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

741.56374/4–3054: Circular airgram

No. 1329
The Acting Secretary of State to the Embassies in Egypt and the United Kingdom¹

top secret

Washington, April 30, 1954.

CA–6247. Subject: New British Proposals on Suez Base.

To assist in clarifying our thinking with respect to the new British proposals on the Suez Base, the attached draft of a possible “Memorandum of Understanding” has been developed in the Department. The draft is also intended to coordinate the thinking of the Department and the Embassies at Cairo and London.

The document is modeled upon and includes certain language from the British “Heads of Agreement” of January 13, 1954.² The British proposals of March 17, 1954 and current Egyptian views, as far as they are known, have been taken into account. The language, particularly in Section 6, was purposely kept vague in the belief that it would be easier to work out details at a later stage in the negotiations. The references to “third parties” in Sections 7 and 8 are intended to permit the association of the United States.

As we envisage the negotiations, the British and Egyptians would first reach an “agreement in principle,” perhaps along the lines of the attached document. Up to this point, United States association would consist of assistance behind the scenes. During the discussions, however, it would be indicated to the Egyptians that if they so desire, the United States is prepared to become a party to the final settlement to the extent provided for in Sections 7 and 8. Once the “agreement in principle” is reached, we would expect a much-publicized initial withdrawal of British troops, extension of United States economic aid, and, perhaps, the dispatch of a survey team as a first step in the extension of military assistance. These moves should enhance the position of the West in Egypt and facilitate the final phase of the negotiations. Only after the “agreement in principle” is signed would we make a definite decision regarding how openly and firmly the United States would associate itself with the final arrangements. We could become a party to a tripartite agreement and exchange notes with Egypt accepting availability rights.

The Embassies at Cairo and London are requested to advise the Department if the attached document reflects their understanding of the current Egyptian and British positions and whether or not they believe an arrangement along its lines would prove acceptable to the parties. The document should not be shown to either the British or the Egyptians.

Enclosure

Possible Memorandum of Understanding

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.

1. The Anglo-Egyptian Treaty of 1936 shall be null and void on the entry of this Agreement into force.

2. The Agreement will recognize 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 Convention guaranteeing the freedom of navigation of the Canal.

3. The Agreement will last 10 years from the date of its entry into force.

4. All of Her Majesty’s forces will be withdrawn from Egyptian territory within a period of 24 months from the entry of this Agreement into force.

5. 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 Collective Security Pact or on Turkey;

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.

6. In the event of:

(a) a threat of an attack on any member of the Arab Collective Security Pact or an independent Moslem nation bordering on a member of the Arab Collective Security Pact; or

(b) the outbreak of a global war;

immediate consultation shall take place which shall include the United Kingdom and Egypt.

7. With the concurrence of both Egypt and the United Kingdom, agreements may be reached with third parties placing the facilities mentioned in Section 5 at their disposal under the conditions specified in Sections 5 and 6.

8. (a) Following the withdrawal of British troops, the Egyptian Government shall assume responsibility for the security of the Base. A civilian entity acceptable to both governments shall be entrusted with the operation and maintenance of certain specified facilities within the Base area. The civilian entity shall be under the authority of the Egyptian Government, and the United Kingdom shall have the right to inspect the work performed by this entity.

(b) A technical committee shall be established to work out the details of the future operation and maintenance of the Base, including, among other matters, financial aspects and the exact composition and functioning of the civilian entity.

(c) At the invitation of both Egypt and the United Kingdom, third parties may be asked to participate in the work of the technical committee and to associate themselves with the arrangements pertaining to the proposed civilian entity.

9. The United Kingdom shall be accorded full rights to move any British materiel out of the Base to any point at any time at its discretion. Following the withdrawal of British troops, the Egyptian Government will permit movement into the Base of replacement and spare parts for the maintenance of the specified facilities.

10. Aircraft under Royal Air Force control shall be accorded most favored nation treatment, including overflying rights and use of designated airfields, in accordance with procedures which shall be agreed to from time to time. Certain of the specified facilities to be maintained and operated by the civilian entity may be used by aircraft under Royal Air Force control.

11. The parties will consult together at the end of the period specified for the duration of the Agreement to decide whether they wish to continue the existing arrangements for the maintenance and operation of the Base or to effect other arrangements. In the event that the parties fail to agree, the Agreement shall terminate as specified in Section 3.

12. Although there will be additional questions of detail to be covered in drafting of the Agreement, the Egyptian and British Delegations agree that this document sets forth all the matters of principle which will be incorporated in the final agreement.

Smith

1. Drafted by Burdett and approved by Byroade.
2. See telegram 765 to Cairo, Document 1270.