Kissinger Henry. White House Years

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anyreturn.IthinktheRussians—notwe—shouldbesettingthebait.”My

proposedstrategywastoinsistthattheSovietUnionpayapricewithitsArab

friendscommensuratetowhatwewereexpectedtopaywithIsrael.Thiswould

bothensureafairernegotiationandputsomestrainsontheSoviet‐Egyptian

relationship.Nixonagreed;SiscowasauthorizedtogotoMoscowbutnottocarry

withhimanynewpositiononborders.



SiscovisitedMoscowfromJuly14to17.Hisdiscussionswereareplayof

theexchangesoftheprevioustwomonths.Evenhereturnedskepticalabout

Sovietflexibilityandintentions.HereportedtothePresidentthathefoundno

evidencethattheSovietswerepreparedtopressNasseronthekeyissuesof

peaceanddirectnegotiations.TheyviewedNasserastheirprimaryinstrumentin

theMiddleEast;theywereunwillingtoriskeitherhispoliticalpositionortheir

influencewithhimbyurginghimtomakepeaceontermsotherthanhisown.

InsteadofpressingNasser,theirstrategyseemedtobetosittightanderodeour

positiontoapointwherewewerepreparedtoimposetheirtermsonIsrael.Sisco

concluded,correctlyinmyview,thatwe,too,shouldsittight.



TheSiscomissionstilledtheimpulseforinitiativesforexactlytwomonths.

AlthoughforthemomenttheWhiteHouseandStateDepartmentwereinrare

accordondoingnothing,diplomaticactivitycouldbeexpectedtoresumeinthe

fall.Thearrivalofforeigndignitaries,includingthepartiestotheMiddleEast

dispute,fortheUnitedNationsGeneralAssemblywouldgeneratetheincentiveas

wellastheopportunitytotryagain.

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****

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YetAnotherInitiative



T

hiswasparticularlytruesinceinAugust,fightingflaredupagainonallfronts,

especiallydangerouslyalongtheSuezCanal.Itwasnotcalmedbytheburning

oftheAlAqsaMosqueinJerusalembyaderangedAustralian.TheArabs

predictablyblamedIsrael;bothNasserandKingFaisalofSaudiArabiacalledfora

holywartoliberateJerusalem.TerroristshijackedaTWAjetlinertoDamascus

whereIsraelipassengerswereheldforseveralweeks.Israel’sLabourParty,

gearingupforthefallelections,proclaimeditsintentionofkeepingpartsofthe

occupiedterritorieswhateverthepeaceterms.



Thisgrimscenecalledforanotherpolicyreview.Ittooktheusualformof

State’spressingforaninitiativeandmyurgingthepriorelaborationofaprecise

strategy.GromykowascomingtotheUNGeneralAssembly;RogersandourUN

AmbassadorCharlesYostaskedNixonforpermissiontopresenttheAmerican

endorsementofthe1967frontiers,conditionalonsatisfactorysecurity

arrangements.Siscotookamorecautiousposition.



ThesepressuresillustratewhatItaketobeabasicmaximofUSforeign

policymaking.Onceafallbackpositionexists—howeverhedgedwith

qualifications—itwillbeputforwardonewayortheother,firstbyprivate

commentsandpressleaksandultimatelyasaformalposition.APresidentwho

authorizesafallbackpositionin theexpectationthathemayneverfaceits

consequencesisboundtobedisappointed.Theveryexistenceofafallback

erodesthetenacitywithwhichtheapprovedpositionismaintained.Andthe

processisacceleratedifbureaucraticprerogativesandindividualegosare

committedtothefallbackpositionanditsexpectationsofsuccess.



Thereforethebynowfamiliardebatetookplaceyetagain,thistimeatan

NSCmeetingonSeptember11.TheStateDepartmentrepresentativesargued

thatwithoutourputtingforwardthefallbackposition,progresswasimpossible

(anargumentwhichifpushedfarenoughwouldeventuallyleadussquarelyto

theSovietpositiononeveryissue).Iquestionedthewisdomofaproposalthat

wouldcertainlyberejectedbyIsraelandthatmightnotevenbeacceptedby

Egypt,hedgedasitwasbyconditionsofpeacealreadyrebuffed.Inthenext

round,havingcommittedourselvestothiscourse,wewouldbeinevitably

pressuredtosoftenourpositionevenfurtherandthentoimposeitonIsrael.



