카이로 선언

카이로 선언(Cairo Declaration)은 1943년 11월 미국, 영국, 중국의 수뇌가 카이로에서 회담을 가진 후 11월 26일 발표한 선언으로 한국의 독립을 최초로 천명하였다. 루즈벨트 미국 대통령은 이보다 1년여 앞선 1942년 12월 중국의 장개석 총통에게 보내는 편지에서 한국의 독립과 신탁통치에 대한 구상을 밝히고 있었다.

카이로 선언 이전

1943년 11월의 카이로 선언 1년여 전인 1942년 12월에 루즈벨트 미국 대통령은 한국을 독립시켜 신탁통치하에 둔다는 구상을 하고 있었고, 1943년 3월에 영국 이든 외상과의 회담에서도 이런 구상을 밝혔다. 특히 미국의 루즈벨트 대통령과 중국의 장개석 총통이 한국을 독립시키는 방향으로 의견을 조율하고 있었다는 것이 기록으로 확인된다. 이승만 또는 김구의 활동이 카이로 선언에 한국의 독립 조항을 포함하는데 결정적 역할을 했다고 보기는 어렵다. 다만 한국인들의 독립운동이 한국의 독립 조항을 넣는데 좋은 명분이 되었을 수는 있다. 한국을 독립시키는 것이 일본을 약화시켜 군사강국으로의 재부상을 막는데 도움이 되므로 전승국들의 이익에 맞는 점도 작용했을 것이다.

• "미국, 1942년부터 한국신탁통치 계획" 美 현대사 연구가 문헌 발굴 중앙일보 뉴시스 2015.11.26

General wartime relations between the United States and China, with emphasis on China’s military position and United States efforts to give military assistance to China

[158] Draft of Letter From Mr. Owen Lattimore to Generalissimo Chiang Kai-shek undated (1942.12.24?)

이미지 [185] / [186] / [187]

1. [I told the President that broadly speaking the following is the way my mind is running.] Southern Pacific and Southeast Asia.
   In certain colonial areas it will hardly be desirable to restore the previous regimes in full, even if that were possible. It may be possible in many instances to find a solution through a new legal application of the concept of trusteeship. Some such trusteeship might be entrusted to a single nation, others to boards of trustees composed of nationals of several nations. These boards of trustees would represent an advance over the mandate of the League of Nations because they could be used to define more clearly the importance of time and the principle of “coming of age.” This would be analogous to the principle of successive stages of self-government embodied in the American schedule for Philippine independence. The President finds [tells me] that Mr. Churchill heartily welcomes [is interested in] the principle of trusteeship.


2. Southern Pacific. Like you, the President is convinced [I suggested to the President] that for the western Pacific from about the latitude of French Indo-China to about the latitudes of Japan, the principal major powers concerned will be China and America.59 After this war we shall have to think of China, America, Britain and Russia as the four “big policemen” of the world. Only if they work together can they have uniformity of practice in working out a method for the periodic inspection of the armaments of all countries in order to prevent surreptitious re-armament for purposes of aggression. China and America have obvious qualifications as the most responsible powers in a large area of the western Pacific. In the northern part of the Pacific, however, where American territory approaches closely to Siberia, Korea, and Japan, it would be undesirable to attempt to exclude Russia from such problems as the independence of Korea. To isolate Soviet Russia in this area of the world would run the danger of creating tension instead of relieving tension. South of Korea the question of actual bases from which China and America might protect the peace of the western Pacific is one of those details which may well be left for later consideration. The President is much impressed by your clear view that only bases in the two key areas of Liaotung and Formosa can effectively coordinate land, sea and air power for the long term prevention of renewed aggression.

• Visit of British Foreign Secretary Anthony Eden in Washington, March 12–30, 1943

Memorandum of Conversation, by the Secretary of State [Washington,] March 27, 1943.

Another question had to do with our joint or respective post-war policies relating to Manchuria, Korea, Formosa and Indochina. The President suggested that a trusteeship be set up for Indochina; that Manchuria and Formosa should be returned to China and that Korea might be placed under an international trusteeship, with China, the United States and one or two other countries participating.

• Interest of the United States concerning Chinese postwar planning FOREIGN RELATIONS OF THE UNITED STATES: DIPLOMATIC PAPERS, 1943, CHINA

[767] Memorandum of Conversation, by the Under Secretary of State (Welles) [Washington,] March 29, 1943. [p.845 이미지]

I said, furthermore, that, with regard to the steps to be taken in the Far East and in the Pacific after the war was won, I again felt that the views of the Chinese, the British and the United States Governments were very much in accord. I said we were all in agreement that Korea must be set up as an independent country under a temporary international trusteeship, that the Japanese people must be restricted to their own main islands, that Formosa must be returned to China, and that the former mandated islands in the Pacific should be placed under some form of international trusteeship for the purpose of insuring international security.

