The Question of Armenia’s Borders at the First (Preliminary) Conference of the Allied Powers in London

History

February 12 – March 10, 1920

[No. 1]

I.C.P. 24 – Minutes of the session of the Allied Powers Conference held at 10 Downing Street, S.W.1, on February 12, 1920, at 11:00 a.m. Recorded by the British Secretary.

Present:

  • British Empire: The Right Honourable Prime Minister D. Lloyd George; The Right Honourable Foreign Secretary, Earl Curzon; Secretary: Sir M. Hankey
  • France: President of the Council of Ministers Mr. Millerand; Mr. Berthelot; Secretary: Mr. de Béarn
  • Italy: President of the Council of Ministers Mr. Nitti; Secretary: Mr. Trombetti
  • Interpreter: Professor P. J. Mantoux

Mr. Lloyd George proposed that the Council begin with a general discussion of the work of the forthcoming Peace Conference…

[No. 10]

I.C.P. 32 – Minutes of the session of the Allied Powers Conference held at 10 Downing Street, S.W.1, on February 16, 1920, at 6:30 p.m. Recorded by the British Secretary.

Present:

  • British Empire: The Right Honourable Prime Minister D. Lloyd George; The Right Honourable Foreign Secretary, Earl Curzon; Mr. Vansittart; Mr. Forbes Adam; Secretaries: Sir M. Hankey, Major Caccia
  • France: Mr. Cambon; Mr. Berthelot; Mr. Cammerer; Mr. de Fleury
  • Italy: Mr. Nitti; Mr. Galli; Secretary: Mr. Trombetti
  • Japan: Viscount Tinda
  • Interpreter: Professor P. J. Mantoux

Lord Curzon stated that the Armenian question had both political and geographical dimensions. The geographical aspect concerned the delineation of borders—a matter that could only be resolved by a commission operating on the ground. Politically, the Allies had fought to secure the establishment of an independent Armenia, a goal they had all equally pledged to achieve.

He suggested focusing the discussion on the nature and boundaries of the proposed Armenian state. Two views were expressed: one advocated for a Greater Armenia encompassing six Turkish vilayets and stretching from the Black Sea to the Mediterranean; the other supported a smaller Armenian state. The core of the Armenian state already existed in the autonomous Russian Armenia with its capital in Erivan. The Paris Conference had recognized the independence of this de facto state, and the remaining task was to determine what territorial additions were necessary.

The British government welcomed the creation of an independent Armenian state under the auspices of the League of Nations. At one point, it was assumed that the United States would accept the mandate for Armenia. This now seemed unlikely, although the U.S. would probably provide financial assistance. Lord Curzon expressed doubt that the Council would invite a neutral power to assume the mandate, though he mentioned it as a possible alternative. In his view, the best solution would be a League of Nations protectorate over Armenia.

In the eastern or Caucasian part of the new Armenian state, borders would need to be established with Georgia and Azerbaijan. Fortunately, friendly relations had recently developed among these states, and he believed that border lines should be determined by a commission on the ground.

Although relations between Armenia and Azerbaijan were currently amicable, he acknowledged that certain border areas—specifically Zangezur and Karabakh—remained disputed and would be difficult to resolve.

📜 Appendix No. 3 to No. 11

Commission on Armenia – Terms of Reference (Secret)

It was decided to establish a commission composed of two representatives from each of the following powers: the British Empire, France, Italy, and Japan. The commission was tasked with reviewing the claims of the Armenian delegation and issuing recommendations:

  • (a) Regarding the geographical boundaries of Armenia, based on the following premises:
    • Armenia should be established as an independent state
    • It should include the currently recognized de facto Republic of Erivan and parts of adjacent Turkish vilayets
    • Measures should be taken to protect the Armenian population in Cilicia
  • (b) Regarding the future status of Batum and the Sanjak of Lazistan

[No. 34]

I.C.P. 47 – Minutes of the Meeting of Foreign Ministers and Ambassadors held in the office of the Foreign Secretary at the British Foreign Office, Whitehall, S.W.1, on February 27, 1920, at 6:00 p.m. Recorded by the British Secretary.

