Appendix A
Recommendations of the Permanent Joint Board on Defense,
Canada-United States,
26 August 19401 September 19451
FIRST RECOMMENDATION 26 August 1940 Exchange of Information
It was agreed that there should be a full and complete exchange of military, air and naval information between the two Sections of the Board, with the understanding that each Section would be free to convey to its government any information they received.
Action by U.S. Government: There appears to be no specific evidence in the files of the U.S. Section of approving or disapproving action. However, in the Progress Reports annexed to the Journal of Discussions and Decisions for the 20 21 January 1941 and subsequent meetings, members of the U.S. Section of the Board reported on the progress of action under this recommendation. It is apparent that at least informal approval was implied, or that approval had been taken for granted. This lack of evidence may be accounted for by the fact that the board at its early meetings attacked a large number of substantive problems without concerning itself adequately with procedural and administrative problems.
Action by Canadian Government: Approved, 5 September 1940.2
SECOND RECOMMENDATION 27 August 1940 Defense of Newfoundland
A. The Island of Newfoundland occupies a commanding position at the entrance of the St. Lawrence-Great Lakes waterway and on the flank of the sea route between the Atlantic seaboard of North America and Northern Europe. It is on the direct air route between the East Coast of the United States and Northern Europe. It is the point in North America, nearest to Europe, from which, if occupied by an enemy, further operations against the North American continent might be effectively initiated. As such it should be adequately defended.
B. The forces in Newfoundland now consist of one battalion of infantry for the defense of Botwood and the Newfoundland airport, a battery of two 4.7-inch guns now being
installed at Bell Island, and a flight of five Digby (Douglas) land planes operating from Newfoundland airport. These forces are considered inadequate for the defense of the island at the present time and the security of Canada and the United States is thereby endangered.
C. The Board considers that the defense of Newfoundland should be materially strengthened by:
- Increasing the strength of the Canadian defensive garrisons immediately;
- Establishing as soon as practicable, and not later than the spring of 1941, a force of aircraft of suitable types adequate for patrolling the seaward approaches to Newfoundland and Canada and for the local defense of the Botwood area;
- Selecting and preparing, as soon as practicable, bases permitting the operation of United States aircraft, when and if circumstances require, in numbers as follows:
- A minimum of four squadrons of patrol planes (48 planes).
- A minimum of one composite group of land planes (73 planes).
- Completing, as early as practicable, and not later than the spring of 1941, the installation of appropriate defense for the port of St. John's, Newfoundland, for Botwood, and for other points as required.
- Taking such additional measures as further examination of the defense problem and local reconnaissance show to be necessary.
Action by U.S. Government. See comment on First Recommendation. Insofar as portions of the first eight recommendations related to troop and matériel dispositions which had not been made by 2 October 1940, they were approved as a result of their incorporation in the First Report of the Board to the two governments. This report, reproduced at Appendix B, received formal approval on 19 November 1940. Apparently, because of this action, the 12 December 1951 List arbitrarily assigns that date as the date of United States approval of the first eight recommendations. Such an assignment is not entirely accurate since the First Report encompassed only limited portions of the first eight recommendations.
Action by Canadian Government. Approved, 5 September 1940.3
THIRD RECOMMENDATION 27 August 1940 Defense of Maritime Provinces
A. The strategic importance of the Maritime Provinces is similar to that of Newfoundland. However, in addition to providing bases for the operation of aircraft and light patrol craft, the Maritime Provinces must provide secure bases from which major naval operations can be projected.
B. This will require harbors secure from underwater attack, with docking, repair and supply facilities capable of accommodating the major portion of the United States or British fleets; operating facilities for military and naval air forces; and harbor defenses supported by the necessary troop concentrations.
C. The Board finds that some of these requirements have already been met and that steps have been initiated for the accomplishment of others.
D. It is apparent that the following should be undertaken by the Canadian Government:
- Early completion of the present projects for underwater defenses at Halifax, Sydney, Gaspé and Shelburne.
E. The Board also recommends the preparation in Canada and in the United States of adequate strategic reserves of men and materials for timely concentration in the Maritime Provinces if, and when, the need arises.
- Early completion of harbor defenses at these bases.
- Early expansion of aircraft operating facilities to include provision for four squadrons of patrol planes (48 planes) and one composite wing of approximately 200 planes.
- Such additional measures as further examination of the defense problem and local reconnaissance show to be necessary.
Action by U.S. Government: See comments on First and Second Recommendations. Portions of this recommendation were included in the First Report.
Action by Canadian Government: Approved, 5 September 1940.4
FOURTH RECOMMENDATION 27 August 1940 Allotment of Materials
It was agreed that arrangements concerted between the United States and Canadian representatives of each Service with regard to this material should be passed through the proper channels in order that the proper allocation of the material should be promptly made. It was further agreed that material provided to implement the recommendations of the Board shall not be used for any other purposes. As at present advised, the Board regarded the following classes of material as of special importance, their relative importance being in the order indicated for each Service:
Ground Forces
- A.A. armament and ammunition.
- Harbor defense armament and ammunition.
- General equipment of mobile defense.
Air Force
- Patrol planes.
- Fighter or pursuit planes with, in each case, armament, ammunition and radio equipment.
As to the Naval Forces the position as reported was that there have already been discussions which have led to arrangements under which it is expected that all present requirements are to be satisfied. These arrangements relate to:
- 4" guns.
- .5 machine guns.