• CHINA General wartime relations between the United States and China, with emphasis on China’s military position and United States efforts to give military assistance to China FOREIGN RELATIONS OF THE UNITED STATES: DIPLOMATIC PAPERS, 1943, CHINA

Memorandum of Conversation, by the Adviser on Political Relations (Hornbeck) [Washington,] September 28, 1943. [p.135 : 이미지]

I said that I wondered what is the popular concept, from point of view geographically, historically and politically, regarding Korea. Dr. Soong replied that the Chinese in no sense think of Korea as a part, or a lost part, of an existing or a once having existed Chinese Empire. Nor, he added, do they so think of Indo-China. In their current thinking regarding postwar settlements, the prevalent Chinese opinion runs, he said, to the idea that Korea should be put under an international trusteeship. Indo-China also, he said, the Chinese today regard as an area the disposal of which would best be made in terms of a trusteeship.

카이로 선언 주요 내용

카이로 선언 : 1943년 11월 26일

• List of papers (1943, The Conferences at Cairo and Tehran, 1943)

p.448 Final Text of the Communiqué : independence of Korea Nov. 26, 1943

각 군사사절단은 일본에 대한 장래의 군사행동을 협정하였다.

• 3대 동맹국은 일본의 침략을 정지시키고 이를 벌하기 위하여 이번 전쟁을 수행하고 있는 것으로, 위 동맹국은 자국을 위하여 어떠한 이익도 요구하지 않으며, 또 영토를 확장할 의도가 없다.
  
• 위 동맹국의 목적은 일본이 1914년 제1차 세계대전 개시 이후에 탈취 또는 점령한 태평양의 도서 일체를 박탈할 것과 만주, 대만 및 팽호도와 같이 일본이 청국으로부터 빼앗은 지역 일체를 중화민국에 반환함에 있다.
• 또한 일본은 폭력과 탐욕으로 약탈한 다른 일체의 지역으로부터 구축될 것이다. 앞의 3대국은 한국민의 노예상태에 유의하여 적당한 시기에 한국을 자주 독립시킬 결의를 한다.
  
• 이를 위해 3대 동맹국은 일본과 교전 중인 여러 국가와 협조하여, 일본의 무조건적인 항복을 받아내는 데 필요한 중대하고도 장기적인 작전을 계속할 것이다.

• 원문

"The several military missions have agreed upon future military operations against Japan. The Three Great Allies expressed their resolve to bring unrelenting pressure against their brutal enemies by sea, land, and air. This pressure is already rising."

"The Three Great Allies are fighting this war to restrain and punish the aggression of Japan. They covet no gain for themselves and have no thought of territorial expansion. It is their purpose that Japan shall be stripped of all the islands in the Pacific which she has seized or occupied since the beginning of the first World War in 1914, and that all the territories Japan has stolen from the Chinese, such as Manchuria, Formosa, and The Pescadores, shall be restored to the Republic of China. Japan will also be expelled from all other territories which she has taken by violence and greed. The aforesaid three great powers, mindful of the enslavement of the people of Korea, are determined that in due course Korea shall become free and independent."

"With these objects in view the three Allies, in harmony with those of the United Nations at war with Japan, will continue to persevere in the serious and prolonged operations necessary to procure the unconditional surrender of Japan."

• Cairo Declaration WikiSource

한국 독립과 관련하여 "in due course"의 정확한 의미가 무엇인지를 두고 당시부터 논란이 있었다. "적당한 시기에"라고 번역하는 경우가 많으나 "적당한 과정을 거쳐"가 좀 더 정확한 번역으로 보인다. 카이로 선언 준비 문건들에 한국에 대한 일정 기간의 신탁통치가 거론되고 있었으므로 이를 염두에 둔 표현일 것이다.

카이로 선언 전후의 관련 기록

• List of papers (1943, The Conferences at Cairo and Tehran, 1943)

p.323 Chinese Summary Record : Future status of Korea, Indochina, and Thailand

p.399 American Draft of Communiqué With Amedments by President Roosevelt

p.400 American Draft of Communiqué With Amedments by President Roosevelt

p.401 American Draft of Communiqué With Amedments by th President's Special Assistant (Hopkins)

p.402 Revised American Draft of the Communiqué

p.404 British Draft of Communiqué

p.448 Final Text of the Communiqué : independence of Korea Nov. 26, 1943

미국의 카이로 회담 준비 문건

• I. Pre-Conference Papers (Documents 1-245) : 2. Substantive Preparatory Papers FOREIGN RELATIONS OF THE UNITED STATES: DIPLOMATIC PAPERS, THE CONFERENCES AT CAIRO AND TEHRAN, 1943