Present:

  • British Empire: The Right Honourable Foreign Secretary, Earl Curzon; Mr. Vansittart; Mr. Malkin (Protocol 1); Colonel Gibbon; Secretaries: Lieutenant Colonel Storr, Major Caccia, Major Young
  • France: Mr. Cambon; Mr. Berthelot; Colonel Chardigny; Mr. Cammerer
  • Italy: Mr. Schalloya; Marquis Imperiali; Duke Ascanio Colonna; Mr. Galli; Colonel Castoldi
  • Japan: Viscount Tinda; Mr. Magaoka [Nagaoka]

(c) Lord Curzon explained that regarding the borders between Armenia, Georgia, and Azerbaijan, the commission recommended that the Council await the outcome of agreements anticipated under existing treaties among the three states. He noted that the disputed areas included Karabakh, Kangeor [Zangezur], and Nakhichevan. These regions were predominantly populated by Armenians, with the exception of one area inhabited almost entirely by Tatars. He believed the Council could not resolve this issue at present and that the commission’s recommendation should be accepted.

It was agreed that the decision on borders between Armenia, Georgia, and Azerbaijan should be postponed until an agreement was reached among the three republics. Afterward, an inter-Allied commission would be tasked with demarcating the boundary lines.

📄 Appendix No. 1 to No. 71

Report on the Creation of the Future Armenian State (A.J.120)

The commission entrusted with preparing the report on the creation of the future Armenian state had the honor of submitting the enclosed draft articles for inclusion in the treaty with Turkey.

These articles were based on the commission’s initial report, previously submitted to the Council, but had to be amended for reasons and to an extent explained below.

Armenia Article 1 Turkey, in accordance with actions already taken by the Allied Powers, hereby recognizes Armenia as a free and independent state and renounces in favor of Armenia all rights and titles to the territory of the Turkish Empire lying beyond the borders of Turkey as defined in Article <…>, and included within the limits set forth in Article 2.

Article 2 The borders of Armenia shall be established as follows:

  1. With Turkey and Kurdistan <…>

Article 4 The borders between Armenia and Azerbaijan, and likewise with Georgia, shall be determined through direct agreements between these states.

If no agreement is reached within six months of the treaty’s entry into force, the boundary lines in question shall be determined by the Principal Allied Powers, who shall also undertake demarcation on the ground.

🛡️ Report by British Representative Mr. G. Fisher

On the Necessity of Protecting the Armenian State Appendix 30c to the Minutes of the Fourth (Closed) Session, Fourth Session of the Council of the League of Nations April 11, 1920

The Future Status of Armenia

In a telegram dated March 12 of this year, Lord Curzon, acting as Chairman of the Conference of Foreign Ministers and Ambassadors meeting in London, asked the Council of the League of Nations whether it was prepared to assume, on behalf of the League, the protection of the future independent Armenian state.

The Council of the League was unable to respond immediately, as the matter required the most careful deliberation. Since then, having received further clarification from the Conference of Foreign Ministers and Ambassadors following special meetings held in Paris from April 9 to 11, the Council has examined the issue in all its essential aspects. I am authorized by my colleagues on the Council to present the conclusions they have reached unanimously.

The Council of the League holds the view that the establishment of the State of Armenia, founded on the principles of liberty, security, and independence, is a goal that deserves—and will undoubtedly receive—the sympathy and support of enlightened opinion throughout the civilized world. The sufferings recently endured by the ancient Armenian people are well known. In scale and cruelty, they surpass any atrocity recorded in the annals of human history. If we fail to find a way to safeguard this unfortunate people from a repetition of the catastrophe they have just survived, it would indeed be a sign that the capabilities of civilization have reached their lowest ebb.

