Foreign Relations of the United States, 1964–1968, Volume XXI, Near East Region; Arabian Peninsula

313. Telegram From the Embassy in Saudi Arabia to the Department of State¹

Jidda, July 20, 1968, 0958Z.

4811. Dept pass Cairo. Ball/Sisco Audience with King Faisal.

Summary

1. In two-hour audience with King Faisal, Ball emphasized importance USG attaches to settlement Middle East problem and reported on his talks in Israel, Jordan and Lebanon. Said he had impressed upon Israelis that their insistence on direct negotiation is an untenable position which will only lead to continued freezing of problem. Expressed gratification that two questions GOI had asked Jarring to put to UAR might offer some scope for movement through indirect discussions. Ultimately some direct talks likely be necessary, but this is problem which need not be hurdled now. Israelis more anxious arrive at urgent settlement with Jordan than with UAR and, while in absence any negotiations GOI is not required formulate firm positions, he had gained personal impression that they sought only such border rectifications as necessary for security reasons. Jerusalem problem different and Israelis insist any settlement must be in context unified city which is capital of Israel. However, Eban had indicated awareness Israeli occupation their Islamic holy places intolerable to Muslims and expressed willingness “stretch imagination” to find some acceptable solution. Jarring mission continues offer best way to proceed, and presence FonMins in New York next month might also be helpful. USG will do utmost assist such efforts.

2. After expressing appreciation Ball’s appointment and trip, Faisal gave long, cathartic monologue on background Arab-Israel question and dangers continued US support for Israel. King emphasized extent to which Arabs have moved to find settlement in context Israeli inflexibility. He took some credit for counseling moderation at Khartoum. He thought Hussein could not move before UAR does. Equating Israelis with Communists, he contended Soviets also support GOI and attributed all problems of area to them. His reaction to GOI’s questions was that one already answered. While second could not be answered at this time, he was adamant on Israeli retention of Jerusalem reiterating that even if Jordan and UAR accept such arrangement, he would have to declare Jihad and would be supported in this by Muslims and Christians. He expressed deep concern Communist inroads into Middle East as result unsettled problem.

3. Ball said USG shares King’s concern about Communist activities in area, but brought Faisal back to principal issue by reemphasizing need for indirect negotiations within the principles of UN resolution in order to break deadlock and move toward settlement. King expressed no objection such talks and affirmed his own interest in achieving settlement. Noted this would allow canal be reopened and relieve him of burden of financial subsidies. End Summary.

1. King Faisal received Ambassador Ball, Sisco and me in two-hour audience 10 p.m. July 19. Atherton and Stockey also attended. On Saudi side Prince Nawwaf (special advisor), Rashad Pharaon (Royal Counselor), and Omar Saggaf (Minister of State for Foreign Affairs) were present.

2. Ambassador Ball began discussion by saying when he accepted position Ambassador to UN, he told President Johnson he wished to visit Middle East because its problems are among the most important the UN must deal with. President agreed and said Ball should visit Saudi Arabia and obtain Faisal’s views and wisdom in order help US seek solution Middle East problems. Ball conveyed President’s warm personal greetings. Faisal expressed thanks for the President’s noble sentiments, which he said are fully reciprocated, and for sending Ball to confer with him. Faisal said he had welcomed news of Ball’s appointment, because of what he had learned of his qualities and personality.

3. President Johnson, Ball continued, attaches great importance not only to ending Vietnam war, but to USG making a real contribution to permanent peace in Middle East. Ball was accordingly visiting Middle East with President’s full approval. He had been to Israel, Lebanon and Jordan, and conferred with Israeli Prime Minister, Foreign Minister and other leaders, with King Hussein, and with Lebanese Government. He wished convey to King some of impressions gained from these consultations.

