52. Memorandum of a Conversation, Department of State, Washington, December 1, 1958, 12:30 p.m.1
SUBJECT
- Future of the United Nations Relief and Works Agency (UNRWA) and the Arab Refugees
PARTICIPANTS
- Mr. Leslie Carver, Acting Director of UNRWA
- Mr. Sherrington Moe, Executive Assistant to Director of UNRWA
- The Acting Secretary
- W—Mr. C. Douglas Dillon
- IO—Mr. Francis O. Wilcox
- NEA—Mr. William M. Rountree
Mr. Carver called to present his views concerning the present situation in the General Assembly debate on the Arab refugee question and problems confronting the Agency. He said that the Arab delegates had been shocked by the position taken by the United States and its statement in debate since they believed that the United States had prejudged the outcome of the proposed study, namely that UNRWA would end in June 1960. He felt that the chances for such a study had been substantially reduced by our position. He felt, however, that with some wording in a resolution calling for recommendations without making any mention of a study, it might be possible for the Arabs to go along with the resolution. Such a resolution, if adopted, could only be implemented by the Secretary-General personally. Mr. Carver had some doubts as to the Secretary-General’s willingness [Page 123] to undertake the preparation of recommendations concerning the future handling of the refugee problem because he already had too many involvements in the Middle East.
The Acting Secretary said he believed that shock treatment was indicated as necessary since the United States could not be taken for granted. In our opinion the study was necessary. We had not prejudged its outcome but we could not make any promises or commitments unless we could show Congress some progress toward the ultimate end of the refugee problem. Congress was willing to grant funds for such humanitarian purposes but had increasingly questioned the apparent lack of progress in settling the problem.
Mr. Carver stressed the Arab fears that UNRWA’s end would be followed by bilateral aid, thus reducing the United Nations’ responsibility for the refugees and eventually resulting in the “paymaster” countries forcing the refugees on other Arab countries. The Arabs felt that they were being singled out for unfair treatment and Israel was not being forced to make similar concessions. He suggested that in another statement the United States reassurance on this point would be desirable. He further suggested that Israel should make a qualified acceptance of the principle of repatriation, thus showing that progress was possible on both sides.
The Acting Secretary said that an approach to Israel was a “chicken or the egg” problem in that Israel wanted to know what the Arabs would be prepared to do. We, of course, would welcome even any partial step by either side toward the solution of the refugee problem.
Mr. Rountree said that he believed Israel would not exclude the idea of repatriation but would wish to know the relationship of agreement to repatriation to other outstanding differences with the Arabs, such as boundaries and resettlement. It was unrealistic to expect Israel to give up its position on repatriation prior to possible negotiations.
Mr. Carver, in commenting on the rehabilitation program, particularly the vocational training programs which UNRWA would be starting up again, inquired concerning the possibility of using the United States fund of $3.75 million earmarked for repatriation or resettlement for vocational training. After discussion of the legal problems involved in the precise definition of resettlement, it was agreed that Mr. Carver would look into the details governing the removal of students and their families from relief rolls after finishing their vocational training.
The Acting Secretary inquired as to the amount of surplus food which was used by the Agency. Mr. Carver pointed out that the Agency commercially purchased up to fifty per cent of its flour requirement from the United States; that it had been purchasing butter [Page 124] from United States surpluses so long as the surplus existed. The Agency received six million pounds of skim milk as a gift from the United States through UNICEF.
The Acting Secretary asked that a study be made of the possible increased use of surplus foods by the Agency. He pointed out that we would not wish to interfere with commercial markets but we thought that by the increased use of surplus foods for relief, we might be able to put more of our cash contribution into rehabilitation programs.
Mr. Carver stressed the need for continuing the dollar contributions in order to ensure matching contributions from other countries.
Mr. Carver concluded by suggesting, with reference to his draft resolution,2 that the United States take another look at it and then undertake negotiations with Mr. Gohar (United Arab Republic), who was a more reasonable leader of the Arabs than Mr. Shukhairy (Saudi Arabia).
The Acting Secretary appreciated that a satisfactory resolution was the immediate problem for UNRWA and its staff. He said, however, that until the next Congressional hearings, the United States could not make commitments on the refugee problem. A report would be helpful with regard to these forthcoming Congressional deliberations. He concluded by assuring Mr. Carver that the United States remained truly sympathetic to the Agency’s problems but that we had no alternative to our present position.
- Source: Department of State, Central Files, 320.511/12–158. Confidential. Drafted by Ludlow. Prior to this conversation, Carver met separately with Wilcox, Rountree, and Dillon. A memorandum of the conversation with Wilcox is ibid. No records of the other two conversations have been found. A briefing memorandum for the meeting with Acting Secretary Dillon, November 29, is ibid.,NEA Files: Lot 70 D 66, UNRWA 1958.↩
- A copy of this draft resolution with eight operative paragraphs was transmitted in Delga 482 from USUN, November 20. (Ibid., Central Files, 320.511/11–2058)↩