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

501.BB Palestine/8–1649

Memorandum by the Assistant Secretary of State for Near Eastern and African Affairs (McGhee) to the Secretary of State ¹

confidential

[Washington,] August 16, 1949.

Subject: Palestine Conciliation Commission

Discussion:

Mr. Porter, the United States Representative on the Palestine Conciliation Commission, returned to the United States from Lausanne on August 12. Since his return to the present situation at Lausanne and in Palestine has been discussed in detail in the Department and in consultation with Mark Ethridge who visited Washington for this purpose. Mr. Porter’s general conclusion, with which we agree, is that no real basis for conciliation between the parties exists at the present time. The underlying reasons for this conclusion are set forth in the attached telegram (numbered paras. 1–5 of Tab A).²

In view of this situation, it is believed that the most effective approach to a Palestine settlement at the present time would be on economic grounds rather than on political grounds as has previously been the case. It is therefore proposed that the following procedure be followed:

1) The Palestine Conciliation Commission should as soon as possible establish the proposed Economic Survey Mission which would proceed to the Near East, study existing data, consult interested governments and authorities and on this basis prepare a report to the General Assembly through the PCC containing its recommendations for economic development and settlement of the refugee question. Before establishing the Mission interested NE governments would be requested for advance assurances they would cooperate with the Mission and would give great weight to its recommendations (last 4 paras. Tab A).

2) The PCC should submit a progress report to the UN relating its efforts at conciliation during the past seven months and its establishment of the Economic Survey Mission.

3) The PCC should then recess for the time being. Meanwhile, the PCC will leave its Principal Secretary (Dr. Pablo de Azcarate) in Jerusalem, the Commission’s official headquarters, for such activities as may be necessary. The Commission may be reconvened at the request of Dr. Azcarate or any one of its three members if future developments require such action.

4) The PCC should reconvene at Lake Success when the Economic Survey Mission has completed its report (estimated at about November 1).

5) The PCC should at that time submit a further progress report to the UN incorporating the findings and recommendations of the Economic Survey Mission. This report should also include the PCC’s own recommendations as to whether the Commission should continue its activities or whether it should be replaced by some new agency.

6) The Department is of the preliminary opinion it may be advisable to replace the Commission by a single individual such as an Agent General to have responsibility for conciliation, economic development, refugee resettlement and relief and possibly Jerusalem. No decision need be reached regarding the future of the PCC at this time as it is still being studied. Meanwhile, this question will be discussed with other interested governments to ascertain their views.

7) Mr. Porter tentatively plans to return to Lausanne about August 20 for the purposes described in steps 1) and 2). Mr. Porter also plans to stop off in Paris where he hopes to discuss steps l)–5) with our Embassy, the French Foreign Office and the French representative on the PCC. This step is considered imperative to enlist French support; otherwise the French representative on the PCC might attempt to hinder the action recommended in this memorandum because of his personal inclination toward indefinite conciliation. A proposed telegram to Paris is attached (Tab B).³

Recommendations;

It is recommended that:

1) you approve the foregoing procedure and

2) that you approve the attached telegram (Tab B).⁴

[Here follow concurrences and a list of attachments.]

1. Sent through Mr. Rusk and initialed by him.
2. For text of circular telegram as actually sent, see infra.
3. Secretary Acheson, on August 18, informed President Truman that he and Mr. Porter recommended the course outlined in Mr. McGhee’s memorandum. Mr. Acheson’s memorandum of the conversation states that “The President approved our taking that course.” (Secretary’s Memoranda, Lot 53 D 444, Secretary’s Memos)
4. The telegram was sent to Paris as No. 3068 on August 18. It read as follows: “For Bruce from the Secretary. Ambassador Paul Porter, US Rep PCC, plans arrive Paris Aug 19 enroute Lausanne. Recent developments at Lausanne re Palestine appear require new procedural approach for which we need strong French support. It would be appreciated if you would request Schuman to arrange consultation in Paris on Aug 22 between Boisanger, French Rep PCC, and French FonOff officials concerned.” (501.BB Palestine/8–1849) Robert Schuman was the French Foreign Minister.

   A 2-hour talk was held on the morning of August 22. Mr. Boisanger was said to have “expressed his appreciation usefulness and importance economic survey in providing basis eventual political settlement and accepted general lines policy put forward by Porter. Boisanger concerned, however, that adjournment PCC be so handled as to make entirely clear machinery for negotiation remain available to parties and not abandoned. Also desired recess should not take place until commission had received and examined Israeli and Arab replies on territorial question shortly expected. Porter stated this agreeable to him so long as matter dealt with promptly as possible preferably within one week.” (telegram 3459, August 22, 5 p. m., from Paris, 501.BB Palestine/8–2249)