Foreign Relations of the United States, 1955–1957, United Nations and General International Matters, Volume XI

78. Instruction From the Department of State to Certain Diplomatic Missions¹

CA–1171

Washington, August 3, 1957.

SUBJECT

• Twelfth Regular Session of the United Nations General Assembly

The twelfth regular session of the General Assembly (GA) is scheduled to convene in New York on Tuesday, September 17th, 1957. We anticipate that the eleventh regular session of the General Assembly, which convened November 12, 1956, and adjourned temporarily March 8, 1957, will be reconvened earlier in September to consider the report of the Special Committee on the Problem of Hungary and to adjourn definitively prior to the opening of the Assembly’s twelfth regular session.

A. Compost Hon and Atmosphere

When the 12th GA opens, it will comprise 81 members, including five new members admitted since the opening of the 11th GA and sixteen members admitted by the 10th GA in 1955. The UN has expanded from 60 to 81 members within fifteen months. In this period the number of non-Communist European states increased from ten to sixteen; the number of members from Asia and Africa rose from seventeen to twenty-eight; and the number of Soviet orbit members increased from five to nine. The number of members from the old Commonwealth (4), from Latin America (20) or otherwise classified (4) remained constant.

Several organizational and tactical problems arise from this expanded membership. FYI Members from non-Communist Europe, the Old Commonwealth (Australia, Canada, New Zealand, and Union of South Africa), and Latin America together with the U.S. total 41, or, theoretically, a simple majority; while members from Asia and Africa mathematically constitute 28 or one-third plus one. In practice, of course, members do not vote solely on the grounds of geographical location. Indeed, such a situation would be undesirable. Nevertheless, the composition of the GA necessitates more than ever that members consult and accommodate themselves to one another if they wish to gain GA approval for proposed UN programs or avoid what they consider undesirable. As a hypothetical example, also FYI, it may be seen that were the US to sponsor a resolution requiring a two-thirds vote for GA adoption and if it were supported by all the Latin Americans, non-Communist Europeans, and Old Commonwealth members, which is not always the case, thirteen more affirmative votes would still be needed if all members cast their votes either affirmatively or negatively. Thus, assuming the Soviet orbit and others may be in opposition, at least thirteen affirmative votes would have to be sought from among China (which customarily supports us), Israel, Yugoslavia and the Arab, African, and Asian members, specifically, eleven Arab, three remaining African, and fourteen remaining Asian. End FYI

There has been evidence of some apprehension, particularly among European members with dependent territories, respecting the present composition of the GA. FYI Some of these European governments have expressed the feeling that they can no longer expect objective treatment from the GA on any issue that has “colonial” connotations. End FYI. It is apparent, however, that a substantial number of UN members share (a) a critical attitude in matters affecting dependent areas and (b) a pre-disposition for causes invoking the rights of peoples and nations to self-determination. These views are held by some members in each geographical area and are not exclusive to one.

Most of the major colonial questions which will come before the 12th GA, e.g., Algeria, Cyprus, recommendations concerning international respect for the right of peoples and nations to self-determination, and the attainment of self-government or independence by Trust Territories, to cite but several, will stimulate expressions of these views. In our opinion, a principal challenge to the GA will be how to encourage desirable progress without exacerbating existing controversies and tensions. Like its predecessors, the 12th GA will also have before it unsettled problems which continue to impede good relations such as those between Israel and the Arab states and those involving South Africa. Unlike them, the 12th GA will also have to consider how to continue to finance the United Nations Emergency Force.

B. Agenda

Enclosed for your information is the Department’s check list of items certain or likely to arise at the twelfth session (SD/A/438).² Items not bracketed are included in the provisional agenda (UN Doc. 3610) circulated by the Secretary-General on July 19, 1957 or will arise because of previous Assembly decisions. Items bracketed are likely to be submitted for inclusion in the agenda. Posts are cautioned not to discuss bracketed items, unless, in their discretion, consultations on such items would appear auspicious. Items are arranged according to their possible allocation to the plenary meetings of the Assembly or its seven Main Committees. As in previous years, we would appreciate information you may receive regarding any items which the government to which you are accredited is likely to propose for inclusion in the agenda.