The Council believes that the most desirable solution, recognized as such by all parties, would be for a civilized state to accept a mandate for Armenia under the auspices of the League of Nations. It is believed that the Armenians would welcome such a decision. It would provide the most effective and prosperous form of governance and align with measures recently planned under League supervision in other parts of Asia, where political conditions are not significantly different. However, the question arises whether any state is willing to assume such responsibility. The Council considers that the answer depends partly on the military measures that may be required to liberate the territory and secure the borders of the new state, and partly on financial capacity.

🗺️ Decision of the Allied Powers Conference in San Remo

On the Territory and Borders of Armenia April 18–26, 1920

Mr. Nitti stated that he had no doubt Armenia was in a very difficult situation. Moreover, the Russians (Tatars) might advance southward, and it was not impossible that the Georgians could seize the opportunity to attack. Therefore, the Armenians must consider how to defend their borders against Georgia, the Tatars, the Russians, and the Turks.

Marshal Foch remarked that he saw no possibility of providing military support to Armenia from the Allied forces. Furthermore, it would be extremely difficult for the Armenians to establish a new state and armed forces, given that they were currently surrounded by hostile elements.

[No. 16]

I.C.P.106 – Minutes of the Supreme Council Meeting held at “Villa Devachan,” San Remo, April 25, 1920, 11:00 a.m. Recorded by the British Secretary.

Present:

  • United States of America: Mr. Robert Underwood Johnson, U.S. Ambassador to Rome; Secretaries: Mr. Leland Harrison, Mr. T. Hart Anderson
  • British Empire: The Right Honourable D. Lloyd George, Prime Minister; The Right Honourable Earl Curzon, Foreign Secretary; Mr. R. Vansittart, Colonel Gribbon, Mr. E. F. Wise
  • France: Mr. Millerand, President of the Council of Ministers; Mr. Berthelot, Mr. Cammerer
  • Italy: Mr. Nitti, Prime Minister (Chairman); Mr. Schalloya; Secretaries: Mr. Garbasso, Mr. Galli, Mr. Trombetti, Lieutenant Zanchi
  • Japan: Mr. Matsui; Secretaries: Mr. Saito, Mr. Sawada
  • Interpreter: Mr. Camerlynck

🇬🇧 British Proposal on Armenian Borders

Mr. Nitti stated that at the previous day’s Council meeting, Mr. Lloyd George had committed, on behalf of the British delegation, to present a draft resolution regarding the borders of the future Armenian state.

The official interpreter then read the British proposal in French and English:

  • (a) To request President Wilson that the United States accept a mandate for Armenia within the boundaries defined in Part III, Section V of the first draft of the Peace Treaty with Turkey
  • (b) If the United States is unwilling to accept the mandate, then President Wilson should be asked to act as arbitrator in determining the borders of Armenia, as outlined in the following draft article
  • (c) The article concerning Armenia should be included in the Peace Treaty in the following form:

“Turkey, Armenia, and the other High Contracting Parties agree to submit to the arbitration of the President of the United States of America the question of the boundaries between Turkey and Armenia in the vilayets of Erzerum, Trebizond, Van, and Bitlis, and to accept his decision, as well as any proposal he may make regarding access to the sea for the independent Armenian state. Until the arbitration decision is rendered, the borders between Turkey and Armenia shall remain as they currently stand. The borders of Armenia to the north and east—that is, with Georgia and Azerbaijan—shall be determined by the Supreme Council concurrently with the borders between Armenia and Turkey, unless the three Caucasian states reach a voluntary agreement on the matter.”

  • (d) The Drafting Committee, in consultation with other relevant committees of the Conference as necessary, shall incorporate the appropriate additions to Part III, Section V of the Treaty and make all other necessary amendments.

Mr. Berthelot, on behalf of the French delegation, stated his agreement with the proposed draft.