Wewerebacktothestrategiccontroversywithwhichwehadstartedin

February.Theadvocatesoffurtherconcessionsarguedthattimewasworking

againstus;thelongerthedeadlocklasted,themoreourpositionintheArab

worldwoulddeteriorate.Istressedthattheoppositewastrue.Acontinuing

deadlockwasinourinterest;itwouldpersuadeEgypttofacetherealitythat

Soviettutelageandaradicalforeignpolicywereobstaclestoprogressandthat

onlytheUnitedStatescouldbringaboutasettlement;itwoulddemonstrate

SovietimpotenceandintimemightimpelafundamentalreconstructionofArab,

andespeciallyofEgyptian,foreignpolicies.RogerssawintheTwo‐Powertalksa

devicebywhichtheSovietUnionwouldhelpusoutofourMiddleEast

predicament.IthoughtitwastheSovietsthatfacedapredicament,sincethey

hadnomeansofachievingtheirobjectivesexcept byourcooperationorthrough

awartheirclientsstoodtolose.Ifwestayedcalm,theywouldsoonerorlater

havetopayapriceforourhelp,eitherintheMiddleEastorelsewhere.Rogers

wasconcernedthattheUnitedStatesmightbeisolatedintheFour‐Powertalks;

myviewwasthatthiswasinherentintheforumandcouldnotbeavoidedby

cleverformulas.



BeforetheSeptember11NSCmeetingthePresidenthadbroughtJohn

Mitchellintothediscussionstoadvisehim onthedomesticpoliticsofthechoices

beforehim.Mitchell,inspiteofhisgruff,pipe‐smokingexteriorandhislaterfate,

wasamanofdiscretionandshrewdness.Nixonvaluedhispoliticaljudgment;he

playedthedetachedobserverandprotectorofthePresident’sinterests,andhe

provedhisinsightonmanyoccasions.NowMitchellwarnedNixonofthe

domesticbuzzsawhewasfacing—theinevitablebrawlwithIsrael,withnohope

ofachievingpeace.



NixonwasthuswellpreparedfortheNSCmeetingandprobedRogersand

Siscosharply.“DoyoufellowsevertalktotheIsraelis?”heasked.Howdidthey

thinkIsraelwasgoingtoreacttoouracceptingthe1967borders?Rogersand

SiscoassuredhimthattheIsraeliswouldbehappywiththetotalpackagesinceit

wouldincludeelementsoftheirowndefinitionofpeace.Iquestionedthis,

pointingoutthatifIwasrightandwewerenotpreparedtopressureIsrael,we

wouldlosewiththeArabsbyaddingthechargeofimpotencetothatofillwill.

ThePresidentdecidedtokeepournegotiations“exploratory”untilMrs.Meir’s

visit;inthemeantimeheorderedastudyofthesettlementtermsforJordanand

SyriaaswellasEgypt.TheNSCprocessmightnotbetakenseriouslyasadeviceto

produceoptions;ithadagreatadvantageinprovidinganexcusefordelaying

decisions.



MitchelltoldmeafterwardthatthePresidenthadnopreconceivednotions

onhowtoproceed.Nixontoldmeafewweekslaterthatheagreedwithmethat

itwouldbebesttodelayspecificproposalstoseewhattensionsmightdevelop

betweentheSovietsandtheEgyptians:“Thesummitandtrade they[Moscow]

canhavebutI‘llbedamnediftheycangettheMiddleEast.”RogersandSisco

werethereforeinstructedtosaynothingnewintheirtalkswithGromyko.

