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Freedom From War 

The United States Program for General 
and Complete Disarmament in a Peaceful World 

U.S. DEPARTMENT OF STATE 

DEPARTMENT OF STATE PUBLICATION 7277 

Disarmament Series 5 
Released September 1961 

Office of Public Services 
BUREAU OF PUBLIC AFFAIRS 

For sale by the Superintendent of Documents, U.S. Government 
Printing Office, Washington 25, D.C. - Price 15 cents 

INTRODUCTION 

The revolutionary development of modern weapons within a world 
divided by serious ideological differences has produced a crisis in 
human history. In order to overcome the danger of nuclear war now 
confronting mankind, the United States has introduced at the 
Sixteenth General Assembly of the United Nations a Program for 
General and Complete Disarmament in a Peaceful World. 

This new program provides for the progressive reduction of the 
war-making capabilities of nations and the simultaneous 
strengthening of international institutions to settle disputes and 
maintain the peace. It sets forth a series of comprehensive 
measures which can and should be taken in order to bring about a 
world in which there will be freedom from war and security for all 
states. It is based on three principles deemed essential to the 
achievement of practical progress in the disarmament field: 

First, there must be immediate disarmament action: 

A strenuous and uninterrupted effort must be made toward the goal 
of general and complete disarmament; at the same time, it is 
important that specific measures be put into effect as soon as 
possible. 

Second, all disarmament obligations must be subject to effective 
international controls: 

The control organization must have the manpower, facilities, and 
effectiveness to assure that limitations or reductions take place as 



agreed. It must also be able to certify to all states that retained 
forces and armaments do not exceed those permitted at any stage 
of the disarmament process. 

Third, adequate peace-keeping machinery must be established: 

There is an inseparable relationship between the scaling down of 
national armaments on the one hand and the building up of 
international peace-keeping machinery and institutions on the 
other. Nations are unlikely to shed their means of self-protection in 
the absence of alternative ways to safeguard their legitimate 
interests. This can only be achieved through the progressive 
strengthening of international institutions under the United Nations 
and by creating a United Nations Peace Force to enforce the peace 
as the disarmament process proceeds. 


There follows a summary of the principal provisions of the United 
States Program for General and Complete Disarmament in a 
Peaceful World. The full text of the program is contained in an 
appendix to this pamphlet. 

FREEDOM FROM WAR 

THE UNITED STATES PROGRAM FOR GENERAL 
AND COMPLETE DISARMAMENT IN A PEACEFUL WORLD 

SUMMARY 

DISARMAMENT GOAL AND OBJECTIVES 

The over-all goal of the United States is a free, secure, and 
peaceful world of independent states adhering to common 
standards of justice and international conduct and subjecting the 
use of force to the rule of law; a world which has achieved general 
and complete disarmament under effective international control; 
and a world in which adjustment to change takes place in 
accordance with the principles of the United Nations. 

In order to make possible the achievement of that goal, the 
program sets forth the following specific objectives toward which 
nations should direct their efforts: 

• The disbanding of all national armed forces and the prohibition of their 
reestablishment in any form whatsoever other than those required to 
preserve internal order and for contributions to a United Nations Peace 
Force; 


• The elimination from national arsenals of all armaments, including all 
weapons of mass destruction and the means for their delivery, other than 
those required for a United Nations Peace Force and for maintaining 
internal order; 

• The institution of effective means for the enforcement of international 
agreements, for the settlement of disputes, and for the maintenance of 
peace in accordance with the principles of the United Nations; 

• The establishment and effective operation of an International 
Disarmament Organization within the framework of the United Nations to 
insure compliance at all times with all disarmament obligations. 

TASK OF NEGOTIATING STATES 

The negotiating states are called upon to develop the program into 
a detailed plan for general and complete disarmament and to 
continue their efforts without interruption until the whole program 
has been achieved. To this end, they are to seek the widest 
possible area of agreement at the earliest possible date. At the 
same time, and without prejudice to progress on the disarmament 
program, they are to seek agreement on those immediate 
measures that would contribute to the common security of nations 
and that could facilitate and form part of the total program. 

GOVERNING PRINCIPLES 

The program sets forth a series of general principles to guide the 
negotiating states in their work. These make clear that: 

• As states relinquish their arms, the United Nations must be progressively 
strengthened in order to improve its capacity to assure international 
security and the peaceful settlement of disputes; 

• Disarmament must proceed as rapidly as possible, until it is completed, in 
stages containing balanced, phased, and safeguarded measures; 

• Each measure and stage should be carried out in an agreed period of 
time, with transition from one stage to the next to take place as soon as all 
measures in the preceding stage have been carried out and verified and 
as soon as necessary arrangements for verification of the next stage have 
been made; 

• Inspection and verification must establish both that nations carry out 
scheduled limitations or reductions and that they do not retain armed 
forces and armaments in excess of those permitted at any stage of the 



disarmament process; and 


• Disarmament must take place in a manner that will not affect adversely 
the security of any state. 

