891.20/7–1549
Memorandum by Mr. Henry L. Deimel, Jr., of the Office of Near Eastern and African Affairs to the Assistant Chief of the Division of Greek, Turkish, and Iranian Affairs (Dunn)
Subject: Iranian Attitude Regarding United States Aid
The following is offered pursuant to our conversation. For convenience it has been drafted as basis for a telegram to Tehran.
Preliminary specific replies Embtels 885, 886, 895, 9021 being separately transmitted. Attitude evidenced therein held by highest Iran authorities regarding bases US aid so extreme and unacceptable as to indicate drastic modification this attitude essential if aid is to be successfully arranged and implemented. Department realizes you aware this, and this telegram designed assist your endeavors this purpose, as evidenced by highly commendable Embassy explanations character purpose limitations military aid reported Embtels 886 and 902.
[Page 543]Nature of Iranian motives and thinking underlying extreme attitudes expressed is question diagnosis which Embassy best equipped perform. Specific manner providing response best designed achieve necessary purpose developing tolerably accurate and rational Iranian attitudes must be left your good judgement. Whether Iranian attitudes are products genuine sincere sense grievance or are staged pursuant bazaar techniques, they reveal same need for clear and firm responses conveying implicit and explicit reiteration essential reasons, purposes and spirit which motivate, justify and delimit US Govt and taxpayers willingness undertake burdens of foreign aid.
Most striking elements misapprehension evidenced in Iranian attitude are seen in contention US alone cannot determine amount aid it will offer but must determine jointly with recipient, and adequacy aid is to be judged by invidious comparison with other recipients irrespective specific needs or on basis some absolute concept such as quote total security unquote. Last point ably covered by General Evans as reported Embtels 886 and 902 but further analysis implications Iranian attitude essential.
Whether this attitude derives from view aid is obligatory largesse owed by rich to poor, or is due Iran in payment for alignment our side, it is based on complete misconception since no obligation rests on U.S. in matter. Readiness US extend aid friendly foreign peoples through their governments is strictly expression of voluntarily cooperative spirit in endeavor achieve mutual aims mutually beneficial by mutually cooperative action. Essence is therefore common purpose influencing grantor and recipient seek common objectives. In present situation these objectives have two-fold character. First and basic is desire preserve, promote, expedite widest and fullest development conditions freedom and economic welfare in interest achieving maximum benefit of peace, stability and broad welfare of people of U.S. and other countries. Second is recognition this aim threatened today by aggressive attitude and actions of Iran’s powerful neighbor and preservation existing above-mentioned human values as well as their further cultivation requires cooperative endeavors of like-minded peoples and governments for most effective resistance threats and discouragement outbreak more outright aggression.
For its part U.S. able provide, at definite cost and sacrifice of significant domestic needs, substantial aid in economic and military fields to other like-minded countries. Such aid is voluntary contribution to common purpose. It is not payment for value received nor to induce another country to align itself with US or act according US desires instead of pursuing alternative course. Admittedly US stands to benefit from realization objectives of aid programs. This is justification for sacrifices of domestic needs which extension aid to foreign [Page 544] countries imposes on people of US. Moreover, discomfort to US from failure achieve objectives aid programs would be far less than disastrous consequences to those situated closer to source of present-day aggression threat. Aid from US is not tendered as charity, nor as subject for bargaining, but it is definitely of more immediate and critical interest to recipients in advancement their essential interests as well as those of US. Cooperative nature aid programs for mutual objectives is paramount characteristic.
Necessary also to emphasize aid US can provide over widespread geographical area, substantial as it is, is limited to U.S. capacity and marginal in relation to overall size of task achieving full mutual objectives earlier described. Two important consequences follow. First, as so ably explained by General Evans, it must be carefully distributed according to actual need, wherefore invidious comparisons between countries’ shares have no place. Second, unless it is received and treated as marginal increment to necessary endeavors of recipient, it is largely wasted. Self-help on part recipient is therefore essential ingredient. U.S. aid is necessarily limited to providing indispensible needs otherwise not available to recipient, with major portion of task accomplished by recipients own efforts in its own interest in pursuit of broad common purposes by mutual cooperation.
It follows that U.S. aid, being neither charitable distribution largesse nor payment of obligation is not subject bargaining. Being voluntary contribution US effort at sacrifice other US needs, in furtherance essential common purposes for mutual benefit, US alone can determine amount and character such aid it is able to extend; distribution among recipients and application such aid must be calculated on basis actual needs and priority of urgencies in light of overall problem and purpose; and effectiveness of aid depends upon adequacy and efficiency of collateral self-help of recipient, which causes US to have necessary deep and direct interest in manner and efficiency utilization aid it renders.
Finally, importance of self-help points to importance, aside from aid granted in tangible financial, equipment and commodity form, of aid in nature of technical assistance designed to advance effective application of self-help to overall resources of recipient, including own resources as well as those received from US or others.
Department fully realizes how very alien conceptions of Iranians, as evident your reftels, are from those above outlined, and difficulty of task of enlightenment. Obviously this task not susceptible immediate accomplishment and manner handling subject must be left your tact, diplomacy and good judgment. Whatever degree and rate of success in enlightening Iranians is achieved, it is essential US representatives constantly be guided by clearest comprehension these considerations. [Page 545] Consequently Department hopes this restatement of what you of course already know will prove of some assistance in your difficult and important task.