310.394/11–452
Draft Memorandum by the Director of the Office of United Nations Political and Security Affairs (Wainhouse) to the Assistant Secretary of State for United Nations Affairs (Hickerson)
- Subject:
- Non-Voting Participation by Japan in General Assembly and Other Questions.
We have received a cable from Tokyo, a copy of which is attached,1 stating that the Japanese Ambassador has been instructed to discuss with the Department a Foreign Office formula for non-voting participation in the UN. The cable says that the Foreign Office has by no means decided that it wants this status but that if there is agreement on the formula (presumably this means if the US agrees), the question of desirability would be referred to the Cabinet. Under the formula, non-voting participants invited by an Assembly resolution would have the right to send to the Assembly the same delegation as Members and to participate without vote in the plenary and committee meetings, including the right to speak, propose draft resolutions, and amendments, to submit and withdraw motions, and to receive documents. Invitees would be those excluded from membership by the Soviet veto.
Our preliminary view is that we could probably accept an arrangement along these general lines if desired by Japan, Italy and other qualified applicants. However, we believe that we should consult with other members before taking a position. Some members might oppose the formula on the grounds that it establishes a status too nearly equal to that of members. Further, there is a danger that some might urge that the formula apply to the Soviet applicants as well. We also believe that Japan itself should take some initiative and consult with Italy, which has thus far had serious reservations, and also with certain UN Members.
We suggest that we take the following line when approached by the Japanese Ambassador:
- 1.
- We do not wish to encourage Japan or any other applicant for that matter to accept non-voting participation in the Assembly. We still feel we should exhaust every effort to obtain its admission to the UN as a full member. However, if Japan is definitely interested in arrangements for non-voting participation, we will consult with other members to determine the wisdom and feasibility of such a status.
- 2.
- Our preliminary view is that we could probably accept an arrangement for non-voting participation along the lines suggested by Japan if desired by Japan, Italy and others. However, it is possible that some members might have reservations, and we would want to consult carefully with them in New York before giving Japan a definite answer. We are prepared to carry on such consultations if Japan [Page 868] desires. We suggest that the Japanese observer at the UN (Mr. Takeuchi) might wish to consult with Italy and with other UN Members on the matter before Japan makes a definite decision and we hope that he will keep in close touch with our delegation in New York, where the principal negotiations on the membership question are now concentrated.
- 3.
- We believe that a voluntary financial contribution to cover the cost of services rendered to non-Members might be an element of any arrangement for non-member participation.
The Japanese Ambassador may also raise two questions which Mr. Kamimura, Japanese Minister asked Mr. Young in a letter of October 23.2 These questions are:
(1) how and when we intend to have the Assembly take up Japan’s application, and (2) what action is being contemplated by us with respect to a liberalization of admission procedures. (This question results from Ambassador Austin’s speech in the Security Council on September 18 during which he stressed the need for a liberalization of voting procedures in the Council).
We recommend that you answer these questions as follows:
- (1)
- The U.S. believes it would be desirable for the Assembly to adopt a resolution determining (a) that Japan qualifies under article 4 and should be admitted and (b) requesting the Security Council to take this determination into account in reconsidering Japan’s application. Similar resolutions have been adopted in the past on other qualified applicants. We would, of course, be willing to sponsor the resolution or, if Japan prefers, some other member might do so. Such a resolution would be taken up when the Ad Hoc Political Committee discusses the item, “Admission of New Members,” probably in December.
- (2)
- Ambassador Austin, on September 18, outlined past efforts of the UN toward a liberalization of the veto in connection with admission procedures and stated that because of the continued use of the veto by the Soviet Union, the pressure of moral power of the peoples of the UN toward liberalization of the procedures of the Council is needed. However, he contemplated no specific proposal. We deplore the attitude of the Soviet Union on this matter, but unfortunately we do not see how the Assembly could improve the situation. There is before the Assembly a Central American draft resolution which would ask the International Court of Justice whether the veto is applicable in the case of membership applications. However, we believe there would be little or no chance that the Court would advise that the veto is not applicable.