The United Nations General Assembly has sought specifically, vigorously, and almost unanimously, the prompt withdrawal from Egypt of the armed forces of Britain, France and Israel. Britain and France have complied unconditionally. The forces of Israel have been withdrawn to a considerable extent but still hold Egyptian territory at Sharm el Shaikh at the entrance to the Gulf of Aqaba. They also occupy the Gaza Strip which is territory specified by the Armistice arrangements to be occupied by Egypt.
We understand that it is the position of Israel that (1) it will evacuate its military forces from the Gaza Strip provided Israel retains the civil administration and police in some relationship to the United Nations; and (2) it will withdraw from Sharm el Shaikh if continued freedom of passage through the Straits is assured.
With respect to (1) the Gaza Strip—it is the view of the United States that the United Nations General Assembly has no authority to require of either Egypt or Israel a substantial modification of the Armistice Agreement, which, as noted, now gives Egypt the right and responsibility of occupation. Accordingly, we believe that Israeli withdrawal from Gaza should be prompt and unconditional, leaving the future of the Gaza Strip to be worked out through the efforts and good offices of the United Nations.
We recognize that the area has been a source of armed infiltration and reprisals back and forth contrary to the Armistice Agreement and is a source of great potential danger because of the presence there of so large a number of Arab refugees—about 200,000. Accordingly, we believe that the United Nations General Assembly and the Secretary
General should seek that the United Nations Emergency Force, in the exercise of its mission, move into this area and be on the boundary between Israel and the Gaza Strip.
The United States will use its best efforts to help to assure this result, which we believe is contemplated by the Second Resolution of February 2, 1957.
With respect to (2) the Gulf of Aqaba and access thereto—the United States believes that the Gulf constitutes international waters and that no nation has the right forcibly to prevent free and innocent passage in the Gulf and through the Straits giving access thereto. We have in mind not only commercial usage, but the passage of pilgrims on religious missions, which should be fully respected.
The United States recalls that on January 28, 1950, the Egyptian Ministry of Foreign Affairs informed the United States22. See footnote 9, Document 68. that the Egyptian occupation of the two islands of Tiran and Senafir at the entrance of the Gulf of Aqaba was only to protect the islands themselves against possible damage or violation and that “this occupation being in no way conceived in a spirit of obstructing in any way innocent passage through the stretch of water separating these two islands from the Egyptian coast of Sinai, it follows that this passage, the only practicable one, will remain free as in the past, in conformity with international practice and recognized principles of the law of nations”.
In the absence of some overriding decision to the contrary, as by the International Court of Justice, the United States, on behalf of vessels of United States registry, is prepared to exercise the right of free and innocent passage and to join with others to secure general recognition of this right.
It is of course clear that the enjoyment of a right of free and innocent passage by Israel would depend upon its prior withdrawal in accordance with the United Nations Resolutions. The United States has no reason to assume that any littoral state would under these circumstances obstruct the right of free and innocent passage.
The United States believes that the United Nations General Assembly and the Secretary General should, as a precautionary measure, seek that the United Nations Emergency Force move into the Straits area as the Israeli forces are withdrawn. This again we believe to be within the contemplation of the Second Resolution of February 2, 1957.
(3) The United States observes that the recent resolutions of the United Nations General Assembly call not only for the prompt and unconditional withdrawal of Israel behind the Armistice lines but call for other measures.
We believe, however, that the United Nations has properly established an order of events and an order of urgency and that the first requirement is that forces of invasion and occupation should withdraw.
The United States is prepared publicly to declare that it will use its influence, in concert with other United Nations members, to the end that, following Israel’s withdrawal, these other measures will be implemented.
We believe that our views and purposes in this respect are shared by many other nations and that a tranquil future for Israel is best assured by reliance upon that fact, rather than by an occupation in defiance of the overwhelming judgment of the world community.
1 Source: Department of State, Central Files, 674.84A/2–1157. Drafted by Dulles. Handed to Eban on February 11. The source text was attached to the memorandum of conversation, supra. The text of the aide-mémoire was transmitted to Tel Aviv in telegram 779, February 11, repeated to Cairo. (Department of State, Central Files, 674.84A/ 2–1157) The text was released by the Department of State on February 17 and printed in Department of State Bulletin, March 11, 1957, pp. 392–393, and in United States Policy in the Middle East, September 1956–June 1957, pp. 290–292. The text as released included a few changes made by Dulles on February 15; see Document 99.