DISARMAMENT STAGES 

The program provides for progressive disarmament steps to take 
place in three stages and for the simultaneous strengthening of 
international institutions. 


FIRST STAGE 

The first stage contains measures which would significantly reduce 
the capabilities of nations to wage aggressive war. Implementation 
of this stage would mean that: 

• The nuclear threat would be reduced: 

All states would have adhered to a treaty effectively prohibiting the testing 
of nuclear weapons. 

The production of fissionable materials for use in weapons would be 
stopped and quantities of such materials from past production would be 
converted to non-weapons uses. 

States owning nuclear weapons would not relinquish control of such 
weapons to any nation not owning them and would not transmit to any 
such nation information or material necessary for their manufacture. 

States not owning nuclear weapons would not manufacture them or 
attempt to obtain control of such weapons belonging to other states. 

A Commission of Experts would be established to report on the feasibility 
and means for the verified reduction and eventual elimination of nuclear 
weapons stockpiles. 


• Strategic delivery vehicles would be reduced: 

Strategic nuclear weapons delivery vehicles of specified categories and 
weapons designed to counter such vehicles would be reduced to agreed 
levels by equitable and balanced steps; their production would be 
discontinued or limited; their testing would be limited or halted. 



Arms and armed forces would be reduced: 


The armed forces of the United States and the Soviet Union would be 
limited to 2.1 million men each (with appropriate levels not exceeding that 
amount for other militarily significant states); levels of armaments would 
be correspondingly reduced and their production would be limited. 

An Experts Commission would be established to examine and report on 
the feasibility and means of accomplishing verifiable reduction and 
eventual elimination of all chemical, biological and radiological weapons. 


Peaceful use of outer space would be promoted: 

The placing in orbit or stationing in outer space of weapons capable of 
producing mass destruction would be prohibited. 

States would give advance notification of space vehicle and missile 
launchings. 


U.N. peace-keeping powers would be strengthened: 

Measures would be taken to develop and strengthen United Nations 
arrangements for arbitration, for the development of international law, and 
for the establishment in Stage II of a permanent U.N. Peace Force. 


An International Disarmament Organization would be established for 
effective verification of the disarmament program: 

Its functions would be expanded progressively as disarmament proceeds. 

It would certify to all states that agreed reductions have taken place and 
that retained forces and armaments do not exceed permitted levels. 

It would determine the transition from one stage to the next. 

States would be committed to other measures to reduce international 
tension and to protect against the chance of war by accident, 
miscalculation, or surprise attack: 

States would be committed to refrain from the threat or use of any 
type of armed force contrary to the principles of the U.N. Charter 
and to refrain from indirect aggression and subversion against any 
country. 



A U.N. peace observation group would be available to investigate 
any situation which might constitute a threat to or breach of the 
peace. 

States would be committed to give advance notice of major military 
movements which might cause alarm; observation posts would be 
established to report on concentrations and movements of military 
forces. 


SECOND STAGE 

The second stage contains a series of measures which would bring 
within sight a world in which there would be freedom from war. 
Implementation of all measures in the second stage would mean: 

Further substantial reductions in the armed forces, armaments, and 
military establishments of states, including strategic nuclear weapons 
delivery vehicles and countering weapons; 

Further development of methods for the peaceful settlement of disputes 
under the United Nations; 

Establishment of a permanent international peace force within the United 
Nations; 

Depending on the findings of an Experts Commission, a halt in the 
production of chemical, bacteriological and radiological weapons and a 
reduction of existing stocks or their conversion to peaceful uses; 

On the basis of the findings of an Experts Commission, a reduction of 
stocks of nuclear weapons; 

The dismantling or the conversion to peaceful uses of certain military 
bases and facilities wherever located; and 

The strengthening and enlargement of the International Disarmament 
Organization to enable it to verify the steps taken in Stage II and to 
determine the transition to Stage III. 

THIRD STAGE 

During the third stage of the program, the states of the world, 
building on the experience and confidence gained in successfully 
implementing the measures of the first two stages, would take final 
steps toward the goal of a world in which: 



• States would retain only those forces, non-nuclear armaments, and 
establishments required for the purpose of maintaining internal order; they 
would also support and provide agreed manpower for a U.N. Peace Force. 