C. Consultations

We desire, as in previous years, to consult informally with friendly governments prior to the opening of the Assembly concerning major agenda items. These consultations should be held on the basis of our tentative views or general objectives in order that we may be able to take the views of other governments into account when formulating our final positions. In some cases, however, you will observe our position has already been determined (e.g., para. D, items 1, 2, 3, 4, and parts of 5 and 6 below). The items dealt with in this instruction are those which would be considered in the Assembly’s political committees and/or plenary; other important items dealt with in the other five Main Committees will be treated in other instructions as appropriate, e.g.,CA 665 of July 19th. You are requested, in your discretion, to outline this government’s views or objectives to the foreign office and to report its reactions as soon as possible. As noted above, you should state that these views, except as otherwise indicated, are tentative and that we shall wish to take into account, insofar as possible, the views of other friendly governments in determining our ultimate position. Your approach at addressee capital will be paralleled by consultations with the permanent missions in New York through USUN and in some cases with diplomatic representatives in Washington. FYI There may also be consultations on a limited number of items among the members of certain regional organizations, such as NATO. End FYI. Actual negotiations, of course, are centered in New York.

D. U.S. Views

1. 12th GA Presidency and other officers

Candidates for GA President are Sir Leslie Munro of New Zealand, Dr. Charles Malik of Lebanon, and Ambassador Jiri Nosek of Czechoslovakia. We have informed both New Zealand and Lebanon, in response to their requests for our support, that the U.S. will support Sir Leslie, whose candidacy had gained substantial momentum before that of Dr. Malik was put forward. We would very much regret to see an open contest develop between two such well-qualified candidates, since such a contest could only have a divisive effect in the free world, and it is our hope, therefore, that Dr. Malik will decide not to press his candidacy. (See our circular telegram No. 54.³)

If asked for our views concerning the composition of the General Committee which is composed of the GA President, the eight Vice-Presidents, and the seven main committee chairmen, you may state we favor maintaining the ratio of 3 Latin Americans, 3 Asians and Africans, 3 non-Communist Europeans, 1 Commonwealth and 1 satellite, with each of the five permanent Security Council (SC) Members elected to a Vice-Presidency. Asian and African members, however, are pressing for four seats. We do not wish to engage in a controversy with Asian and African members over the matter and, therefore, are prepared, in general, to accept whatever may be worked out among interested members.

2. The representation of China

We consider it important to secure the largest possible affirmative vote to assure the continued seating of the representatives of the Government of the Republic of China in the General Assembly. We shall again take the position that the Assembly should decide “not to consider” any proposals designed to exclude the representatives of the Government of the Republic of China and/or to seat Chinese Communists. FYI By taking the foregoing procedural position and avoiding a vote on the substance, we expect to be able again this year to achieve our policy objective with maximum free-world support and a minimum of difficulty. Furthermore, we anticipate that the UK will support the moratorium formula for the entire session. End FYI.

For your background, the breakdown of the vote on the U.S.-sponsored resolution “not to consider” Chinese representation at the 11th General Assembly, taken on November 16, 1956 when the UN membership stood at 79, was as follows:

a. 47 states in favor: Argentina, Australia, Austria, Belgium, Bolivia, Brazil, Canada, Chile, China, Colombia, Costa Rica, Cuba, Dominican Republic, Ecuador, El Salvador, Ethiopia, France, Greece, Guatemala, Haiti, Honduras, Iceland, Iran, Iraq, Ireland, Italy, Lebanon, Liberia, Luxembourg, Mexico, Morocco, Netherlands, New Zealand, Nicaragua, Pakistan, Panama, Paraguay, Peru, Philippines, Spain, Thailand, Turkey, Union of South Africa, United Kingdom, United States, Uruguay and Venezuela.

b. 24 states against: Afghanistan, Albania, Bulgaria, Burma, Byelorussia, Ceylon, Czechoslovakia, Denmark, Egypt, Finland, Hungary, India, Indonesia, Nepal, Norway, Poland, Rumania, Sudan, Sweden, Syria, Ukraine, USSR, Yemen, and Yugoslavia.

c. 8 states abstaining: Cambodia, Israel, Jordan, Laos, Libya, Portugal, Saudi Arabia, and Tunisia.

Posts in those countries which voted with the United States should express appreciation for such action and solicit continued support for a like US position in the 12th GA. Posts in those countries which voted in the negative (except Copenhagen, Helsinki and Oslo which have received special cabled instructions) should, in their discretion, solicit support for the U.S. position, or possibly an abstention, instead of a negative vote, if it is believed that any useful purpose would be served thereby. Posts in those countries which abstained have already received instructions to make appropriate representations, except for Cambodia and Laos. Embassies at Phnom Penh and Vientiane should, in their discretion, take appropriate action if the occasion arises.

