Foreign Relations of the United States: Diplomatic Papers, 1945, The Near East and Africa, Volume VIII

890F.248/8–845

The Minister in Saudi Arabia (Eddy) to the Secretary of State

No. 162

Jidda, August 8, 1945.
[Received August 18.]

Sir: I have the honor to report that, in accordance with instructions in Department’s Telegram No. 210, July 21, accompanied by General Giles, I submitted to the King of Saudi Arabia at Riyadh, August 5, 1945, text of a proposed agreement for the construction at Dhahran of a United States military airbase. The text had been largely drafted by Lieut. Colonels Shumate and Ellis, on the basis of instruction from the War Department, and was modified by me at points on which I had been specifically instructed by the Department of State. After considerable minor changes in phraseology made at Riyadh to include points reserved by the King, and to clarify statements not wholly clear in Arabic translation, the text was agreed by the King and signed by the Acting Foreign Minister, Shaikh Yusuf Yassin. A copy of my Notes No. 237 of August 5, and No. 238 of August 6, and an English translation of the Saudi Arabian Government Note No. 17/2/6/83 of August 6, embodying the agreement verbatim, are enclosed with this despatch.

Upon receipt of final technical data from the War Department, Lieut. Colonels Shumate and Ellis and a Captain of A.T.C. flew from Cairo to Jidda, August 3, to discuss with me the draft of the agreement they had prepared, thus providing a day of deliberation and revision before the arrival the next day of General Giles, who had only just returned to Cairo from an extended trip to the Far East. Stormy weather, however, prevented the plane carrying Colonels Shumate and Ellis from landing at Jidda, and they spent the night at Port Sudan where their plane landed only with the greatest difficulty. They arrived at Jidda the next day, only two hours before the arrival of General Giles with Shaikh Yusuf Yassin, recalled by the King from meetings of the Arab League committee. On August 5, the entire party proceeded from Jidda to Riyadh on the King’s plane, returning to Jidda August 7. General Giles and his party proceeded immediately to Cairo.

I believe the Department will find that the agreement reserves all the rights and includes all the essential provisions contained in my instructions, including the rights reserved by the Air Transport Command (Deptel. No. 232, August 3), received by me just as we were leaving for Riyadh. In any case, the agreement includes all the concessions we were able to secure, and more than I expected we would carry away. Several points on which I had expected debate and compromise, such as the numbers of foreign workers to be imported and their nationality, were accepted without question. General Giles took full part in all discussions and concurred in the final form of the agreement.

Reservations and objections raised by the King were almost exclusively concerned with preserving the appearance, as well as the reality, of his sovereignty and jurisdiction: He insisted that the Saudi flag should fly over the inland posts, the emergency landing field and the isolated stations where navigational aids are to be located, though the operation and control of technical services at these posts will belong to the United States Army. As a matter of fact, I am convinced that this will promote the security and efficiency of these posts, as the untamed tribesmen near those inaccessible posts will respect a station which belongs to the King, and will not consider the presence of isolated United States Army personnel as an “invasion”. While the King concedes United States Army jurisdiction over all non-Saudi Arabian personnel within the airbase limits, jurisdiction over police court cases and crimes committed outside the airbase, and involving mixed nationals, is to be the subject of agreement reached after full study of the problems involved. It should also be noted that the Agreement is a concession only for military use of the airbase, including Air Transport Command traffic in the national interest.

All civil air-service concessions and rights will be negotiated and granted on a non-discriminatory basis (see Legation’s despatch No. 124, May 13, 1945⁹⁴) by the Saudi Arabian Government. Sub-contracts with commercial airlines cannot be negotiated between the commercial company and the United States Army. To clarify this point, the King insisted on an additional note (Legation’s Note No. 238) specifying that if the military need for the airbase should terminate before the end of the three post-war years, the operation and maintenance of the airbase would, at such date, revert to the Saudi Arabian Government. It is also understood, however, that negotiations may be opened with the Saudi Arabian Government at any time for the inauguration of commercial air service to begin whenever the military situation permits the use of the field concurrently by civil airlines.

With regard to the provision for “normal facilities for personal recreation and self improvement”, I had expected possible objection to pagan dramatics or Christian worship, neither of which was mentioned. The only query raised was whether the clause would be abused to import prostitutes. Oral assurances to the contrary were accepted.

Time did not permit full details to be drawn up and agreed regarding (1) procedure in criminal cases involving mixed nationals, mentioned above; (2) procedure for administration of customs inspection and passport regulations for civilians, at such time as civilian traffic through the airbase will justify the posting of Saudi customs and passport officers there. Both General Giles and I preferred, at almost all costs, to bring away a signed document covering essentials, instead of postponing the Agreement until all minor matters had been studied. While the United States Army has been studying and drafting its requirements for months, the Saudi Government had no advance opportunity to study the proposed agreement. The speedy conclusion of a signed agreement constitutes a remarkable exception to oriental habits of leisurely consultation and bargaining. Another time, as in the case of proposed Agreements for civil air rights, I hope the text can be forwarded for study by me and by the Saudi Government rather than presented abruptly for an immediate decision.

