408. Telegram From the Department of State to Multiple Posts1

273839. Subject: (C) US/EC Consultations on the Middle East. Reference: (A) State 263732,2 (B) State 262384.3

1. (C-entire text).

2. The EC–9 are continuing work on their Middle East initiative. Following on the June 13 EC–9 Venice Declaration4 and Luxembourg Foreign Minister Thorn’s “Contact Mission”5 to the Middle East in Au[Page 1366]gust/September, the nine political directors, working with experts, are now proceeding to develop common positions on issues related to a settlement. These efforts will evidently be revealed by Foreign Ministers shortly before the nine Heads of Government/State decide at the December 1–2 European Council meeting6 on a possible EC–9 Middle East initiative.

3. European diplomat who calls upon us frequently told NEA recently the chances now had to be rated good that the EC Summit would result in a European declaration setting forth principles for a Middle East peace going well beyond the Venice Declaration. Source said the declaration would spell out four basic principles for a peace settlement: Israeli security; self-determination for the Palestinians; Israeli withdrawal; and international guarantees. He believed there would also be a “procedural aspect” to the European declaration in the form of an invitation to the parties to come to a European-organized peace conference for negotiations based on these principles. Source said that there was now solid support from Italy, France, Belgium and Ireland for proceeding in this manner. Holland would be opposed; the Germans would drag their feet because they didn’t want to displease the US; and the British were divided among themselves, with Carrington favoring a strong European initiative but Thatcher holding him back.

4. We have repeatedly made clear to the Nine our views on achieving peace in the Middle East through the Camp David process and the need for their support of this process, as well as our concerns about a separate EC–9 initiative. The Secretary discussed these matters with several EC Foreign Ministers at the UNGA, and Ambassador Linowitz presented our views to the EC–9 Ambassadors in Washington on September 15.7 Most recently, Deputy Secretary Christopher, at a meeting with several major European Ambassadors on October 9, stressed very strongly that the EC–9, as they consider their Middle East plans for their December 1–2 Summit, should not complicate our Camp David efforts, in particular the President’s upcoming meeting with Sadat and Begin which may be held at about that same time. FYI. Our specific concern is that the EC–9 Summit may produce a European plan for a Middle East settlement that could draw Palestinians and other Arabs away from the Camp David process and undercut agreements or [Page 1367] proposals that might emerge from the President’s meeting with Sadat and Begin. End FYI.

5. As indicated reftels, EC–9 political cooperation consultations in recent months have become increasingly significant, with concurrent significant implications for US policy. This development requires that we should intensify our efforts to improve and up-grade the US/EC dialogue, with high-level involvement as needed.8 In this regard, no other area is currently more important than EC–9 activities on the Middle East, where we have sometimes experienced difficulty in obtaining details on the development of their policies. It is essential that we not be surprised again about EC intentions. We need timely information if we are to influence the outcome at the EC Summit. In conversations with policy-level officials you should express our concerns, drawing on the position voiced by the Deputy Secretary.

Muskie
  1. Source: National Archives, RG 59, Central Foreign Policy File, D800490–0218. Confidential; Priority. Sent to Athens, Bonn, Brussels, Dublin, London, Luxembourg, Paris, Rome, The Hague, and Copenhagen. Drafted by J.H. Madden (EUR/RPE/EEC); cleared by Robert M. Beaudry (EUR/RPE) and Sterner; approved by Vest. Sent for information to Cairo, Tel Aviv, New York, Amman, Jidda, Jerusalem, and Damascus.
  2. Telegram 263732 to muliple posts, October 3. (National Archives, RG 59, Central Foreign Policy File, D800471–1044)
  3. In telegram 262384 to multiple posts, October 1, Christopher conveyed specific steps for Chiefs of Mission in European posts to take to monitor EC–9 political deliberations and to contribute to them substantively “in order to encourage the Nine to adopt positions compatible with our own.” (National Archives, RG 59, Central Foreign Policy File, D800469–0486)
  4. For the text of the declaration on the state of the Middle East negotiations, agreed by the Heads of State and Government and the Ministers of Foreign Affairs of the European Council at Venice on June 13, see telegram 15533 from Rome, June 13. The Declaration stated that “growing tensions” affecting the Middle East “constitute a serious danger and render a comprehensive solution to the Israeli-Arab conflict more necessary than other.” “The Nine Member States of the European Community consider that the traditional ties and common interests which link Europe to the Middle East oblige them to play a special role and now require them to work in a more concrete way towards peace.” (National Archives, RG 59, Central Foreign Policy File, D800289–0954)
  5. The “Contact Mission” of Foreign Minister of Luxembourg Gaston Thorn to undertake a series of consultative meetings with Arab, Israeli, and European leaders on the current political situation in the region was done in four “legs.” In the first leg, Thorn visited Tunisia and Israel. A summary briefing of this trip was given by an official of the Luxembourg Foreign Ministry to Ambassador to Luxembourg James G. Lowenstein on August 2, the details of which are in telegram 1019 from Luxembourg, August 2. (National Archives, RG 59, Central Foreign Policy File, D800370–0795) The second leg, in which Thorn visited Lebanon, Syria, and Jordan, is summarized in telegrams 1066, 1068, 1069, and 1070, all from Luxembourg, August 12. (National Archives, RG 59, Central Foreign Policy File, D800384–0705, D800384–0788, D800384–0798, D800384–0900 respectively) The third leg, in which Thorn visited Kuwait, Iraq, Saudi Arabia, and the Vatican, is summarized in telegram 1181 from Luxembourg, September 3. (National Archives, RG 59, Central Foreign Policy File, D800419–0603) The fourth leg, in which Thorn visited Egypt, is summarized in telegram 1182 from Luxembourg, September 3. (National Archives, RG 59, Central Foreign Policy File, D800419–0632) The Contact Mission concluded in September with the September 4–5 EC Political Directors Meeting, summarized in telegram 1212 from Luxembourg, September 6; the September 14 EC Foreign Ministers Political Coordination Meeting, summarized in telegram 1286 from Luxembourg, September 17; and Thorn’s meeting with West Bank officials, summarized in telegram 1408 from Luxembourg, October 3. (National Archives, RG 59, Central Foreign Policy File, D800424–0340, D800443–0589, D800472–1099 respectively)
  6. The text of the Middle East sections of the European Council’s declaration, released at the end of its December 1–2 meeting, was conveyed to Washington in telegram 1739 from Luxembourg, December 2. (National Archives, RG 59, Central Foreign Policy File, D800575-0321)
  7. On September 15, Linowitz provided a briefing to EC Ambassadors on his most recent visit to Israel and Egypt and the developments he saw as likely to follow. The briefing is summarized in telegram 248377 to multiple posts, September 18. (National Archives, RG 59, Central Foreign Policy File, D800444-0759)
  8. Following indications that the EC-9 would extend invitations for a EC-sponsored Middle East peace conference at the December 1–2 meeting of the European Council, Muskie provided further guidance to European posts on October 21, instructing Chiefs of Mission to seek early meetings with the Foreign Ministers of the EC-9 to share the USG’s “great concern that any further steps by the European leaders carefully take into account how those steps would contribute concretely to the negotiations which alone can advance the peace process.” Muskie advised that Ambassadors convey the view that the United States wished to “continue a close dialogue” with the EC-9 “on how best to proceed toward a settlement of the Arab-Israeli conflict,” and to “find a way to address the Middle East problem at the EC-9 Summit in a way which continues to support the current efforts and does not discourage the Palestinians, Jordan and other Arab states.” (Telegram 280476 to multiple posts, October 21; National Archives, RG 59, Central Foreign Policy File, D800501-0935)