EMERGENCY SECURITY ASSISTANCE ACT OF 1973

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP75B00380R000500240002-3
• Release Decision: RIFPUB
• Original Classification: K
• Document Page Count: 14
• Document Creation Date: December 9, 2016
• Document Release Date: August 24, 2001
• Sequence Number: 2
• Publication Date: December 6, 1973
• Content Type: REPORT

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1st Session No. 93-702
EMERGENCY SECURITY ASSISTANCE ACT OF 1973
DECEMBER 6, 1973.-Committed to the Committee of the Whole House on the
State of the Union and ordered to be printed
Mr. MORGAN, from the Committee on Foreign Affairs,
submitted the following
REPORT
together with
MINORITY AND SUPPLEMENTAL VIEWS
[To accompany H.R. 11088]
The Committee on Foreign Affairs, to whom was referred the bill
(H.R. 11088) to provide emergency security assistance authorizations
for Israel and Cambodia, having considered the same, report favor-
ably thereon with amendments and recommend that the bill as amended
do pass.
The amendments are as follows :
On page 2, beginning in line 1, strike out "and not to exceed
$200,000,000 for emergency military assistance for Cambodia." and
insert in lieu thereof the following:
of which sum amounts in excess of $1,500,000,000 may be
used pursuant to this section or section 4 of this Act only
if the President (1) determines it to be important to our
national interest that Israel receive assistance hereunder
exceeding $1,500,000,000, and (2) reports to Congress each
such determination (if more than one) at least twenty days
prior to date on which funds are obligated or expended under
this Act in excess of such $1,500,000,000 limitation. The
twenty-day requirement contained in the preceding sentence
shall not apply if hostilities are renewed in the Middle East.
The President shall include in his report the amount of funds
to be used pursuant to the determination, the terms of the
additional assistance under section 2 or section 4, and the
justification for the determination. All information contained
in the justification shall be public information except to the
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extent that the President concludes that publication would
be incompatible with the security interests of the United
States.
On page 2, immediately after line 23, insert the following:
SEc. 5. The Secretary of Defense shall conduct a study of
the 1973 Arab-Israeli conflict to ascertain the effectiveness
of the foreign military assistance program as it relates to the
Aliddle East conflict, including: weapons that the United
States is providing to Israel through foreign assistance pro-
grams, and to compare them to the effectiveness of the weap-
ons which the Soviet Union is providing to the Arab states.
Its conducting such study and submitting such report, the
Secretary shall take care not to disclose, directly or indirectly,
intelligence sources or methods or confidential information
received from any other nation. A report of the conclusions
of such study shall be submitted to the Congress as soon as
practical and in any ease not later than December 31, 1974.
SEc. 6. Of the funds appropriated pursuant to section 2,
the President may use such sums as may be necessary from
time to time for payment by the United States of its share
of the expenses of the United Nations Emergency Force in
the Middle East, as apportioned by the United Nations in
accordance with Article 17 of the !United Nations Charter.
PRESIDENTIAL REQUEST
The President sent to the Congress a message dated October 19,
1973, requesting authorization of $2.2 billion in emergency security
assistance for Israel and $200, million for Cambodia in fiscal 1974.
The President said "This request is necessary to permit the United
States to follow a responsible course of action in two areas where sta-
bility is vital if we are to build a global structure of peace." Under
his proposal, the President would determine how much of the emer-
gency assistance for Israel would be in grant military assistance and
how much in foreign military sales credits. The entire amount for
Cambodia would be in grant military assistance.
COMMITTEE AcTIoN
The message from the President, dated October 19, 1973, requesting
authorization of appropriations for emergency security assistance for
Israel and Cambodia, together with a draft of proposed legislation for
those purposes, was referred to the Committee on Foreign Affairs and
ordered to be printed (H. Doc. 93-170) on October 23, 1.973.
The proposed legislation (H..R. 11088) was introduced (by request)
on October 24, 1973, by the Honorable Thomas E. Morgan, chairman
of the Committee on Foreign Affairs.
On October 29, and again on November 28, the committee was
briefed by the Secretary of State, the Honorable Henry A. Kissinger,
about developments in the Middle Fast. In the second briefing, the
Secretary stressed the need for prompt action on this authorizing
legislation.
