Foreign Relations of the United States, 1949, The Near East, South Asia, and Africa, Volume VI

Editorial Note

The First Interim Report of the United Nations Economic Survey Mission for the Middle East was signed at Beirut on November 6 by Messrs. Clapp, Gokcen, Labonne, and Morton. It was transmitted to Secretary-General Lie by Hussein C. Yalcin, Chairman of the Palestine Conciliation Commission, in a letter of November 16. The letter stated that “The Conciliation Commission considers that this report constitutes a constructive approach to the Palestine refugee problem and believes that the General Assembly will wish to give urgent consideration to it. The Commission is of the opinion that the Assembly will wish to obtain additional information concerning certain of the findings and recommendations contained in the report. In this connexion, in the light of the arrangements made by the Secretary-General with the International Red Cross organizations and the American Friends Service Committee, particular reference is made to the recommendation that the number of rations issued should be reduced by one-third as of 1 January 1950.”

The Interim Report commenced with a table of contents, a foreword, and a discussion of “The Problem” and of the establishment, functions, etc., of the Mission. Then followed sections on interim findings and recommendations, which read as follows:

“Interim Findings

As a result of the Mission’s studies, discussions with Governments and investigations in the field, the Mission finds that:

1. The refugees themselves are the most serious manifestation of ‘economic dislocation’ created by the Arab-Israeli hostilities. The refugees represent about 7 per cent of the population in the countries in which they have sought refuge. About 65 per cent of the refugees fled to Arab Palestine and Gaza, almost doubling the population. Resolution of the demoralizing, unproductive and costly problem of the refugees is the most immediate requirement ‘conducive to the maintenance of peace and stability in the area’.”

2. The continuing political stalemate in the relations between the Arab countries and Israel precludes any early solution of the refugee problem by means of repatriation or large scale resettlement.

3. The relief supplied by the United Nations Relief for Palestine Refugees (UNRPR), the United Nations International Children’s Emergency Fund (UNICEF), the World Health Organization (WHO), and the many local and foreign voluntary agencies of charity operating in the Near East has averted a worse calamity. Were all direct relief to be cut off now, many refugees would face a winter of disease and starvation. Were charity alone to be provided for another year, it would be more difficult and costly to take constructive measures later. Nevertheless, the extent of direct relief provided through United Nations funds should be stringently cut within the next two months. There is no doubt that, however commendable it may be to extend international charity to the needy, rations greatly in excess of the number justifiable within the original intentions of the General Assembly of the United Nations have been and are being issued.

4. Work in place of relief cannot be provided immediately for all. One thing, however, is clear. Rather than remain objects of charity, the refugees who are idle must have an opportunity to go to work where they are now; work which would increase the productive capacity of the countries in which they have found refuge. Until such work has been found, those refugees who are idle must remain a burden upon others, the United Nations, charitable societies supported by voluntary contributions, or the countries in which the refugees now find themselves.

5. Useful, gainful employment can, however, be found for all the refugees able and willing to work. There are many potential opportunities for useful and productive work to improve and reclaim the land, increase the supply and use of water, strengthen and extend road systems and improve sanitation and shelter. Suitable employment for the refugees can be provided in many places, especially in Arab Palestine and Jordan, where nearly half the refugees are located (see appendix C).

6. This and other similar work could begin as soon as funds can be found to finance it. But the resources of the Arab countries sheltering most of the refugees are inadequate to cope unaided with the present cost of emergency relief alone, much less to finance the cost of putting the refugees to work. Money for this purpose must be found from outside sources.

7. The inability of the refugees rapidly to find for themselves gainful employment in the Arab countries is but a symptom of the need for development of the unused resources of the Near East, where lack of available capital is responsible for much idle manpower. This is a task for the Near Eastern Governments to do in their own way, and in due course, with the help of competent counsel and substantial financial credits.

Recommendations

In the light of these findings, the Economic Survey Mission makes the following recommendations, which are explained later in the report.

