Israel Agrees to Withdraw
(March 1, 1957)
Upon the return of Ambassador Eban to Washington, consultations continued between him and the United States Government in an effort to break the deadlock. The United States refused to separate the question of Gaza's future from the question of the straits, but a solution was seen in a French proposal that the maritime Powers announce in the General Assembly that all nations have the right to sail through the Straits of Tiran; the Powers would also recognize Israel's prerogative, under Article 51 of the United Nations Charter, to ensure this right against hostile interference. As for the Gaza Strip, it was suggested that, following the Israeli withdrawal and the entry of the United Nations Emergency Force, that Force also take over the civilian administration of the Strip for a transition period. The plan was accepted by the Government of' Israel. The Foreign Minister then drafted a statement to the Assembly in coordination with the representatives of the United States and France.
The Government of Israel is now in a position to announce its plans for full and prompt withdrawal from the Sharm el-Sheikh area and the Gaza Strip, in compliance with resolution I of 2 February 1957.
We have repeatedly stated that Israel has no interest in the strip of land overlooking the western coast of the Gulf of Aqaba. Our sole purpose has been to ensure that, on the withdrawal of Israeli forces, continued freedom of navigation will exist for Israeli and international shipping in the Gulf of Aqaba and the Straits of Tiran. Such freedom of navigation is a vital national interest for Israel, but it is also of importance and legitimate concern to the maritime Powers and to many States whose economies depend upon trade and navigation between the Red Sea and the Mediterranean Sea.
There has recently been an increasingly wide recognition that the Gulf of Aqaba comprehends international waters in which the right of free and innocent passage exists.
On 11 February 1957, the Secretary of State of the United States of America handed to the Ambassador of Israel in Washington a memorandum dealing, among other things, with the subject of the Gulf of Aqaba and the Straits of Tiran.
This statement discusses the rights of nations in the Gulf of Aqaba and declares the readiness of the United States to exercise those rights on its own behalf and to join with others in securing general recognition of those rights.
My Government has subsequently learnt with gratification that other leading maritime Powers are prepared to subscribe to the doctrine set out in the United States memorandum of 11 February and have a similar intention to exercise their rights of free and innocent passage in the Gulf and the Straits.
The General Assembly's resolution (II) of 2 February 1957 contemplates that units of the United Nations Emergency Force will move into the Straits of Tiran area on Israel's withdrawal. It is generally recognized that the function of the United Nations Emergency Force in the Straits of Tiran area includes the prevention of belligerent acts.
In this connection, my Government recalls the statements by the representative of the United States in the General Assembly on 28 January and 2 February 1957, with reference to the function of the United Nations Emergency Force units which are to move into the Straits of Tiran area on Israel's withdrawal. The statement of 28 January, repeated on 2 February, said:
"It is essential that units of the United Nations Emergency Force be stationed at the Straits of Tiran in order to achieve there the separation of Egyptian and Israeli land and sea forces. This separation is essential until it is clear that the non existence of any claimed belligerent rights has established in practice the peaceful conditions which must govern navigation in waters having such an international interest. " (AIPV. 645, pages 3-5)
My Government has been concerned with the situation which would arise if the United Nations Emergency Force, having taken up its position in the Straits of Tiran area for the purpose of assuring non-belligerency, were to be withdrawn, in conditions which might give rise to interference with free and innocent navigation and, therefore, to the renewal of hostilities. Such a premature cessation of the precautionary measures taken by the United Nations for the prevention of belligerent acts would prejudice important international interests and threaten peace and security. My Government has noted the assurance embodied in the Secretary-General's report of 26 February 1957 that any proposal for the withdrawal of the United Nations Emergency Force from the Gulf of Aqaba area would first come to the Advisory Committee, which represents the General Assembly in the implementation of its resolution of 2 November 1956. This procedure will give the General Assembly an opportunity to ensure that no precipitate changes are made which would have the effect of increasing the possibility of belligerent acts We have reason to believe that in such a discussion many members of the United Nations would be guided by the view expressed by Ambassador Lodge on 2 February in favour of maintaining the United Nations Emergency Force in the Straits of Tiran until peaceful conditions were in practice assured.
In the light of these doctrines, policies and arrangements by the United Nations and the maritime Powers, my Government is confident that free and innocent passage for -international and Israeli shipping will continue to be fully maintained after Israel's withdrawal.
It remains for me now to formulate the policy of Israel both as a littoral State and as a country which intends to exercise its full rights of free passage in the Gulf of Aqaba and through the Straits of Tiran.
The Government of Israel believes that the Gulf of Aqaba comprehends international waters and that no nation has the right to prevent free and innocent passage in the Gulf and through the Straits giving access thereto, in accordance with the generally accepted definition of those terms in the law of the sea.