• The U.N. Peace Force, equipped with agreed types and quantities of 
armaments, would be fully functioning. 

• The manufacture of armaments would be prohibited except for those of 
agreed types and quantities to be used by the U.N. Peace Force and 
those required to maintain internal order. All other armaments would be 
destroyed or converted to peaceful purposes. 

• The peace-keeping capabilities of the United Nations would be sufficiently 
strong and the obligations of all states under such arrangements 
sufficiently far-reaching as to assure peace and the just settlement of 
differences in a disarmed world. 

Appendix 

DECLARATION ON DISARMAMENT 

THE UNITED STATES PROGRAM FOR GENERAL 
AND COMPLETE DISARMAMENT IN A PEACEFUL WORLD 
The Nations of the world, 

Conscious of the crisis in human history produced by the revolutionary 
development of modern weapons within a world divided by serious ideological 
differences; 

Determined to save present and succeeding generations from the scourge of war 
and the dangers and burdens of the arms race and to create conditions in which 
all peoples can strive freely and peacefully to fulfill their basic aspirations; 

Declare their goal to be: A free, secure, and peaceful world of independent states 
adhering to common standards of justice and international conduct and 
subjecting the use of force to the rule of law; a world where adjustment to change 
takes place in accordance with the principles of the United Nations; a world 
where there shall be a permanent state of general and complete disarmament 
under effective international control and where the resources of nations shall be 
devoted to man's material, cultural, and spiritual advance; 

Set forth as the objectives of a program of general and complete disarmament in 
a peaceful world: 

(a) The disbanding of all national armed forces and the prohibition 
of their reestablishment in any form whatsoever other than those 
required to preserve internal order and for contributions to a United 
Nations Peace Force; 

(b) The elimination from national arsenals of all armaments, 
including all weapons of mass destruction and the means for their 



delivery, other than those required fora United Nations Peace 
Force and for maintaining internal order; 

(c) The establishment and effective operation of an International 
Disarmament Organization within the framework of the United 
Nations to ensure compliance at all times with all disarmament 
obligations; 

(d) The institution of effective means for the enforcement of 
international agreements, for the settlement of disputes, and for the 
maintenance of peace in accordance with the principles of the 
United Nations. 

Call on the negotiating states: 

(a) To develop the outline program set forth below into an agreed 
plan for general and complete disarmament and to continue their 
efforts without interruption until the whole program has been 
achieved; 

(b) To this end to seek to attain the widest possible area of 
agreement at the earliest possible date; 

(c) Also to seek — without prejudice to progress on the 
disarmament program — agreement on those immediate measures 
that would contribute to the common security of nations and that 
could facilitate and form a part of that program. 

Affirm that disarmament negotiations should be guided by the following 
principles: 

(a) Disarmament shall take place as rapidly as possible until it is 
completed in stages containing balanced, phased and safeguarded 
measures, with each measure and stage to be carried out in an 
agreed period of time. 

(b) Compliance with all disarmament obligations shall be effectively 
verified from their entry into force. Verification arrangements shall 
be instituted progressively and in such a manner as to verify not 
only that agreed limitations or reductions take place but also that 
retained armed forces and armaments do not exceed agreed levels 
at any stage. 

(c) Disarmament shall take place in a manner that will not affect 
adversely the security of any state, whether or not a party to an 
international agreement or treaty. 



(d) As states relinquish their arms, the United Nations shall be 
progressively strengthened in order to improve its capacity to 
assure international security and the peaceful settlement of 
differences as well as to facilitate the development of international 
cooperation in common tasks for the benefit of mankind. 

(e) Transition from one stage of disarmament to the next shall take 
place as soon as all the measures in the preceding stage have 
been carried out and effective verification is continuing and as soon 
as the arrangements that have been agreed to be necessary for the 
next stage have been instituted. 

Agree upon the following outline program for achieving general and complete 

disarmament: 

STAGE I 

A. To Establish an International Disarmament Organization: 

(a) An International Disarmament Organization (IDO) shall be 
established within the framework of the United Nations upon entry 
into force of the agreement. Its functions shall be expanded 
progressively as required for the effective verification of the 
disarmament program. 

(b) The IDO shall have: (1) a General Conference of all the parties; 

(2) a Commission consisting of representatives of all the major 
powers as permanent members and certain other states on a 
rotating basis; and (3) an Administrator who will administer the 
Organization subject to the direction of the Commission and who 
will have the authority, staff, and finances adequate to assure 
effective impartial implementation of the functions of the 
Organization. 