For Tokyo: We assume Japan will support the moratorium at the 12th GA, inasmuch as it did so at the UNESCO General Conference, New Delhi, November 6, 1956. (See CA–4565, November 30, 1956.⁴) When occasion arises Embassy should take matter up with Foreign Office in order to confirm.

For Accra: Ghana was admitted to membership on last day (March 8, 1957) of 11th Session. Embassy should ascertain whether Ghana is disposed to support the moratorium formula and should urge Ghana’s support for our position.

For Kuala Lumpur: We hope Malaya will support the U.S. position if matter arises after Malaya admitted to UN. In its discretion, post may discuss this matter with appropriate officials together with other matters in circular.

3. Admission of new members

The Eleventh General Assembly requested the Security Council to reconsider the applications of the Republics of Korea and Viet-Nam and report back to the Assembly as soon as possible. We expect the Council will act on this request prior to the Twelfth Session of the Assembly. It appears highly likely, moreover, that the Council will also have before it a new membership application—that of Malaya, which is scheduled to become independent on August 31. No difficulty with respect to the admission of Malaya is anticipated, though, FYI, it is possible that the U.S.S.R. may try to tie Malaya’s admission with that of Outer Mongolia. There are no indications, however, that the U.S.S.R. will forego use of the veto in the case of the Republics of Korea and Viet-Nam, unless favorable action is also taken on the application of north Korea and north Viet-Nam. End FYI.

The U.S. continues strongly to oppose the admission of Outer Mongolia, north Korea, and north Viet-Nam, and the Department has currently under consideration the best tactics to be pursued in the Assembly in the likely event of another Soviet veto in the Council of the applications of the Republics of Korea and Viet-Nam. The United States continues to support the admission of these two applicants and will support Malaya when it becomes eligible.

For Kuala Lumpur: You may inform authorities.

4. Appointment of a Secretary-General

The expiration in April 1958 of Secretary-General Hammarskjold’s term of office makes it necessary to consider at the 12th GA his reappointment or replacement. The U.S. believes that Mr. Hammarskjold’s outstanding record in office warrants his early reappointment.

5. Elections to U.N. Councils

Elections will be held at the 12th General Assembly for three seats on the Security Council and six seats on the Economic and Social Council. There will be no elections to the Trusteeship Council this year.

Security Council—The seats currently held by Australia, Cuba, and the Philippines become vacant at the end of 1957. There are three candidates to succeed Cuba, namely: Argentina, the Dominican Republic, and Panama. The Latin American preference among these candidates is not yet clear. Canada is the Commonwealth candidate to succeed Australia. Japan has announced its candidacy to succeed the Philippines.

FYI With respect to the Latin American seat, while we would prefer Argentina to Panama, our principal hope is that Dominican Republic neither be the Latin American choice or be elected. End FYI.

We have assured the Canadians of our support for the seat being vacated by Australia.

We have also assured the Japanese of our active support and understand they have received similar assurances from the British. In our view, the election of Japan to succeed the Philippines is not only desirable on its merits but is the best way to meet for the time being the problem of Far Eastern representation on the Council. Moreover, it may possibly help to modify the Soviet attitude on enlargement of the SC.

Economic and Social Council—The terms of China, the Netherlands, Argentina, the Dominican Republic, France, and Egypt end with this year. Uruguay and Chile are the only candidates so far for the seats currently held by Argentina and the Dominican Republic, and we will await indications of Latin American preferences before reaching a decision. The Netherlands is an active candidate for re-election, and we have informed the Dutch of our support of their candidacy.

France and China are also candidates for re-election, and we support both these candidacies. Traditionally the five permanent members of the Security Council are always represented on all major U.N. bodies. We are actively campaigning for China’s re-election, which we consider of major importance to the maintenance of its international position. With regard to the Egyptian vacancy, we desire that posts not indicate any receptiveness to any particular candidacy at this time. FYI We have suggested to the Philippines that it defer its ECOSOC candidacy (for an unspecified seat) since the only seat currently held by a Far Eastern member that becomes vacant at the end of this year is China’s. End FYI.

