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

501.BB Palestine/9–249

Memorandum by the Assistant Chief of the Division of International Organization Affairs (Halderman)¹

confidential

[Washington,] September 9, 1949.

Committee Allocation of the Palestine Question

problem

The problem is to determine the proper committee or committees to which the Palestine case should be allocated by the General Committee.

recommendations

1. All aspects of the Palestine case should be allocated to Committee 1, except for possible interim action to provide direct relief funds (see recommendation 3) and the normal function of Committee 5 on financial aspects (see recommendation 4).

2. The General Committee should recommend that Committee 1 should refer the question of direct refugee relief to Committee 3 for report back to Committee 1. The report of the United Nations Relief for Palestine Refugees would also be referred to Committee 3 to be considered in connection with future relief programs.

3. In the event that it is necessary to make interim provision for direct relief funds, due to the exhaustion of present funds, such question should be referred to Committee 3 for action early in the session. This action should be limited to provision of stop-gap funds.

4. The foregoing allocations would be without prejudice to the normal function of Committee 5 with respect to financial provisions.

5. Except as indicated in Recommendation 3, all aspects of the Palestine case, including Jerusalem, should be deferred until the final report of the Commission, including the report of the Survey Mission, is submitted. These reports are expected about November 1.²

discussion

The provisional agenda includes two items on Palestine: (1) Jerusalem and the Holy Places, and (2) direct refugee relief. It is expected, however, that a later item will be placed on the agenda based on the report of the Conciliation Commission including the report of the Survey Mission. These reports are expected to be submitted about November 1.

It is the position of the United States that these reports should be considered by Committee 1 and that this item should be the basis for the principal consideration of the United Nations program in respect of Palestine for 1950.

Overall Consideration in Committee 1

Due to the interrelation of the political and economic aspects of the problem as revealed by the experience of the past year, it is felt that the United Nations should establish an integrated program for 1950 to include all political and economic aspects. In order to achieve this integration it is considered that these matters should be placed in the hands of Committee 1 for overall consideration and recommendation.

Since the problem of achieving a political solution has proved to be integrally related to that of the solution of the refugee problem (repatriation and resettlement) it is appropriate to have the consideration of these two aspects take place together in Committee 1. The question of direct relief is somewhat separate and more appropriate for consideration in Committee 3. (Recommendation 2, discussed below.) However, in order to achieve the proper integration of this program with the others, it is recommended that it be placed in the hands of Committee 1 with the recommendation that it be referred from that Committee to Committee 3 for consideration and report back to Committee 1.

Direct Relief

It is considered that Committee 1 should refer the question of direct relief to Committee 3 for consideration and report back to Committee 1. The General Committee should make a recommendation to this effect in allocating the subject matter to Committee 1. The reasons for referring the question of direct relief for consideration in Committee 3 are:

(1) Separation of the direct relief question from the large scale economic development programs will be conducive to a successful appeal for voluntary contributions for continued direct relief. If direct relief is considered in conjunction with such large-scale development programs, many delegations may consider that their voluntary contributions are unnecessary.

(2) Committee 3 will include the more “relief minded” members of delegations who should be more sympathetic to the plight of the refugees.

(3) Committee 3 has had more experience in dealing with relief matters and their judgment on this question should be of value. The program established by Committee 3 last year was highly and unexpectedly successful in bringing in the necessary contributions of $32,000,000.

(4) The subject of direct relief is normally within the terms of reference of the Third Committee which deals with social, humanitarian and cultural problems.

Timing

Since the consideration of most aspects of the Palestine case must necessarily be based on the Reports of the Conciliation Commission and the Economic Survey Mission, it is desirable that consideration be deferred until the receipt of these reports, probably about November 1. This is desirable in the interest of efficient management of the General Assembly and the conservation of time. As to Interim Relief Funds, and Jerusalem, see discussion below.

Interim Refugee Relief

Apart from the main consideration of the Palestine case there is possible need for action earlier in the session to provide interim funds to continue refugee relief until a more definitive provision can be made. This may be necessary because of the possibility that current funds will be exhausted by December 1, before General Assembly action on the overall question can be taken. The Ad Hoc Advisory Committee on Palestine Refugees is meeting September 29 to consider the need for such action on the basis of the financial situation of United Nations Relief for Palestine Refugees at that time. If necessary this provisional action should be taken in Committee 3, early in the session, and should consist of authorization to draw on the Working Capital Fund for an amount sufficient to carry on the relief operation for a short period.

Jerusalem

The Jerusalem question is substantively somewhat distinct from the other aspects of the Palestine case. However, it will normally be in Committee 1. It should preferably be taken up at the same time as the rest of the Palestine case, but further decisions may be necessary on this point in the light of the timing of the submission of the PCC proposals and the reaction of other delegations to them.

1. Mr. Halderman had prepared an earlier draft of this memorandum on September 2. The same day, he forwarded the draft to officers of the Division of Near Eastern Affairs, the Office of the Legal Adviser, and the Division of United Nations Economic and Social Affairs for comment (501.BB Palestine/9–249). The version of September 9 printed here was prepared presumably after comments by these officers.
2. With minor changes, including the consolidation of Nos. 3 and 4, the recommendations were sent to the United States Mission at the United Nations on September 13, for use in further consultations with the Secretariat (telegram 473 to New York, 501.BB Palestine/9–1349).