Foreign Relations of the United States, 1955–1957, Arab-Israeli Dispute, January 1–July 26, 1956, Volume XV

374. Telegram From the Embassy in Ethiopia to the Department of State¹

Addis Ababa, May 29, 1956—11 a.m.

722. Reference: Deptel 527.²

1. Re general concept set forth reference telegram, despite special and urgent needs Egypt for Nile waters, Embassy continues see long-term harm US interests in deviating from policy of unified development which we have advocated for such other international rivers as Jordan. In view long history international discussions, plans, treaties, etc., among riparians re Nile waters original agreement to assist in developing Egypt’s use of these waters without consulting other riparian countries is deeply resented by Emperor. Believe Ethiopia will not now or in future admit that Aswan Dam project restricts its future use Nile waters. Embassy has always assumed that in due course Ethiopia and other riparians would be consulted and their agreement reached prior to beginning Aswan Dam construction. This implied in statement Deptel 402³ that Department was certain neither IBRD nor any of the governments interested in Aswan Dam would undertake project which might adversely affect Ethiopia, and particularly would not do so without full consultation and agreement Ethiopian Government. Embassy believes that departure from this position will continue unfavorably affect our interests in Ethiopia and possibly elsewhere in area. Therefore Embassy believes our objective should be to move away as possible from preliminary approach set forth paragraph 2, Cairo’s telegram 2346⁴ repeated London 356, toward unified development proposal mentioned Deptel 527, and in any case to see that all riparian states consulted before decisive action taken.

2. Ethiopia’s situation naturally impels it favor unified river development approach. 1902 treaty with UK⁵ restrains it from constructing any works across Blue Nile, Tana or Sobat which would arrest flow of waters into Nile except pursuant to agreement with UK and Sudan. Official and inspired press articles and editorials support unified development approach.

3. If success of plan set forth reference telegram depends on its not being attributed to US, as appears be case, believe virtually no chance of success. We would have to talk with certain degree frankness to Sudanese and Ethiopians; while not much tendency leak here, situation may be different Khartoum and in any case if Khartoum and Addis Ababa made proposed statements followed by our “acceptance” no one in area would question that we had engineered entire operation.

4. IEG would most likely be willing make suggested statement for unified river development if it thought this would help thwart Egyptian High Dam project. If saw no danger implementation of project either by US or USSR, would probably not make statement. Believe we would need commit ourselves definitely to unified development approach. Should note that although relations amicable Ethiopians consider Sudanese to some extent tactical opponents in question Nile waters so some sparring between them might take place.

5. On balance, while Embassy supports general concept of Departments plan, believe sudden shift to tactics envisaged would, particularly if we tried conceal our hand, have adverse effect our interests Egypt and elsewhere in area. Embassy would recommend that, to extent our record in discussions thus far permits, we should at chosen occasions say openly we have always considered consultations and agreement other important riparians essential to Aswan or any other project Nile development. If we thus proceeded more openly but slowly than suggested reference telegram might stand chance achieving objective desired without its adverse effects.⁶

Regret unavoidable delay this message.

Taylor

1. Source: Department of State, Central Files, 874.2614/5–2956. Received at 7:25 a.m. Also sent to Khartoum and repeated to Cairo and London.
2. Printed as telegram 226, Document 362.
3. Not printed. (Department of State, Central Files, 874.2614/2–1156)
4. Document 370.
5. For text, see British and Foreign State Papers, 1901–1902, vol. 95, pp. 467–471.
6. The Department informed the Embassy in Addis Ababa on June 2 that it was “continuing study feasibility riparian conference re unified development Nile Valley (Embtel 722). In interim, believe Ethiopia would be well advised in own self interest if it has not done so, notify governments Egypt and Sudan formally of its interest in any arrangements allocating Nile waters.” (Telegram 549 to Addis Ababa; Department of State, Central Files, 874.2614/5–2956)