6. Elections to the International Court of Justice

The terms of five judges end February 5, 1958: Badawi (Egyptian), Winiarski (Polish), Zoricic (Yugoslav), Koo (Chinese), Read (Canadian). We understand that Judges Read and Zoricic will not stand for re-election. Sir Percy Spender (Australian) is a candidate to succeed Judge Read. Professor Gaetano Morelli (Italian) and Professor Jean Spiropoulos (Greek) are candidates to succeed Judge Zoricic. The candidacies for re-election of Judges Koo, Badawi and Winiarski have been formally announced. So far, we have not been informed of any other formal candidacy.

With two exceptions, we have taken no firm positions on these candidacies since the complete roster of candidates will not become available until after August 15. We are undertaking an active campaign, as we did last year, on behalf of Judge Koo, whom we strongly support. We understand that Justice Kuriyama (Japanese) has decided not to be a candidate this year and that Japan is also supporting Judge Koo. We have, also, decided to support Sir Percy Spender. We have made no commitments regarding the other vacancies.

7. Report of the Committee on Charter Review

The committee of all Members established by the Tenth General Assembly to report to the Twelfth Session on the time, place, organization, and procedures of a Charter review conference met on June 3, 1957, and recommended to the Assembly that the committee be continued and requested to report again not later than the Fourteenth Session. This recommendation was adopted by a vote of 67 (U.S.) to 0, with nine abstentions (Soviet bloc). It is anticipated therefore that the Twelfth GA will accept this resolution with the minimum of discussion.

8. Enlargement of UN Councils and the ICJ

Three items on the agenda of the Eleventh General Assembly were postponed until the Twelfth Session after inconclusive debate on the first—increasing the number of non-permanent seats on the Security Council. The other two items, which were never taken up, concerned enlargement of the Economic and Social Council and of the International Court of Justice. All three items had originated with a varying number of Latin American members and Spain, and arose out of the new situation created by the greatly enlarged membership of the U.N. The first two involved amendment of the Charter, and the third amendment of the Statute of the Court. The United States was prepared to support the enlargement of the Security Council and of the Economic and Social Council by two and four, respectively, but opposed any increase in the size of the Court.

The debate at the Eleventh Session made it appear highly unlikely that an increase of the Security Council by only two non-permanent seats would be acceptable to the majority of Members. At the same time, those pressing for a larger increase could not agree on exactly what they wanted. A resolution co-sponsored by a group of African and Asian states called for the establishment of a special committee to study the composition of the Security Council “in all its aspects”, thus obviously referring to the permanent as well as the non-permanent seats. The U.S.S.R. made its agreement on any increase conditional 1) on a seat for Eastern Europe and 2) on the settlement in its favor of the Chinese representation issue.

The Department is currently reviewing its position on these three items in light of the developments at the Eleventh General Assembly.

9. Hungary

The 11th GA was recessed subject to being reconvened to consider the Hungarian and/or Middle Eastern items. Following the publication in June of the report of the UN Special Committee on Hungary, established pursuant to the Assembly’s resolution of January 10th and composed of representatives of Australia, Ceylon, Denmark, Uruguay, and Tunisia, the 24 co-sponsors of the above resolution met in New York June 26. They issued a statement expressing their unanimity that the report should be considered by the GA as soon as it was practicable to do so. On June 27, Ambassador Lodge sent a communication to the President of the GA requesting the 11th GA to be reconvened as soon as possible to consider further the Hungarian question. The letter also referred to the conclusions of the Committee confirming forcible Soviet suppression of legitimate efforts of the Hungarian people to achieve liberty and national independence and to the flagrant violation by the present Hungarian authorities of human rights and freedoms guaranteed by the Peace Treaty with Hungary.

Although the date for the reconvening of the 11th GA has not yet been fixed, it presently appears that the meeting will not take place until early in September. In the meanwhile, the U.S. intends to make every effort to maintain public interest in the report.

FYI In general, we believe our objectives at the forthcoming reconvened 11th session should be:

(a) To exploit to the maximum the conclusions of the Special Committee’s report as a critical point-by-point refutation of the Soviet version of events respecting Hungary last fall.

(b) To seek adoption of a GA resolution which would put the weight of world opinion, and in particular, Asian opinion, in support of the Committee’s report and conclusions which are damaging to the Soviet position in the world.

