Foreign Relations of the United States, 1952–1954, The Near and Middle East, Volume IX, Part 2

741.56374/1–1454: Telegram

No. 1270
The Secretary of State to the Embassy in Egypt¹

top secret
priority

Washington, January 14, 1954—1:49 p.m.

765. Given below is text “Heads of Agreement” British prepared sign. They desire our comments prior determining how use document. Your views requested soonest on both substance and best use of paper.

Verbatim Text. It is agreed between the Egyptian and British Delegations that with a view to establishing Anglo-Egyptian relations on a new basis of mutual understanding and firm friendship, and taking account of their obligations under the United Nations Charter and of their common concern for the security of the Middle East, an agreement regarding the future of the Suez Canal Zone Base should now be drafted on the following lines.

2. The Agreement will last for 7 years from the date of its entry into force.

3. The Canal Zone Base and its contents will be maintained in efficient working order as a Working Base to supply and maintain in peace the forces supported by Her Majesty’s Government in the Middle East and to be capable of immediate use in accordance with the following paragraph.

4. In the event of—

(a) an attack by an outside Power on Egypt; or

(b) an attack by an outside Power on any country which is a party to the Arab Mutual Security Pact; or

(c) a recommendation by the United Nations that the Base should be made available in the event of a threat to the peace, a breach of the peace or act of aggression;

Egypt will afford to the United Kingdom all such facilities as may be necessary to place the Base on a war footing and operate it efficiently. These facilities will include the use within the limits strictly indispensable for the above mentioned purposes of the Egyptian Ports by British forces.

In the event of a threat of an attack on any members of the Arab Mutual Security Pact, Iran or Turkey, there shall be immediate consultation between the United Kingdom and Egypt.

5. The organisation of the Base will be in accordance with Annex I attached.

6. The United Kingdom will be accorded full rights to move any British material in or out of the Base to any point and at any time at its discretion. There will be no major increase above the level of supplies existing at the time the Agreement is signed without the consent of the Egyptian Government.

7. Subject to the above arrangements, Her Majesty’s forces will be withdrawn from Egyptian territory within a period of 15 months from the entry of this Agreement into force.

8. After the period of 15 months mentioned in paragraph 7 above, there will be 4,000 British technicians for the remainder of the first 4 and a half years of the Agreement for the maintenance and running of the Base.

9. During the next 18 months the number of technicians shall gradually be reduced to 2,500. Thereafter their numbers should not fall below one thousand during the period covered by the Agreement.

10. Outside the Base area and when off duty within it, British personnel will wear civilian clothes. When on duty in the Base installations or in transit between them, they will normally wear working dress. However, the Egyptian Government accepts in principle that they may wear service uniform and that they will do so when directed. They may carry a weapon for their personal protection.

11. The parties will consult together at the end of the period specified for the duration of the Agreement to decide what arrangements are necessary to provide for the continued maintenance of Base thereafter.

12. The Agreement will recognise that the Suez Maritime Canal is an integral part of Egypt and a waterway economically, commercially and strategically of international importance and will express the determination of both parties to uphold the 1888 Convention² guaranteeing the freedom of navigation of the Canal.

13. Air matters are dealt with in Annex II attached.

14. There will be many questions of detail to be covered in the drafting of the Agreement, including the defence of the Base, the storage of oil, the financial arrangements necessary, the status of the British personnel and their dependents, and other detailed matters of importance to both sides. These will be settled by friendly Agreement in negotiations which will begin forthwith. End Verbatim Text.

Annex I— Consists of first four paragraphs of Section VIII “Organisation of the Base” of enclosure to London’s Despatch 2275 Dec 29³ rptd Cairo (Paragraphs 5 through 10 omitted) with following added:

Verbatim Text.

(a) After consultation with the Assistant Base Commander, the Base Commander may request the replacement of any British technicians for indiscipline.

(b) The Base Commander will be responsible for ensuring that after the completion of the withdrawal of British Forces the level of equipment in the Base will not be appreciably increased nor the installations appreciably extended without the consent of the Egyptian Government. End Verbatim Text.

Annex II—Substantially same as Section VII “Air Matters” of enclosure to London’s Despatch 2275.⁴

Dulles

1. Drafted by Burdett and approved by Byroade.
2. The reference is to the Convention between Great Britain, Austria–Hungary, France, Germany, Italy, the Netherlands, Russia, Spain, and Turkey, respecting the Free Navigation of the Suez Maritime Canal signed at Constantinople, Oct. 29, 1888; Great Britain, British and Foreign State Papers (London, HMSO, n.d.), vol. 79 (1887–1888), pp. 18–22 (French text).
3. For text of Section VIII of the enclosure to despatch 2275, see the editorial note, infra.
4. For text of Section VII of the enclosure to despatch 2275, see the editorial note, infra.