The raid of November 13, we must necessarily conclude, is clearly contrary to the resolutions and the agreement I have cited, and the Council must speak out firmly against such a policy, which can only lead to disaster in the area, just as we urged the Council to speak out on other policies which we also condemned.

Now, this policy of retaliation, in our view, is contrary also to the requirements both of the charter and of this Council that peaceful means be utilized to settle such problems. Extensive United Nations machinery has for many years been in existence in the area to deal with complaints between the parties of the General Armistice Agreements. And as I have pointed out, unlike other areas, such machinery has generally functioned well on the Israel-Jordan border. It should be utilized. It must be utilized by the parties concerned.

Now, my Government is confident that the Government of the Hashemite Kingdom of Jordan in good faith fully adheres to and respects its obligations under the General Armistice Agreement. Its record of cooperation with the United Nations peacekeeping machinery in the Middle East speaks for itself.

In addition, the Security Council was actively concerned with the security problems in the area just before the raid we are now considering. And all these facts, in our view, make the Israeli resort to force even more deplorable.

Having thus expressed our views against this and any such military raids in unequivocal terms, I wish again to say what I said at the outset and which we still believe, that violence breeds violence and that it must be opposed in the Middle East, regardless of the direction from which it comes. And this is our view of how this Council, if it is faithful to the charter, the General Armistice Agreements, must act on complaints that come before it. The Council, and in particular its permanent members, cannot contribute effectively to peace in the Middle East unless the entire context is taken into account and all parties to the General Armistice Agreements are required by this Council to adhere to their legal obligations to prevent violence across the frontiers.

The events of the past 4 months in the Middle East, during which the Council has had three series of meetings to consider breaches of the peace, speak for themselves as indicators of the degree of tension in the area, to which our distinguished colleague, Ambassador El-Farra [Muhammad H. El-Farra, representative of Jordan], and the distingiushed representative of Israel have referred. Starting in midsummer, there occurred in Israel, with seemingly little warning, a number of tragic incidents along the demarcation line between Syria and Israel. And then this was followed by an airstrike July 14 by Israeli Air Force planes on a Syrian construction project."

In September and October there occurred a series of further terrorist incidents within the borders of Israel, for some of which certain organizations outside its borders claimed public credit and against which Syria did not commit itself to take effective action. The loss of life and damage caused by these incidents caused the Government of Israel to complain to the Council on October 12, as we all know. And we all know that our debate was not conclusive because of the veto, which we regretted and still regret.

Now, we know that violence in the area continues now in the most deplorable form, and we know that we have unfinished business before the Council of the first magnitude.

I would call attention again in this regard specifically to paragraph 1(b) of the resolution of August 19, 1948, which provides that:

"Each party has the obligation to use all means at its disposal to prevent action violating the Truce by individuals or groups who are subject to its authority or who are in territory under its control."

The United States accordingly believes that the Council, as we said last time, should also speak out clearly against terrorist incidents, as it did at the time of the Qibiya raid, in the interests of equity and peace and security and fairness in order to deal with the total situation.

But we have before us a complaint of great magnitude, as I have said

53 See footnote 2 to doc. VII-6, ante. See footnote 31 to doc. VII-10, ante.

earlier in my remarks, and we cannot condone the action which the Government of Israel took in this regard.

It is the urgent appeal of my delegation and my Government to all nations in the area to exercise restraint and to refrain from any acts or statements which might tend to exacerbate this highly dangerous situation. The incident, the grave and serious incident which we are now considering, must not be repeated. We call upon all governments concerned to strictly adhere to the General Armistice Agreements and in particular to articles I and III which provide that no aggressive actions by armed forces shall be undertaken, planned, or threatened and that no warlike act shall be conducted from the territory controlled by one of the parties against the other.

We also think it most appropriate for the Council to ask the SecretaryGeneral and General Bull [Lt. Gen. Odd Bull, Chief of Staff, United Nations Truce Supervision Organization] to keep the situation in the area under close and constant review, reporting as appropriate to the Council.