The contrast between the King’s willingness to make concessions during this visit and his unwillingness to accept the valuable services of a military mission early in July was very marked. On the former occasion he had heard nothing about economic and financial help for 1945, and had also recently been advised that plans for long-range economic cooperation would be indefinitely postponed. This time, the visit followed closely upon the notification of generous budgetary aid for 1945, more than twice the aid being given by Britain, and closely upon receipt by the King of enthusiastic reports from Amir Faisal regarding his conferences in Washington with the Acting-Secretary and the Director of the Office of Near Eastern and African Affairs,⁹⁵ July 31-August 2 [1], 1945.

In conclusion, I would add a word of apology for the execrable style which mars portions of the Agreement: awkward phraseology, nonsequiturs, repetitions, and lamentable incoherence. Hurried attempts at joint revision of phraseology, both at Jidda and at Riyadh, during a few crowded hours, are partly to blame; but the original reason is the attempt to cover in the English text elaborations and explications coined in Arabic by the Saudis and inserted at points which, however eloquent they may be in the classical Arabic, disfigure the English text. However, there was no time for final revision of the style.

Respectfully yours,

William A. Eddy

[Enclosure 1]

The American Minister in Saudi Arabia (Eddy) to the Saudi Arabian Acting Minister for Foreign Affairs (Yassin)

No. 237

Riyadh, August 5, 1945.

Your Excellency: I have the honor to refer to your Note of May 11 [12], 1945⁹⁶ in which the Saudi Arabian Government agreed in principle to the establishment of a United States Military Airbase at Dhahran for the prosecution of our common war against Japan. The Saudi Arabian Government agreed to the construction and operation of this airbase by the United States Army for the duration of the war against Japan, and for its continued use by the United States Armed Forces for a period of three years after the cessation of hostilities against Japan.

I now have the honor to transmit the following proposals of my Government with regard to the details of construction and operation of the airbase, proposals which are hereby submitted to the government of His Majesty, the Great King of Saudi Arabia.

This airbase, not to exceed an area of five (5) miles by five (5) miles, to be located at approximately Longitude 26°20΄ North, Latitude 50°10΄ East, which is within the so-called Damman Tracts, will be constructed by the United States Government in accordance with United States Army mobilization type construction policies, making use of pre-fabricated steel buildings for certain structures. The base in general will consist of two runways and the necessary facilities as are usual for the operation of an airbase accommodating five hundred (500) persons. This five hundred (500) man capacity airbase will be so designed to permit the housing and all other pertinent facilities to be increased to any extent up to a two thousand (2000) man capacity. Such expansions will be made at such time and in such manner as and if deemed necessary by the United States Government during the period of time that the base is occupied by United States Armed Forces. In addition, the United States Government will construct on a Saudi Arabian post to be established near Lauqa, Arabia, at approximately Longitude 29°56΄ North and Latitude 45°7½΄ East, an intermediate emergency airfield. This airfield will consist of the very minimum of improvements and facilities to permit efficient and safe aircraft operations from Cairo, Egypt, to Dhahran. In addition, the United States Government will install standard navigational aids, meteorological facilities and housing, as determined necessary, on a Saudi Arabian post to be established in the vicinity of Hafar al Batin, 28°25΄ North and 45°35΄ East. Similar aids and facilities will also be installed at the Dhahran and Lauqa fields.

The air route for which the above installations are required will extend from Cairo, Egypt, to Dhahran, Saudi Arabia, by way of Ma’an, Trans-Jordan; Lauqa, Saudi Arabia; and Hafar al Batin, Saudi Arabia.

In the event future technical surveys reveal the necessity of installing certain navigational aids at points along the air route which are not mentioned above, the United States Government will construct same. Navigational aids required at points not on the established air route will not be constructed until the approval of the Saudi Arabian Government is obtained. The coordination of radio frequencies to be used in connection with navigational aids and other communications will be accomplished between technical representatives of the Saudi Arabian Government and the United States Government. In this connection, the United States Government is authorized to employ codes as may be necessary for security purposes.

The Saudi Arabian Government will arrange the necessary details for the United States Government to assume immediate entry rights at Dhahran and Ras Tanura and surface reservations to the required land within the Damman Tracts, and to be granted immediate access to the required lands near Lauqa and Hafar al Batin. This is to permit the rapid and unhampered construction of installations. The land for the Dhahran airbase will be reserved for the exclusive use of the United States Government and the installations thereon will be at the disposition of the United States Government who will use, operate, control and maintain same. On the day of cessation of hostilities against Japan, the airbase at Dhahran will be relinquished by the United. States Government, and the fixed installations thereon, as well as at Lauqa and Hafar al Batin, will become the property of the Saudi Arabian Government; however, for a period not exceeding three years following the cessation of hostilities against Japan, the United States Armed Forces will continue to use, operate and maintain the airbase at Dhahran at its expense. The equipment and improvements at Lauqa and Hafar al Batin will be at the disposition of the United States Government, but the installations will be under the command of the Saudi Arabian Government who will rely upon United States Government technicians for the operation and maintenance of all equipment and for supervising technical tasks.

