501.BB Palestine/2–1049
Memorandum by the Director of the Office of Near Eastern and African Affairs (Satterthwaite) to the Secretary of State
Subject: Attendance of American Officials at Meeting of Israeli Constitutent Assembly in Jerusalem
Discussion:
The resolution of the General Assembly of November 29, 1947, which recommended the partition of Palestine, stated that the City of Jerusalem was to be established as a corpus separatum under a special international regime and was to be administered by the United Nations. The General Assembly resolution of December 11, 1948 on Palestine resolved that Jerusalem should be accorded special and separate treatment from the rest of Palestine and should be placed under effective United Nations control. The resolution also instructed the Palestine Conciliation Commission to present to the Fourth Regular Session of the General Assembly detailed proposals for a permanent international regime for the Jerusalem area. The United States voted in favor of both of these resolutions.
During the fighting which has taken place in Palestine, the Israelis have managed to carve out by military force a land corridor connecting New Jerusalem (Jewish Jerusalem) with the State of Israel. In various public statements Israeli officials have stated their determination that New Jerusalem shall become a part of Israel.
We believe that an agreement between Israel and Transjordan looking toward the division of Jerusalem into two areas to be administered by the two countries would be an appropriate solution of the problem. We feel, however, that the United States cannot support any arrangement which would purport to authorize the establishment of Israeli or Transjordan sovereignty over parts of the Jerusalem area, in view of the above cited United Nations resolutions and our support thereof. Our belief is that the Israelis and Transjordanians, should be supervised in their administration of the city by a United Nations Commissioner, the principle of the internationalization of Jerusalem, in favor of which the world community has voted, thus being maintained.
Our representative in Tel Aviv, Mr. James G. McDonald, has informed us that the Israelis have decided to open their Constituent Assembly in Jewish Jerusalem on February 14. They are inviting members of the Diplomatic and Consular Corps in Tel Aviv to attend and Mr. McDonald requests the Department’s authorization to do so. He feels that non-attendance would wound Jewish sensibilities and create an awkward situation for the United States in Israel if the [Page 740] Russian Minister in Tel Aviv should attend. Mr. McDonald advocates that he accompany his acceptance of the Israeli invitation with a formal statement that his attendance at the opening of the Assembly does not imply any change in the United States position on the status of Jerusalem. (Tab A, original only.)
Mr. Mark Ethridge, the American Representative on the Palestine Conciliation Commission, has cabled that it is clear that the Israeli Government does not accept the world opinion concerning the internationalization of Jerusalem and intends to take steps looking toward the eventual incorporation of Jewish Jerusalem in Israel. He says that the decision to open the Constituent Assembly, with its implications of sovereignty, in Jerusalem is an indication of this intention. In Mr. Ethridge’s opinion this Israeli policy can only be counter-acted by firmness on the part of the Commission and of the Governments represented on the Commission. He further states that in his opinion the decision the Department has to make is whether it will perform one more act of courtesy or whether by not doing so, the United States will dramatize its desire for peace in Palestine and its backing of General Assembly resolutions. He believes that the United States would seriously weaken the position of the Conciliation Commission by sending any United States officials to the opening of the Assembly and would strengthen the Commission’s hand by not doing so. Mr. Ethridge says that he is convinced that Israeli Foreign Minister Shertok feels that the United States will not back the United Nations and that Israel can get what it wants. (Tab B, original only.)
Our Consul in Jerusalem is in agreement with Mr. Ethridge and believes that attendance of United States officials at the opening of the Assembly will prejudice the Conciliation Commission’s task in drawing up a proposal for the internationalization of Jerusalem.
Recommendation:
It is recommended that our representative in Tel Aviv be instructed to point out in the most friendly fashion to the Israeli Foreign Minister the difficulties which may be caused by the plan to open the Constituent Assembly in Jerusalem. This would be done not in an effort to dissuade the Israelis from their present plan but as a matter of record should the plan have an adverse effect on the attitude of some Nations Members of the United Nations when the Israeli membership application is again considered by that body, and should the opening of the Assembly in Jerusalem, with its implications of sovereignty, prove to be a stumbling block in the course of Arab-Israeli negotiations. It is also recommended that no American official in Tel Aviv or Jerusalem attend this meeting, since for them to be present at such a ceremony, would run contrary to the position which the United States has taken in support of the internationalization of Jerusalem and, as [Page 741] Mr. Ethridge states, would weaken the position of the Conciliation Commission and lead the Israelis to believe that the United States will not back up a decision of the United Nations. The French Embassy has informed us that the French Government plans to instruct its representatives in Palestine not to attend the opening of the Assembly and hopes that the United States Government will take a similar decision. We have reason to believe that the British Government would like to send the same kind of instructions. Both countries are apparently waiting to see what we will do in order to concert their policy with ours.
A suggested telegram to Tel Aviv and Jerusalem is attached for your signature if you concur.1
- Secretary Acheson reviewed this memorandum with President Truman on February 10, “giving him Mr. Ethridge’s views and also Mr. McDonald’s views and my own recommendation, which was that we should not attend. The President was very clear that this recommendation was correct and himself approved the telegram so stating.” (Memorandum by Mr. Acheson, 501.BB Palestine/2–1049) The telegram, No. 83, was sent to Tel Aviv on February 10. It reviewed the situation as set forth in Mr. Satterthwaite’s memorandum and concluded as follows: “Dept believes that in spirit of friendly counsel you should make above points to Shertok. View US position in support of UN position on Jerusalem, Dept unable authorize any Amer official from Tel Aviv or Jerusalem attend meeting Constituent Assembly if held Jerusalem. In declining invitation with appropriate expressions regret, pls inform FonOff that you understand assembly to be transferred Tel Aviv after opening Jerusalem and that you would be pleased attend first session in Tel Aviv.” (501.BB Palestine/2–1049)↩