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The committee held an open hearing on H.R. 11088 on November 30,
1973, at which testimony was received from the Honorable Kenneth
Rush, Deputy Secretary of State; the Honorable William P. Clem-
ents, Jr., Deputy Secretary of Defense; and Adm. Thomas H. Moorer,
Chairman, Joint Chiefs of Staff.
On December 3, 1973, the committee heard testimony from Admiral
Moorer and from the Honorable Joseph J. Sisco, Assistant Secretary
of State for Near Eastern and South Asian Affairs, in executive ses-
sion and received classified material.
On December 3 and December 4, the committee marked up the bill,
II.R. 11088, and on December 4 ordered it favorably reported with
amendments by a vote of 33 to 1.
A. CAMBODIA, PRESIDENTIAL DETERMINATION AND REPORTING
The committee deleted from H.R. 11088 the proposed $200 million
for emergency military assistance for Cambodia. This action was taken
in view of the conference report on S. 1443, the Foreign Assistance
Act of 1973, which renewed for fiscal year 1974 the President's special
authority to draw down defense articles from U.S. defense stocks. The
conferees on S. 1443 stated their intent that up to $200 million of the
emergency military assistance requirements for Cambodia be fur-
nished pursuant to this drawdown authority.
The committee also included language in the bill placing certain re-
strictions on the use of assistance authorized in section 2, in excess of
$1.5 billion. Prior to the obligation or expenditure of such assistance,
the President will be required to make a determination and to report
it to the Congress, together with a justification therefor. The 20-day
notification specified in the amendment shall not apply if hostilities
are renewed in the Middle East. The report shall also give the date
that the transfer of United States defense articles provided in excess
of $1.5 billion becomes effective.
The second committee amendment directs the Secretary of Defense
to undertake a study to ascertain the effectiveness of the foreign mili-
tary assistance program as it relates to the Middle East conflict, and
to report his findings to the Congress promptly but not later than
December 31, 1974.
It is the intention of the committee that the Secretary of Defense
shall request that those Military Services and Intelligence Agencies
which he deems relevant, contribute information and expert opinion,
but that the conclusions reported to the Congress shall be his.
It is further the committee's intent that, in conducting such study,
the Secretary shall obtain the fullest possible information on the mili-
tary events during such conflict ; that he shall assess the effectiveness
of the weapons, doctrines, and tactics used by all combatants; that ?1e
shall compare such weapons, doctrines, and tactics to those used by the-
United States and by such other major nations as he deems relevant;
and that he shall, where possible, consider the program unit cost of
such weapons in reaching his conclusions.
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The third committee amendment authorizes the President to use
such sums as may be necessary, from the amounts appropriated pur-
suant to section 2, for payment of the United States share of the ex-
penses of the United Nations Emergency Force in the Middle East.
While the executive branch has requested a separate authorization
for this purpose, the committee believes that this obligation can be
met under this legislation without impairing its basic intent. The pres-
ence of the U.N. Emergency Force in the Middle East constitutes a
vital part of the effort to prevent the resumption of hostilities, and to
enable peaceful negotiations to move ahead. The authorization con-
tained in section 6 of the bill will serve these purposes and is fully in
keeping with the basic objectives of this emergency legislation.
Information supplied by the executive branch indicates that the
cost of the U.N. Emergency Force may amount to $30 million for the
first 6 months and $5 million each month thereafter. The United States
share will be $17,336,200, based on the U.N. Secretary General's esti-
mate of $60 million for the first full fiscal period of the Force's opera-
tion. This represents approximately 28.9 per cent of the estimated
total cost.
The purpose of II.R. 11088, as amended, is to help maintain a mili-
tary balance necessary for the achievement of peace in the Middle
East, through authorizing $22 billion L in emergency security assistance
to Israel in fiscal 1974.
i3.3OKGROUND
Immediately after the outbreak of hostilities in the Middle East
on October 6, 1973, the United States sought to bring about a ceasefire
and reach an understanding with the Soviet Union for a mutual
freeze on resupply of major weapons in that area. When these efforts
failed, and in the face of massive Soviet resupply of Arab forces, it
became clear that the United States would have to send arms to
Israel to replace combat losses and maintain a balance of forces in the
Middle East.
