Foreign Relations of the United States, 1948, The Near East, South Asia, and Africa, Volume V, Part 2

501.BB Palestine/12–1348: Telegram

The Consul at Jerusalem (Burdett) to the Acting Secretary of State

secret

Jerusalem, December 13, 1948—3 p. m.

1530. Consulate General has consistently maintained strong international police force first requisite for Jerusalem “under effective United Nations control”. This would necessitate agreement (Deptel 1047, December 2¹) among big powers on method selecting force and require heavy outlay United’ Nations funds for indefinite period. Large and costly administrative staff would also be needed. Now appears impossible obtain either force or necessary funds, assumption confirmed by conversation with Bunche. Unwillingness United Nations take effective action force either Jews or Arabs to accept its proposals for Jerusalem must also be assumed. Problem thus become to devise settlement for Jerusalem and assure protection and free access to Holy places without international force and necessitating only minimum United Nations staff. At same time maximum agreement from two parties must be obtained particularly from PGI which at present from military point view capable imposing own solution on Arabs. Question Jerusalem, corridor to coast and Holy places through all Palestine part same problem.

Based on above considerations Consulate General believes practical solution now might take following form:

1. Division city Jerusalem proper into permanent Arab and Jewish areas former becoming part of Transjordan and latter part Israel. Movement between areas would be temporarily prohibited and restriction relaxed gradually. Demarcation line could run along Ramallah road to Damascus gate, Suleimyn way to Jaffa road, Jaffa road to Jaffa gate, Hebron road past railroad yard and then over to railroad, railroad to water pipeline, straight south to municipal boundary line, east along municipal boundary line to Hebron road, south along Hebron road to present truce lines. Division based generally on results fighting Jerusalem with modifications southern sectors to give Arabs vital south north communications along Nablus Hebron route and to eliminate Jewish and Arab pockets. Jews would be required relinquish strong military positions on Mount Zion and Deir Abu Tor but proposed demilitarization of entire Jerusalem area would diminish their importance. Jews would also have to give up Jewish settlements of Italpiot and Ramat Rahel and claim to Jewish quarter Old City. Changes would return lower and upper Bakaa where Arabs remaining in New City now quartered to Arabs but Jews would retain Arab sections of Qatamon, German colony and Greek colony now occupied by new Jewish immigrants or Jews displaced by fighting. Railroad would remain within Jewish control thus furnishing east west communication for Jews but Arabs should receive definite right free use railroad for shipments from coast. Hebrew University-Hadassah hospital enclave would have to remain Jewish perhaps joined to Jewish Jerusalem by new road from Nahal at Shimon sector skirting Arab built up area and protected by Arab Legion.

2. Demilitarization Jerusalem area as defined in GA resolution of November 29, 1947 with specific provision that adequate number Arab Jewish police allowed. This could be started by gradually widening stretches from which military forces withdrawn and where military installations destroyed. Proposed retention Jewish corridor should meet Jewish objection to demilitarization on grounds would leave Jews in Jerusalem cut off in Arab sea. Arabs have expressed readiness demilitarize city.

3. Jewish controlled corridor to coastal area including railroad, main Jerusalem Tel Aviv highway and new Jewish “Malaya” road. This would constitute great concession on part Arabs since corridor would run in part through territory normally inhabited by Arabs and would prejudice survival Jaffa even if city returned to Arabs. But Consulate General convinced Jews after experience this summer will refuse relinquish control their lines of communication. Jews currently establishing new settlements along route to assure its protection. North south road through Jerusalem in part compensates Arabs for separation by corridor of southern and northern Arab areas. If Jaffa again becomes Arab city provision should be made for free use by Arab civilian traffic of roads and railways. Arabs should also be entitled free use port Haifa, Lydda airfield and communication routes inland. To accomplish above present truce lines for Jerusalem-Latrun area could remain in force with minor rectifications to permit exclusion from corridor of Arab villages on border. Exception would be Latrun salient from which Arab Legion would withdraw to approximately Beit Nuba relinquishing commanding positions including Deir Aiyub along Jerusalem Tel Aviv highway. This would open main east west route to Jews and allow Jews repair and operate main water pipeline to Jerusalem. Arab Legion has indicated willingness withdraw from salient as no longer of special military significance. Southern limits of Jewish corridor would be determined by final Palestine boundary settlement.

4. Establishment United Nations Commission with seat in Jerusalem to perform among others following functions:

[Here follow subparagraphs a through f setting forth the proposed functions.]

5. SC resolution calling for immediate economic and if necessary military sanctions against any party violating above provisions. Effective SC action to support United Nations Commission within its comparatively narrow sphere of activity and in carrying out projects on which general agreement exists even between Arabs and Jews much more likely than on broader issues where considerable disagreement prevails. Also need for SC action correspondingly reduced. Provided Arabs sections central Palestine go to Transjordan extension UK–Trans Jordan treaty to Arab areas would serve greatly to strengthen SC guarantee and allay very real Arab fears future Jewish expansion.

Consul General feels that taking into account realities present situation above points form basis for settlement Jerusalem section Palestine question which Jews will accept and to which Arab (Transjordan) will acquiesce. Arabs have in fact no power to oppose settlement and refusal could lead to further Jewish successes and ultimate solution depriving Arabs additional territory. United Nations Commission would protect rights of Christians third main religious group, interested in Jerusalem which has shown very little activity on own behalf. Same results would be achieved as by paragraph 7, 8 and 9 of UK resolution and would avoid international regime which could easily degenerate into mere shadow regime contributing further to loss United Nations prestige.

Sent Department, repeated Baghdad 35, Beirut 107, Damascus 54. Pouched Amman 9, Cairo 147, Jidda 16, Tel Aviv 15.

Burdett

1. Not printed.