In its capacity as a littoral State, Israel will gladly offer port facilities to the ships of all nations and all flags exercising free passage in the Gulf of Aqaba. We have received with gratification the assurances of leading maritime Powers that they foresee a normal and regular flow of traffic of all cargoes in the Gulf of Aqaba.
Israel will do nothing to impede free and innocent passage by ships of Arab countries bound to Arab ports or to any other destination.
Israel is resolved, on behalf of vessels of Israeli registry, to exercise the right of free and innocent passage and is prepared to join with others to secure universal respect of this right.
Israel will protect ships of its own flag exercising the right of free and innocent passage on the high seas and in international waters.
Interference, by armed force, with ships of Israeli flag exercising free and innocent passage in the Gulf of Aqaba and through the Straits of Tiran will be regarded by Israel as an attack entitling it to exercise its inherent right of self-defence under Article 51 of the Charter and to take all such measures as are necessary to ensure the free and innocent passage of its ships in the Gulf and in the Straits.
We make this announcement in accordance with the accepted principles of international law under which all States have an inherent right to use their forces to protect their ships and their rights against interference by armed force. My Government naturally hopes that this contingency will not occur.
In a public address on 20 February, President Eisenhower stated:
"We should not assume that if Israel withdraws, Egypt will prevent Israeli shipping from using the Suez Canal or the Gulf of Aqaba. "
This declaration has weighed heavily with my Government in determining its action today.
Israel is now prepared to withdraw its forces from the Gulf of Aqaba and the Straits of Tiran in the confidence that there will be continued freedom of navigation for international and Israeli shipping in the Gulf of Aqaba and through the Straits of Tiran.
We propose that a meeting be held immediately between the Chief of Staff of the Israel Defence Forces and the Commander of the United Nations Emergency Force in order to arrange for the United Nations to take over its responsibilities in the Sharm el-Sheikh area.
The Government of Israel announces that it is making a complete withdrawal from the Gaza Strip in accordance with General Assembly resolution (I) of 2 February 1957 (A/RES/460). It makes this announcement on the following assumptions:
(a) That on its withdrawal the United Nations Forces will be deployed in Gaza and that the takeover of Gaza from the military and civilian control of Israel will be exclusively by the United Nations Emergency Force.
(b) It is further Israel's expectation that the United Nations will be the agency to be utilized for carrying out the functions enumerated by the Secretary-General, namely: "safeguarding life and property in the area by providing efficient and effective police protection as will guarantee good civilian administration; as will assure maximum assistance to the United Nations refugee programme; and as will protect and foster the economic development of the territory and its people. " (AIPV. 659,page 17)
(c) It is further Israel's expectation that the aforementioned responsibility of the United Nations in the administration of Gaza will be maintained for a transitory period from the takeover until there is a peace settlement, to be sought as rapidly as possible, or a definitive agreement on the future of the Gaza Strip.
It is the position of Israel that if conditions are created in the Gaza Strip which indicate a return to the conditions of deterioration that existed previously, Israel would reserve its freedom to act to defend its rights.
Accordingly, we propose that a meeting be held immediately between the Chief of Staff of the Israel Defence Forces and the Commander of the United Nations Emergency Force in order to arrange for the United Nations to take over its responsibilities in the Gaza area.
For many weeks, amidst great difficulty, my Government has sought to ensure that, on the withdrawal from the Sharm el-Sheikh and the Gaza areas, circumstances would prevail which would prevent the likelihood of belligerent acts.
We record with gratitude the sympathetic efforts of many Governments and delegations to help bring about a situation which would end the insecurity prevailing in Israel and among its neighbours these many years. In addition to the considerations to which I have referred, we place our trust in the vigilant resolve of the international community that Israel, equally with all member-States, enjoy its basic rights of freedom from fear of attack; freedom to sail the high seas and international waterways in peace; freedom to pursue its national destiny in tranquillity without the constant peril which has surrounded it in recent years.
In this reliance we are embarking upon the course which I have announced today.
May I now add these few words to the States in the Middle East area and, more specifically, to the neighbours of Israel:
We all come from an area which is a very ancient one. The hills and the valleys of the region have been witnesses to many wars and many conflicts. But that is not the only thing which characterizes that part of the world from which we come. It is also a part of the world which is of an ancient culture. It is that part of the world which has given to humanity three great religions. It is also that part of the world which has given a code of ethics to all humanity. In our countries, in the entire region, all our peoples are anxious for and in need of a higher standard of living, of great programmes of development and progress.
Can we, from now on - all of us turn a new leaf and, instead of fighting with each other, can we all, united, fight poverty and disease and illiteracy? Is it possible for us to put all our efforts and all our energy into one single purpose, the betterment and progress and development of all our lands and all our peoples?
I can here pledge the Government and the people of Israel to do their part in this united effort. There is no limit to what we are prepared to contribute so that all of us, together, can live to see a day of happiness for our peoples and see again from that region a great contribution to peace and happiness for all humanity.
Source: Israeli Ministry of Foreign Affairs