96. Memorandum From Secretary of State Rusk to President Kennedy0
SUBJECT
- United States Recognition of Yemen
We believe the time is now propitious for the United States to recognize the Yemen Arab Republic which has been in firm and effective control of most of Yemen since its establishment on September 27. Further delay risks causing (1) a further escalation and extension to Saudi Arabia of the armed conflict in Yemen; (2) increased internal disaffection in Saudi Arabia and Jordan (principal supporters of the generally discredited Yemeni Royalists’ cause); (3) a deepening of the Yemen Arab Republic’s obligation to the United Arab Republic; and (4) the development of an anti-American—and perhaps pro-Soviet—attitude in the new Yemen [Page 219] regime. We believe the Royalist forces incapable of wresting control of Yemen. Accordingly, I request your approval of this course of action.
We have delayed recognition until now primarily in order not to damage our interests in Saudi Arabia. We believe these interests are now protected in the light of developments in Yemen and in the wake of Egyptian air attacks on Saudi territory by (1) categorical assurances by President Nasser that the United Arab Republic will not use Yemen as a springboard for invasion against Saudi Arabia; (2) a confidential undertaking by the United Arab Republic gradually to improve its relations with Saudi Arabia; (3) United Arab Republic and probably Saudi willingness to consider disengagement from the Yemeni conflict; and (4) the formation of a new Government in Saudi Arabia under Prince Faysal’s relatively enlightened and wise premiership, to which we have pledged our strong support. Among the measures we are taking to demonstrate our support for Faysal are the despatch of a United States destroyer and certain United States aircraft to Saudi Arabia and publication of your letter to him. We also have United Arab Republic and Yemen Arab Republic assurances that they will not seek to destroy the British position in Aden which is necessary to stability in the Persian Gulf.
The following states have already recognized the Yemen Arab Republic: West Germany, India, Bolivia, Iraq, Tunisia, Algeria, the United Arab Republic, Syria, Lebanon, the Sudan, Somalia, the Soviet Union, Communist China, Poland, Bulgaria, Rumania, Yugoslavia, Czechoslovakia, and East Germany. At such time as United States recognition is extended, we expect several Free World countries to follow suit, including Italy, France, Australia, and Canada. The United Kingdom will probably delay its recognition a little longer but is not opposed to our impending recognition as long as it occurs after the House of Commons debate, scheduled for November 13, on the Aden Federation Plan.
Before extending recognition we shall (1) discuss with Prince Faysal and the United Arab Republic a formula for mutual disengagement from the Yemeni conflict; (2) prepare identical messages from you to President Nasser, Prince Faysal, King Hussein and President Sallal proposing termination of external support of the Yemeni Royalists, a phased withdrawal of United Arab Republic forces from Yemen, the withdrawal of Saudi forces from the vicinity of the Yemeni border and statements by the Yemen Arab Republic eschewing adventures outside Yemen; and (3) notify our Western allies and the Central Treaty Organization (CENTO) powers of our forthcoming recognition. We hope also to obtain an advance undertaking from the United Arab Republic to state publicly upon our recognition of the Yemen Arab Republic that it will remove its troops when the situation stabilizes, when Saudi forces are removed from the frontier and when Saudi-Jordanian support for the Yemeni Royalists stops. We would also seek public United Arab Republic assurances [Page 220] not to attack Saudi territory and a statement by the Yemen Arab Republic that it has no designs on Saudi Arabia or the Aden Protectorates. If they are unwilling to make public statements we would be willing to settle for private assurances for transmission to Faysal.
If you approve, we plan to announce our recognition on or about November 15.
- Source: Department of State, Central Files, 611.86H/11–1262. Confidential. Drafted by Seelye. A covering memorandum from Talbot to Rusk indicates that McGhee and Strong concurred in the memorandum. An earlier version of this memorandum was sent to the White House on November 4. Marginal notations on the source text indicate that the memorandum was sent to Komer on November 5 and that the original was returned to the Department of State on November 7. A November 7 memorandum from Komer to Bromley Smith, attached to the White House copy of the earlier document, noted “I’ve told Jim Grant we’re returning these Yemen recognition papers in the light of the changed situation resulting from Saudi-UAR split. Grant agrees we now have to take a new look.” (Kennedy Library, National Security Files, Countries Series, Yemen, 11/1/62–11/15/62)↩
- Printed from a copy that indicates Rusk signed the original.↩