- Destroyers.
The Board approved of the carrying out of these arrangements for the purpose of the attainment of the objects covered on the Board's previous decisions.
Action by U.S. Government: See comments on First and Second Recommendations.
Action by Canadian Goverment: Approved, 5 September 1940.5
FIFTH RECOMMENDATION 27 August 1940 Improving Communications in the Northeast
That the subject of communications between Newfoundland, the Maritime Provinces,
Eastern Canada and the United States, is of high importance, the following subjects requiring to be examined:
- Railway facilities.
- Water transport.
- Roads.
- Air transport and communications.
That the establishment of additional commercial airways, complete with landing facilities and aids to air navigation, between these, important areas, would be essential to the defense plan.
Action by U.S. Government: See comments on First and Second Recommendations. Portions of this recommendation were included in the First Report.
Action by Canadian Government: Approved, 5 September 1940.6
SIXTH RECOMMENDATION 27 August 1940 Production Data
That the Service Members undertake to assemble information on the production in each country of particular items of military equipment in their respective countries, not readily available in the other country, and to exchange information on this subject as data becomes available.
Action by U.S. Government: See comments on First and Second Recommendations.
Action by Canadian Government: Approved, 5 September 1940.7
SEVENTH RECOMMENDATION 27 August 1940 Joint Defense Plan
That the Service Members of the Board should proceed at once with the preparation of a detailed permanent plan for the joint defense of Canada and the United States and keep the Board informed of the progress of the work.8
Action by U.S. Government: See comments on First and Second Recommendations.
Action by Canadian Government: Approved, 5 September 1940.9
EIGHTH RECOMMENDATION 11 September 1940 Defense of Newfoundland
That the United States initiate as expeditiously as practicable such portions of the increased defense of Newfoundland, covered by the Second Recommendation of the Board approved in Ottawa on August 26 and 27, as may be found to fall within the limits of bases now being acquired by the United States.
Action by U.S. Government: See comments on First and Second Recommendations.
Action by Canadian Government: Approved, 7 October 1940.10
NINTH RECOMMENDATION 4 October 1940 German Prisoners
The Board learned from Messrs. Emerson and Penson that the Government of the United Kingdom is now arranging to send approximately one thousand captured German airmen to Newfoundland for imprisonment there and that the Newfoundland Government is now beginning the construction of barracks for this purpose about five miles inland from the shore of Conception Bay.
The Board feels strongly that the incarceration of German prisoners in Newfoundland would present a serious military hazard which might jeopardize the Defense Scheme for Newfoundland which the Board is now preparing and thus menace the safety of Canada and the United States.
In these circumstances, the Board earnestly recommends to the Canadian Government that discussions be initiated with the Governments of Newfoundland and the United Kingdom with a view to bringing about an alteration in this plan by the diversion of these German prisoners to some less dangerous destination.
Action by U.S. Government: See comment on First Recommendation.
Action by Canadian Government: Approved, 8 October 1940.11 The prisoners were diverted to a camp in Canada, and this fact was reported at the 20-21 January 1941 meeting.
TENTH RECOMMENDATION 14 November 1940 Air Staging Facilities--Western Canada
The Board recommends that, to implement the recommendation contained in its First Report to the respective governments regarding the development of air staging facilities across Western Canada between the United States and Alaska, suitable landing fields, complete with emergency lighting, radio aids, meteorological equipment and limited housing for weather, communication, and transient personnel be provided at the earliest posdate by Canada at Grand Prairie, Fort St. John, Fort Nelson, Watson Lake, Whitehorse, Prince George and Smithers.
This development will provide means for rapid movement of light bombers and fighter aircraft into Canada, into Centra Alaska via Whitehorse, and into the Ketchikan-Prince Rupert area via Smithers and is considered essential to the defense of Western Canada, Alaska and the United States. Such means are vital to the effective use in joint continental defense of both the rapidly expanding air forces of the United States and the extension of air operating facilities in Alaska.
Action by U.S. Government: See comment on First Recommendation. The First Report of the Board, which contained a less detailed recommendation for the development of such facilities, was approved by the President on 19 November 1940. (See Appendix B.)
Action by Canadian Government: Approved, 28 January 1941.12
ELEVENTH RECOMMENDATION 15 November 1940 Ucluelet Airdrome (Vancouver Island)
The Board now recommends that another airdrome be constructed at Ucluelet for the following purposes:
- To extend the operational ranges and areas of fighter aircraft and provide more advanced defense to our vulnerable positions.
- To provide bomber and fighter support to the north airdromes and towards the Queen Charlotte Islands and the West Coast up towards Prince Rupert.
- To provide an alternative landing place for bombers and fighters in a very variable weather area.
Action by U.S. Government: See comment on First Recommendation.
Action by Canadian Government: Approved, 28 January 1941.13
TWELFTH RECOMMENDATION 17 December 1940 War Industry Member
That a war industry member be appointed to the Board by each of the two Governments.
Action by U.S. Government: Approved, 26 December 1940.14
Action by Canadian Government: Approved, 20 January 1941.15
THIRTEENTH RECOMMENDATION 20 January 1941 Sault Ste. Marie
In view of the vital military importance of the Sault Ste. Marie Canals and the St. Mary's River to the defense program of the United States, and the vulnerability of the navigation channel, the Board agreed that each Government should constitute a single authority to be responsible for the safety of navigation through these waters, and that each such authority be clothed with the necessary powers and required to cooperate with the other in taking all measures necessary for the purpose.