(c) The IDO shall: (1) ensure compliance with the obligations 
undertaken by verifying the execution of measures agreed upon; 

(2) assist the states in developing the details of agreed further 
verification and disarmament measures; (3) provide for the 
establishment of such bodies as may be necessary for working out 
the details of further measures provided for in the program and for 
such other expert study groups as may be required to give 
continuous study to the problems of disarmament; (4) receive 
reports on the progress of disarmament and verification 
arrangements and determine the transition from one stage to the 
next. 


B. To Reduce Armed Forces and Armaments: 



(a) Force levels shall be limited to 2.1 million each for the U.S. and 
U.S.S.R. and to appropriate levels not exceeding 2.1 million each 
for all other militarily significant states. Reductions to the agreed 
levels will proceed by equitable, proportionate, and verified steps. 

(b) Levels of armaments of prescribed types shall be reduced by 
equitable and balanced steps. The reductions shall be 
accomplished by transfers of armaments to depots supervised by 
the IDO. When, at specified periods during the Stage I reduction 
process, the states party to the agreement have agreed that the 
armaments and armed forces are at prescribed levels, the 
armaments in depots shall be destroyed or converted to peaceful 
uses. 

(c) The production of agreed types of armaments shall be limited. 

(d) A Chemical, Biological, Radiological (CBR) Experts Commission 
shall be established within the IDO for the purpose of examining 
and reporting on the feasibility and means for accomplishing the 
verifiable reduction and eventual elimination of CBR weapons 
stockpiles and the halting of their production. 

C. To Contain and Reduce the Nuclear Threat: 

(a) States that have not acceded to a treaty effectively prohibiting 
the testing of nuclear weapons shall do so. 

(b) The production of fissionable materials for use in weapons shall 
be stopped. 

(c) Upon the cessation of production of fissionable materials for use 
in weapons, agreed initial quantities of fissionable materials from 
past production shall be transferred to non-weapons purposes. 

(d) Any fissionable materials transferred between countries for 
peaceful uses of nuclear energy shall be subject to appropriate 
safeguards to be developed in agreement with the IAEA. 

(e) States owning nuclear weapons shall not relinquish control of 
such weapons to any nation not owning them and shall not transmit 
to any such nation information or material necessary for their 
manufacture. States not owning nuclear weapons shall not 
manufacture such weapons, attempt to obtain control of such 
weapons belonging to other states, or seek or receive information 
or materials necessary for their manufacture. 



(f) A Nuclear Experts Commission consisting of representatives of 
the nuclear states shall be established within the IDO for the 
purpose of examining and reporting on the feasibility and means for 
accomplishing the verified reduction and eventual elimination of 
nuclear weapons stockpiles. 

D. To Reduce Strategic Nuclear Weapons Delivery Vehicles: 

(a) Strategic nuclear weapons delivery vehicles in specified 
categories and agreed types of weapons designed to counter such 
vehicles shall be reduced to agreed levels by equitable and 
balanced steps. The reduction shall be accomplished in each step 
by transfers to depots supervised by the IDO of vehicles that are in 
excess of levels agreed upon for each step. At specified periods 
during the Stage I reduction process, the vehicles that have been 
placed under supervision of the IDO shall be destroyed or 
converted to peaceful uses. 

(b) Production of agreed categories of strategic nuclear weapons 
delivery vehicles and agreed types of weapons designed to counter 
such vehicles shall be discontinued or limited. 

(c) Testing of agreed categories of strategic nuclear weapons 
delivery vehicles and agreed types of weapons designed to counter 
such vehicles shall be limited or halted. 

E. To Promote the Peaceful Use of Outer Space: 

(a) The placing into orbit or stationing in outer space of weapons 
capable c,f producing mass destruction shall be prohibited. 

(b) States shall give advance notification to participating states and 
to the IDO of launchings of space vehicles and missiles, together 
with the track of the vehicle. 

F. To Reduce the Risks of War by Accident, Miscalculation, and Surprise 
Attack: 

(a) States shall give advance notification to the participating states 
and to the IDO of major military movements and maneuvers, on a 
scale as may be agreed, which might give rise to misinterpretation 
or cause alarm and induce countermeasures. The notification shall 
include the geographic areas to be used and the nature, scale and 
time span of the event. 



(b) There shall be established observation posts at such locations 
as major ports, railway centers, motor highways, and air bases to 
report on concentrations and movements of military forces. 

(c) There shall also be established such additional inspection 
arrangements to reduce the danger of surprise attack as may be 
agreed. 

(d) An international commission shall be established immediately 
within the IDO to examine and make recommendations on the 
possibility of further measures to reduce the risks of nuclear war by 
accident, miscalculation, or failure of communication. 

