208 Foreign Relations, 1958-1960, Volume IX



it proposes a series of declarations involving the GDR as well as the
Soviets and the Western Powers which would permit effective mainte-
nance of the Western position but also permit the Soviets to turn over de
facto responsibilities for access to the GDR. However, de facto or de jure
recognition of the GDR would not be granted.
     Thus, the GDR authorities would issue a declaration that they
would observe existing access procedures. The USSR would associate
itself with this declaration. The Four Powers would declare that they
would not engage in inflammatory propaganda and/or use or threaten
to use force to overthrow existing arrangements. The German Federal
Republic and the East Berlin authorities would make similar separate
declarations. A UN special representative in Berlin might observe exe-
cution of one or more of these types of declarations.
    A draft agreement embodying this proposal has been prepared.5
    c. Guaranteed City
    This proposal has been discussed extensively within the Depart-
ment and represents perhaps the most acceptable arrangement on Ber-
lin which can be devised involving a change of juridical basis for the
Western presence in Berlin. (Another type of proposal starting out from
this premise which has been given consideration is that of a UN trustee-
ship arrangement, but this has been held less desirable.) While the Presi-
dent is generally familiar with its contents, the guaranteed city proposal
has never been discussed with Defense or put forward to our Western
Allies. In essence, it involves agreement by the Four Powers to guaran-
tee the security of Western military and civil access to West Berlin, with
the Western Powers agreeing simultaneously to suspend the exercise of
their occupation rights so long as the agreement was otherwise being
observed. The West Berlin authorities would be empowered to request
that foreign troops up to a stated ceiling be stationed in West Berlin and
each Western power would agree to supply and maintain any forces so
requested. Full and unrestricted access for these troops would be guar-
anteed. The agreement would be registered with the UN and a repre-
sentative of the UN Secretary General might observe its fulfillment.
    A draft convention has been prepared embodying the guaranteed
city proposal.
    d. A Tacit Temporary Freeze
    This is essentially the approach favored by S/P in Mr. Smith's
memorandum to you of January 28, 1960.6The precise modalities would
depend both on substantive and tactical decisions still to be made, but
the essential thought is that, since neither standing on our Geneva posi-
tion, nor discussing German unity and disarmament, nor proposing an
immediate change of status seem very promising means of reaching Al-
lied agreement and/or forestalling unilateral action by the Soviets,
a holding action in 1960 would be preferable. This would have as


    5Not found.
    6 Document 72.