Foreign Relations of the United States, 1969–1976, Volume XXIV, Middle East Region and Arabian Peninsula, 1969–1972; Jordan, September 1970

104. Telegram From the Department of State to the Embassies in Saudi Arabia and Iran¹

Washington, July 21, 1971, 0041Z.

131518. Ref: Jidda 2536; Tehran 3923.² Subj: Federation of United Arab Emirates; Saudi Position.

1. Commend your presentation to Mas’ud encouraging SAG to speak out in support of July 18 step by Gulf rulers towards formation of six-member federation. We are concerned that if Faisal witholds his support for Federation of Trucial States he will considerably weaken prospects for its success.

2. You are therefore authorized in your next meeting with Mas’ud to make on instructions points contained para 6 Jidda 2536.³ You should state in addition that we have been giving careful consideration to King’s views, most recently expressed to Vice President Agnew,⁴ about the undesirability of a Gulf federation of less than nine states. King is aware USG has from beginning hoped that all nine Gulf states would find way to unite prior to UK withdrawal. July 18 decision of six Trucial rulers to form Federation has added to mounting evidence that prospects for nine state federation this year are nil. Our own judgment is that grouping of majority of Trucial States is prerequisite for stability in that part of Peninsula. We share with SAG its goal of orderly progress for Gulf and consider it essential to defense against such troublemakers as Iraq and PDRY that Saudi Arabia, Kuwait and Iran assist whatever political entities emerge this year in the Gulf, while continuing to urge on these entities the longer term goal of greater regional unity.

3. In making above presentation you should note that we are of course mindful of the unsettled problem concerning the Gulf islands in dispute between Iran, Sharjah and Ras al-Khaimah. We have not and will not take sides over the merits of the conflicting claims in these cases but understand that Britain and Iran are working diligently to find solutions. We are hopeful some accommodation will be reached prior to actual establishment of Federation and moves by it to seek formal international recognition.

4. Should Mas’ud ask US position on Bahrain’s and Qatar’s status, you may comment that while we continue to hope those states will one day associate themselves with Federation, we accept likelihood that Bahrain and Qatar will soon seek independent status and for period at least follow course independent of Trucial States. We consider both states better equipped in comparison with individual Trucial States to stand on their own.⁵

5. For Tehran. Department is pleased that Zahedi’s initial reaction to July 18 announcement has been “relatively relaxed.” We share the view you put to Zahedi that nothing has happened to challenge Iranian position on islands. We are heartened that majority of fractious Gulf rulers seem prepared to put aside welter of rivalries and grudges to cooperate in larger, more viable political unity. We hope that Iran will continue its search for an amicable solution concerning islands and that in expectation of success it will forego public positions complicating plans for a UAE. If asked, you may confirm that we have spoken favorably to the Saudis about this development which in our view does no violence to Iran’s position.

Rogers

1. Source: National Archives, RG 59, Central Files 1970–73, POL 16 UAE. Secret; Priority; Exdis. Drafted by Twinam and Murphy; cleared in NEA/IRN, NEA, and S/S–O; and approved by Sisco. It was repeated to Kuwait, London, and Dhahran.
2. In telegram 2536 from Jidda, July 19, Thacher reported that the Saudi Government had not developed a position on the newly announced UAE although he had urged Mas’ud to endorse it as soon as possible. Thacher asked that he be instructed to relay to Mas’ud that the United States approved and that the King should be so informed. (Ibid.) In telegram 3923 from Tehran, July 19, MacArthur wrote that Zahedi seemed “relatively relaxed” about the announcement, but that Iran’s overall position on the islands remained unchanged. (Ibid., POL 33 PERSIAN GULF)
3. In paragraph 6 Thacher requested that he be instructed to inform Mas’ud that the United States “warmly endorses” the UAE, notes with “particular approval that door has been left open for adherence of other states,” sees the signing of the temporary constitution as “a welcome and tangible step toward a new political era in Gulf,” hopes that other governments and Saudi Arabia “in particular” will give early encouragement to UAE, and that these points be “passed promptly and clearly to King Faisal.”
4. Agnew met with King Faisal on July 8. See footnote 2, Document 155.
5. Telegram 2571 from Jidda, July 22, details Thacher’s presentation to Mas’ud. (National Archives, RG 59, Central Files 1970–73, POL 16 UAE)