G. To Keep the Peace: 

(a) States shall reaffirm their obligations under the U.N. Charter to 
refrain from the threat or use of any type of armed force-including 
nuclear, conventional, or CBR-contrary to the principles of the U.N 
Charter. 

(b) States shall agree to refrain from indirect aggression and 
subversion against any country. 

(c) States shall use all appropriate processes for the peaceful 
settlement of disputes and shall seek within the United Nations 
further arrangements for the peaceful settlement of international 
disputes and for the codification and progressive development of 
international law. 

(d) States shall develop arrangements in Stage I for the 
establishment in Stage II of a U.N. Peace Force. 

(e) A U.N. peace observation group shall be staffed with a standing 
cadre of observers who could be dispatched to investigate any 
situation which might constitute a threat to or breach of the peace. 

STAGE II 

A. International Disarmament Organization: 

The powers and responsibilities of the IDO shall be progressively 
enlarged in order to give it the capabilities to verify the measures 
undertaken in Stage II. 


B. To Further Reduce Armed Forces and Armaments: 



(a) Levels of forces for the U.S., U.S.S.R., and other militarily 
significant states shall be further reduced by substantial amounts to 
agreed levels in equitable and balanced steps. 

(b) Levels of armaments of prescribed types shall be further 
reduced by equitable and balanced steps. The reduction shall be 
accomplished by transfers of armaments to depots supervised by 
the IDO. When, at specified periods during the Stage II reduction 
process, the parties have agreed that the armaments and armed 
forces are at prescribed levels, the armaments in depots shall be 
destroyed or converted to peaceful uses. 

(c) There shall be further agreed restrictions on the production of 
armaments. 

(d) Agreed military bases and facilities wherever they are located 
shall be dismantled or converted to peaceful uses. 

(e) Depending upon the findings of the Experts Commission on 
CBR weapons, the production of CBR weapons shall be halted, 
existing stocks progressively reduced, and the resulting excess 
quantities destroyed or converted to peaceful uses. 

C. To Further Reduce the Nuclear Threat: 

Stocks of nuclear weapons shall be progressively reduced to the 
minimum levels which can be agreed upon as a result of the 
findings of the Nuclear Experts Commission; the resulting excess of 
fissionable material shall be transferred to peaceful purposes. 

D. To Further Reduce Strategic Nuclear Weapons Delivery Vehicles: 

Further reductions in the stocks of strategic nuclear weapons 
delivery vehicles and agreed types of weapons designed to counter 
such vehicles shall be carried out in accordance with the procedure 
outlined in Stage I. 

E. To Keep the Peace: 

During Stage II, states shall develop further the peace-keeping 
processes of the United Nations, to the end that the United Nations 
can effectively in Stage III deter or suppress any threat or use of 
force in violation of the purposes and principles of the United 
Nations: 



(a) States shall agree upon strengthening the structure, authority, 
and operation of the United Nations so as to assure that the United 
Nations will be able effectively to protect states against threats to or 
breaches of the peace. 

(b) The U.N. Peace Force shall be established and progressively 
strengthened. 

(c) States shall also agree upon further improvements and 
developments in rules of international conduct and in processes for 
peaceful settlement of disputes and differences. 

STAGE III 

By the time Stage II has been completed, the confidence produced through a 
verified disarmament program, the acceptance of rules of peaceful international 
behavior, and the development of strengthened international peace-keeping 
processes within the framework of the U.N. should have reached a point where 
the states of the world can move forward to Stage III. In Stage III progressive 
controlled disarmament and continuously developing principles and procedures 
of international law would proceed to a point where no state would have the 
military power to challenge the progressively strengthened U.N. Peace Force and 
all international disputes would be settled according to the agreed principles of 
international conduct. 

The progressive steps to be taken during the final phase of the disarmament 
program would be directed toward the attainment of a world in which: 

(a) States would retain only those forces, non-nuclear armaments, 
and establishments required for the purpose of maintaining internal 
order; they would also support and provide agreed manpower for a 
U.N Peace Force. 

(b) The U.N. Peace Force, equipped with agreed types and 
quantities of armaments, would be fully functioning. 

(c) The manufacture of armaments would be prohibited except for 
those of agreed types and quantities to be used by the U.N. Peace 
Force and those required to maintain internal order. All other 
armaments would be destroyed or converted to peaceful purposes. 

(d) The peace-keeping capabilities of the United Nations would be 
sufficiently strong and the obligations of all states under such 
arrangements sufficiently far-reaching as to assure peace and the 
just settlement of differences in a disarmed world. 


U.S. GOVERNMENT PRINTING OFFICE: 1961 O 609147