolsky to Welles, February 14, 1940, box 155, folder 2, Welles papers, FDRL; "The Bases of the Economic Foreign Policy of the United States," February 1940, box 155, folder 4, Welles papers, FDRL; Hull to Welles, February 15, 1940, box 155, folder 2, Welles papers, FDRL. Back.
Note 13: See, for example, Frederick W. Marks, Wind Over Sand: The Diplomacy of Franklin Roosevelt (Athens: University of Georgia Press, 1988), 153-160; Arnold A. Offner, "Appeasement Revisited: The United States, Great Britain, and Germany, 1933-1940," Journal of American History 64:2 (September 1977): 384-393; William Langer and S. E. Gleason, The Challenge to Isolation: The World Crisis of 1937-1940 and American Foreign Policy (New York: Harper, 1952), 363-370. Back.
Note 14: See Stanley E. Hilton, "The Welles Mission to Europe, February-March 1940: Illusion or Realism?" Journal of American History 58:1 (June 1971): 93-120. For more on the hope that the Italians might still have been wooed over to the Allied side, even as late as the phony war, see James J. Sadkovich, "Understanding Defeat: Reappraising Italy's Role in World War II," Journal of Contemporary History 24:1 (January 1989): 30. Back.
Note 15: See Welles's introduction in the English-language edition of Ciano's diaries, Hugh Gibson, ed., Ciano's Diaries, 1939-1943 (Garden City, NY: Doubleday, 1946); as well as Hilton, "The Welles Mission," 115, 120, and Frederick Marks, Wind Over Sand, 155. Back.
Note 16: "Relations with the President," Undersecretary of State Sumner Welles file, Overall History of Department of State, Division of Historical Policy Research, Department of State, War History Branch Studies, 4E3, 6/29/D, box 1, Record Group 59, National Archives; Roosevelt statement to press on Welles Mission, February 9, 1940, Department of State Bulletin II, 155; Sumner Welles, The Time For Decision (New York: Harper, 1944), 73-74. Back.
Note 17: Breckinridge Long Diary, January 4, 1940, March 12, 1940, box 5, Long Papers, Manuscript Division, Library of Congress Back.
Note 18: Roosevelt Statement, February 9, 1940, PSF 76, FDRL; Life, February 19, 1940; Chicago Tribune, February 10, 1940. Back.
Note 19: Welles draft of Roosevelt letter to Chamberlain, February 14, 1940, President's Secretary's File 76, FDRL; Breckinridge Long Diary, March 12, 1940, box 5, Long Papers, Manuscript Division, Library of Congress. Back.
Note 20: Cordell Hull, The Memoirs of Cordell Hull, vol. 1 (New York: Macmillan, 1948), 737-739; Newsweek, February 19, 1940. Back.
Note 21: Time, February 19, 1940; Breckinridge Long Diary, February 17, 1940, box 5, Breckinridge Long Papers, Manuscript Division, Library of Congress. Back.
Note 22: Newsweek, February 19, 1940, 16; Berle Diary, February 17, 1940, box 211, Berle Papers, FDRL. Back.
Note 23: Memorandum of Conversation with Mussolini, by Welles, February 26, 1940, Welles Report, 1940, Part I, PSF 6, FDRL; Hugh Gibson, ed., The Ciano Diaries: 1939-1943, entry for February 26, 1940, 212. Back.
Note 24: Before leaving Germany, Welles had a remarkable interview with Hjalmar Schacht, president of the Reichsbank, who told the envoy of a plot by a number of leading German generals to overthrow Hitler. Schacht also warned Welles that the atrocities being committed in Poland were "far worse than what was imagined, as to beggar description." Memorandum of Conversation with Schacht, by Welles, March 3, 1940, Welles Report, 1940, Part I, PSF 6, FDRL. Back.
Note 25: Memorandum of Conversation with Chautemps and Bonnet, by Welles, March 8, 1940, Welles Report, 1940, Part II, PSF 6, FDRL; Memorandum of Conversation with Reynaud, by Welles, March 9, 1940, Welles Report, 1940, Part II, PSF 6, FDRL; Memorandum of Conversation with Sikorski, by Welles, March 9, 1940, Welles Report, 1940, Part II, PSF 6, FDRL. Back.
