ship Council were not in session, of any situation the continuance of which was likely to endanger the territorial integrity of Jerusalem. The city was to be demilitarized. It was to have a flag, seal and coat of arms. Specified human rights and fundamental freedoms were provided for. Its inhabitants were to acquire citizenship of the city; the United Nations was to be represented in the city by a governor, who would be vested with chief administrative responsibility subject to the provisions of the statute and instructions of the Trusteeship Council. The governor was to have such supervision over the religious and charitable organizations in the city as might be required for the maintenance of public order, morals, and health; he was to negotiate agreements to insure protection of the Holy Places located outside of the city; he was also given authority to organize and direct a police force necessary for the maintenance of international law and order and certain emergency powers. The international city was to have a legislative council with specified functions and a judicial system.

A considerably less comprehensive proposal for a corpus separatum for Jerusalem and the establishment of an international regime for the area was submitted to the Trusteeship Council by its president, Roger Garreau, of France. Israel, in response to the Trusteeship Council's inquiry, rejected any international regime and suggested that the United Nations interest in the Holy Places should be assured by the appointment of a custodian with limited powers.

At the seventh session of the Trusteeship Council in June, the president of the Council presented a report on the mission which the Council had entrusted to him. He indicated that his mission had failed to obtain for the statute the support and cooperation of Jordan and Israel. Accordingly, the Council decided to inform the General Assembly that neither Israel nor Jordan was prepared to collaborate in the implementation of the statute worked out by the Council.

In the consideration of this problem by the General Assembly's Ad Hoc Political Committee, the Swedish Delegation on December 1 proposed a resolution which set forth certain specific proposals for an international system for the protection of the Holy Places in Jerusalem and the Holy Land. This resolution invited the Governments of Israel and Jordan to pledge themselves to fulfill certain commitments relating to human rights, free access to and protection of the Holy Places, taxation, the demilitarization of the area, and the maintenance of religious immunities and privileges existing in the area on May 14, 1948.

A commissioner would be appointed to supervise the carrying out of the United Nations responsibilities. He would have responsibility

for settling questions between religious denominations in connection with any Holy Places, insuring access to the Holy Places, and establishing administrative machinery to carry out these functions. The governments of the states administering the Jerusalem area would agree to reduce their armed forces in the area in accordance with the general armistice agreement between Jordan and Israel, April 3, 1949.

Further, it was proposed that jurisdiction over each part of the Jerusalem area should be exercised by the states concerned, subject to the powers of the commissioner and without prejudice to the rights and claims of either party in the ultimate peace settlement for the

area.

The commissioner would appoint a panel of advisers consisting of representatives of religious denominations and of the governments in the Holy Land, whose function it would be to assist him to resolve disagreements which might arise in connection with the resolution.

Provision was included for settling disputes between the commissioner and one or both of the governments by arbitral procedures. Finally, specific provision was made that Moslem Holy Places within the territory controlled by the Hashemite Kingdom of the Jordan and Jewish Holy Places within the territory controlled by the State of Israel were not to be affected by the proposed resolution.

The United States maintained its basic position that any international regime for Jerusalem must have the approval of Israel and the Hashemite Kingdom of the Jordan and the endorsement of the majority of the members of the United Nations. This Government viewed the Swedish draft favorably, as a proposal containing elements of a solution likely to reconcile the need for some international supervision with the actual position maintained by Israel and Jordan. However, when it appeared that the Swedish proposal was not likely to receive majority support and would be opposed by Jordan, amendments were introduced by the United States, the United Kingdom, and Uruguay. All reference to specific functions of the international regime would be removed, and, instead, the amendments provided for a United Nations representative in Jerusalem to represent the interests of the organization in the Holy City, to supervise the implementation of the undertakings of Israel and Jordan, and to report to the General Assembly.

The Belgian Delegation introduced a resolution which proposed that four persons be appointed by the Trusteeship Council to study, in consultation with the governments presently in control of the Holy Places and with the other states, authorities, and religious bodies con

cerned, the conditions of a settlement of the Jerusalem question within the framework of previous United Nations decisions on the subject. This group was to report to the next General Assembly.

The United States opposed the Belgian resolution on the grounds that it was impracticable and would delay a final decision. However, the Ad Hoc Committee adopted it on December 13 by a vote of 30 for, 18 against, and 11 abstentions. The Swedish proposal, including the United States-United Kingdom-Uruguay amendments, which had been accepted by both Israel and Jordan, was consequently not put to a vote. When the Belgian proposal was considered by the Assembly on December 15, it failed by a vote of 30 for, 18 against, and 9 abstentions, constituting less than the necessary twothirds majority. The General Assembly, therefore, took no decision on Jerusalem during the 1950 session.