Action by U.S. Government: Approved.16
Action by Canadian Government: Approved, 27 March 1941.17
FOURTEENTH RECOMMENDATION 21 January 1941 United States Air Units for Newfoundland
That most urgent priority should be given to the provision of facilities for at least one United States squadron of patrol planes at Halifax and one United States squadron in the Botwood area.
Action by U.S. Government: No record of action. See comment on the First Recommendation.
Action by Canadian Government: Approved, 27 March 1941.18
FIFTEENTH RECOMMENDATION 16 April 1941 Newfoundland Fuel Storage
The Board reviewed the problem of fuel supply required for aerial operations from the
Newfounland Airport and in the Lewisporte-Botwood area. Previous estimates contemplated storage for 1,600,000 gallons (of which 600,000 gallons, one month's supply, would be located at Newfoundland Airport) premised on continuous supply by rail from St. John's. It has now been determined that reliance on continuous rail supply during the winter is unsound. Facts were adduced to show that a minimum storage capacity of 2,600,000 gallons will be essential before the close of navigation in the Botwood area next winter. Discussion clearly exposed the urgency of providing the increase in capacity.
It was also pointed out that not only is the increase essential for defense operations but is equally necessary for overseas ferrying of aircraft.
It is recommended that Canada provide the increased storage capacity in accordance with the responsibility accepted by the Canadian Government.
It is further recommended that the United States Government assist in the procurement of the necessary priorities to permit this recommendation to be carried out within the time specified.
Action by. U.S. Government: Approved, 22 April 1941.19
Action by Canadian Government: Approved, 14 May 1941.19
SIXTEENTH RECOMMENDATION 17 April 1941 Rehabilitation of the Newfoundland Railroad
The Board, after consultation with Newfoundland Commissioner; after determination that the present condition and rolling stock (on hand or order) of the Newfoundland railroad are barely adequate for civilian requirements; and after full consideration of the great urgency of adequate supply prior to the winter of 1941 of United States bases and United States forces stationed outside base areas in Newfoundland recommends:
That the United States procure and retain title to such railroad rolling stock as is necessary for its military requirements in Newfoundland including possible operations from the Newfoundland Airport.
That the Newfoundland Government continue to operate the Newfoundland railroad and undertake at once the construction of additional facilities and necessary rehabilitation of the railroad outside of areas leased to the United States.
That necessary arrangements for essential financial assistance be immediately worked out between the United States and Newfoundland Governments.
That both Canada and the United States assist in the procurement of the necessary priorities required to permit this recommendation to be carried out in the time specified.
Action by U.S. Government: Approved, 22 April 1941.21
Action by Canadian Government: Approved, 14 May 1941.22
SEVENTEENTH RECOMMENDATION 29 July 1941 Northwest River Landing Field
In order to facilitate the ferrying of long and medium range aircraft across the Atlantic, to enhance the effectiveness of plans for hemisphere defense, to prevent congestion at the Newfoundland Airport and to provide greater security for crews and equipment, the Board recommends:
That the Canadian Government should undertake the construction of an air base in
the vicinity of Northwest River, Labrador, and provide the following facilities as quickly as possible.
- At least two runways, minimum 150 x 5000 feet, to enable take off and landing into prevailing winds.
- Storage facilities for 450,000 gallons aviation gasoline, for 11,250 gallons aviation oil, and for other supplies.
- Seven 100 gallon per minute gasoline pumping units for servicing aircraft.
- Technical housing and equipment as follows:
- A direction finder station.
- An aircraft radio range station.
- Instrument landing equipment.
- An airways radio station capable of communication with stations in the U.S., Canada, Newfoundland, and Greenland and with aircraft in flight, for purposes of aircraft control, forwarding and receiving weather data and airplane movement communications.
- A meteorological station.
- A maintenance hangar (heated), minimum dimensions 150 x 200 feet.
- Housing for personnel.
That if the Canadian Government should decide for any reason that it will not undertake the desired construction immediately, this decision should be made known at once to the Governments of the United States, United Kingdom and Newfoundland and that the Government of the United States be invited to provide the necessary facilities in the. area under reference.
That Governments of Canada and the United States should cooperate to make provision for the necessary priorities to permit the earliest possible completion and that the Government undertaking the project should also immediately initiate the necessary measures to insure provision of an installation suitable for safe operations from the ice in the Northwest River area during the winter of 1941-42.
Action by U.S. Government: No evidence of approval in U.S. files.
Action by Canadian Government: Approved, 18 September 1941.23
EIGHTEENTH RECOMMENDATION 29 July 1941 Underwater Defenses for Argentia
That the United States proceed with the installation of underwater defenses in the Argentia-Ship Harbor area.
Action by U.S. Government: See comment on First Recommendation.
Action by Canadian Government: Approved, 18 September 1941.24
NINETEENTH RECOMMENDATION 29 July 1941 Canadian-Alaskan Staging Fields
On the consideration of the report as to the progress being made with the construction of the Canadian Airway between Edmonton and Whitehorse, attention was directed
to the recent change in the Far Eastern situation the effect of which is to make the completion of the airway to Alaska of extreme urgency. It was pointed out that the urgent needs for air strength in Alaska may suddenly increase beyond those heretofore anticipated, that the preparation of airdromes in Alaska is being expedited by the United States as much as possible, but that large numbers of aircraft if sent there would at present be relatively isolated.
