U. S.                                        December 30, 1941
BRITISH
 
U.S. Serial ABC-4/5 
British Serial WW 3
 
 
               BY AGREEMENT ANONG THE GOVERNMENTS OF
 
               AUSTRALIA, THE NETHERLANDS, THE UNITED
 
               KINGDOM AND THE UNITED STATES, HEREINAFTER
 
               REFERRED TO AS THE ABDA GOVERNMENTS:
 
     1.        Area. -
 
               A strategic area has been constituted, to comprise initially all land and sea areas
included in general region Burma - Malaya - Netherlands East Indies and the Philippines; more
precisely defined in Annex 1. This area will be knovm as the ABDA Area.
 
     2.        Forces. -
 
          You have been designated as the Supreme Commander of the ABDA Area and of
all armed forces, afloat, ashore and in the air, of the ABDA Governments which are:
 
          a.   Stationed in the Area;
 
          b.        Located in Australian territory w~en such
                    forces have been allotted by the respective
                    governments for services in or in support
                    of the ABDA Area.
 
You are not authorized to transfer from the territory of any of the ABDA Governments land
forces of that government without the consent of the local commander or his government.
 
          3.   The Deputy Supreme Commander and/or, if required, a commander of the
combined naval forces and a commander of the combined air forces will be jointly designated by
the ABDA Governments.
 
          4.   No government will materially reduce its armed forces assigned to your Area nor
any commitments made by it for reinforcing its forces in your Area except after giving to the other
governments, and to you, timely information pertaining thereto.
 
          5.        Strategic Concept and Policy. -
 
               The basic strategic concent of the ABDA Governments for the conduct of the war
in your Area is to maintain initially the strategic defensive. The ABDA Governments intend to
provide inmediate reinforcements for defense. As additional forces become available, it will
become possible to take the offensive and ultimately to conduct an all-out offensive against Japan.
The first essentiaI is to gain general air superiority at the earliest possible moment, through the
employment of concentrated air power. The piece meal employment of air forces should be
minimized.  Although your operations in the near future must be primarily for defense, they
should be so conducted as to further preparations for that offensive. 
 
not only in the immediate future to maintain as many key positions as possible, but to take the
offensive at the earlierst opportunity and ultimately etc