In view of the extensive air traffic activities involved during the redeployment and period of Army occupation, the Saudi Arabian Government grants the right for the United States Army to use, operate, and maintain the installations referred to above for a period of three years after the cessation of hostilities against Japan.

The United States Government will reimburse the Saudi Arabian Government for all damage to personal property caused by the construction or operation of the above named facilities.

In view of the changing requirements and operations of such an airbase, it is agreed that during the time the airbase is being used by the United States Armed Forces, the United States Government has the right to remove, replace, or alter such items of material and equipment not permanently affixed to or installed on the airbase. It is further agreed that the United States Government has the privilege to make minor alterations, additions and improvements to permanently installed property.

On the expiration of the three-year period following the cessation of hostilities against Japan, the United States Government will turn over these installations in sound condition to the Saudi Arabian Government for operation, control and maintenance. However, the Saudi Arabian Government will not turn such responsibilities over to a third national power nor its subjects.

The construction, maintenance and operation of the airbase requiring the entry and exit of large numbers of United States Army personnel, American civilians and employees of the United States Government, all travelling under competent orders of the United States Government, it is agreed, in order to eliminate undue delay, that such orders issued by the United States Government will be accepted and honored by the Saudi Arabian Government in lieu of passports and residence permits. All other persons authorized by the United States Army Air Transport Command to travel in the national interest will have in their possession the required passports and visas.

These Army personnel, representatives and employees of the United States Government, other than Saudi Arabian subjects, will not be subject to the jurisdiction of the civil or criminal courts of Saudi Arabia for unlawful acts committed within the boundaries of the air-base. All Saudi Arabian subjects will be subject to the Saudi Arabian courts.

It being mutually agreed that mechanics, artisans and labor are not available in sufficient quantities among Saudi Arabian subjects to prosecute the construction of the airbase within the time allotted, the Saudi Arabian Government will allow the United States Government to import into Saudi Arabia, during the construction period, approximately 500 Americans, 1500 Italians, 500 Iraqis and Iranians, 1000 from Aden Protectorate, and 25 Egyptians of European descent for the construction work on the airbase. Wage rates for all employees will be uniform in accordance with individual degree of skill and will conform with current wage rates existing within the locality in which the work is being performed.

During the period when the airbase is at the disposition of the United States Armed Forces, all items on United States Government bills of lading are to be allowed entry into Saudi Arabia free of all Saudi Arabian Government duty, taxes and restrictions. This exemption applies to supplies and provisions for all United States Army personnel, and the operations in connection with the airbase which will not be subject to taxation, reimbursement, nor compensation to the Saudi Arabian Government.

The United States Government considers that normal facilities for personal recreation and self-improvement should be provided by the United States Army for its personnel and employees, as at other airbases.

The Saudi Arabian Government has no objection to the purchase by the United States Government during their occupancy of the air-base of electric power and natural gas from the Arabian-American Oil Company at such prices as are agreed upon between the purchaser and vendor. In the event the Saudi Arabian Government cannot, at the time it assumes complete responsibility of the airbase, secure an agreement with the Arabian-American Oil Company for the supply of required electric power, the United States Government will provide adequate generators to assure the continued operation of the airbase.

It is understood the United States Government has assigned the Commanding General, United States Army Forces in Africa-Middle East Theater, the mission of construction of the airbase and installations contained in the area of operations described above.

Detailed agreements on procedure for the administration of justice involving nationals of more than one country, and for customs and passport regulations, will be the subject of additional memoranda.

At a later date, and in connection with civilian use of the airport, the United States Government will discuss with the Saudi Arabian Government terms under which the Saudi Arabian Government might acquire equipment and non-fixed installations remaining on the air-base when relinquished by the United States Army.

Accept, Excellency, the renewed expression of my high regard.

William A. Eddy

[Enclosure 2]

The Saudi Arabian Acting Minister for Foreign Affairs (Yassin) to the American Minister in Saudi Arabia (Eddy)

No. 17/2/6/83

[Riyadh,] August 6, 1945.

Excellency: I have received your letter dated August 5, 1945, specifying the following:—

[Here follows text of letter of August 5, supra.]

I have the honor to inform you that the Government of Saudi Arabia has agreed to what has been said in your letter, the text of which is mentioned here above.

Please accept my high regards.

Yusuf Yassin

[Enclosure 3]

The American Minister in Saudi Arabia (Eddy) to the Saudi Arabian Acting Minister for Foreign Affairs (Yassin)

No. 238

Riyadh, August 6, 1945.

Your Excellency: With reference to my letter to Your Excellency, dated August 5, 1945, I wish to explain the purpose of the United States Government in securing the use of the airbase at Dhahran by the armed forces of the United States after the cessation of hostilities against Japan, for a further period of not more than three years. It is understood that, if the United States Government should discover at an earlier date before the end of the three years that the military need for the airbase no longer exists, then at that date the United States armed forces will relinquish to the Saudi Arabian Government the operation and maintenance of the airbase.

Accept, Excellency, the renewed expression of my high regard.

William A. Eddy

94. Not printed, but see footnote 2, p. 893.
95. Joseph C. Grew and Loy W. Henderson, respectively.
96. See footnote 2, p. 893.