In view of this, the Board decided to invite attention to the fact that the completion of both the' Canadian and the United States sections of the airway to a point which would permit its use at the earliest possible moment had become of extreme importance and to recommend that other considerations should give way to that of completing as quickly as possible the air route which will permit the rapid reinforcement of the air strength in Alaska.
Action by U.S. Government: See comment on First Recommendation.
Action by Canadian Government: Approved, 18 September 1941.25
TWENTIETH RECOMMENDATION 30 July 1941 Newfoundland Roads
- That improvement and maintenance of road communications is recognized as essential for effective military operations in the defense of Newfoundland.
- That the Newfoundland Government should, without cost to the United States or the Canadian Government, make available the rights of way necessary for such roads as the United States or the Canadian Governments consider must be constructed for military purposes.
- That the United States and Canada should be given the right to construct and maintain such roads as each individually requires in Newfoundland for military purposes without obligation either to construct or maintain any roads.
- That Newfoundland, Canadian and United States vehicles would have use without tolls of any roads constructed by the United States or Canada in Newfoundland outside of base areas.
- That all necessary road maintenance in Newfoundland other than as provided for above should be a responsibility of the appropriate Newfoundland authorities.
Action by U.S. Government: See comment on First Recommendation.
Action by Canadian Government: Approved, 18 September 1941.26
TWENTY-FIRST RECOMMENDATION 10 November 1941 Maintenance of Facilities
Attention was directed to the question of the maintenance of the structures, etc., provided by Canada at Gander Lake for occupation by United States Forces and it was recognized that the course of events may make it convenient to permit the use by United States Forces of like facilities in both Newfoundland and Canada and also permit the use of facilities in United States by Canadian Forces. Consideration was accordingly given to the general principles which should govern the responsibilities of each country in respect of the maintenance of structures, etc., built by the Government of either which are occupied by the Forces of the other, and the Board decided to make the following 21st Recommendation:
The Board recommends that when facilities are provided by the Government of either
country for the occupation of Forces of the other the following principles should apply to the maintenance, upkeep and servicing of such facilities, subject to such local definition and if necessary modification as the circumstances require: 1. Any building constructed by the Government of one country and wholly occupied by Forces of the other should be maintained by the occupying Forces and at the termination of the occupation turned over to the Government of the country by which it was provided in the same condition as when the occupation commenced, ordinary wear and tear, act of God, enemy action, riot, insurrection or fire excepted. 2. The same rule should apply to structures appurtenant to buildings when these are included in an area capable of delimitation and occupied by the Forces concerned which should in these circumstances undertake the policing of the area. 3. The occupying Forces should also be responsible for the heating, lighting and other services relating to any building or area occupied by them in all cases in which the service is derived from a source adapted exclusively to take care of the building or area in question but in other cases the services should be provided on an equitable basis by the Government of the country by which the occupation is permitted. 4. No occupying Forces should make any structural change in existing facilities without the approval of the service by which the area is set aside for occupation or the occupied buildings are provided.
Action by U.S. Government: Approved, 14 November 1941.27
Action by Canadian Government: Approved, 26 November 1941.28
TWENTY-SECOND RECOMMENDATION 20 December 1941 Decentralization of Functions to Local Commanders
That the United States and Canadian Governments now authorize the Commanders named in paragraph 12 of ABC-22, or their duly authorized representatives, to effect by mutual agreement any arrangements they deem necessary for the perfection of preparations for the common defense including but not limited to, the installations of accessory equipment in the territory of either, the transit of armed forces, equipment or defense materials into or through the territory of either, and the utilization by either nation of the base and military facilities of the other.
Action by U.S. Government: Approved, 24 December 1941.29
Action by Canadian Government: Approved, 14 January 1942.30
TWENTY-THIRD RECOMMENDATION 20 December 1941 Co-ordination of Aviation Training Programs
That the Canadian and United States Governments should consider the advisability of arranging for a meeting of appropriate representatives of Great Britain, Canada and the United States to make appropriate recommendations for co-ordination of the entire aviation training programs to be conducted in Canada and the United States.
Action by U.S. Government: Approved, 24 December 1941.31
Action by Canadian Government: Approved, 14 January 1942.32
TWENTY-FOURTH RECOMMENDATION33 26 February 1942 Military Highway to Alaska
As its Twenty-Fourth Recommendation, the Board accordingly, as a matter pertaining to the joint defense of Canada and the United States, recommends the construction of a highway along the route that follows the general line of airports, Fort St. John-Fort Nelson-Watson Lake-Whitehorse-Boundary-Big Delta, the respective termini connecting with existing roads in Canada and Alaska.
Action by U.S. Government: Approved, 9 March 1942.34
Action by Canadian Government: Approved, 5 March 1942.35
TWENTY-FIFTH RECOMMENDATION 25-26 February 1942 Defense of Sault Ste. Marie Against Air Attack
- That the Royal Canadian Air Force undertake to make an immediate and comprehensive further study of the data available regarding the danger of air attack to the Sault Ste. Marie area.
- That the Canadian Army assign a 4-gun, heavy, antiaircraft battery to Sault Ste. Marie, Ito protect the Canadian Locks and to tie in with the United States force in order that all-round zone defense may be established. In the event of Canada being unable to provide this equipment within the near future, the United States Army endeavor to lend the necessary guns and stores for manning by the Canadian Army until such time as Canada can meet this commitment from her own production.
