Foreign Relations of the United States, 1952–1954, The Near and Middle East, Volume IX, Part 1

674.853/4–2253

No. 596
Memorandum of Conversation, by the Officer in Charge of Palestine–Israel–Jordan Affairs (Waller)

confidential

[Washington,] April 22, 1953.

Subject:

1.

Border problems with Jordan and Egypt.

2.

Israel note of April 14 regarding Suez Base negotiations.²

Participants:

• NEA—Mr. Byroade
• Israel Ambassador Abba Eban
• Col. Vivian Herzog—Defense Attaché
• NE—Mr. Waller

Ambassador Eban, at his request, accompanied by Col. Herzog, called on Mr. Byroade this afternoon at 3 o’clock regarding the two subjects listed above.

1. The Ambassador read from a paper entitled “Notes on border incidents along the Israel Frontier” and presented a copy which is reproduced as an enclosure to this memorandum.²

The Ambassador was asked for clarification of paragraph 14 regarding the murder in Jerusalem April 20 of a rabbinical student and his niece, reportedly American citizens, as our information indicated the murder was committed by “thieves” which would open the possibility of the perpetrators having been Israelis rather than “Arab infiltrators” as the Ambassador reported. He was also asked to amplify the information in paragraph 10 regarding the killing of two Israeli watchmen near Nevo-Botar, since Jordan authorities claimed the watchmen were killed in Jordan territory. The Ambassador replied that he was providing information furnished him by his Government and he therefore believed it to be accurate.

Mr. Byroade replied that whereas we were not in a position to determine the responsibility for the incidents, he nevertheless agreed with the principles stated and we would look into the matter to see what could be done. The Amb. said similar representations were being made by his colleagues in London and Paris.

2. Regarding the scheduled UK-Egyptian talks about the Suez Base problems, the Ambassador stated his Government in its note of April 14 (see memo April 14 reporting conversation between Israel Minister Goitein and Mr. Jernegan)³ had not meant to imply that Israel should become an official party to the negotiations. The Israel Government fears that decisions may be taken affecting Israel’s interests which might be made known to Israel as accomplished facts. Israel wishes to be consulted in advance on vital matters.

Mr. Byroade replied that as a practical matter he foresaw no difficulty as Israel’s interests would be kept very much in mind and we may want Israel’s advice at certain points. He made it clear, however, that he could not undertake to advise the Israel Government officially concerning the negotiations as the United States is not scheduled to participate. When the Ambassador suggested that, after a certain momentum has been reached in the negotiations, there might appear a “golden moment” for the question of Arab–Israel peace to be brought up, Mr. Byroade said he could see no way to inject this problem into the negotiations. He added that a more appropriate moment might be when the Secretary talks privately with General Naguib during the Secretary’s Near East trip, which he believed would be done.

The Ambassador expressed the opinion that General Naguib is at the parting of the ways. He must either go forward or fall by the wayside. Mr. Byroade said he agreed and that this is causing him considerable concern. The Israel question is a tough one for General Naguib—the next step toward its solution appears to be a personal talk to General Naguib by the Secretary.

[Enclosure]

The Israeli Embassy to the Department of State

Notes on Border Incidents Along the Israel Frontier

1. The continuous tension along the Israel border and in particular along the Jordan and Egyptian frontiers is a direct result of unrestrained infiltration by Arab marauders, against which no preventive measures have been taken by the respective Arab Governments.

2. On February 9th, 1953, the Commander in Chief of the Arab Legion, Major General Glubb Pasha is reported by the Near East Broadcasting Services, to have stated in a speech that:

“Arab infiltration to Israel is the cause of tension in the border area…”

3. The situation along the Egyptian and particularly along the Jordan border may be compared with that of comparative peace and calm prevailing along the borders of Syria and Lebanon, where the authorities of both countries have apparently determined to control and successfully prevent outbreaks such as have occurred along other sections of Israel’s borders. The comparative quiet along these borders invites certain conclusions, in regard to the less tranquil borders with Jordan and Egypt.

4. In the year 1952 Arab marauding created 3,714 incidents along the Israel border. These incidents included 874 cases of theft, 43 cases of robbery with violence, 1,395 cases of attempts to steal and some 395 attacks on the Israel Defense Forces. As a result of these incidents in the course of the year, Israel sustained losses amounting to 59 killed, 74 wounded and 35 prisoners and approximately $3,000,000 worth of damage to facilities and installations, the replacement of which will cost foreign currency.

5. In January 1953, 295 incidents occurred along the Israel border, including 159 cases of theft and 39 attacks on the Israel Defense Forces. Israel’s losses for that month included 2 killed, 21 wounded and 7 prisoners and approximately $150,000 worth of material damage.