The United States, therefore, responded promptly to Israel's request
for replacement arms. It sold nearly $1 billion worth to Israel, most
of which already has been delivered by airlift and by sea.
According to executive branch testimony received by the committee,
the American action played it vital role in the achievement of the
October 22 cease-fire agreement and in promoting conditions for the
serious discussions now underway looking toward a stable peace.
The committee has received testimony that Israel's relative military
strength is now about the same as it was on October 6. Her military
equipment losses sustained during the fighting have been replaced.
However., the military balance is not at a standstill. Soviet arms
deliveries to the Arabs are continuing. Israel has indicated require-
ments for further military equipment totaling nearly $2 billion, in
addition to the $1 billion worth already provided by the United States.
A U.S. Department of Defense team has made an on-the-spot assess-
ment of Israel's needs. Its detailed findings have been made available
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to the committee. Because of the sensitive nature of this specific in-
formation concerning military strength, the material remains classi
fled for the time being. The Department of Defense estimates, how-
ever, that Israel may need additional arms totaling somewhat more
than $1 billion.
A MILITARY BALANCE PROMOTES PEACE
The executive branch has assured the committee that maintaining a
military balance between Israel and her Arab adversaries is an essen-
tial element in providing a setting for negotiations which could lead
to an enduring peace.
An imbalance of power can tempt the stronger party to take by
force what it cannot gain at the negotiating table, and dissuade, the
weaker party from making compromises because its margin of secu-
rity leaves little room for concession.
This bill is designed to assure Israel the security she needs. It is
designed to demonstrate unmistakably to Arab states and the Soviet
Union that the United States will provide Israel with weapons essen-
tial for Israel's self-defense. As Deputy Secretary of State Kenneth
Rush testified to the committee :
The purpose of the legislation before you is to make it
clear that the military o tion ... is no longer viable. This
legislation will provide firm evidence of American support
against aggression and of our willingness to help create a sit-
uation in which negotiations leading to a lasting peace can
take place.
AMERICA'S INTEREST IN A MIDDLE EAST PEACE
The rewards to the United States of a permanent settlement in the
Middle East would be substantial, as they would be for the nations
of that area.
For more than a quarter of a century, the Middle East has been a
potential tinderbox for world conflict. Even without direct super-
power combat involvement, Middle East instability and wars have
been costly to the people of that region, to the United States and to
other countries.
The oil crisis which has followed on the heels of the most recent
hostilities in the Middle East, demonstrates the disturbing effect
which a war in one region can have on the economies of other regions.
Moreover, it is not in the U.S. interest to permit Soviet dominance
in this strategic area which stands athwart historic commercial cross-
roads. Neither the United States, nor any of the nations of the Middle
East, desires great power mastery over them.
The United States has an aiding special friendship for Israel
which dates back to her birth as a nation. As Secretary of State Henry
A. Kissinger recently stated :
The United States has supported Israel because of the
emotional ties that have existed, because of the democratic
tradition of Israel, because of the fact that it is a going
concern in this area, and because, as I have said, about our
opposition to the domination of one nation by force by others.
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The committee believes an enduring peace in the Middle East to be
in the highest U.S. national interest. It supports efforts to achieve
a long-term settlement, of which this bill is a part.
The committee also favors further U.S. efforts to obtain an agree-
mnent from the. Soviet Union or, curbing military deliveries to the Mid-
dle East, and believes this bill to be helpful toward that end.
Timm FINANCIAL BURDEN
The high cost of maintaining the Middle East military balance now
is due to the large war losses and the expense of increasingly sophis-
ticated weaponry used, coupled with the massiveness of the Soviet
resupply.
Israel so far has paid for her U.S. arms purchases with cash and
credit, not grants. Under existing law, she has a 120-day grace period
before she must pay for time nearly $1 billion in U.S. military equip-
ment obtained since October 6. The payments come due in February-
March 1974.
The committee has received detailed information about Israel's eco-
nomic situation. It shows that Israel cannot pay for these replacement
arras and the additional amounts which may be needed without strain-
ing her .economy to the breaking point. And without a functioning
economy, Israel would be as insecure as if she lacked arms.
