320/12–152
Memorandum by the United Nations Adviser, Bureau of Far Eastern Affairs (Bacon), to the Deputy Assistant Secretary of State for Far Eastern Affairs (Johnson)1
- Subject:
- Developments Relating to the Membership Question
A meeting of the Geographic Bureaus, L and UNA was held on Friday afternoon, November 28 to discuss the latest comments and proposals on the membership question from our Delegation in New York (Delga 277, November 27). Attention was centered on USUN’s suggestion concerning a committee to study the membership problem between the 7th and 8th sessions, the committee to be composed of some nine UN members and to report to the next GA. Such a proposal would replace proposals contemplated in existing instructions. A tentative view was reached that we might be able to support an inter-sessional committee, if it has substantial support (Gadel 76, November 29).2
I. Background:
A. Present Instructions to the Delegation.
Present instructions contemplate:
- (1)
- our initiating or supporting a GA resolution determining that Japan is qualified for membership and requesting the Security Council to reconsider its application;
- (2)
- our supporting similar resolutions relating to Vietnam, Laos and Cambodia, acting in concert with the French; and
- (3)
- our proposing or supporting amendments to the anticipated Soviet proposal for SC reconsideration of the Soviet package which would have the effect of adding the ROK, Japan, Vietnam, Laos and [Page 875] Cambodia and of making clear that “reconsideration” by the SC of the applications involved would not necessarily involve endorsement or favorable action upon all of them.
B. Procedural situation in the GA.
It is possible that the membership question may be reached by the end of this week. The Ad Hoc Committee is now discussing the Palestine question. Membership is the next item on the agenda. There have, however, been suggestions that items might be transferred from the First Committee and given precedence over membership.
Proposals which may be advanced include: (1) a Central American proposal for an ICJ advisory opinion on the result of votes in the Security Council on recommendations for the admission of new members; (2) a proposal by Peru for the admission of Italy by the GA without further SC action; (3) the Soviet package proposal.
The UK has indicated it would have difficulty in going along with an amendment of the Soviet package proposal along the lines of our current instructions, although the basis for the UK hesitation is not clear.
II. Proposal for Inter-sessional Committee.
In the discussions on Friday two principal problems in connection with the inter-sessional committee proposal were discussed:
A. What would the committee do?
The Committee might recommend in favor of an amendment to the Charter deleting the “peace-loving” qualifications for membership but retaining the statehood qualification; it might favor admission by the GA of states receiving seven affirmative votes in the Security Council or otherwise dropping the veto in the SC, etc. It was generally agreed that the tendency of such a study would probably be in the direction of universality of membership. If the qualification of statehood were retained it might be possible to avoid a recommendation which would include such cases as Outer Mongolia.
According to information from New York, Senator Wiley was inclined to look toward universality at some future time and it was also reported that Dulles’ recent book likewise gave support to the universality concept.
B. Composition of the committee.
USUN gave no indication of the probable composition of the committee except that nine UN members might be included. It was generally agreed that the five Big Powers should be included. Selection of the four remaining members would present difficulties assuming that two Latin Americans, an Arab, an Asian, another western European, another Commonwealth, etc., would wish to serve. It might accordingly be necessary to expand the membership of the committee. Keeping in mind the sometimes thin line that separates membership from Chinese [Page 876] representation, the composition of the committee might be of especial importance.
III. Instructions to New York.
Agreement was reached on an instruction to New York along the general following lines:
- (a)
- The Department’s tentative position was that, if there was substantial support, it might be able to support, but not initiate, a proposal for an inter-sessional study committee and the Delegation was authorized to discuss the proposal with other Delegations.
- (b)
- At L’s request parts of the preamble of the proposed resolution which were obviously directed at Soviet use of the veto on the membership question were to be deleted, leaving the presentation of the background in more generalized terms.
- (c)
- The Delegation was asked to insert in the preamble specific reference to the applications of Japan and the three Associated States with an indication that they should be admitted.
- (d)
- The Delegation was cautioned against including any indication of unqualified support of universality.
- (e)
- The Delegation was queried concerning USUN’s views on the composition of the committee, it being assumed that the Big Five would be included.
IV. Conclusions:
- (a)
- The GA will not be able at this session to effect the admission of any candidates. Accordingly, it would seem reasonable within certain limits to permit USUN to handle the situation in New York in whatever way it believes will best promote U.S. interests.
- (b)
- We should recognize that the proposed committee might prove to be a step in the direction of universality of membership. While not opposing creation of the committee if there is substantial support for it, we should take care that its terms of reference are so framed that they do not include any unqualified endorsement of universality.
- (c)
- We should continue to attempt to have some special mention of Japan and the three Associated States made either in the resolution on the committee or separately.
- (d)
- We should watch the composition of the committee and insist upon inclusion of the Big Five.