(c) To maintain at the reconvened 11th session the position already taken by the GA last March when it neither rejected nor approved the Hungarian credentials, but to consult with U.N. Members at the 12th GA convening one week later with a view to determining whether rejection of Hungarian credentials is advisable and, if so, has sufficient support.

(d) To utilize as fully as possible, without endangering our and other Western missions in Budapest, any information suitable for use in Ambassador Lodge’s statements which focuses on current repressions and trials in Hungary.

We intend to begin consultations regarding specifics at UN New York with other delegations and particularly the 24 co-sponsors of the resolution of January 10, 1957, which established the Special Committee. End FYI.

Posts concerned please note: In countries whose governments have demonstrated unquestionable sympathy with the general U.S. position on Hungary in their statements and votes at the 11th GA, the Mission may, if questioned about U.S. intentions concerning the Hungarian item at the reconvened GA session, make available on a confidential basis the information summarized in the FYI section above as indicating our preliminary thinking.

10. Disarmament

The current session of the 5 member Subcommittee (U.S., U.K., Canada, France, U.S.S.R.) of the United Nations Disarmament Commission has been meeting in London since March 18, 1957. Negotiations for an initial limited disarmament agreement are still under way. It is unclear at this point whether the Subcommittee will still be meeting or be recessed at the time the 12th GA convenes in September. The U.S. is pressing for a plan embracing a first step agreement which would include reduction of conventional forces and armaments; agreement on the cessation of the production of fissionable materials for weapons purposes, the beginning of transfers of past production to peaceful uses, and, subject to agreement on these, a suspension of nuclear testing while an adequate system of inspection is established to verify the commitments taken; the installation of an appropriate inspection system to provide warning against the possibility of great surprise attack; and the development of a system of international control to verify that the sending of objects into outer space should be for peaceful purposes only.

11. Effects of Atomic Radiation

Czechoslovakia has requested that an item entitled “Effects of Atomic Radiation” be included in the provisional agenda of the 12th GA.

At the 10th GA the U.S. took the initiative by proposing the inscription of an item for the coordination of information relating to the effects of atomic radiation on human health and safety. In December 1955, the Assembly appointed a special scientific committee of 15 member governments (including the U.S.) to collect, review, evaluate, and distribute reports received from governments on (1) observed levels of radiation in the environment and (2) scientific observations and experiments relevant to the effects of ionizing radiation upon man and his environment.

The Committee will hold its 4th meeting this fall when it will begin formulation of its report which is due by July 1, 1958. This report will deal with the data that has been collected on levels of radiation and the effects of this radiation on man and his environment.

In view of the active role already assumed by the UN Scientific Committee, it is not unlikely Czechoslovakia’s motive in requesting inclusion of this item is for propaganda purposes, and in particular with respect to advancing proposals for unconditional ending of tests and prohibiting the use of atomic weapons.

12. UN. Relief and Works Agency for Palestine Refugees in the Near East: report and voluntary pledging

Voluntary contributions to UNRWA have been declining to the point where the Agency will probably have to curtail greatly its rehabilitation services to the refugees after January 1958 unless this trend is reversed. In the past, the United States, the United Kingdom, Canada and France have accounted for over 90% of contributions made to UNRWA (with the United States alone contributing up to 70%). It has generally been recognized that a situation in which so few governments carry the main burden is not a healthy one. We hope that broader and more adequate support for UNRWA will be forthcoming during the pledging session of the ad hoc committee of the whole Assembly which is expected to meet early in October.

13. Cyprus

Two items involving Cyprus were inscribed in the agenda of the 11th GA and were considered simultaneously. The Greek item called for the application of the principle of equal rights and self-determination to the people of Cyprus and the British item concerned support from Greece for terrorism in Cyprus. By a vote of 57 to 0 with one abstention, the Assembly on February 26, 1957 adopted an Indian compromise resolution expressing the desire that a peaceful, democratic and just solution would be found, and that negotiations would be resumed and continued to this end. Neither Greece nor the UK pressed their own proposals to a vote.

On July 12, Greece requested inscription of Cyprus in the provisional agenda of the 12th GA calling for “the application of the principle of equal rights and self-determination to the people of Cyprus and citing the violation of human rights and atrocities by the British Colonial Administration against the Cyprians.”