🇺🇸 Statement by U.S. Secretary of State Bainbridge Colby to Pasdermadjian

On the Recognition of the Armenian Republic and the Subsequent Delimitation of Its Borders April 23, 1920

“…I am pleased to inform you, and through you your Government, that by direction of the President, the Government of the United States recognizes, as of today, the de facto Government of the Armenian Republic. This decision, however, is made with the understanding that such recognition does not in any way prejudge the territorial boundaries, which, as we understand, remain subject to future determination.” —Papers Relating to the Foreign Relations of the United States, 1920. Vol. III, Washington, 1936, p. 778

🕊️ Message of the Supreme Council of the Paris Peace Conference to U.S. President Woodrow Wilson

On the Proposed Settlement of Armenia’s Borders with Turkey and Azerbaijan April 26–27, 1920

In reference to my telegrams No. 5 and No. 11 from San Remo: On Monday, April 26, at noon, the Supreme Council of the Allied Powers approved the draft message to President Wilson concerning Armenia, as presented by Lord Curzon. It was decided that Mr. Nitti would sign the message and that it would be transmitted through me. The message reads:

“In the note of this date addressed to the Government of the United States, in reply to its note of March 26, a reference was made in passing to the question of Armenia, and it was stated that a separate communication would be sent on this matter. The following are the considerations which the Supreme Council wishes to submit to the American Government.

At the outset of discussions regarding the treaty with Turkey—first in London, then in Paris—the Allied Conference consulted the Council of the League of Nations, which, as is well known, takes a deep interest in the fate of Armenia, to determine what degree of assistance the League might offer to ensure the independence and security of the proposed Armenian state.

It was never intended to propose that the League itself assume the mandate for Armenia, for the simple reason that the League is not a state and lacks both military forces and the financial means to fulfill such obligations. In its reply, the Council of the League expressed full sympathy with the aims of the Allied Powers and emphasized that the best course would be to find a member of the League or another power willing to accept the mandate for Armenia.

Upon reviewing this response, the Supreme Council reaffirmed its long-held belief that the only great power both inclined and materially equipped to undertake this task in the interest of humanity is America. Secretary Colby rightly stated that ‘the civilized world awaits and demands’ the fulfillment of this responsibility. The Supreme Council cannot forget that no one spoke more eloquently than President Wilson about including the liberation of Armenia among the goals for which the Allied and Associated Powers fought and triumphed in the war.”

📜 Proposed Treaty Article on Armenia

“Turkey, Armenia, and the other High Contracting Parties agree to submit to the arbitration of the President of the United States of America the question of the boundaries between Turkey and Armenia in the vilayets of Erzerum, Trebizond, Van, and Bitlis, and to accept his decision, as well as any measures he may prescribe regarding access to the sea for the independent Armenian state.

Until the arbitral decision is rendered, the borders between Turkey and Armenia shall remain as they currently stand.

The borders of Armenia to the north and east—that is, with Georgia and Azerbaijan—shall be determined by the Supreme Council concurrently with the borders between Armenia and Turkey, unless the three Caucasian states reach a voluntary agreement on the matter.”

🛡️ On Military Assistance and Border Security

The question of military assistance is believed not to present insurmountable difficulties, contrary to initial impressions. The armed forces currently available to the Erivan-based Armenian Republic have thus far been largely expended—or perhaps squandered—in unfortunate conflicts with neighboring states to the north and east. Once these conflicts are resolved, as hoped following the recent agreement among the three Caucasian republics, nothing will prevent a revitalized Armenia from dedicating its full energy to defending and preserving the borders established for it.

The Supreme Council carefully considered the extent to which the Allied Powers themselves might, through troop movements, ensure the swift implementation of the territorial provisions of the treaty in the Armenian region. Arms and ammunition are already being allocated, but if a general belief were to arise that the Allied Powers might deploy their own forces for this purpose, it would only foster false hopes among the Armenians and their supporters worldwide. 605

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