Note 26: See Orville H. Bullitt, ed., For the President, Personal and Secret: Correspondence Between Franklin D. Roosevelt and William C. Bullitt (Boston: Houghton Mifflin, 1972), 402-403. Back.
Note 27: Memorandum of Conversation with Chamberlain, by Welles, March 13, 1940, Welles Report, 1940, Part II, PSF 6, FDRL. While dining at Number Ten, Welles took note that the only photograph in one room was of Mussolini. Back.
Note 28: Churchill's alleged charms remained a mystery to Welles. See the unedited version of Welles's report to the president in Welles, "Memorandum of Conversation with Churchill," March 12, 1940, Welles Report, 1940, Part II, PSF 6, FDRL. Back.
Note 29: Sumner Welles, "Italy and the Peace in Europe," March 19, 1940, Welles Report, 1940, Part II, PSF 6, FDRL. Back.
Note 30: Conclusion of Welles Report, March 19, 1940, Welles Report, 1940, Part II, PSF 6, FDRL. Back.
Note 31: New York Times, March 23, 1940, 1; New York Times, March 29, 1940, 1. Back.
Note 32: Berle Diary, March 18, 1940, Berle Papers, box 211, FDRL. Back.
Note 33: Breckinridge Long Diary, March 15, 1940, box 5, Long Papers, Manuscript Division, Library of Congress. Back.
Note 34: Life, April 8, 1940, 32; Congressional Record - Senate, April 1,1940 and April 2, 1940, (3748, 3821); Congressional Record - House of Representatives, 1940, (3969). Back.
Note 35: Reporting to Roosevelt from Paris, Bullitt used the occasion to step up his criticism of Welles: "There are, of course, a lot of defeatists in this country, including Bonnet, who attempt to make great use of Sumner's praise of Mussolini, but their campaign was cut short by Mussolini's approval of the German invasion of Denmark and Norway." See Mario Rossi, Roosevelt and the French (Westport, CT: Greenwood Press, 1993), 37. Back.
Note 36: David Reynolds, in Douglas Brinkley and David Facey-Crowther, eds. The Atlantic Charter (London: Macmillan, 1994), 134; Berle Diaries, May 8, 1940, box 211, Berle Papers, FDRL; Life, April 8, 1940, 32. Back.
Note 37: Roosevelt to Welles, May 20, 1940,PSF 76, FDRL; Welles to Roosevelt, May 24, 1940, PSF 76, FDRL; Welles to Roosevelt, May 25, 1940, PSF 76, FDRL; Gerhard L. Weinberg, A World At Arms: A Global History of World War II (Cambridge: Cambridge University Press, 1994), 505. Welles underscored this concern in a letter to the President at the height of the battle of France, and he included a translation of a Uruguayan newspaper editorial titled "Welles the Ruffian," which began with the sentence, "Sumner Welles, the ruffian, was sent by Roosevelt, the Jew, to Europe to interview the chiefs of state of the nations included directly or indirectly in this great conflict." Welles to Roosevelt, May 24, 1940, PSF 76, FDRL; Welles to Roosevelt, May 25, 1940, PSF 76, FDRL Back.
Note 38: Welles to Roosevelt, June 18, 1940, PSF 76, FDRL; Berle Diary, June 13, 1940, box 212, Berle papers, FDRL. Back.
Note 39: Harley Notter, Postwar Foreign Policy, 29-31. Back.
Note 40: Harley Notter, "Menace to the United States Through the Other American Republics of a German Victory," January 24, 1941, box 8, Notter files; Hugh Wilson to Welles, May 31, 1940, with Wilson memorandum, box 191, postwar file, 1940-41, folder 7, Welles papers, FDRL. Back.
Note 41: Roosevelt to Welles, July 16, 1940, Welles to Roosevelt, July 19, 1940, PSF 76, FDRL; "Division for the Study of Problems of Peace and Reconstruction," December 12, 1939, in Harley Notter, Postwar Foreign Policy, 453-54; "Memorandum of Conversation in Welles's office, by Wilson," April 19 and 26, 1940, in Harley Notter, Postwar Foreign Policy, 458. Back.