- That the said Canadian antiaircraft battery come under the operational command of the Commanding General, Sault Ste. Marie Military District, (Michigan).
Action by U.S. Government: Approved, 9 March 1942.36
Action by Canadian Government: Approved, 26 March 1942.37
TWENTY-SIXTH RECOMMENDATION 9 June 1942 Northeast Short-Range Ferry Routes to United Kingdom
- That the airfields in Canadian territory on the ferry routes outlined in the Army Air Forces appreciation dated June 6th be constructed with such variations as the detailed survey, now under way, may determine to be advisable.
- That the Canadian Government construct or authorize the United States Government to construct these fields and inform the United States Government as promptly as possible what fields, if any, Canada will construct.
- That the existing ferry airdrome facilities in Canada and Newfoundland, including Labrador, form a part of the proposed ferrying project and be increased, wherever necessary, to appropriate capacity.
- That such additional radio weather reporting facilities for these routes be provided and maintained as may be agreed upon by the United States and the Canadian Governments.
- That all costs of constructing air fields and other installations in connection with this project be borne by the Government which agrees to undertake that part of the project.
- That suitable arrangements be made in Washington and Ottawa to insure the proper centralization of responsibility for and control over the work of construction, and to provide the maximum facilities for instant and effective contact and cooperation between the appropriate authorities of the two countries.
- That the proposals relating to defense, to the maintenance of Canadian sovereignty and the postwar disposition of the new installations as outlined in the memoranda under reference be accepted by the two Goverments. h. That these airfields and facilities be made available for the use of the Royal Air Force Ferry Command.
Action by U.S. Government: Approved, 3 July 1942.38
Action by Canadian Government: Approved, 12 June 1942.39
TWENTY-SEVENTH RECOMMENDATION 6 July 1942 Flow of Materials to Canada
That the Governments of Canada and of the United States take immediate steps to eliminate or suspend for the duration of the war every possible formality of customs, import duties, tariffs, and other regulations which prohibit, delay or otherwise impede the free flow between the two countries of munitions and war supplies and of the persons or materials connected therewith.
Action by U.S. Government: Approved, 8 August 1942.40
Action by Canadian Government: No formal approval.41
TWENTY-EIGHTH RECOMMENDATION 13 January 1943 Postwar Disposition of U.S. Projects in CanadaThe Board recommends the approval of the following formula as a generally fair and equitable basis to be used by reference whenever appropriate in the making of agreements in the future and to cover such defense projects, if any, the postwar disposition of which has not previously been specifically provided for:
A. All immovable defense installations built or provided in Canada by the Government of the United States shall within one year after the cessation of hostilities, unless otherwise agreed by the two Governments, be relinquished to the Crown either in the right of Canada or in the right of the Province in which the same or any part thereof lies, as may be appropriate under Canadian law.
B. All movable facilities built or provided in Canada by the Government of the United States shall within one year after the cessation of hostilities, unless otherwise agreed by the two Governments, at the option of the United States Government:
- be removed from Canada: or
- be offered for sale to the Government of Canada, or with the approval of the Government of Canada, to the Government of the appropriate Province at a price to be fixed by a Board of two appraisers, one to be chosen by each country and with power to select a third in the case of disagreement.
C. In the event that the United States Government has foregone its option as described in B (1), and the Canadian Government or the Provincial Government decides to forego its option as described in B (2), the facility under consideration shall be offered for sale in the open market, any sale to be subject to the approval of both Governments.
D. In the event of no sale being concluded the disposition of such facility shall be referred for recommendation to the Permanent Joint Board on Defense or to such other agency as the two Governments may designate.
The principles outlined above shall reciprocally apply to any defense projects and installations which may be built in the United States by the Government of Canada.
All of the foregoing provisions relate to the physical disposition and ownership of projects, installations, and facilities and are without prejudice to any agreement or agreements which may be reached between the Governments of the United States and Canada in regard to the postwar use of any of these projects, installations, and facilities.
Action by U.S. Government: Approved, 27 January 1943.42
Action by Canadian Government: Approved, 27 January 1943.43
TWENTY-NINTH RECOMMENDATION 24 February 1943 United States-Alaska Air Route
1. That the Department of Transport (Canada) be responsible for the completion of all facilities on this route presently in process of actual construction by contractors under contract to the Department of Transport, but that wherever possible and in order to expedite construction, United States Engineer troops be used to assist in such construction.