4. Israel Govt, Ball said, is in state some disagreement embracing wide range of opinion, and with no common position. He gained impression GOI will not attempt form common position until obliged to do so. It will be required to do so only when engaged in some negotiating process. Meanwhile, GOI has adhered to position it will accept no negotiating process except through direct bilateral discussions with Arab states. Since this principle inconsistent with decisions Khartoum Summit Conference, it relieves GOI of necessity come to grips with substance of problem. As his first task, therefore, Ball undertook impress upon Israelis that this position untenable. As result his discussions with Israeli reps in New York and later in Israel, he believed he had made progress in convincing GOI some form indirect negotiations with Arabs is necessary.

5. As an indication there has been some relaxation Israeli position, Ambassador Ball states, GOI recently gave two questions to Ambassador Jarring to give to UARG, requesting UAR reply. (Here King’s interpreter read text GOI questions earlier provided to Saqqaf.) Significance this Israeli move, Ball said, not so much in content of questions as in indication GOI prepared enter into some process of indirect discussion with Arabs in order sharpen issues. This could be beginning of progress on problem otherwise completely frozen, Ball had not seen Jarring recently, and therefore unable say whether latter had transmitted questions to GUAR, or intends to do so. GOI’s desire have reply these particular questions also gives UAR opportunity raise own questions, thus perhaps beginning process indirect discussions.

6. In Amman, Ball stated, he had told Hussein he had found GOI most anxious arrive at means living together with Jordan, its next door neighbor, and attached far less urgency to settlement with UAR. To extent GOI has any definite opinion, he told Hussein, it not interested in increasing its territory at expense Jordan, but in arriving at secure borders. In his opinion, Ball said, Israel seeking some rectification June 4 boundaries, but on basis security considerations alone and without incorporating numerous Jordanians. Exactly what secure borders are can be worked out only through some form of negotiation.

7. In case Jerusalem, on other hand, there are other factors than security. Ambassador Ball said he had pressed GOI vigorously on Jerusalem question. Foreign Minister Eban had replied GOI cannot conceive of Jerusalem which not united. Furthermore, any solution must take account of fact Jerusalem is capital of Israel. At same time Eban said he well aware of fact no Muslim can tolerate situation in which Israel in control Muslim holy places. Within framework two principles mentioned, GOI will “stretch its imagination” to find some solution acceptable to Muslims. Ball emphasized he not seeking defend GOI position, but merely wished report it as he had heard it. He assumed it represented initial Israel negotiating position.

8. Ambassador Ball repeated US endeavoring find way of arriving at agreed solutions. Best instrument available for this purpose is Jarring mission. There will also be opportunity for progress when Foreign Ministers convene for opening UNGA in September, and he told King he had expressed hope to Saqqaf that Faisal would permit him attend UNGA.

9. Faisal thanked Ambassador Ball for describing his discussions, saying he wished preface his reply with a historical preamble. Ball was, King said, well aware of situation between Israel and Arabs before June war. No Arab could have conceived of discussions with Israel, direct or indirect. Since Israel was established, Arabs have never mobilized against Israel, whereas Israel has repeatedly concentrated forces and attacked Arab states. Before creation Israel Arab world lived in tranquility, without revolutions or disturbances, despite some difference of opinion. No one then could have predicted present state of indiscipline or present close relations with Communists.

10. While having no right or wish interfere in US affairs, and recognizing each country must follow own policy, but speaking as friend, without emotion but analyzing facts, Faisal contended support of Israel is not in interest US but on contrary great liability. US gives aid in form bonds, arms, etc., lavishly to Israel without getting anything in return, whereas US has genuine material interests in Arab world. Thirty or forty years ago, he said, no one would have believed US would participate in establishing intrusive state on land of a people, at the price of expelling and dispersing them. US, he acknowledged, not solely responsible for creation Israel. Communist countries worked for it also because it is in their interests and against those of US. Faisal recalled he was at UN when Soviet rep accused US of obstructing formation of Israel. USSR had wanted precede US in recognizing Israel, but as UN located in US President Truman received news of formation Jewish state first.