In conclusion, a very valuable suggestion was made to us by Chief Adebo [S. O. Adebo, representative of Nigerial in our last discussion of the problems which did not emerge in the final action that we were considering. Chief Abedo urged that in the exercise of our responsibilities here, we ought to consider what steps this Council can take to strengthen the fabric of peace, either through the machinery of prevention or the machinery of fact-finding or conciliation, or whatever other ideas this Council might think appropriate to strengthen the fabric of peace in the area.55 We thought that was a good suggestion. We think it is a good suggestion now. But the plain fact of the matter is that it should be apparent to all members of the Council, as it is apparent to the world, that despite everything that the United Nations machinery has done and I commend the machinery and the Secretary-General for a great contribution to the uneasy peace which has existed there-we cannot in good conscience, faithful to our obligations under the charter, be satisfied with conditions which, if allowed to continue, would threaten surely the peace and security in the

See U.N. doc. S/PV.1309.

area and would result in greater sacrifice of human life and the involvement of an ever-widening circle of states. We think that now is the time for this Council to really make its great contribution toward stabilizing the situation in this important part of the world.

Document VII-13

Resolution 2154 (XXI), Adopted by the U.N. General Assembly, November 17,1966 56

Urgent Call for Assistance to UNRWA

The General Assembly,

Recalling its resolutions 194 (III) of 11 December 1948, 302 (IV) of 8 December 1949, 393 (V) and 394 (V) of 2 and 14 December 1950, 512 (VI) and 513 (VI) of 26 January 1952, 614 (VII) of 6 November 1952, 720 (VIII) of 27 November 1953, 818 (IX) of 4 December 1954, 916 (X) of 3 December 1955, 1018 (XI) of 28 February 1957, 1191 (XII) of 12 December 1957, 1315 (XIII) of 12 December 1958, 1456 (XIV) of 9 December 1959, 1604 (XV) of 21 April 1961, 1725 (XVI) of 20 December 1961, 1856 (XVII) of 20 December 1962, 1912 (XVIII) of 3 December 1963, 2002 (XIX) of 10 February 1965 57 and 2052 (XX) of 15 December 1965,5

58

Noting the annual report of the Commissioner-General of the United Nations Relief and Works Agency for Palestine Refugees in the Near East, covering the period from 1 July 1965 to 30 June 1966,50

1. Notes with deep regret that repatriation or compensation of the refugees as provided for in paragraph 11 of General Assembly resolution 194 (III) has not been effected, that no substantial progress has been made in the programme endorsed in paragraph 2 of resolution 513 (VI) for the re

50 U.N. General Assembly Official Records: Twenty-First Session, Supplement No. 16 (A/6316), pp. 19-20. This resolution was adopted by a vote of 68 (including the U.S.) to 0, with 39 abstentions.

57 Citations to the foregoing resolutions may be found in American Foregn Policy: Current Documents, 1965, p. 601, footnotes 48-51.

58 Text ibid., pp. 601-602.

59 See ante, doc. VII-5.

ing out the Agency's program during this past year. We all know that the Agency's tasks have not been simple and will not become easier in the year ahead. And, as the Agency's Annual Report indicated, the Agency may once again be required to perform its functions in the face of a sizable budget deficit,67 a factor which must necessarily engage the attention of us all.

My Government continues to recognize that a real need for the support of Palestinian refugees continues. The humanitarian aspects of the problem have not diminished over the years. The United States Government therefore pledges to UNRWA $22.2 million for the fiscal year ending June 30, 1967. This contribution of $22.2 million, as in previous years, will consist of both cash and food stuffs required by the Agency.

I should point out that my Government's contribution, as in the past is made with the provision that it does not exceed 70% of the total contributions by all governments. My Government believes that while the humanitarian aspects of the Palestine refugee problem remain of great concern and are deserving in every way of aid, the United States' contribution to the Agency is disproportionately high. With the current amount pledged, the total of my Government's cumulative contribution over the years will amount to more than $400,000,000.