ASSISTANCE TO PALESTINE REFUGEES

While the Palestine Conciliation Commission has been dealing with the political aspects of the refugee problem, the United Nations Relief and Works Agency for Palestine Refugees in the Near East (UNRWA) has been administering relief to over 800,000 destitute refugees and developing employment projects for many of them. This agency, which was set up pursuant to the General Assembly's resolution of December 8, 1949, took over the relief work of the United Nations Relief for Palestine Refugees on May 1, 1950, and embarked on a works program to furnish employment to refugees on useful works projects. This U.N. agency is under the direction of Maj. Gen. Howard Kennedy (Canada) and an advisory commission consisting of representatives of France, Turkey, the United Kingdom, and the United States.

During 8 months of operations UNRWA has continued to provide the refugees with the bare means of subsistence; a 1,500-calorie daily ration for all, tented shelter for about one-third who are in camps, blankets, and some clothing.

Through its public-health and medical services, and with the assistance of the World Health Organization, serious epidemics have been averted and health standards comparable to those in the area have been maintained. In cooperation with the United Nations Educational, Scientific and Cultural Organization (UNESCO), UNRWA has maintained 74 schools for 35,000 children and would, if funds were available, expand its program to meet the much larger need. The International Children's Emergency Fund (UNICEF) has given considerable assistance in the relief program by providing milk and

other dietary essentials for children and nursing and pregnant mothers which would not otherwise be available. Various philanthropic and religious organizations have also contributed substantially to the welfare of the refugees. Thus, at an average cost of less than $30 per year for each refugee, these unfortunate victims of the Palestine hostilities have been able to survive.

The object of the refugee program has been to look toward a more lasting solution of the refugee problem. The works program of UNRWA was designed to put the refugees to work as soon as possible on projects which would be beneficial to the economy of the countries harboring them and, where possible, to create opportunities for continued employment or permanent settlement. Since embarking on its operations UNRWA has undertaken a number of road-building and afforestation projects and has expanded a crafts program of weaving and garment making. These programs as of December 1, 1950, furnished employment to approximately 20,000 refugees. The work thus provided support for both the refugee worker and his family, thereby furnishing a livelihood to a total population of about 100,000.

On October 19, 1950, the director and the Advisory Commission of UNRWA submitted an interim report to the General Assembly containing recommendations for a shift in emphasis in the Agency's program. The report pointed out that work projects were costing about five times as much as direct relief and that the road-building and afforestation projects already undertaken would not by themselves lead to opportunities for continuing employment or reintegration of the refugees into the economic life of the area. The Agency therefore recommended that, in view of the limited resources available, the Agency should in the future concentrate only on projects resulting directly in the reintegration of refugees, whether by repatriation or resettlement. For this purpose it recommended that a reintegration fund of $30,000,000 be provided for the period July 1, 1951, to June 30, 1952, to be utilized for projects requested by any Near Eastern government for the permanent reestablishment of refugees and their removal from relief rolls. In making this recommendation, the Agency pointed out that: "The establishment of the [reintegration] fund of $30 million constitutes a first step (without commitment as to the future) in a major undertaking to reintegrate the majority of over threequarters of a million refugees, which may entail the expenditure of several hundred million dollars over a period of years." In the meantime, direct relief will need to be provided on a diminishing scale. The Agency recommended that $20,000,000 be provided for this purpose for the period ending June 30, 1952.

Hitherto the refugee has not been able to exercise a free choice between returning to his former home, now in Israeli territory, or finding a new home in a neighboring Arab country. As the reintegration fund is used for projects to reestablish the refugees, a larger freedom of choice will be available to him.

After considering the report of the Agency, the General Assembly adopted with no dissenting votes (the Soviet group abstaining) a resolution authorizing the Agency to establish the reintegration fund and to continue direct relief for the period ending June 30, 1952. It also called for contributions from members and nonmembers of the United Nations for its support and set up a negotiating committee to consult with them on the amounts which they would be willing to contribute on a voluntary basis.

The United States has given strong support at all times to programs looking toward a constructive solution of the Palestine refugee problem. The presence of this large body of uprooted and homeless people is a source of unrest and a potentially destructive force which threatens the peace and stability of this vitally important area. This support has been manifested by the congressional appropriation of $27,450,000 as a contribution to the work of the Agency for the period January 1, 1950, to June 30, 1951, and by the announcement of the United States Delegation at the fifth regular session of the General Assembly that the Executive branch would ask for an appropriation by the Congress for a contribution to the Agency for the fiscal year 1952. Through the United States member on the Advisory Commission on UNRWA, Ambassador John B. Blandford, Jr., the United States has demonstrated its interest and concern in the development and execution of feasible programs and policies directed toward the termination of the refugee problem.

3. Observance of Human Rights and Fundamental Freedoms in Bulgaria, Hungary, and Rumania

It had become clear before the reopening of the General Assembly debate on this question in the fall of 1950 that the Governments of Bulgaria, Hungary, and Rumania, which were charged with violations of basic human rights of their people, would maintain their defiance of the expressed wishes of the Assembly that they cooperate