Tsrael already carried a heavy defense burden before the war. More
than one quarter of her gross national product went for defense last
year. Her taxpayers are reported to be paying the highest rate in the
world. Her foreign debt was about $4 billion, more than $1,200 per
capita.. She owed the United States, at the time of the outbreak of
hostilities, about $1.7 billion for cash and credit purchases of military
equipment.
The war dealt Israel's economy a heavy blow. About 25 percent of
her work force is mobilized, with consequent effects in disrupting pro-
duction. I icr ability to earn foreign exchange is impaired. And, she
is unable to'return fully to peacetime pursuits until she has more as-
surance than now exists that hostilities will not break out again.
Deputy Secretary Clements testified that without financial assist-
ance, there is a possibility that Israel will. default on the $1 billion due
next February-March. If this happens, he stated, the U.S. military
departments may not be reimbursed for the costs already incurred by
them for the deliveries to Israel and on-going contracts with the U.S.
defense industry in turn may have to be cancelled.
No precise dollar figure is available for the huge Soviet deliveries
to the Arabs. However repayment, terms obviously are not holding up
the flow. Deputy Secretary Clements stated that the Soviets have dem-
onstrated an "absolutely open spigot" with their shipments.
The committee is convinced, on the basis of both the public and clas-
sified information available, that Israel must have substantial financial
assistance to maintain the military strength needed for her defense
and for the Middle East balance.
RESTRDTIONS, SAFEGUARDS AND GUIDELINES
At the same time, the committee serves notice that this legislation
will be no "open spigot" for Israel. The Executive is under injunction
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The committee notes with approval Deputy Secretary Clements'
testimony that the full $2.2 billion probably will not be needed, and
that Israel's $3 billion weapons request list is being thoroughly
scrubbed down.
Furthermore, it is the sincere hope of the committee that the amounts
in excess of $1.5 billion referred to in section 2, as amended, may not
be necessary for military expenditures. It is the hope and intent of
the committee that the executive branch will therefore consider re-
turning to the Congress at an appropriate time to request authoriza-
tion of such amounts to stimulate the creation of a Middle East Re-
gional Development Bank.
As envisioned, such funds would be matched or augmented by con-
tributions from the principal countries of the area and other world
powers, including the Soviet Union. The effective operation of such a
Middle East Regional Development Bank would greatly assist in pro-
moting the social and economic development of the entire area, thereby
creating a climate for true and lasting peace.
The committee stipulates that funds authorized in this legislation
may be used only for emergency security assistance to Israel and pur-
poses of section 6, and that any unused amounts will simply remain in
the Treasury. Any sums for a Middle East Regional Development
Bank would require a separate authorization.
Specifically, no funds authorized in this legislation may be trans-
ferred for other purposes by using the President's special authorities
in section 614(a) or the transfer authority in section 610 of the For-
eign Assistance Act of 1961. The committee also has received assurance
that no Presidential impoundment of other appropriations will be
undertaken as a result of this bill.
Under these circumstances, the committee recommends that $2.2
billion be authorized for emergency security assistance to Israel in
fiscal 1974 and for the U.S. share of the cost of the U.N. Emergency
Force in the Middle East.
A lesser amount, especially in face of the Presidential request, might
be misconstrued abroad as a wavering in our support for Israel's de-
fense and in our desire to see political negotiations produce a more
stable and peaceful condition in the Middle East.
Tim, OIL ISSUE
The committee believes American foreign policy should not be
hostage to producers of oil or any other commodity.
Enactment of this legislation will not invoke an Arab oil embargo
against the United States. The embargo already has taken place.
This bill is aimed at promoting conditions for negotiations leading
to a durable Middle East peace. If such a settlement is reached, a re-
sult may be improved prospects for American access to Arab oil.
H.R. 11088 authorizes appropriations of $2.2 billion in fiscal year
1974. Outlays from this amount are estimated at $600 million in fiscal
year 1974 and the balance in succeeding years.
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MINORITY VIEWS OF HON. H. R. GROSS
During the past year Congress has been giving it the old school try
to reassert its role as a coequal branch of government. That's what
the fight over impoundment and the war powers legislation was all
about.
After a valiant march up the hill to attack Executive power, this
bill greases the skids for a quick descent. Read the second sentence of
section 3. It gives the President the right to use $2.2 billion for aid to
Israel on whatever terms and conditions he wishes.