2. That the construction of the following facilities be approved by the Canadian Government, subject to the submission to the Department of Transport of a detailed plan showing the location of such facilities at the respective airports:
EDMONTON PRIORITY 4 Barracks--68-man capacity each A 1 Transient Officers Quarters--40-man capacity B 1 Mess Hall--1,000-man capacity C 1 Laundry--3,000 capacity D 2 Hangars--150' x 200' E 2 Warehouses--50' x 400' F 1 Garage--70' x 200' G 1 Recreation Hall & Gymnasium H Doors on north end of present #1 Hangar I WHITEHORSE PRIORITY PRIORITY 4 Barracks--68-man capacity each A 2 Transient Officers Quarters--40-man capacity B 1 Mess Hall--500-man capacity C
1 Laundry--2,000 capacity D 1 Hangar and 20,000 sq. ft.--220' x 200' office space E 1 Warehouse--40' x 200' F 1 Garage--70' x 200' G 1 Recreation Hall and Gymnasium H 3. That the United States Army Air Forces be responsible for the construction of all facilities set forth in 2: (construction to be accomplished by United States Engineer troops or by contract with Canadian or United States contractors, except that at Edmonton airport no construction shall be undertaken by a United States contractor except with the prior approval of appropriate Canadian authorities. If United States contractors are employed, Canadian and United States civilian labor will not be used on the same specific project at Edmonton). 4. That, inasmuch as speed of completion of these projects is of the highest importance, it be understood that contracts with Canadian contractors may require the employment of Canadian labor on a basis of three shifts daily. 5. That if, in the course of construction of the various projects at Edmonton airport, it becomes apparent that United States Engineer troops, or Canadian contractors, or both, are unable to complete any project within the time required, or are unable to undertake the construction of necessary additional facilities, upon appropriate representation the Canadian Government authorize the use of United States contractors, employing United States labor. 6. That the United States Forces be authorized further to expand the facilities, including airports, on this route as may be required subject to the following conditions:
- The submission of a detailed plan showing the location of the proposed facilities and the approval thereof by appropriate Canadian officials.
- No United States contractor or labor other than the United States Engineer troops shall be employed at Edmonton without the prior approval of the Canadian Government.
7. That in the construction of any such additional facilities, including airports, at any point north of Edmonton, United States Engineer troops, or Canadian or United States contractors employing United States labor may be employed, except that Canadian and United States contractors be not engaged in the same specific project. (At Edmonton, work to be performed by United States Engineer troops or Canadian contractors, within the limit of the ability of such contractors to perform the services required.)
8. That in all cases where civilian labor is employed, if Canadian contractors are available, their services shall be utilized, within the limit of their abilities, in the construction of these projects.
9. That in any case where Canadian contractors are employed by the United States Forces in the construction of any projects, the United States Forces be responsible for the administration and supervision of the contract.
10. That the Department of Transport (Canada) designate a responsible official to be stationed on this route with authority to make decisions with respect to location of buildings and any other matter which properly may be brought to his attention.
Action by U.S. Government: Approved, 1 April 1943.44
Action by Canadian Government: Not approved. However, construction of the projects of this recommendation was approved, subject to certain conditions, by separate action of the Canadian Government on 3 June 1943.45
THIRTIETH RECOMMENDATION 1-2 April 1943 Use of Non-Rigid Airships, Eastern Canadian Waters
That the Governments of the United States and Canada, having a mutual interest in the proposal to utilize non-rigid airships in antisubmarine activities in Eastern Canadian waters at the earliest practical date, appoint a Joint Canadian-American Board of officers to investigate, consult and report on the proposal, and on the selection of suitable base sites and facilities, in that area, to support the operation of not more than twelve airships commencing about May, 1944.
Action by U.S. Government: Approved, 13 April 1943.46
Action by Canadian Government: Not approved.47 Although the Canadian Government was not prepared go approve the recommendation in the form submitted, it had no objection to appointment of the board of officers or to examination of the problem. At its subsequent meeting, 6-7 May 1943, the Board agreed that this qualified action met the essence of the original proposal.48
THIRTY-FIRST RECOMMENDATION 6-7 May 1943 Maintenance and Control of Airdromes in Canada
1. In cases in which the airfield is used principally or exclusively by U.S. forces the United States shall normally be responsible for defense, maintenance and control.
2. In all other cases, unless some special arrangement has been made, Canada shall be responsible for defense, maintenance and control.
3. Provision for the defense of airfields shall, in all cases, be of a standard acceptable to the Canadian Chiefs of Staff.
4. The assignment of responsibilities in respect of any airfield shall remain unchanged during the war except by mutual agreement; provided that should Canada inform the United States that it is prepared to assume such responsibilities in respect of any airfield previously controlled by the U.S. the necessary arrangements shall be concerted between the two Governments.
5. The United States Government may station a liaison officer at any airfield in Canada used by United States forces; and the Canadian Government may station a liaison officer at any airfield in Canada the control of which is exercised by the United States.
It was agreed that upon the acceptance of this Recommendation the Air Members of the Board shall prepare a schedule showing the application of the principles to the airfields affected for submission to the Board as a basis for a further recommendation.
Action by U.S. Government: Approved, 3 June 1943.49
Action by Canadian Government: Approved, 2 June 1943.50
THIRTY-SECOND RECOMMENDATION 24-25 August 1943 Maintenance and Control of Facilities
PART I
DefinitionsThat for the purposes of this Recommendation, the following definitions apply:
1. Control:
Control of airport and airways traffic, and airport administration, provided that regulations applicable to airway and airport traffic control shall be prepared jointly by the using services, and shall be limited to those matters essential to the orderly control of traffic movement, and shall not include ceiling and visability limitation for take-off and landing.
Note: Airport administration, in the military sense, consisting of those functions pertaining to command.
2. Maintenance:
- Airfields:
Maintenance of airfield surfaces including runways, taxiways, parking areas, hardstandings, and snow removal according to the standard of the principal user. The priority of such snow removal shall be as prescribed by the principal user.
Maintenance of access roads used solely, or nearly so, for the servicing of the airport and of roads and drainage ditches within and adjacent to the airport area, including snow clearance.
- Other Facilities:
Maintenance of local airport landline communication systems, power, heating, lighting, water, fire-fighting and sewage systems, with the exception of that part of these systems installed in buildings.