1. The emergency relief for refugees made possible by voluntary contributions from Member Governments of the United Nations should be continued through the winter months, and until 1 April 1950, under the present UNRPR system; the present minimum ration should not be reduced, but the number of rations issued should be reduced by 1 January 1950 from the present rate of 940,000 to 652,000 (for an analysis of the number eligible for relief, see appendix B). This would cost 5,500,000 dollars for the three months beginning 1 January 1950. Thereafter, further reductions should take place as men become employed in gainful labour and thus become ineligible for direct relief.

2. A programme of public works, calculated to improve the productivity of the area, and such continuing relief as will be needed should be organized as an integrated operation, in co-operation with the Governments of the countries where the refugees are located. This programme should be planned and arrangements negotiated with the appropriate Near Eastern Governments to begin 1 April 1950.

No more rations should be supplied by the United Nations after 31 December 1950, unless otherwise ordered by the United Nations at the fifth session of the General Assembly, at which Near Eastern Governments concerned would have an opportunity to present appropriate proposals.

Meanwhile, the agency handling direct relief on behalf of the United Nations should be empowered to negotiate with Near Eastern Governments for the latter to take over as soon as possible, and at latest by 31 December 1950, responsibility for the maintenance of such refugees as may remain within their territories.

This programme for the nine months from April through December 1950 would require 27 million dollars, which sum would include such relief as might be needed.

The United Nations should be prepared to continue the works programme until 30 June 1951 (subject to review at the fifth session of the General Assembly).

The works programme for the six months of 1951 would require 21,200,000 dollars.

Of the total of 53,700,000 dollars for the cost of relief and works projects for the eighteen months’ programme, the Mission estimates that approximately 25 percent, or 13,300,000 dollars, represents the cost of the necessary work materials, tools and equipment. The Mission considers that a considerable proportion of this sum, perhaps up to one half in certain cases, might be supplied by Governments of the countries in which the refugees are now concentrated.

This would reduce the amount required from outside sources for eighteen months from 1 January 1950 for a programme of relief and public works to approximately 48 million dollars, or an average of 2,700,000 dollars per month. This is the same as the present monthly rate of expenditure by the United Nations upon direct relief alone^* (see appendix A).

3. An agency should be established to organize and, on or after 1 April 1950, direct, the programmes of relief and public works herein recommended. As a minimum requirement to the successful implementation of the relief and works programmes, the Economic Survey Mission urges that:

(a) Subject to rendering such reports of its activities and accounting for its expenditure to the General Assembly of the United Nations as may be required of it and within the policies established in its terms of reference, the agency should have full autonomy and authority to make decisions within the sphere of activities entrusted to it, including the selection of its subordinate staff and the administration of funds made available to it.

(b) The agency should be located in the Near East.

(c) The personnel and assets of the UNRPR should be turned over to the new agency on 1 April 1950, or as soon thereafter as possible, in order that the functions of direct relief may be directed by the new agency in appropriate relation to the works programme.

(d) The agency should be authorized to take counsel with such Near Eastern Governments as may so desire, concerning measures to be taken by such Governments in preparation for the time when United Nations funds for relief and works projects shall no longer be available.”

The Interim Report concluded with sections entitled “Guiding Policies for Administration of Proposed Programme,” “Discussion of Findings and Recommendations,” and “Prospects for Employment” and four appendices entitled “Cost of Programme,” “Analysis of Refugees and Relief Recipients,” “Illustrative Outline of Works Projects,” and “Terms of Reference of the Economic Survey Mission” (GA, 4th sess., Ad Hoc Political Committee, Annex, volume I, pages 16–29).

1. Should the United Nations decide to bring about a gradual reduction from 940,000 rations per day to 652,000 on 1 April 1950, through monthly reductions of 100,000, beginning on 1 February 1950, the cost of the alteration in schedule would amount to 1,200,000 dollars. If the United Nations should prefer to maintain the present rate of 940,000 rations per day, except as affected by work relief, throughout the calendar year 1950 and thus provide charity to many thousands who are not refugees, the cost of this alteration in schedule would amount to 7 million dollars. [Footnote in the source text.]