357.AC/3–750
The United States Representative on the Palestine Conciliation Commission (Palmer) to the Secretary of State
priority
338. Palun 337. In dinner conversation with Barco last night Rafael again took occasion to request Commissioners’ utmost patience and restraint. Israel’s position with Jordan was confused and fluid and it would be most unfortunate if Commissioner took step which might cause Jordan’s ultimate withdrawal from negotiations on theory more could be hoped for from Commissioner. Rafael admitted it was possible no accord would be reached with Jordan and that Israel would certainly not enter into empty agreement. He believed two or three weeks might see decision taken one way or other. Meanwhile Egypt was watching progress of negotiations with Jordan closely and the [Page 785] outcome would be important factor in Egypt’s own decision whether or not to have talks with Israel. Egypt was of course at same time trying in every way to sabotage Israeli-Jordan talks. Rafael admitted success or failure Jordan talks might be equally effective in deciding Egypt to have negotiations with Israel.
Asserting that “windfall” of most strictly confidential information had come to hand, Rafael claimed Egypt and Soviet Union had made deal in New York whereby Russia would support Egypt in UN in return for certain agreements. Israel now knew for certain Egypt was being called on to make good her commitments. Rafael was not in position to allude to this except in these general terms, but matter was intimately connected with Egypt’s present review of her policy with respect to international situation in general and Palestine in particular. Egypt was considering alternatives of agreement with Israel or resumption of war. In interest of stability of Middle East it was therefore essential that every assistance be given Israel in her attempt reach agreement with Jordan. PCC would not contribute to this effort by seeking piece-meal solutions such as PCC proposal for committee on Gaza. Egypt was not concerned over form which negotiations with Israel might take, but only with principal question of whether to have peace with Israel at all. Under these circumstances pressure on Egypt was needed, primarily from US and secondarily from PCC, by demanding that Egypt enter direct negotiations.
Barco recalled to Rafael that PCC had in numerous conversations with Abdel Monem1 pressed without success for Egypt’s agreement to direct talks and that he did not believe PCC could continue demand direct talks without offering some compromise proposal either as to procedure or substance. Barco said also that whereas US might not be willing exert pressure on Egypt on the sole question of direct negotiations, the American Government, in view of its policy of supporting UN activities and procedures, might see fit to indicate to both parties its support for a reasonable procedure if such were proposed by PCC. He therefore hoped Israel would regard any PCC suggestions for breaking impasse in this light. The pressure which Israel desired might best be furnished in this way. Rafael agreed reflect on this possibility. Our impression is however that Israel representatives here are dead set against any proposal by PCC which in any sense might improve Arab states negotiating position.
Rafael and Eban regard Boisanger as “agitator” and quite pointedly indicate USDel, “in America’s own interest”, must counteract French impatience. Rafael asserted French Government views possibility [Page 786] Israel-Jordan accord with “panic”. It was principally for this reason that Eban was talking over week end with Parodi in Paris. His first purpose was attempt convince French there was no danger to their position in Middle East in agreement between Israel and Jordan. At same time Eban wished impress Parodi with necessity PCC’s forbearance.
Having in mind all of foregoing and fact Arab delegates continue ask for PCC action in each and every conversation, I believe time has come for consideration of new approach. Labbane of Egyptian delegation declared on Friday if PCC remained inactive much longer, Arab delegates would not participate further. Fisher, PCC press officer JELM, reported in meeting with PCC today that Abdullah told him his present policy was “one of despair” which he was pursuing because PCC had “let him down”. Amman telegram 38, 5 March, 3 p. m. indicates probable postponement Israel-Jordan discussions until after Jordan elections. PCC will with difficulty remain inactive for this period of time. Heretofore USDel has been well aware of desirability avoiding any action by PCC which would lend credence to Israeli claim of interference in imminent agreement between Israel and Jordan. We must in our opinion still avoid giving cause for claim by Israel PCC has by its action stiffened Abdullah’s attitude, as long as there is still honest hope for agreement. Such assertions by Israel could be avoided if Jordan saw fit to request direct talks, coupled with request for mediation if necessary, under PCC auspices. PCC itself could not suggest this to Jordan without encountering Israel’s claim of interference. In view of deteriorating situation here and in Palestine, USDel suggests Department give serious consideration to suggesting at Amman that Jordan Government make such an official request to PCC. Abdullah will of course have to be convinced that PCC will in fact follow-up such request with results at least more favorable to him than present stalemate. In order convince Abdullah of this we must be prepared play more active role both within PCC and outside. A proposal by PCC, following request from Jordan, for direct negotiations under PCC coupled with PCC’s mediation might be difficult for Israel and Arab States refuse and could provide means breaking present impasse. This might be sufficient give impetus to direct negotiations without necessarily committing PCC to finding solution for every problem. Parties themselves might be relied on after initial break in logjam to keep ball rolling. Department consideration this suggestion and possible alternatives urgently requested. USDel feels present instructions have outlived their usefulness.
- Head of the Egyptian Delegation to the Palestine Conciliation Commission. His name is also transliterated as “Muniem”.↩