11. After June war, Faisal went on, Arabs underwent unprecedented wave of hysteria which clearly evident at Khartoum Conference. Although having no more sympathy than other Arab states for Israel, Saudi Arabia sought moderate extreme proposals then being advanced, such as complete embargo oil exports, severance diplomatic relations, etc. Only Saudi Arabia stood against extreme ideas and was consequently accused of reaction, subservience to imperialism, etc. Following conference, Faisal sent President Johnson his views concerning its decisions. Unfortunately, his message had no effect on US position. Now more than one year has elapsed and nothing has happened. After much discussion November resolution was adopted which Faisal said he had thought no Arab could accept because close analysis shows it conflicts with Khartoum resolutions. Nevertheless, he said he had told the Arab states directly involved they are free to seek solution and assured them Saudi Arabia would not object, interpose obstructions, nor take opportunity to attack them. This, King said, was effort on part of Saudis to facilitate solution of problem.

12. Rejection of Security Council resolution, Faisal said, came from Israeli rather than the Arab side as he had expected. He attributed this to Communist influence on Israel. While Communists pretend be on Arab side, in reality they are with Israel and Israel is taking their advice. For example, whenever Arabs adopt moderate positions, Israeli demands increase. This can come only from Communists. It gives them chance spread own influence in Arab states on pretext of helping them. If problem settled, there no reason for Arab countries place themselves under Communist control or influence. Communists provide military assistance adapted for defense only, then claim Arabs inefficient and were unable use arms previously supplied them. They furthermore seek convince Arabs US presence in area is solely for defense of Israel. They seeking isolate Arab states such as Saudi Arabia which friendly to US. They are working in Syria, UAR, South Arabia, Yemen and wish to advance into Arabian Gulf. Saudi Arabia now stands almost alone, and is keenly aware of Communist danger. King Hussein had been on verge resorting to USSR for arms, since his country was defenseless and his government about to fall, but Saudi Arabia dissuaded him, and appealed to US to assist him. Now, Faisal said with note of bitterness, we can only wait and see what conditions Israel will dictate.

13. Adverting to GOI questions to UAR, Faisal asserted UAR had already replied to first by agreeing to Security Council resolution which provides for termination state of war. He dismissed second question as untimely and calculated only to cause difficulties. After basic principles of Security Council resolution have been fulfilled, Faisal said, terms can be worked out, and first of resolutions principles is withdrawal Israeli forces.

14. It inconceivable either Christians or Muslims can accept Jerusalem remain in hands of Jews, Faisal asserted. He recalled he had told me he would have to declare Jihad in defense holy places. He said even if Jordan and Egypt agree, we will not, and we will declare Jihad. We may die, but it will be with honor. He also recalled there is Security Council resolution on Jerusalem. Furthermore, freedom of navigation is assured by Security Council resolution. He could only conclude Israel intransigence is inspired by Russians.

15. Longer solution is delayed, King asserted, more Soviets will gain at expense of US. He deprecated significance East European states breakaway from USSR, since all are Communists. He requested Ball not to laugh if he asserted he fears communism even in US. He convinced race riots and other disturbances in US are fomented by Communists. He pointed to events in France one month ago and declared “If France goes all Europe goes.” He said Communists have even been found in Saudi Arabia, where people strongly attached to faith. He asked us be alert to fact Zionism is a form of communism, and Jews applied Socialist doctrines as early as 1911. Saudis are not against Jews—“We have good friends among Jews”—but against Zionism. Faisal expressed conviction arrogance of Zionist policy will eventually turn entire world against it. In US, he pointed out, there are anti-Zionist Jews, who are not pro-Arab but simply conscious of real Jewish interests.

16. King expressed view intransigence not in Israeli interest. Arabs bound eventually to recover their rights. Jews are not more numerous or powerful than crusaders. Israel must realize Arabs now willing keep within own boundaries, which inconceivable formerly. Entire question, Faisal repeated, goes back to instigation by Communists.