Turn to section 4. In basic English it provides that if any of this
money starts out as loans, the President can convert them to grants
before the end of next June.
Now let's hear a cheer from those who have been worrying about the
declining powers of Congress 1
The little sweetener inserted by the committee that the President can
hold back on $700 million until he determines that it is in our national
interest to use it and tells Congress about it adds nothing of substance
to restrict this broad delegation of authority.
All of this, the committee was told and swallowed, was to insure
"maximum flexibility" in disbursing this money. If ever there was
congressional abdication over the purse, this is it.
This is an urgent measure the sponsors tell us. Yet the bill has been
lying around for six weeks unmolested by the committee. Then on two
days notice hearings were called and the bill moved with indecent
haste. After putting in some worked-over weasel words, the committee
simply rubber-stamped the President's request.
One would expect that with the delay in handling this bill the Exec-
utive would have been doing a lot of homework to justify the bill.
Witnesses were not even able to tell the committee what were the ship-
ping costs of materials already sent. None had much of an idea what
the impact on U.S. energy requirements was for assistance already
sent. While there was a grudging admission that the $2.2 billion ex-
penditure would have an inflationary impact, none hazarded even a
guess what it would be.
Only $1 billion of the $2.2 billion was identified-and that was for
equipment shipped to Israel since October 6, 1973. The balance is a
down payment on a lengthening shopping list. The committee was
assured that it can expect requests for additional funds.
No report has yet been received from the evaluation team sent to
Israel to determine more accurately that country's needs. The replace-
ment of equipment already sent has come from Defense stocks. When
it is replaced with new equipment, it is estimated that the cost will
be 25 percent greater than the original prices. "These deficits in new
procurement funds will be requested from the Congress in the near
future," Deputy Secretary of Defense Clements testified.
Ti. Rept. 93-702-2
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How does this sum fit into the President's budget which he com-
plains is constantly being exceeded by the Congress? One witness
read a reassuring statement from OMB that "this legislation will not
force the Executive branch to, reduce or impound any funds previ-
ously requested for other Federal programs.' One can only wonder
how much more loose change is floating around that can finance other
programs without exceeding the tight budget.
Members may have overlooked the little sum of $350 million in the
conference report on foreign aid that the House adopted recently.
That's additional to the amount in this bill.
When members receive hot letters from cold constituents, tell
them we are simply restoring the balance of power in the Midle East.
It will give them great comfort. What with the gasoline shortage, they
may even walk to the bus stop to welcome you home-permanently.
H. R. Guoss.
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SUPPLEMENTAL VIEWS OF HON.
EDWARD J. DERWINSKI
I support the President's request for $2.2 billion for assistance to
Israel. I look on this measure as a practical investment toward perma-
nent peace in the Middle East.
The committee is to be commended for the large degree of unanimity
it has shown in reaffirming some basic positions in our foreign policy
that some members on occasion have overlooked.
In this bill the committee recognizes that the security of a nation
depends upon its military strength to deter aggression. This simple
principle has often been slighted when aggression has occurred in
other parts of the world.
This bill demonstrates the importance of our legislation governing
arms sales. Without it we would have to give Israel the equipment it
needs for its defense. With the arms sales legislation it is possible to
sell the material to Israel.
As the testimony of witnesses and the statements of members make
clear, Portugal has played a significant role in our assistance to Israel.
Our ability to use the Azores made it possible to supply Israel more
expeditiously than would otherwise have been the case. We should
recognize the wisdom of those members of the other body who rejected
the Case amendment that might have jeopardized our access to the
Azores.
A permanent solution to the Middle East crisis is the major goal of
U.S. foreign policy moves. I am hopeful that the peace conference in
Geneva will produce a long overdue solution. However, we must not
overlook the continued Soviet and, to a lesser degree, Red Chinese
involvement in the Middle East and their support of guerrilla groups
as well as of the emotionally charged Arab governments.
The committee has affirmatively responded to the President's re-
quest for an emergency authorization to resupply the Israeli armed
forces. Obviously the military balance of power must be maintained
in the Middle East as a basis for stimulating a permanent peace
agreement.
EDWARD J. DImwiNSxi.