- Responsibility of Using Service:
Proper maintenance of all buildings and facilities installed therein is the responsibility of the using service. When facilities are provided by the Government of one country for the occupation of forces of the other, the principles set forth in the Twenty-First Recommendation of the Board apply to the maintenance, upkeep and servicing of such facilities.
- Responsibility of Officers Commanding:
In the discharge of the above responsibilities, Officers Commanding will be authorized to make such definitions or modifications as local circumstances may require.
3. Defense:
Defense of the airport area in conformance with standards acceptable to the Canadian Chiefs of Staff.
Note: Local security of aircraft, technical installations and building areas is the responsibility of the using Service.
PART II
Schedule of Responsibility1. Northwest Staging Route:
- That Canada be responsible for the control, maintenance and defense of the following airports:
Feeder: Prince George, Kamloops, B.C.; Lethbridge and Calgary, Alta.; Regina, Sask. Main: Edmonton, Alta.; Grande Prairie, Alta.; Fort St. John and Fort Nelson, B.C.; Watson Lake and Whitehorse, Y.T. Intermediate: Beatton River and Smith River, B.C.; Teslin, Aishihik and Snag, Y.T.; (Whitecourt, Alta. when constructed). - That the U.S. be responsible for the maintenance, local airport control and defense of the following airports:
Main: Edmonton Satellite Note: Edmonton Satellite will be subject only to airways traffic control by Canada under mutually acceptable regulations.
2. That the United States be responsible for the control, maintenance and defense of the following flight strips:
- Canol Project (N.W.T.)
- Canol #1A
Waterways, Alta.; Embarras, Alta.; Fort Smith, Providence, Resolution, Hay River, Fort Simpson, Wrigley, Norman Wells, Canol Camp, N.W.T. II.- Canol #1 East and West
Goodland Lake and Twitya River, N.W.T.; Sheldon Lake, Pelly River and Quiet Lake, Y.T.- Alaska Highway
Dawson Creek, Prophet River, Sikanni Chief River, Trout River and Pine Lake, B.C.; Squanga Lake, Pon Lake and Burwash, Y.T.
3. Northeast Short-Range Ferry Route to U.K.:
- That the United States be responsible for the control, maintenance and defense of the following airports:
Western Sector: The Pas, Churchill, Man.; Southampton Island, N.W.T. Eastern Sector: Fort Chimo, P.Q.; Frobisher Bay, N.W.T. Others: Mingan, P.Q. Note: Mingan will be subject only to airways traffic control by Canada under mutually acceptable regulations.
- That Canada be responsible for the control, maintenance, and defense of the following airports:
Moncton, N.B.; Dorval, P.Q.
Action by U.S. Government: Approved, 24 September 1943.51
Action by Canadian Government: Approved, 22 September 1943.52
THIRTY-THIRD RECOMMENDATION 53 6-7 September 1944 Postwar Disposition of U.S. Projects in Canada
The Permanent Joint Board on Defense recommends that the following formula be applied to the disposition of all defense facilities constructed or provided in Canada by the United States (and mutatis mutandis to any defense facilities constructed or provided in the United States by Canada) which have not already been dealt with.
Immovables
- The Government of the United States shall, within three months from the date of the approval of this Recommendation, supply the Government of Canada with a list of immovables (hereinafter referred to as facilities) which it desires to make subject to the provisions of this Recommendation;
- In the case of each of the facilities included in the list referred to in A the Canadian Government and the United States Government will each appoint one qualified appraiser whose joint duty it will be to appraise such facility in order to determine the fair market value thereof at the time and place of appraisal. If the two appraisers cannot agree on the fair market value, they will select a third appraiser to determine this value. The amount set by the appraisers shall be paid to the United States Government by the Government of Canada:
Provided that the foregoing paragraphs A and B shall not apply to any facilities heretofore specifically provided for.
- Any existing facility not included in the United States list shall, within one year after the cessation of hostilities, be relinquished, without cost, to the Crown either in the right of Canada or in the right of the Province in which the same or any part thereof lies, as may be appropriate under Canadian law.
Movables
- The Government of the United States shall remove from Canada all those items which it desires.
- The Government of Canada shall arrange through the appropriate governmental agencies for the purchase from the United States of such remaining items as it desires to obtain for its own use or disposition.
- All other movables shall be transferred to a designated agency of the Canadian Government and shall be sold or disposed of by such agency, the proceeds to be paid to the Government of the United States,
provided that, in connection with the items referred to in Paragraph C, the United States Government shall be represented by an officer designated by it for that purpose, who shall have an equal voice in the setting of prices, the allocation of priorities, the assessment of legitimate sales costs and other details of the sale or other disposal of the items concerned; and provided further that any such items remaining unsold at the end of two years from the time they are transferred to the
Canadian agency concerned shall either be declared of no value and the account closed or, at the option of the United States, shall be removed from Canada by the United States authorities.
Action by U.S. Government: Approved, 11 November 1944, including the Canadian proviso.54
Action by Canadian Government: Approved, 27 September 1944, with the following proviso:
That, as there are certain facilities whose disposal would entail expenses such as custody and demolition, any expense of such a character would be taken into consideration in the final accounting.55
Table of Contents
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Footnotes
1. Texts of recommendations and dates on which they were made are to be found in the appropriate Journal of Discussions and Decisions for the meeting held on the date indicated. These journals are to be found in file PDB 124.
