By the beginning of 1948 the Americans and British were resolved: There would be two Germanies. For the foreseeable future the eastern zone would be left to the Russians, while the western zones would become a separate state. Together the two powers devised concrete plans for making West Germany a reality: procedures for a constituent assembly, guidelines for a governmental structure, arrangements for the Ruhr, and provisions for a diminished occupation.

The Anglo-American initiatives generated significant opposition from France and other West European nations, who remained fearful of German militarism. Meanwhile West German politicians, whose cooperation was essential to the project, were loathe to endorse measures that would formally divide their country. From these currents emerged a new and serious dilemma for policy makers: to assuage West European anxieties would aggravate the already discontented Germans, whereas to conciliate the Germans could further jeopardize West European support.