In this connection my delegation notes that the resolution passed by the General Assembly on November 17 urges non-contributing countries to contribute to UNRWA, while also urging contributing countries to consider increasing their contributions. We believe that this appeal to noncontributors, if it is heeded as we hope it will be, could go a long way in relieving the Agency's financial problem. And we would, of course, encourage those contributing countries who are not now contributing substantial amounts to be more forthcoming than in the past.

We are especially concerned that, if the Agency fails to receive adequate

(UNTSO), without changing its mandate (U.N. doc. S/7603). The Secretary-General's recommendations were not discussed in the Security Council, but they were welcomed and supported by the U.S. Government (see Department of State Bulletin, Jan. 9, 1967, p. 66).

66 U.S.-U.N. press release 4997.

67 See footnote 60 to doc. VII-13, ante. 68 Ante, doc. VII-13.

financial support, its very worthwhile program of education may have to be curtailed. In our view the educational program has proved exceptionally successful, and every effort should be made by all members of the United Nations to insure that funds are available to improve and expand it. In fact, my Government feels so strongly that the education of refugee children should receive special consideration that we would urge the Commissioner-General to use as much of our contribution as possible for the educational program.

00

My Government continues to believe, as we stated in the Special Political Committee, that a most important step toward relieving the Agency's financial difficulties would be the implementation of a far reaching rectification of the ration rolls. We note, with approval, from the Agency's report that it will continue, in collaboration with the host governments, to seek possibilities for taking additional steps toward the goal of equitable distribution of relief based on need. We express the hope that ways will be found in the coming year to make meaningful progress in this respect. We would also call attention again to our statements in the Special Political Committee and in the Plenary, which made clear our opposition in principle to the use of UNRWA rations for Palestine Liberation Army recruits. We have noted the assurances of the CommissionerGeneral in his Annual Report that our contribution will not be used to furnish assistance to refugees receiving military training under the auspices of the Palestine Liberation Organization.

Finally, let me again express my Government's appreciation for the fine work achieved by the Commissioner-General and his staff during this past year. We clearly recognize the many difficulties which the Agency faces and offer it our full support in the year ahead."

Document VII-16

Resolutions 2194 A and B (XXI), Adopted by the U.N. General Assembly, December 16, 1966 TM

69 See U.S.-U.N. press release 4959, Nov. 1, 1966.

TO At the pledging conference, 32 representatives of governments contributing to UNRWA promised the equivalent of $30.1 million for its support in fiscal year 1967.

1 U.N. doc. A/6316, pp. 83-84. Resolution 2194 A (XXI) was adopted by a vote of 59 (including the U.S.) to 11, with 23 ab

The United Nations Emergency Force-Appropriations for the Years 1966 and 1967

A

The General Assembly

1. Approves the revised cost estimates submitted by the SecretaryGeneral for the financial year 1966 in the amount of $16,146,000;

2. Authorizes the Secretary-General to meet the cost of actual requirements over the appropriation of $15 million, and within the amount of $16,146,000, by the use of the surplus account of the United Nations Emergency Force.

1495th plenary meeting.

B

The General Assembly,

Having considered the report of the Secretary-General on the cost estimates of the United Nations Emergency Force for the period from 1 January to 31 December 1967 and the report of the Advisory Committee Administrative and Budgetary Questions thereon,"

on

Expressing the hope that the ad hoc arrangements provided in the present resolution will not need to be repeated in future years and that the General Assembly will be able to reach agreement on an acceptable method for the equitable sharing of the cost of peace-keeping operations involving heavy expenditure, taking into account the principles affirmed as guidelines by the Assembly in its resolution 1874 (S-IV) of 27 June 1963,"

Taking into account the fact that the economically more developed countries are in a position to make relatively larger contributions and that the economically less developed countries have a relatively limited capacity to contribute towards peacekeeping operations involving heavy expenditures,

stentions; Resolution 2194 B (XXI) was adopted by a vote of 56 (including the U.S.) to 11, with 25 abstentions.

12 U.N. doc. A/6498.

73 U.N. doc. A/6542.

74 Text in American Foreign Policy: Current Documents, 1963, pp. 97-98.