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SUPPLEMENTAL VIEWS OF HON. PAUL FINDLEY
AMENDMENT NEEDED
This bill to provide $2.2 billion in emergency assistance to Israel
would be substantially improved by adding the following amendment :
Section 6. In addition to the maintenance of the balance of
military power in the Middle East, the Military Assistance
authorized herein for Israel is intended to support the imple-
mentation of United Nations Security Council Resolution 242
(1967) and United Nations Security Council Resolution 338
(1973).
Inclusion of this language would show that the Congress, while
ready to provide supplies for the defense of Israel, also fosters a just
settlement to the Middle East dispute in which all parties accept cer-
tain fundamental conditions.
Former U.N. Ambassador Charles W. Yost strongly urges that
this amendment be accepted.
Secretary of State Kissinger told the Committee he has no objec-
tions to an amendment of this type being included.
Support for the U.N. position originated under President Johnson
and continues under President Nixon.
The amendment would not reduce by one penny the financial and
military assistance for Israel authorized by this act. It would not
extend financial or military assistance in any form to any Arab state.
But it would do something vitally important : it would place the pres-
tige of the House of Representatives behind fairness and even-handed-
ness as the basis for our Middle East policy.
True, the bill as reported says nothing about policy. It is never-
theless thunderous as a policy document. It supports explicitly and
implicitly only the military interests of Israel. It contemplates only a
military solution to the problem.
Israel of course has interests which the United States should support,
and for that reason I voted to report this bill. But so do other parties
to the recent military conflict, namely, Egypt and Jordan, with which
we have diplomatic relations, and Syria, with which we do not.
Testimony before the committee disclosed that, except for a few
minor commando actions, all the fighting in October occurred on Arab
land occupied by Israel since 1967. The chairman of the U.S. Joint
Chiefs of Staff, Admiral Thomas Moorer, testified that he had no rea-
son to believe the Arab states had military objectives in October ex-
tending beyond the recovery of these occupied lands. American intelli-
gence reported that the Egyptian battle plan called for stopping at the
June, 1967 borders and for not pressing the attack into Israel.
Two Presidents have recognized and supported the interest of Arab
states, as well as Israel, by sponsoring and steadfastly supporting
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United Nations Security Council Resolution 242 in 1967 and Security
Council Resolution 338 this year. J uust two weeks ago Secretary of
State Kissinger restated U.S. support for these two resolutions : "The
United States has committed itself, in Security Council Resolution
338, to support the implementation of Security Council Resolution 242
in all of its parts."
116 went on to say : "We hope that Israel, as well as the Arab coun-
tries, will recognize that one of the clear consequences of recent events
is that a purely military solution to the problems of the Middle East
is impossible...."
This bill, however, is silent on non-military solutions and Arab inter-
ests. It is advanced as necessary to "maintain the balance of power" in
the Middle East, but Arab states could understandably interpret it as
a bill to help maintain only the occupation of Arab lands.
The House should amend the bill in order to avoid such a misinter-
pretation. It should explicitly endorse the wise initiative toward a
peaceful settlement of the Middle East conflict which two Presidents
have advanced. The amendment I offered in committee will provide
badly needed balance to this bill.
Here is the text of U.N. Security Council Resolution 242 of 1967:
RESOLUTION 242 (1967)
(Adopted by the Security Council at its 182nd meeting,
on 22 November 1967)
The Security Council,
Expressing its continuing concern with the grave situation
in the Middle East,
Emphasizing the inadmissibility of the acquisition of ter-
ritory by war and the need to work for a just and lasting
peace in which every State in the area can live in security,
/,'mphasizing further that all Member States in their ac-
ceptance of the Charter of the United Nations have under-
taken a commitment to act in accordance with Article 2 of the
Charter,
1. Affdrme that the fulfilment, of Charter principles re-
quires the establishment of a just and lasting peace in the
Middle East which should include the application of both
the following principles:
(i) Withdrawal of Israeli armed forces from terri-
tories occupied in the recent conflict;
(ii) Termination of all claims or states of belliger-
ency and respect for and acknowledgement of the sover-
eignty, territorial integrity and political independence of
every State in the area and their right to live in peace
within secure and recognized boundaries free from
threats or acts of force;
A f firms further the necessity
(a) For guaranteeing freedom of navigation through in-
ternational waterways in the area;
(b) For achieving a just settlement of the refugee prob-
lem ;
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(c) For guaranteeing the territorial inviolability and po-
litical independence of every State in the area, through
measures including the establishment of demilitarized
zones;
3. Requests the Secretary-General to designate a Special
Representative to proceed to the Middle East to establish
and maintain contacts with the States concerned in order
to promote agreement and assist efforts to achieve a peaceful
and accepted settlement in accordance with the provisions
and principles in this resolution;
4. Requests the Secretary-General to report to the Secu-
rity Council on the progress of the efforts of the Special
Representative as soon as possible.