Minutes of the Presidents Meeting With the Joint Chiefs of Staff, November 19, 1943, 2 P.M., Admiral’s Cabin, U. S. S. “Iowa” Moscow, November 19, 1943

5. Proposed Agenda for President’s Conferences With Generalissimo Chiang Kai-shek, Prime Minister Churchill and Marshal Stalin [p.257 이미지]

The President said the Chinese desire equal rights with Russia in Outer Mongolia. Chiang Kai-shek wants Manchuria back. Unquestionably a discussion of this subject will cause trouble. The matter might be worked out, however, on the basis of “free zones”. The Generalissimo desires a trusteeship over Korea, administered by Russia, China and the United States as trustees.
General Marshall said the Soviets want Kuzan [Pusan?] in that it is close to Japan.

General Marshall : George Catlett Marshall Jr. (1880 – 1959)

• II. The First Cairo Conference : A. Correspondence, drafts, and proposals FOREIGN RELATIONS OF THE UNITED STATES: DIPLOMATIC PAPERS, THE CONFERENCES AT CAIRO AND TEHRAN, 1943

[288] United States Delegation Memorandum Cairo, November 23, 1943. (Hopkins Papers) [p.376 이미지]

5. Does not have ambitions in respect to Chinese territory in general. This view is supported by their recent withdrawal from the Province of Sinkiang. The recognition of Outer Mongolia’s independence was for military protection against the Japanese advance. There is no indication yet as to the Soviet Government’s attitude regarding the question of a warm water port, although it would be consistent for them to agree to the independence of Korea under some type of trusteeship in which the four great powers would participate.

한국 독립운동가들의 카이로 선언 전후 동향

• Interest of the United States in the future status of Korea and the question of recognition of a provisional Korean Government

[971] The Chairman of the Korean Commission in the United States (Rhee) to President Roosevelt Washington, May 15, 1943

[971] The Chairman of the Korean Commission in the United States (Rhee) to President Roosevelt Washington, May 15, 1943 - 이미지

[972] Major General Edwin M. Watson, Secretary to President Roosevelt, to the Chairman of the Korean Commission in the United States (Rhee) Washington, [May 26, 1943.]

[972] Major General Edwin M. Watson, Secretary to President Roosevelt, to the Chairman of the Korean Commission in the United States (Rhee) Washington, [May 26, 1943.] - 이미지

• The Ambassador in China (Gauss) to the Secretary of State Chungking, December 7, 1943

Representative[s] two major Korean parties at Chungking called at Embassy December 4 and requested interpretation of phrase “in due course” relating to Korea in Cairo Declaration. They stated initial Korean reaction one of unqualified approval but Chinese press translation of phrase as “at appropriate (or proper) time” together with rumor at Chungking that postwar Korea would be under Chinese mandate had already disturbed Koreans; that Korean meeting in celebration Cairo statement was canceled when official text released; that Koreans were now attempting to obtain interpretation of phrase from Foreign Office and Wang Chung-hui.

충칭에 있는 2개 한국 정당 대표가 1943년 12월 4일 미국 대사관을 방문하여 카이로 선언에 나오는 한국 독립에 관한 "적당한 과정을 거쳐(in due course”)"라는 구절의 정확한 번역을 물었다. 또 충칭에 전후 한국이 중국 지배하에 놓이게 된다는 소문이 퍼져 한국인들이 동요하고 있고, 카이로 선언을 축하하는 한국인 집회도 취소되었으며, 외국 대사관에서 정확한 의미를 물어보려 했다.

Wang Chung-hui : 역사적인 카이로 회담은 1943년 11월23일 오후 8시 만찬과 함께 회의로 이어졌다. 루즈벨트와 처칠, 장제스 3인이 모였고 루즈벨트 보좌관 홉킨스와 장제스의 통역으로 부인과 왕 충후이(王寵惠) 비서실장도 참석했다.

참고 자료

• 카이로 선언 위키백과
• 카이로 선언은 '홉킨스의 드라마'...이승만과 통했다 뉴데일리 2011. 9. 15
• <`한국 독립' 첫 천명한 카이로선언 70주년> 연합뉴스 2013-11-22
• 카이로 선언의 '한국 독립 결의' 누가 이끌었나 - 동아일보 2014. 3. 19
• "카이로선언 이승만 공헌은 역사왜곡…對美로비 못해" - 중앙일보 뉴시스 2015.11.25
• "미국, 1942년부터 한국신탁통치 계획" 美 현대사 연구가 문헌 발굴 중앙일보 뉴시스 2015.11.26