Note 42: "Advisory Committee on Post-War Foreign Policy: Preliminaries," no date, 1941, box 54, Notter files; "Memorandum, Pasvolsky to Welles," April 11, 1941, Appendix 7, in Harley Notter, Postwar Foreign Policy, 462; Hamilton Fish Armstrong to Welles, July 14, 1941, box 67, folder 3, Welles papers, FDRL; "Post-War Reconstruction Political Problems of Study: Assuming the Defeat of Germany," June 12, 1941, box 8, Notter files. Back.
Note 43: "Advisory Committee on Post-War Foreign Policy: Preliminaries," no date, 1941, box 54, Notter files; "Memorandum on the House Inquiry," July 15, 1941, box 8, Notter files. Back.
Note 44: "Public Relations," Undersecretary of State Welles file, Overall History of Department of State, Harold F. Gosnell, Division of Historical Policy Research, Department of State, War History Branch Studies, 4E3, 6/29/D, box 1, Record Group 59, National Archives; Sumner Welles, "An Association of Nations," July 22, 1941, speech files, box 195, Welles papers, FDRL; "Commercial Policy After the War," October 7, 1941, speech files, box 195, Welles papers, FDRL; Welles, "Wilson and the Atlantic Charter," November 11, 1941, speech files, box 195, Welles papers, FDRL. Back.
Note 45: New York Times, July 23, 1941. Back.
Note 46: "An Association of Nations," July 22, 1941, speech files, box 195, folder 2, Welles papers, FDRL. Back.
Note 47: "An Association of Nations," July 22, 1941, speech files, box 195, folder 2, Welles papers, FDRL. Back.
Note 48: New York Times, July 23, 1941. Back.
Note 49: Time, August 8, 1941. Back.
Note 50: New York Journal and American, August 2, 1941; Chicago Tribune, July 24, 1941. Back.
Note 51: Langer and Gleason believed Welles's speech deliberately foreshadowed the Atlantic Conference. See William L. Langer and S. Everett Gleason, The Undeclared War, 1940-41 (New York: Harper, 1953), 680-81; "Atlantic Conference and Charter," Welles file, Overall History of Department of State, Division of Historical Policy Research, Department of State, War History Branch Studies, 4E3, 6/29/D, box 1, RG 59, National Archives. Back.
Note 52: New York Times Magazine, August 2, 1941. Back.
Note 53: Time, August 8, 1941. Back.
Note 54: Berle Diary, July 8, 1941, Berle papers, box 213, FDRL. Back.
Note 55: Welles memorandum of conversation with Halifax, July 10, 1941, box 163, Welles papers, FDRL. Back.
Note 56: The question of self-determination in American foreign policy is discussed in William Roger Louis, Imperialism at Bay: The United States and the Decolonization of the British Empire, 1941-1945 (New York: Oxford University Press, 1978), 3-4, 79, 81,121-133. Back.
Note 57: Welles to Winant, July 14, 1941(containing text of Roosevelt message to Churchill), FRUS, 1941, vol. I, 342; Welles, The Time For Decision, 174. Back.
Note 58: Robert Sherwood, The White House Papers of Harry L. Hopkins (London: Eyre and Spottiswoode, 1947-48), I:237; Eden confided in his diary that, "the spectacle of an American President talking at large on European frontiers chilled me with Wilsonian memories." Anthony Eden, The Eden Memoirs: The Reckoning (London: Cassell, 1965), 273. Back.
Note 59: Robert Sherwood, Roosevelt and Hopkins (New York: Harper, 1948), 318, 321-322. Back.
