I share your desire for cooperation between our two Governments in studying economic and social problems linked with improving the welfare of labour on an international scale. The Soviet Union cannot, however, send representatives to the International Labour Organisation conference in Philadelphia for the reasons set forth in the letter to Mr Harriman,
because the Soviet trade unions are opposed to participation in it, and the Soviet Government cannot but take account of the opinion of the trade unions.

It goes without saying that if the International Labour Organisation were to become an agency of the United Nations,
not of the League of
Nations with which the Soviet Union cannot associate itself, Soviet participation would be possible. I hope that this will become feasible and the appropriate steps taken in the near future.

March 25, 1944