501.MA–Palestine/8–2048
Memorandum by the Director of the Office of United Nations Affairs (Rusk) to the Under Secretary of State (Lovett)1
Subject: Arab and Jewish Refugees in Palestine.
On August 19, 1948 the Secretary of State gave a memo to the President on the question of relief of Arab and Jewish refugees in the Near East. The original copy of this memo with General Marshall’s endorsement is attached (tab A).2
Your particular attention is invited to the three recommendations made by the Department to which the President gave his oral approval on August 19. The third recommendation reads as follows:
“That, as part of this government’s diplomatic participation in securing a peaceful settlement of the Palestine problem, it urge upon the Provisional Government of Israel and other governments concerned the need for repatriating Arab and Jewish refugees under conditions which will not imperil the internal security of the receiving states.”
It is suggested that irrespective of the other matters pending between the Department land Mr. Epstein, and on which White House clearance seems yet to be in abeyance, you may wish to call in Mr. Epstein and discuss the specific question of the Arab and Jewish refugees.
As documentation for such a démarche there are attached a copy of Security Council document S/948 5 August 1948 setting forth the text of a telegram from Count Bernadotte to the United Nations Secretary General on Arab Refugees (tab B); Security Council document S/949 5 August 1948 transmitting a letter from the Foreign Minister of Israel to the Mediator on the same subject (tab C); Security Council S/962 12 August reproducing the text of a letter from Sir Alexander Cadogan to the President of the Security Council regarding Palestinian Arab refugees (tab D); and Security Council document S/965 12 August 1948 setting forth a letter from the representative of the provisional government of Israel to the Secretary General concerning refugees and displaced persons (tab E).3
In brief, the Mediator takes the firm position that a very large proportion of the 330,000 Arabs who fled from their homes in Jewish [Page 1332] Palestine to other areas should return to those homes. A very large percentage of these refugees consists of children, women and aged who under no stretch of the imagination could be regarded as a security threat against Israel. As set forth in the memo to the President, the condition of the Arab refugees is appalling. They exist in terms of utmost destitution and if adequate relief is not forthcoming or they are not returned to their homes a large proportion will die before the end of winter.
The replies of Foreign Minister Shertok suggest that the Provisional Government of Israel may be using the fate of these unfortunate people to enhance its bargaining position in connection with eventual settlement of the Palestine problem. Furthermore, there is evidence that many of the homes and household effects of Arabs who fled Israeli-occupied territory have been given to newly arrived Jewish immigrants.
The Provisional Government takes the position that political, economic, and security considerations preclude the return of Arab refugees prior to final settlement of the Palestine problem. If this matter is discussed with Mr. Epstein, you may wish to speak along the lines set forth in Deptel 534 to USUN (Tab F):4
- 1.
- With regard to economic considerations, the state of Israel is demonstrating its capacity to assimilate substantial numbers of Jewish immigrants monthly. If the Provisional Government continues to prevent the repatriation of Arab refugees, it will strengthen the already prevalent impression that the entry of European displaced persons is being accomplished at the expense of the former inhabitants of Israeli territory.
- 2.
- While we recognize that Israel’s attitude is influenced by considerations of security, we believe that, under the supervision of Count Bernadotte, a substantial number of refugees who so desire could be allowed to return to their homes and occupations without prejudice to the domestic security of the state of Israel.
- 3.
- Politically, Israeli cooperation in effecting the gradual return of these refugees would give the Arabs concrete evidence of Israel’s frequently expressed desire to construct a firm basis for cooperation with the Arabs. Moreover, such action by Israel would substantially improve the possibility of obtaining an early peaceful solution of the Palestine problem.