Kennedy Prepped For Meeting With Israeli PM Ben-Gurion
(May 26, 1961)
This memorandum briefs President
Kennedy for his meeting with Israeli Prime Minister Ben-Gurion,
outlining the United States' position with regards to certain requests
assumed to be made by the Israelis.
RE
Subjects for discussion at meeting with Israeli Prime Minister Ben
Gurion
1. Israel's security problem
Mr. Ben Gurion will stress the Arab military threat and evidence of
a buildup along Israel's borders. He will probably request (a) a security
declaration from us; and (b) substantial military aid, particularly
a supply of ground-to-air missiles.
Our answer
The United States determination to assist small nations needs no formal
declaration, and such a declaration would have more of a disturbing
than a stabilizing effect. It might invite Arab approaches to the USSR.
Moreover, it is doubtful that we could persuade either our allies or
the Soviet Union to join in a multilateral declaration. With regard
to the Hawk Missile, this would introduce a new, dangerous and very
costly phase in an already desperate arms race. When Israel obtains
the French Mirage Fighter it will have a combat plane superior to the
MIG-19.
2. Regional disarmament
Mr. Ben Gurion will urge reduction of burdensome defense expenditures
for all states in the Middle East, to be achieved by big power agreement
not to introduce additional arms.
Our answer
We will examine the possibilities, but there seems to be little prospect
of agreement with other major powers upon an arms control program. For
the Soviets to join in such an arrangement, they would undoubtedly insist
that the CENTO countries be included. This is not feasible from the
United States point of view.
3. Israel's atomic energy activities
Mr. Ben Gurion has assured us that Israel's new reactor at Dimona is
utilized solely for peaceful purposes. However, he may urge that the
growing Arab threat would leave Israel with no alternative but to develop
a nuclear military capability.
Our answer
Our findings, resulting from the visit of Dr. Croach and Dr. Staebler,
confirm the peaceful purposes of the reactor advertised by the Israelis.
But we should seek similar visits at frequent intervals. If the Israelis
merely give the appearance of having decided to embark upon the production
of fissionable material and weapons manufacture, it might set off violence
resulting from an Arab mood of desperation. We must oppose concealment
of Israeli intentions because of the unsettling effect of this reactor
in a highly volatile part of the world.
4. Arab refugees
Mr. Ben Gurion is unlikely to raise this question, but this question
is a major element in continuing Arab-Israeli tensions. The United States
has contributed approximately $260 million to support the refugees and
continues to pay about $25 million a year.
The United States position
If the refugee problem is solved, it could break the log-jam to general
Arab-Israeli peace. We support the approach by the Palestine Conciliation
Commission. This consists of (a) a reconnaissance mission by a PCC special
representative; and (b) a practical, phased program of repatriation,
resettlement and compensation which can be worked out without endangering
Israel's security. Ultimately refugees would be offered 3 choices: (a)
repatriation, (b) resettlement in special work projects in Arab countries,
and (c) resettlement, with United Nations encouragement, in non-Arab
countries. Mr. Ben Gurion would have difficulty with the repatriation
alternative, but it should be explained that no one would be repatriated
without a careful screening, so that Israel's security would be protected
and only limited numbers would be repatriated annually under a careful
phasing operation. If we can get Israeli assurances of acceptance of
the principle of choice--either now or to the PCC special representative
when he visits Israel--this would be a solid break-through toward peace
in the Middle East.
5. Jordan Valley water development
Mr. Ben Gurion will point out that water for the Negev is the key to
Israel's future and that Israel is planning to divert a portion of the
Jordan River by 1963 along the lines of the Johnston Plan allocation.
The Arabs are threatening both military action and diversion of the
headwaters of the Jordan. Mr. Ben Gurion would urge that an equitable
solution would allocate the Jordan River to Israel and the Yarmuk to
Jordan.
Our answer
We believe the Jordan Valley's future lies with a unified development
plan along the lines of the Eric Johnston recommendations. Substantial,
largely unpublicized assistance has been given Israel for water development,
$45 million since 1958. Jordan has received $6 million in the same period
of time. We do not consider Johnston's effort implied a moral, political
or financial obligation on the part of the United States. Rather, it
is basically a responsibility of the riparians. We might suggest (a)
an open statement by Israel of its intention to stay within the Johnston
allocation to help reduce tensions, or (b) mediation by IBRD. The de
facto solution suggested by Ben Gurion allocating the Jordan River to
Israel and the Yarmuk to Jordan is not equitable. It would deprive down-stream
Arab users of that portion of the Jordan River legitimately theirs.
6. The UAR's role in Middle Eastern problems
Mr. Ben Gurion will contend that Nasser is a Soviet tool seeking domination
of the Middle East and Africa. He will argue that the Arab boycott of
Israel and the restrictions on the Suez Canal prevent peaceful development
of the area.
Our answer
We might point out that Nasser's efforts to establish influence over
Africans and other Arabs is having a very limited success. The United
States may have differences with Nasser but must seek a viable relationship
as an alternative to forcing him to rely on the Soviet bloc. The United
States opposition to the Arab boycott and UAR restrictions on Suez Canal
transit is unequivocal, but we believe the United Nations is the most
effective channel through which to seek solutions.
7. Israel's relations with non-Arab governments
Mr. Ben Gurion will seek support for Israel's Point 4 activities in
Africa which influence these countries toward a Western orientation;
he will seek support for Israel's efforts to improve relations with
nations in a middle position between the Arabs and Israel, such as India;
and he will seek United States influence to include Israel in regional
groupings such as the Common Market.
Our answer
(a) The United States approves Israel's efforts with underdeveloped
countries but questions the advisability of collaboration or subsidization.
Such collaboration with the United States might deprive Israel of its
most important asset-- freedom from the stigma of imperialism. But the
United States would continue to provide Israel with large-scale aid
so that Israeli funds could be freed for technical aid to Africa.
(b) Although we would not initiate any action with India or Pakistan
in behalf of Israel, if they seek our position we would express sympathy
for Israel's point of view.
(c) We have supported Common Market applications of Greece and Turkey,
but they provide no analogy for Israel because Greece and Turkey are
contiguous to the Common Market and have NATO relationships. The European
groupings must decide for themselves whether to include Israel. With
regard to OECD, we are in the process of determining the basis for additional
memberships.
8. Jordan
Mr. Ben Gurion would urge continued and even expanded political and
economic support of Jordan and Hussein. If this is done, it will contribute
to area stability and create jobs for refugees, thus facilitating their
resettlement and integration into the economy. He feels that Hussein
is in trouble due to his marriage to an English girl and the attacks
upon him by the UAR.
Our answer
We would agree that Jordan is the key to stability in the area. We
are now providing that country with assistance of between $50 million
and $70 million a year. Increases are not feasible because Jordan is
already receiving as much assistance as can be effectively utilized.
Should something happen to Hussein, we would expect Israel to refrain
from any precipitous action. His overthrow would not necessarily be
followed by the installation of a Cairo dominated government.
This memorandum reflects the point of view of the Department of State
in every respect.
Mike
Source: Kennedy Library, President's Office Files, Countries, Israel--Security
1961-1963. No classification marking.
Sources: Foreign
Relations of the United States, 1961-1963: Near East, 1962-1963,
V. XVIII. DC: GPO,
2000. |