2. Memo, Secy, U.S. Section, for Acting Chairman, U.S. Section, 12 Dec 51, PDB 124-1. This list tabulates the dates of approval of the various recommendations by both governments as determined through a co-ordinated study made by the two secretaries in 1951 of the files kept since 1940. It is hereafter cited as the 12 Dec 51 List. At least in regard to action by the U.S. Government, this list is not always accurate, and it is cited only when more authoritative data could not be found.
3. 12 Dec 51 List.
4. Ibid.
5. Ibid.
6. Ibid.
7. Ibid.
8. As reproduced here from the journal for the meeting, the recommendation contains the word "permanent." All U.S. compilations of Board recommendations omit the word "permanent," as do the various drafts of the 1940 Plan, which quote the recommendation as a directive. This omission probably reflects subsequent informal Board agreement to delete the word as inappropriate. Such a plan could hardly have been expected to have been permanent.
9. 12 Dec 51 List.
10. Ibid.
11. Ibid.
12. Ibid.
13. Ibid.
14. Memo, SUSAM for Bissell, 26 Dec 40, PDB 100. This recommendation was never implemented.
15. 12 Dec 51 List.
16. On date unknown according to file PDB 124-1. The President on 17 March 1941 issued a directive to U.S. executive agencies directing co-operation with the War Department in this matter.
17. 12 Dec 51 List.
18. Ibid.
19. Memo, SUSAM for Brig Maurice Pope, 29 Apr 41, PDB 107-3.
20. 12 Dec 51 List.
21. Ltr, President to SW, 23 Apr 41, PDB 143-1.
22. 12 Dec 51 List.
23. The 12 December 1951 List records 18 September 1941 as the date of Canadian governmental approval, although approval was given by the Cabinet War Committee on 13 August 1941.
24. 12 Dec 51 List.
25. Ibid.
26. Ibid.
27. Photostatic copy of text of recommendation bearing the initials "FDR," PDB 107-9.
28. Ltr, Group Captain Heakes to Lt Col Bissell, 27 Nov 41, PDB 107-3.
29. Approval reported in Journal, 20 Jan 42 PJBD meeting. See also PDB 135-9.
30. Ibid.
31. Approval reported in Journal, 20 Jan 42 PJBD meeting. See also PDB 119-3.
32. Ibid.
33. This recommendation, together with other pertinent extracts of the journal of the 25-26 February 1942 meeting, is printed as Exhibit 16, App. C, House Report 1705, 79th Congress, 2d Session, pp. 89-91.
34. Memo, U.S. Chairman for President, 7 Mar 42, initialed "OK FDR" two days later. This memorandum is printed as Exhibit 17, House Report 1705, 79th Congress, 2d Session, p. 91.
35. Memo, Stimson for President, 7 Mar 42, printed as Exhibit 18, House Report 1705, 79th Congress, 2d Session, pp. 91-92.
36. Memo, SUSAM for ACofS WPD, 10 Mar 42, sub: Twenty-fourth and Twenty-fifth Recommendations of the Permanent Joint Board on Defense, PDB 125-2.
37. 12 Dec 51 List.
38. Memo, CofS for President, 3 Jul 42, bearing the notation "OK FDR." Certified copy filed at PDB 149-1.
39. Ltr, U.S. Secy PJBD to U.S. Chairman, 13 Jun 42, PDB 105-2.
40. Ltr, Secy State to Secy Treasury, 8 Aug 42, PDB 148.
41. 12 Dec 51 List.
42. By exchange of notes signed at Ottawa. The notes are contained in EAS, 391, and CTS, 1943, No. 2, and include the recommendation in full.
43. Ibid.
44. Ltr, Roosevelt to Chairman, U.S. Section, 1 Apr 43, PDB 105-13. However, this approval apparently was not communicated to the Canadian Government and the recommendation was carried by the U.S. Section as not approved.
45. See correspondence at PDB 105-13.
46. Ltr, ACofS OPD to SUSAM, 13 Apr 43, sub: Thirtieth Recommendation, Permanent Joint Board on Defense, Canada-U.S.; and Ltr, Senior U.S. Navy Member to SUSAM, 6 Apr 43, PDB 142-5. This recommendation apparently was not, probably because of its narrow military application, submitted to the President. The date recorded for U.S. approval in PDB 124 is the date on which both War and Navy Department approvals had been submitted.
47. 12 Dec 51 List.
48. Ltr, Secy Canadian Section to Secy U.S. Section, 23 Apr 43, PDB 142-5.
49. Apparently not submitted to the President. A letter dated 17 June 1943 from SUSAM to the U.S. secretary asked him to notify the Canadian Government of U.S. approval since the War and Navy Departments--"the only two agencies concerned"--had approved it. (PDB 113-2 (a).)
50. Ltr, Secy Canadian Section to Secy U.S. Section, 4 Jun 43, PDB 113-2 (a).
51. Telg, Secy U.S. Section to Secy Canadian Section, 28 Sep 43, PDB 113-2(b).
52. Ltr, Secy U.S. Section to SUSAM, 28 Sep 43, PDB 113-2(b).
53. Text also contained in EAS, 444, and CTS, 1944, No. 35.
54. Ltr, Secy U.S. Section to SUSAM, 13 Nov 44, PDB 150-2. Both governments confirmed. their approvals in a subsequent exchange of notes, published in EAS, 444, and CTS, 1944, No. 35.
55. Ltr, Secy U.S. Section to SUSAM, 3 Oct 44, PDB 150-2. See also n., 54, above.