Note 60: "Welles's presence and Hull's absence was another demonstration of Roosevelt's preference for his Undersecretary over his Secretary of State," according to Robert Dallek. See Dallek, Franklin D. Roosevelt and American Foreign Policy: 1932-1945 (New York: Oxford, 1979), 282. Theodore Wilson, the author of the most authoritative study of the Atlantic Conference, added: "Despite a persistent whispering campaign about Welles's homosexuality and the urgings of William C. Bullitt that the president fire him, FDR continued to deal with Welles and to bypass his secretary of stateas was demonstrated by the secret invitation to the Under Secretary to go to Argentina...." See Theodore A. Wilson, The First Summit: Roosevelt and Churchill at Placentia Bay, 1941 (Lawrence: University of Kansas Press, 1991), 31-32. In addition to Welles, Roosevelt's aides at the conference included his military chiefs; Harry Hopkins, who came with Churchill; and Averell Harriman, who was serving as Lend-Lease expediter. Back.
Note 61: For more exhaustive accounts see Theodore Wilson, The First Summit; Warren Kimball, The Juggler: Franklin Roosevelt as Wartime Statesman (Princeton, NJ: Princeton University Press 1991), 53-55, 132-139; David Reynolds, "The Atlantic 'Flop': British Foreign Policy and the Churchill-Roosevelt Meeting of August 1941," in Brinkley and Facey-Crowther, eds., The Atlantic Charter, 129-146; and Waldo Heinrichs, Threshold of War: Franklin D. Roosevelt and American Entry into World War II (New York: Oxford University Press, 1988), 144-161 Back.
Note 62: Memorandum by Welles of conversation with Cadogan, August 9, 1941, FRUS, 1941, vol. I, 345; Cadogan had attended the Paris Peace Conference in 1919 and had held Foreign Office responsibilities for League of Nations affairs in the 1920s and early 1930s. He was somewhat unusual in the Foreign Office in that he thought the League, despite its limitations, to be a worthwhile attempt at world government. Like Welles, Cadogan had a reputation for being cold and aloof. The assessment by Churchill's bodyguard that Cadogan was "the coldest [man] I ever encountereda real oyster," could equally have applied to Welles. Cadogan himself seemed not to have recognized this similarity. "I have hobnobbed with [Welles] a lot and have tried to get through his reserve," Cadogan told his colleagues. "It is a pity that he swallowed a ramrod in his youth." Theodore A. Wilson, The First Summit, 81. Back.
Note 63: Memorandum by Welles of conversation with Cadogan, August 9, 1941, FRUS, 1941, vol. I, 351-352. Back.
Note 64: Welles had brought with him the most recent draft of the Lend-Lease Consideration Agreement, and hoped to discuss with Cadogan Article VII of the agreement, which sought to commit the British to the open door. See Alan P. Dobson, "Economic Diplomacy at the Atlantic Conference," Review of International Studies 10, (1984): 147-149. Back.
Note 65: After the war, Welles summarized his views on the Ottawa agreements when he wrote that "by the Ottawa Agreements, the United Kingdom had placed the final stone upon the grave of those liberal trade policiesfirst advocated by Cobden and the Manchester Schoolwhich had done so much to increase the power and wealth of the British people, and, by freely opening the British Empire to the commerce of all nations, had contributed so notably to the maintenance of world peace during the two generations prior to the First World War." Sumner Welles, Where Are We Heading? (New York: Harper, 1946), 8. Back.
Note 66: Acheson to Welles, memorandum of conversation with John Maynard Keynes, July 15, 1941, PSF 77, FDRL; Sumner Welles, "Commercial Policy After the War," October 7, 1941, speech files, Welles papers, box 195, file 2, FDRL; memorandum by Welles of conversation with Cadogan, August 9, 1941, FRUS, 1941, vol. I, 353-354. Back.
Note 67: Memorandum of conversation by Welles, August 10, 1941, FRUS, 1941, vol. I, 355-358. Back.
Note 68: Memorandum of conversation by Welles, August 10, 1941, FRUS, 1941, vol. I, 355-358. Back.
Note 69: Memorandum of conversation by Welles, August 10, 1941, FRUS, 1941, vol. I, 355-358; Welles to Hull, August 6, 1941, FRUS, vol. III, 181. Back.
Note 70: Memorandum of conversation by Welles, August 10, 1941, FRUS, 1941, vol. I, 356-358. See Louis, Imperialism at Bay, 123. Back.