FYI The Department believes it important in the next several months to focus on efforts toward direct negotiations, under NATO Secretary General Spaak and in other ways, to find a solution to the Cyprus problem, and we hope sufficient progress may be made to avoid the necessity of a GA debate on Cyprus. End FYI. The U.S. still believes a solution to this problem is obtainable by direct negotiations and lies with the parties concerned.

14. Algeria

The 11th GA on February 15, 1957, adopted by a unanimous vote (77-0; South Africa and Hungary absent) a moderate compromise resolution on Algeria co-sponsored by Italy, Argentina, Brazil, Cuba, the Dominican Republic, Peru, Japan, Thailand, and the Philippines. The resolution expressed the hope that a “peaceful, democratic, and just” solution would be found, through appropriate means, in conformity with the principles of the UN Charter. On July 18, 21 Arab, Asian and African states requested inclusion of the question of Algeria in the provisional agenda of the 12th GA.

FYI In the event that there has been no significant progress made toward a settlement of the Algerian problem by this fall, it is anticipated that there will be a strong Arab, Asian and African-led offensive in the GA which will demand more forceful action than that taken last February. It is conceivable that negotiations between the French Government and the Algerian rebel leadership looking toward the conclusion of a cease-fire and the implementation of the Mollet Plan will have been undertaken by this fall. Such a development would be of the utmost significance and would serve to deflect in large measure efforts to press this issue too far at the 12th GA. However, the prospects for implementation of the Mollet Plan do not appear to be particularly promising at present. In this connection, it appears that France may now be vulnerable to the charge that it has in considerable measure backed away from or “watered down” the Mollet Plan as outlined in detail by former French Foreign Minister Pineau to the GA last February. This is of importance since the US predicated its position at the 11th GA largely on the ground that this program as outlined offered a reasonable prospect of advancing an Algerian settlement and hence the 11th Assembly should avoid taking any action which might hamper the carrying out of the French program.

The Department has held discussions with French officials in Washington during which we took a friendly but firm line concerning the urgent need for a solution of the Algerian problem. We were informed that France will not oppose inscription of Algeria at the 12th GA. End FYI.

It is suggested that Missions take the following line as appropriate in responding to inquiries concerning the US position on Algeria in the GA: While we would be opposed to the reconsideration of Algeria or any other item in the agenda of a reconvened session of the 11th GA to consider the report of the Special Committee on the Problem of Hungary, we expect to favor the inscription and discussion of Algeria at the 12th session. Although we would be opposed to any action at the 12th session which does not seem likely to make a contribution to a solution of the Algerian problem and which might in fact be harmful to the prospects of a peaceful settlement, we are not prepared to say as yet what sort of action the U.S. might support since this will depend in large measure upon developments occurring between now and the consideration of this question in the GA.

[15 and 16. South African Items]⁵

(1) The Treatment of Indians in South Africa and (2) South Africa’s Racial Policies. When the eleventh General Assembly voted to inscribe these items on the agenda, the Government of the Union of South Africa withdrew its Delegation and announced that it would continue only token participation in the United Nations until the alleged interference in its domestic affairs was halted or it would be forced to withdraw from the Organization completely. FYI In your discussions with other Governments keep in mind that, as a general rule, we are not prepared to support any action which will give the Union Government an excuse for complete withdrawal. We would hope therefore that action in the Assembly can be moderate and not make the situation more difficult. End FYI.

[15. Indians in South Africa]

The eleventh General Assembly urged the parties (India, Pakistan, Union of South Africa) to pursue negotiations with a view to bringing about a settlement and invited them to report, as appropriate, to the General Assembly.

Since no negotiations have taken place, we assume this item will again be inscribed by the Assembly. We continue to believe that the only real hope for a settlement of this dispute lies in direct negotiations between the parties.

[16. Apartheid]

The eleventh General Assembly called upon the Union Government to reconsider its position and revise its policies on apartheid, cooperate in a constructive approach by its presence in the Assembly, and asked the Secretary General to communicate, as appropriate, with the Union Government.

Since there has been no progress on this question, we assume it will be inscribed again this year. We continue to oppose racial discrimination in any form, and, in our statements before the forthcoming Assembly, as in the past, we expect to make this clear. We view with concern the continued implementation of apartheid in South Africa.

Nevertheless, we do not believe that either censure or condemnation or the establishment of more UN machinery is likely to improve the racial situation in South Africa or contribute to the UN objectives in the human rights field. The United States therefore hopes that the discussion of this question will be kept within a moderate framework.

