119. Memorandum From the President’s Assistant for National Security Affairs (Brzezinski) to President Carter 1

SUBJECT

  • Status Report on Egypt-Israel Treaty Negotiations

Secretary Vance met separately today with both the Israeli2 and Egyptian3 delegations. Substantial differences still remain, and the Israelis want to discuss with us a number of bilateral issues.

Israel

Treaty Text. Problems with preamble, reference to Gaza, proposed review clause, and “priority of obligations.” All other articles have been agreed. Awaiting Israeli comments on Annex III (“normalization”); trying to accelerate drafting of Annex I (security and withdrawal); US proposal required to break deadlock in oil talks.4

Exchange of Letters. Israel will send a letter to Sadat agreeing to begin negotiations with Egypt within one month of ratification of the Egypt-Israel treaty on the modalities for establishing the self-governing authority. Israel will not, however, discuss the “powers and responsibilities” of the self-governing authority with Egypt alone.5 Israel will also insist that Sadat commit himself in writing to an exchange of “resident ambassadors” within one month of the completion of the interim [Page 408] withdrawal. This could take the form of a letter to you, and then you would write to Begin.6

US Security Role. Israel will accept a US-manned early warning station7 in central Sinai which would provide information for both Israel and Egypt. Israel would also welcome a continuation of the US reconnaissance role. Dayan would like to talk further about our “responsibility”8 for the implementation of the treaty.

Side Letters. Israel has asked for a letter from us confirming that there is no “legal linkage” between the treaty and the West Bank/Gaza negotiations.9 Weizman also wants a letter from us stating that the timetable for Israeli withdrawal from Sinai will be contingent upon the completion of the new airfields in the Negev.10

Memo of Understanding. Dayan wants to “review and update” all of our previous memoranda of understanding.11

East Jerusalem. Secretary Vance has asked to see Begin in New York on Thursday to discuss Israeli plans concerning east Jerusalem.12

Egypt

Priority of Obligations. The Egyptian delegation has agreed to consider new draft language proposed by Secretary Vance. Their preliminary response has been quite encouraging.13

Joint Letter. The Egyptians want some reference in the letter to a target date for holding elections for the self-governing authority. They also insist on making some reference to Egypt’s “special responsibilities” in Gaza.14

Exchange of Ambassadors. The Egyptians will agree to the procedure suggested by Dayan whereby Sadat will write to you, and you will write to Begin concerning the exchange of ambassadors.15

Security Arrangements. The Egyptians no longer favor an American-manned early warning station in Zone B. They prefer to have their own [Page 409] station in Zone A, and claim that the Israelis have indicated agreement to this concept. The Egyptians have, however, accepted the idea that the United States will continue to perform aerial reconnaissance over the Sinai.16

Unilateral Gestures. The Egyptians are still anxious for Israel to make a commitment to some unilateral gestures in the West Bank and Gaza which would help build confidence as the negotiations for the self-governing authority begin.

Secretary Vance will meet with the Egyptian delegation tomorrow morning,17 and will chair a trilateral meeting at Blair House at 11:00 a.m.18

  1. Source: Carter Library, National Security Affairs, Brzezinski Material, Country File, Box 55, Middle East: Peace Talks Between Egypt and Israel, 10/19–31/78. Secret. Sent for information. At the top of the memorandum, Carter initialed “C,” indicating that he saw the memorandum, and wrote, “Zbig—cc Cy.”
  2. No memorandum of conversation of this meeting has been found.
  3. Vance summarized his meeting with the Egyptian delegation in an October 30 memorandum to Carter. During the meeting, Vance informed the Egyptians that the Israelis were prepared to accept a solution to the problem of exchanging ambassadors through a letter from Sadat to Carter and a letter from Carter to Begin; the Egyptians, Vance reported, also found this acceptable. Vance also reported that Ali and Weizman agreed that Egypt would have an early warning station in Zone A in lieu of air defense missiles. Lastly, Boutros Ghali asked Vance for help persuading the Israelis that Egypt needed “help from Israel on the West Bank/Gaza/Palestinian set of issues.” In the margin next to this point, Carter added a handwritten comment: “Israel will try to obstruct progress on W[est] B[an]k/Gaza.” (Carter Library, National Security Affairs, Brzezinski Material, Brzezinski Office File, Subject Chron File, Box 71, Brzezinski, Chron: 10/20–31/78)
  4. Carter wrote in the margin next to this section: “Cy work out.”
  5. Carter underlined “Egypt alone” and wrote in the margin next to this phrase: “I’m sure Egypt can recruit some Gaza Palestinians. We can help w/ Jordan, etc.”
  6. Carter wrote “ok” and drew an arrow pointing to this sentence.
  7. Carter underlined “US-manned early warning station” and wrote a question mark with an arrow pointing to this phrase.
  8. Carter underlined “responsibility” and wrote a question mark with an arrow pointing to this phrase.
  9. Carter wrote in the margin next to this sentence: “only if Egypt agrees.”
  10. Carter wrote in the margin next to this sentence: “Camp David letter should be adequate.”
  11. Carter wrote in the margin next to this sentence: “Be cautious.”
  12. Carter wrote in the margin next to this section: “no.”
  13. Carter wrote in the margin next to this section: “Cy work out.”
  14. Carter drew quotation marks in the margin next to this section, indicating as in the above section, “Cy work out.”
  15. Carter wrote in the margin next to this section: “ok.”
  16. Carter wrote in the margin next to this section: “Better.”
  17. See Document 120.
  18. No record of this meeting has been found.