17. Ball might reply, King said, as I had frequently told him, that US ability influence Israel limited, but if Israel does not take US advice, he said, US can withhold aid as it did with UAR, and this might be effective. Enormous US aid to Israel may even be significant element in US balance of payment difficulties. Tax-free concessions on aid to Israel are unique in world, and support for Israel had become object of auctioneering among candidates in elections. He would, Faisal said, not speak such words except as friend of US and as one who wants all Arabs to be US friends. Finally, Israel occupation of territory in 1967 runs counter to US guarantees to Arab states.

18. Ball thanked King for comprehensive statement his views of situation. Present difficulties, he said, are result of unnatural situation, and this is reason US is so anxious for settlement. Until then unrest will spread and Communists will exploit it. Although Russians had role in bringing on June war, he continued, they appear interested in arriving at solution. With Suez closed they are finding it costly to supply Vietnam and are frustrated in extending their influence into Yemen, South Arabia and Indian Ocean. King commented Soviets already supplying Yemen and planting influence South Arabia. They are unloading aid shipments in Alexandria which transported overland to Egyptian Red Sea ports for shipment Yemen. Russians are trying convince world they want solution. But, King warned, one should never believe a Communist. Ball agreed Communists do not want permanent peace because they can exploit instability. He observed that he and King were in agreement on central point that so long as present situation exists, Communist influence will spread. Faisal expressed satisfaction Ball agreed with him; he had long tried convince, but no one listened. He hoped speedy measures would be taken to end Communist encroachment. Saudi Arabia stands alone, even US friends such as Iran and Turkey now have relations with USSR, which thus making inroads on US strongholds.

19. Ambassador Ball noted he was just beginning to approach problem. He believed, however, that we had reached point where we can achieve some movement on problem which has been on dead center one year and one month. He reiterated importance Israel questions to UAR not necessarily because of their substance, but because they can represent beginning of an exchange. Issues cannot be settled until requirements and positions on both sides are discussed and sharpened. US prepared play as vigorous role as it can to encourage such exchange, without however seeking replace Jarring mission or Security Council. He recognized Jerusalem question one of great sensitivity to Muslims, Christians and Jews. Faisal challenged idea there any place in Jerusalem holy to Jews. He dismissed Wailing Wall and Temple of Solomon as of no deep religious significance. Last thing in area sacred to Jews, he asserted, was rock on which Moses trod which UAR had allowed be shipped from Sinai to New York. Jews therefore can simply visit their holy place in New York. He again warned that unsatisfactory Jerusalem settlement would require him declare Jihad.

20. Ball noted US is pragmatic and believes only way to begin on existing dangerous, long-standing situation is to begin. Faisal saw no objection to beginning, and Ball expressed gratification, since US feels there has been some breakthrough and Israel has moved slightly away from rigid position which had heretofore been excuse for doing nothing. US, he said, will continue use all influence we have with parties to continue indirect discussion. He expressed personal feeling no final solution can be reached without some direct discussion, but this hurdle can be dealt with later. Final result must be some form of agreement committing parties. Ball expressed confidence Jarring able negotiate agreement within framework principles Security Council resolution. US, he concluded, will take Faisal’s views into careful account. Our diplomacy will not be idle during this period, and US will do all it can to bring end to present agonizing situation. He expressed his own and President Johnson’s gratitude for this audience and opportunity to discuss with King problem of great concern to both countries. Faisal agreed support Jarring mission was best approach but insisted matter was urgent. Jarring had already been underway for six months without result. Jarring should be encouraged, but Israel also must be persuaded abandon its intransigence. Ambassador Ball reiterated hope UAR will take opportunity to ask questions of its own of GOI thus opening door to continuing exchange. “Open the door”, Faisal agreed, “but quickly.”

21. In connection final reference to continued closure Suez Canal, Faisal indicated a settlement would enable Canal be reopened and relieve Saudi Arabia of onerous financial burden of subsidy payments to UAR.

Eilts

1. Source: National Archives and Records Administration, RG 59, Central Files 1967-69, UN 7. Secret; Priority; Exdis. Repeated to Amman, Beirut, London, Tel Aviv, and USUN. A note on the telegram indicates that the Communications Office did not pass the telegram to Cairo.