[17. Soviet Propaganda Item]

It has been Soviet practice in recent years to put forward what has come to be known as “the Soviet item” which sets forth the current Soviet propaganda line. At the 11th GA, the USSR submitted two such items. The first was obviously a defensive reaction to the events in Hungary and was inscribed under the title: “Complaint by the USSR of intervention by the U.S.A. in the domestic affairs of Albania, Bulgaria, Czechoslovakia, Hungary, Poland, Romania, and the USSR, and its subversive activity against those states.” When the Special Political Committee considered this item near the close of the 11th session it rejected a U.S.S.R. resolution which contained the above charges by a roll-call vote, 53 against, 8 in favor (U.S.S.R. and satellites) and 11 abstentions (Afghanistan, Burma, Ceylon, Egypt, Finland, India, Indonesia, Saudi-Arabia, Syria, Yemen, Yugoslavia). Those absent other than Hungary and the Union of South Africa were: Austria, Jordan, Libya, Morocco, Sudan, and Tunisia.

The second item which the U.S.S.R. requested inscribed was a more general propaganda assault upon the U.S. and its allies entitled “Question of aggressive acts by the U.S.A. constituting a threat to peace and security.” The General Committee recommended against its inscription (8–6–1) despite the U.S.A.’s willingness to air these charges, and the GA Plenary approved that recommendation.

It may be expected that any new Soviet item and accompanying proposal will be couched in seemingly moderate and reasonable terms calculated to attract the support of those delegations anxious to see a lessening of East-West tensions.

The U.S., of course, remains ready to cooperate with the U.S.S.R. and other governments in concrete measures to facilitate a peaceful solution of the various outstanding issues. We, nevertheless, believe it important that the Soviets not be permitted in the guise of an innocuously worded resolution to obscure vital issues and to gain credit for a willingness to negotiate sincerely when such is not supported by concrete evidence. In this latter connection, we shall wish to cooperate closely with all non-Soviet delegations on procedures for dealing with any such spurious proposals in a manner best calculated to maintain our common objectives.

E. Miscellaneous

All posts, including those receiving circular for information and reporting purposes only, are requested to inform the Department of the composition of the GA delegations from their countries, and particularly of the attendance (including anticipated dates) of very important persons, such as Heads of State, Prime Ministers, Foreign Ministers, etc.

Background information on many of the issues in the U.N. on which you will consult may be found in the Annual Report of the President to Congress on U.S. Participation in the U.N. for 1955. (The report for 1956 is not yet available.) Use may be made of the Annual Report of the Secretary-General on the Work of the Organization (General Assembly Official Records: Twelfth Session, Supplement No. 1, to be published before each regular session), which we hope to distribute to addressee posts, and the U.N. Secretariat’s Everyman’s United Nations, 1945–1956, 5th ed., 1956), if available.

At your discretion, you may make this circular available to the Embassy PAO for Background Information Only.

For Latin American posts only: The Department is preparing Spanish translations of selected parts of the above circular which such Embassies may wish to use in their approaches to the respective Foreign Ministries.

For Jidda: This circular also applicable for Yemen. Please consult Yemeni officials when next in Sana’a.

For Kuala Lumpur: At your discretion, you may take appropriate action.

For USUN: At your discretion, you may take any action you desire.

Herter

1. Source: Department of State, Central Files, 320/8-357. Confidential. Sent to 71 posts and repeated to 13 others. An introductory note reads:

   “This circular discusses the situation anticipated at the twelfth regular session of the General Assembly of the United Nations and several important political issues expected to arise there for the background information of missions in the field. Mission in all friendly countries which are members of the UN are requested in their discretion to make these views known to the governments to which they are accredited, as indicated in the circular.

   “All posts receiving this circular are requested to report currently for the information of the Department and the U.S. Mission to the United Nations any information coming to their attention locally pertaining to matters likely to arise in the General Assembly.”

   Department of State Central File 320 contains a number of telegrams and despatches responding to this circular airgram.

2. Dated June 28, not printed (Ibid.,IO Master Files, SD Series, 1955–58)
3. Dated July 20, not printed. (Ibid., Central Files, 320/7-2057)
4. Not printed. (Ibid., 398.43 UNESCO/11–3056)
5. These and following brackets are in the source text.