6. In February 1953, 384 border incidents were reported, including 220 cases of theft and losses included 2 killed, 4 wounded, 6 prisoners and approximately $120,000 worth of material damage.

7. In view of the persistent occurrence of grave and serious incidents along the Jordan border, the Government of Israel submitted on March 25, 1953 to the Jordan Government, through the Mixed Armistice Commission a list of proposals, which in the view of the Government of Israel, would assist in combating infiltration and reducing tension along the borders. No action has been taken by Jordan on this proposal, a copy of which is attached herewith.

8. On the contrary, the situation has rapidly deteriorated from one in which the violence and acts of sabotage were carried out by infiltrators, marauders and saboteurs to one in which the Armed Forces of Egypt and Jordan openly commit acts of aggression against the State of Israel.

9. The Government of Israel now wishes to draw attention to several very serious incidents which have arisen in recent days.

10. On April 17, 1953, four Jewish watchmen 1,000 feet within Israel territory near Nevo-Botar, were fired on by Jordan National Guardsmen; two were hit and were dragged over the border. Their dead bodies were returned on April 19.

11. On April 18, a Jewish woman on a housetop in Jerusalem, some 50 feet from the Old City Wall, was killed by a single shot fired by an Arab Legionnaire on the Wall. The Legionnaire on the Old City Wall denied access to civilians and police to the roof in order to retrieve the body, by threat of force. The body was later removed by United Nations observers.

12. On April 18, a group of infiltrators was encountered by an Israel police patrol in the center of Jerusalem. After an exchange of fire, the infiltrators departed leaving one dead dressed in military uniform.

13. On April 19, Arab Legion soldiers opened fire on the house referred to in paragraph 11, in which the murder of a Jewish woman took place on April 18.

14. On April 20, Arab infiltrators broke into an apartment in Kiryat Moshe in Jerusalem and murdered a rabbinical student and his niece, both United States citizens; the former, a resident of Jerusalem, and the latter, a tourist. The request of the Israel representative to the Mixed Armistice Commission to call an emergency meeting was rejected by the Chairman of the Jordan-Israel Mixed Armistice Commission.

15. On April 20, an Israel patrol encountered 50 armed Jordanians in the area of Beit Jibrin, some 600 feet within the Israel border. An exchange of fire continued for a number of hours before the Arabs withdrew across the border.

16. On April 17, an Egyptian Naval frigate encountered five Israel fishing boats on the high seas, 25 kilometers west of the Gaza Strip. The boats were first ordered to leave the area, then fired upon and ordered to halt. They were boarded by Egyptian Naval personnel who later returned to their frigate.

17. This Egyptian attack is a flagrant violation of the Israel–Egyptian Armistice Agreement, and of the United Nations Security Council Resolution of September 1, 1951, which specifically denies the right of search and visit of vessels of one country by the forces of the other country. This incident can be attributed, in part, to the failure of the major powers to enforce the aforementioned Security Council Resolution.

18. On February 16, 1953, following a series of incidents along the Israel–Jordan border, the Government of the United States indicated that it regarded retaliatory raids to be a grave danger to the stability of the region and councelled the Government of Israel to have recourse in all cases to United Nations machinery.

The Egyptian aggression has been declared by Arab sources to be a retaliatory act, and in consequence the United States Aide-mémoire to Israel on February 16 pointing out that it considers retaliatory raids to be a grave danger to the stability of the region, is most applicable.

19. Since the receipt of the aforementioned Aide-mémoire from the United States Government, a series of crimes has been perpetrated along the border by Arab infiltrators and by Arab Armed Forces. Israel, as always, has endeavored to have full recourse to United Nations machinery. This recourse has been denied to Israel on a number of occasions when the Chairman of the Israel–Jordan Truce Commission refused to convene an emergency meeting, and indeed the use of United Nations machinery has not shown any results or brought about any form of improvement.

20. It is submitted that the Mixed Armistice enforcement machinery has been considerably weakened by the fact that the Arab countries have apparently reached the conclusion that the major powers fail to appreciate the real responsibility and causes for the border incidents. It is felt that the real failure is that of the major powers and their failure to insist on the strengthening of the United Nations machinery and unequivocal compliance by all parties with Security Council Resolutions and Mixed Armistice Commission decisions.⁴

April 22, 1953.

2. Not printed; for documentation on this subject, see Documents 592 ff.
2. Below.
3. Not printed.
4. Also attached to the memorandum of conversation of Apr. 22, but not printed, is a paper entitled “Proposed Measures Against Infiltration Submitted by the Senior Israeli Delegate to the Senior Delegate of the Hashemite-Jordan Kingdom,” dated Mar. 25.