Here is the text of U.S. Security Council Resolution 338 of this
year:
RESOLUTION 338 (1973)
(Adopted by the Security Council at its 1747th meeting,
on 21/22 October 1973)
The Security Council
1. Calls upon all parties to the present fighting to cease all
firing and terminate all military activity immediately, no
later than 12 hours after the moment of the adoption of this
decision, in the positions they now occupy;
2. Calls upon the parties concerned to start immediately
after the cease-fire the implementation of Security Council
resolution 242 (1967) in all of its parts;
3. Decides that, immediately and concurrently with the
cease-fire, negotiations start between the parties concerned
under appropriate auspices aimed at establishing a just and
durable peace in the Middle East.
Unfortunately time did not permit the circulation of this amend-
ment in advance of the brief committee consideration, and it was not
accepted.
This legislation will be viewed worldwide as a major policy declara-
tion by the House on what must be viewed as the most complicated
and explosive international problem facing the world, namely, the
Middle East confrontation. It therefore may influence, for good or ill,
the outcome of that confrontation.
To the best of my knowledge, the Congress has not enacted a bill of
any sort since the 1967 war which would be viewed as a policy state-
ment on the Middle East. Indeed I cannot recall the Congress doing
so since the 1958 Middle East Resolution, an act which has never been
rescinded but nevertheless has been declared by the Executive Branch
to be inoperative.
The bill. now before the House will therefore be construed as a major
policy declaration. It is now totally one-sided, hardly in accord with
the spirit or the detail of Resolution 242. Acceptance of my amend-
ment will show that the House supports the even-handed policy being
pursued by the Administration in the Middle East. It will show that
the House, while ready to supply the weapons of war for the defense
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of Israel, a%so stands ready to foster a long-term peaceful settlement
for all the countries of that region.
The policy importance of the bill derives partly from other
characteristics.
It is immense. It provides more than twice as much military assist-
ance for one country as was included for all foreign countries in the
Foreign Assistance conference report just adopted this week. It is one
of the largest military assistance bills the House has considered in
recent; years--by far the largest when Vietnam is excluded.
The Foreign Assistance bill contained $963 million in military
assistance for all countries. This bill contains $2.2 billion for Israel
alone, and the $2.2 billion is in addition to $300 million in military
credit sales authorized in the Foreign Assistance bill.
The Foreign Assistance bill was before the committee for seven
months. Ten days of hearings were held and more than 650 pages
of testimony fill the hearing transcript of the House alone.
Hearings on the Emergency Assistance bill for Israel were not
scheduled until last Friday. A second abbreviated day of hearings was
held on Monday after which the committee immediately went into
mark-up.
The only justification given to the committee for the money figure
was to assist Israel in paying for approximately $1 billion worth of
military hardware which has already been delivered and is ready for
use.
No justification for the other $1.2 billion contained in this bill was
given to the committee. It will be a giant contingency fund.
In addition, it is unknown just how much of the $2.2 billion will
be extended as credit and how much as grant. This is left entirely to
Presidential discretion. In the Foreign Assistance Act just passed,
Congress carefully spelled out to the dollar how much could be ex-
tended as credit and how much in grant.
Because of these remarkable characteristics, this bill has the poten-
tial for extraordinary impact as a policy document.
My amendment will provide needed balance. It will do no harm
to the interests of Israel. Indeed, it should help the negotiating posi-
tion of our diplomats and thus enhance the possibility that this mas-
sive provision of military assistance will actually become a powerful
force for a just peace.
PAUL FINDLar.
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