Foreign Relations of the United States, 1969–1976, Volume XXIV, Middle East Region and Arabian Peninsula, 1969–1972; Jordan, September 1970

106. Memorandum From the President’s Assistant for National Security Affairs (Kissinger) to President Nixon¹

Washington, undated.

SUBJECT

• US Relations with Lower Persian Gulf States

With your approval this summer, the US has recognized the independent states of Bahrain and Qatar in the Persian Gulf and is establishing diplomatic relations with them by accrediting your Ambassador in Kuwait as non-resident Ambassador.

This leaves two entities to be dealt with—the proposed Federation of the seven remaining “Trucial” states and our relations with the tenth state, Oman, which will not be joining any federation for the foreseeable future.

Following a review of our Persian Gulf options last year, you approved in principle the establishment of diplomatic relations with the lower Gulf states. Secretary Rogers is now recommending specifically that you:

• —approve US recognition of the proposed Trucial States Federation when it becomes formally independent and the establishment of diplomatic relations by accrediting our Ambassador in Kuwait as non-resident Ambassador [Tab A];²
• —approve informing the Sultan of Oman of the US readiness to establish formal diplomatic relations (the US has recognized Oman since 1833) and accrediting our Ambassador in Kuwait as non-resident Ambassador. [Tab B]

Background: The British have been working at an increasing pace to leave behind an orderly pattern of Gulf state relationships when the formal UK treaties terminate at the end of this year. The pattern that has emerged has become one of (a) two independent states (Bahrain and Qatar), (b) a federation of the remaining seven tiny states and (c) Oman, which has been independent through the years.

• —The Federation of seven was considered the most viable alternative to the original scheme for nine as Bahraini and Qatari intentions to go it alone became clearer this year. The Trucial state rulers have issued a declaration of “intent” to form a federation but are momentarily holding up formal announcement pending resolution of the dispute between the Shah and two of the states over three small islands at the entrance to the Gulf. The negotiations between the British, Iranians and Arab rulers are, incidentally, in the final stages and will hopefully reach some compromise settlement. The Shah has made clear, however, that he will frustrate the formation of any federation until the issue is settled; hence, formal announcement of a federation is being held in abeyance. The British are moving ahead with plans to transfer powers to a budding federation bureaucracy and hope that the new entity can be formalized by mid-December. Your agreement to extend recognition would permit State to be forthcoming on the question of relations, although the timing would be reviewed when the actual circumstances become clear.
• —Through the years, Oman has maintained a very close relationship with the British and always friendly—if limited—contacts with the US. At the entrance to the Gulf, Oman has substantial oil wealth and a population larger than all nine lower Gulf states combined. With the general awakening of the Gulf area, the Sultan of Oman (who deposed the near-medieval rulership of his father last summer) has begun to develop contacts with the outside world and is in the process of establishing ties with India, Japan and Pakistan. He has approached the USSR and has engaged Arab government and UN support. Finally, he has expressed the desire to have a formal indication of US interest in establishing diplomatic relations. The Sultan has decided to concentrate on domestic priorities for the foreseeable future rather than linking up with other Gulf states, since he is coping with a longstanding insurrection in his Dhofar province fed by radical forces in neighboring South Yemen. The Secretary believes it would be appropriate to round out our development of a diplomatic presence in the Gulf by offering to have ties with Oman.

Recommendations:

1. That you approve in principle recognition of the Federation and establishment of diplomatic relations with exact timing to be reviewed in the light of the situation when the Federation’s independence is proclaimed.

2. That you approve indicating to Oman our willingness to establish diplomatic relations.³

1. Source: National Archives, Nixon Presidential Materials, NSC Files, Box 647, Country Files, Middle East, General, Vol. VIII. Confidential. Sent for action.
2. Attached but not printed at Tabs A and B are October 5 memoranda from Johnson to Nixon. All brackets are in the original.
3. Nixon checked his approval of both recommendations. The United States recognized the UAE on December 3 and established diplomatic relations with Oman on October 20.