Note 71: Memorandum of conversation by Welles, August 10, 1941, FRUS, 1941, vol. I, 356-358. Back.
Note 72: Memorandum of conversation by Welles, August 10, 1941, FRUS, 1941, vol. I, 361; Notter and Rothwell, "History of Negotiations with Respect to Point Four of the Atlantic Charter," September 11, 1941, box 13, Atlantic Charter file, Notter files. Back.
Note 73: Memorandum of conversation by Welles, August 10, 1941, FRUS, 1941, vol. I, 362-363; Llewellyn Woodward, British Foreign Policy in the Second World War, vol. II, 200. Back.
Note 74: Memorandum of conversation by Welles, August 10, 1941, FRUS, 1941, vol. I, 362. Back.
Note 75: Memorandum of conversation by Welles, August 10, 1941, FRUS, 1941, vol. I, 363; for the British record of discussions with Welles over the Ottawa Agreements see CAB 66/18 WP(41) 202, August 20, 1941, memorandum by Churchill on discussions at Atlantic Conference; and CAB 66/18 WP(41) 203, August 18, 1941, "Conference Between the Prime Minister of the United Kingdom and President of the United States," Public Record Office. Back.
Note 76: Memorandum of conversation by Welles, August 10, 1941, FRUS, 1941, vol. I, 363. Back.
Note 77: Memorandum of conversation by Welles, August 10, 1941, FRUS, 1941, vol. I, 365-366. Back.
Note 78: Memorandum of conversation by Welles, August 11, 1941, FRUS, 1941, vol. I, 364-365; Notter and Rothwell, "History of Negotiations with Respect to Point Four of the Atlantic Charter," September 11, 1941, Atlantic Charter file, box 13, Notter files. Back.
Note 79: This may have been as the president intended, believing all along that American aims would ultimately be realized without the kind of pressure Welles sought to apply to the British. See Lloyd C. Gardner, "The Atlantic Charter: Idea and Reality, 1942-1945," in The Atlantic Charter, ed. Douglas Brinkley and David Facey-Crowther (London: Macmillan, 1994), 50-51. Some have interpreted the Atlantic Conference as a complete failure for American aims. See Alan Dobson, "Economic Diplomacy at the Atlantic Conference," in Brinkley and Facey-Crowther, 143-163. Back.
Note 80: "Joint Statement by President Roosevelt and Prime Minister Churchill, August 14, 1941," FRUS, 1941, I, 367-368. Back.
Note 81: For an account of the meaning of the Atlantic Charter from London's perspective, see David Reynolds, "The Atlantic 'Flop,'" 130. Back.
Note 82: See Reynolds, "The Atlantic 'Flop,'" 146. Back.
Note 83: Elliott Roosevelt, As He Saw It (New York: Duell, Sloan and Pearce, 1946), 39. Although Elliott Roosevelt assumed Welles had created a draft of the charter in Washington, this was not the case. Back.
Note 84: Sumner Welles, "Wilson and the Atlantic Charter," November 11, 1941, speech files, box 195, folder 2, Welles papers, FDRL. Back.
Note 85: Louis, Imperialism at Bay, 122; Welles, "Wilson and the Atlantic Charter,", November 11, 1941, speech files, box 195, folder 2, Welles papers, FDRL. Back.
Note 86: Warren F. Kimball, The Juggler, 17. Back.
Note 87: For the contrary view that the Atlantic Charter "quickly took on a life of its own, unanticipated by those who drafted it," see David Reynolds, "The Atlantic 'Flop,'" 130. Back.
Note 88: "The Atlantic Charter and National Independence," November 13, 1942, Atlantic Charter file, box 13, Notter files; "Memorandum on Official Statements of Post-War Policy," January 3, 1942, Division of Special Research, Department of State, box 8, Notter files. Back.
Note 89: See, for example, Joseph S. Nye, Jr., "What New World Order?" Foreign Affairs 71:2 (Spring 1992), 83. Back.
Sumner Welles, Postwar Planning, and the Quest for a New World Order, 1937-1943
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