222. Telegram From the Department of State to the Mission to the United Nations 1

1341. Security Council.

1.
Dept has been giving intensive consideration problem created by Soviet blocking of SC enlargement. As Mission aware original geographic allocation non-permanent seats makes no provision for Asian other than Commonwealth members and entirely inadequate provision for Africa given large number new African members. While we have had limited success in using seat originally allocated Eastern Europe to provide some opportunities representation non-Commonwealth Asian members, situation in which there only one seat available for entire Middle East-African [Page 488] area, with 40 members, cannot in Dept’s view continue indefinitely and can only lead increasing threat to retention LA and WE seats, which of major importance to Western voting position on SC. While situation mitigated slightly by existence Commonwealth seat, this not regarded as any solution by non-Commonwealth African and Asian members.
2.
Given present and potential size UN, enlargement SC presents only really satisfactory solution problem, and Dept believes US should continue strongly support any efforts by Africans or others directed toward reasonable increase number non-permanent SC seats. However prospects early success any such efforts do not appear sufficiently good permit us continue rely exclusively on enlargement to head off Afro-Asian drive for reallocation existing seats at expense WE and LA. Mission will recall this drive gained substantial momentum at 15th GA under leadership Wachuku (Nigeria) and there every indication, as Mission aware, he intends pursue same tack at forthcoming session.
3.
Dept has given some thought to possibility providing additional opportunities non-voting participation in work SC through some form of “regional” or “associate” representation under Article 31 of Charter. Any such arrangement however would probably be regarded by new members as unacceptable in that it would give them “second class” status and is therefore unlikely deter them from seeking election to regular seat.
4.
Dept has therefore concluded it necessary explore possibility agreement on some acceptable readjustment in present allocation of seats. Ideal solution which would involve least damage Western voting position in SC; provide seat each for Africa (excluding Arab States), Middle East (including African Arabs), and Asia; and maintain maximum pressure on USSR permit enlargement, would be shift of Commonwealth seat to Africa and EE seat to Asia. Principal difficulties this proposal are a) reluctance UK and other Commonwealth members relinquish Commonwealth seat; b) reluctance LAs and some WEs depart “gentlemen’s agreement” in interest preservation own seats under original allocation; and c) reluctance many A–As put pressure on USSR by depriving Eastern Europe of seat.
5.
Dept recognized these difficulties present formidable obstacle obtaining any general agreement (exclusive Soviet bloc) to such reallocation. However, British appeared recognize this as possibility when Cleveland broached matter in London recently. Old Commonwealth members, while likely oppose surrender Commonwealth seat in first instance as Australians have already indicated they do, might be persuaded on grounds they stand better chance election SC if eligible WE seat (as in General Committee) than if eligible Commonwealth seat given present UN membership and lack other seats for Asia and Africa. Incorporation old Commonwealth with WEs would also serve buttress latter’s claim to seat. New Commonwealth members might be persuaded [Page 489] relinquish exclusive claim to seat in interest relations their African and Asian neighbors.
6.
Dept would hope WEs and LAs could be persuaded recognize that best hope preserving WE and LA seats in present situation lies in shifting two seats to A–As, that accommodation A–As should not be made at cost West exclusively, and that best means exerting pressure on USSR permit enlargement is to deprive Eastern Europe opportunity representation pending enlargement. Finally Dept would hope sufficient number A–As might be persuaded agree deprive Eastern Europe of seat in interest obtaining two seats for themselves to make plan workable.
7.
Mission should therefore urgently consult with British along above lines so that if they at all responsive they might undertake discuss matter at Commonwealth meeting next week. Depending on outcome these preliminary consultations, Dept would then have in mind extending consultations to other friendly WE and LA delegations with view reaching agreement on this scheme of reallocation, or some acceptable variant thereof, which could if this appears tactically advisable be put to friendly African and Asian delegations early at the 17th General Assembly in effort forestall A–A “raid” on WE or LA seat during forthcoming session. Plan of course could not be put into effect until 18th GA when Commonwealth and “floating” seats must be filled.
8.
Dept recognizes launching this proposal now could prove prejudicial Norway’s current effort obtain Soviet bloc support its election this GA session. If in Mission’s view and that UK Del this constitutes overriding consideration, further consultations could be delayed until it possible assess more accurately progress Norwegian candidacy and strength expected A–A drive to “raid” Western seat.
Rusk
  1. Source: National Archives and Records Administration, RG 59, Central Files 1960–63, 330/9–662. Confidential. Drafted by Hartley, cleared by Monsma, MacKnight, Sisco, Richard Friedman, McNutt, Ernest L. Kerley, and James M. Ludlow; and approved by Assistant Secretary Cleveland. Repeated to London.