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

741.56374/1–2154: Telegram

No. 1273
The Acting Secretary of State to the Embassy in Egypt¹

top secret

Washington, January 21, 1954—7:20 p.m.

816. As you know UK draft “Heads of Agreement” prepared in response our prodding. Purpose was assure ourselves and Egyptians UK wanted agreement and would not raise additional “matters of principle”. We did not anticipate any change of substance UK positions “availability” and “uniforms”. Egyptian Ambassador already informed this assessment (Deptel 649). We think chance agreement depends on recognition by RCC draft in principle best obtainable by Egypt present time. This does not preclude minor changes substance and presentation.

We wish avoid another “joint approach” or being placed in position supporting British language on matters detail.

Following comments given British Embassy Jan 20:

1. We consider draft constructive forward step but had hoped would reflect advance over British position Oct 21 as result informal talks Cairo.

2. Besides “availability” and “uniforms”, Para 14 likely prove most troublesome. Suggest introduction sentence affirming no further “matters of principle” will be introduced.

3. At appropriate time we ready urge on Egypt again acceptance provisions regarding “availability” and “uniforms”. We also now in position assert to Egyptians we have assurances UK will not raise further “matters of principle”.

4. Draft served useful purpose clarify in our minds British position and permit us give assurances indicated to Egyptians. We do not consider document “joint draft” and have no thoughts at moment regarding tactical use.

UK representative then given following informal comments:

Verbatim Text. The United Kingdom may wish to consider the following suggestions:

1. Numbered Paragraph 3 might be made more attractive to the Egyptians by “window dressing,” emphasizing the benefits they will derive. This could be done by specifying that the working base would be used for the defense of Egypt, as well as the other purposes mentioned.

2. With respect to numbered Paragraph 9, we assume the United Kingdom will wish to consider adjustments in the numbers of technicians if this proves necessary during the negotiations.

3. We understand that the British intend by numbered Paragraph 11 to provide for consultations to determine whether or not arrangements with respect to the Base should be continued. The Egyptians appear concerned that the British wording could be interpreted as continuing the agreement in perpetuity. If our understanding of the purpose of the paragraph is correct, substitute wording might be found to eliminate the Egyptian apprehensions.

4. We are concerned lest the Egyptians interpret numbered Paragraph 14 as confirmation of their fears that numerous additional “matters of principle” will be introduced. To meet this, the paragraph might be opened with a sentence specifying that the British and Egyptian delegations agree that the “Heads of Agreement” sets forth all the “matters of principle” which will be incorporated in the final agreement. This would give the Egyptians assurance against the injection of additional “matters of principal” while at the same time not barring discussion of other “questions of detail.” We recognize that as a matter of practical necessity such questions as those mentioned in the paragraph must be included in the final agreement.

5. We believe that during the course of negotiations modifications will be necessary in the annexes to meet Egyptian views on such matters as the title of the “Assistant Base Commander,” and his right to inspect installations turned over to the Egyptians. End Verbatim Text.

British representative expressed appreciation for promise renewed support “availability” and “uniforms”. Stated believed UK would endeavor meet suggestions with possible exception number two. Felt Eden probably would wish discuss matter with Secretary Berlin before determining use draft.

Smith

1. Repeated to London as telegram 3785 and by air pouch to Berlin to the U.S. High Commissioner for the U.S. Delegation to the Four-Power Conference at Berlin. Drafted by Burdett and approved by Byroade.