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

GoldaMeir



oldaMeircametoWashingtononSeptember25onherfirsttriptothe

UnitedStatesasIsraeliPrimeMinister.Shewasanoriginal.Herchildhoodin

theRussiaofpogromsandheryouthasapioneerintheharshnessofPalestine

hadtaughtherthatonlythewaryaregiventheopportunitytosurviveandonly

thosewhofightsucceedinthateffort.Hercraggyfaceborewitnesstothedest iny

ofapeoplethathadcometoknowtoowellthepotentialitiesofman’s

inhumanity.Herwatchfuleyesmadeclearthatshedidnotproposethatthoseshe

ledshouldsufferthesamefatewithoutastruggle.Yetsheyearnedtoseeher

peoplerealizetheirdreamofpeace;heroccasionallysarcasticexteriornever

obscuredacompassionthatfeltthedeathofeveryIsraelisoldierasthelossofa

memberofherfamily.Shewasafounderofhercountry.Everyinchoflandfor

whichIsraelhadfoughtwastoheratokenofherpeople’ssurvival;itwouldbe

stubbornlydefendedagainstenemies;itwouldbegivenuponlyforatangible

guaranteeofsecurity.Shehadapenetratingmind,leavenedbyearthinessanda

mischievoussenseofhumor.Shewasnottakeninbyelevatedrhetoric,or

particularlyinterestedinthefinerpointsofnegotiatingtactics.Shecuttothe

heartofthematter.Sheansweredpompositywithironyanddominated

conversationsbyherpersonalityandshrewdpsychology.Tomesheactedasa

benevolentaunttowardanespeciallyfavorednephew,sothateventoadmitthe

possibilityofdisagreementwasachallengetofamilyhierarchyproducing

emotionaloutrage.Itwasusuallycalculated.Mywifeisfondofsayingthatsome

ofthemostdramatictheatricalperformancesshewitnessedwerebetweenGolda

Meirandmewhenwedisagreed.Mrs.MeirtreatedSecretaryRogersasifthe

reportsofhisviewscouldnotpossiblybetrue;shewascertainthatoncehehada 

chancetoexplainhimselfthemisunderstandingscausedbytheinevitable

inadequacyofreportingtelegramswouldvanish;shethenpromisedforgiveness.

AsforNixon,Mrs.MeirhailedhimasanoldfriendoftheJewishpeople,which

wasstartlingnewstothoseofusmorefamiliarwithNixon’sambivalencesonthat

score.Butitgavehimareputationtouphold.Andintheeventhedidmuchfor

Israelifnotoutofaffectionthenoutofhischaracteristicallyunsentimental

calculationofthenationalinterest.



HerthemeswithNixonweresimple.TheUnitedStatesshouldnotlet

Nasseravoidtheresponsibilityformakingpeacebygettingotherstosettlethe

terms;theSovietUnionhadtoknowthattheUnitedStateswouldnotpermit

Israeltobedestroyed;theArabshadtounderstandthatIsraelwasnotweak.

Onlythiswouldbringpeace.



Nixonhadnotreachedeminence,however,bybeingtakeninby

generalities.WhilehewasrestlesswithStateDepartmentsteamrollertactics,he

didnotbelieveforamomentthatpeacewouldcomeautomaticallyifweonly

heldfirm.HewasnotyetreadytopressIsrael,largelyfordomesticreasons,and

hehadnodifficultygivingGoldaMeirassurancesofassistanceagainstaSoviet

attack.AndhefavoredastrongIsraelbecausehedidnotwanttheUnitedStates

tohavetofightIsrael’sbattles—whichwasexactlyMrs.Me ir’sviewaswell.Nixon

thoughtthatNasserwouldbecomemoremoderateonlyiffacedbyoverwhelming

power.



ButhestillhadbeforehimthepolicyrecommendationsofhisSecretaryof

State;hecouldthereforescarcelypromisethattheUnitedStateswouldnever

advancenewpeaceterms.Hestalled,givingtheimpressionthathewasmore

sympathetictoIsraeliconcernsthanhisbureaucracy—whichwastrue—and

comingupwiththeformulathathewouldtrade“hardwareforsoftware.” This

meantthathewould beresponsiveto IsraelirequestsforarmamentsifIsrael

gaveussomelatitudeinnegotiations,whichhestronglyimpliedhewouldensure

wouldnotamounttomuch. 



ItwouldbetoomuchtoclaimthatMrs.Meiragreed;moreaccuratetosay

sheacquiescedinaformulationwhosemeaningonlythefuturewouldreveal.She

reservedherrighttodobattle then,ifnecessary,andshewouldchooseasher

adversarysomeonelowerinthehierarchythanthePresident.Asitturnedoutshe

hadoccasiontodobattlesoonenough.The“hardwareforsoftware”formulathe

Presidenthadproposedwasleakedto thepress—inawaywhichimpliedthat

armsaidwouldthereafterbeconditionalonIsraeliflexibilityinnegotiations.Mrs.

Meir’soutragedprotestsweretargeted(probablycorrectly)ontheState

Department(whichhadbeengivenasummaryofthePresidentialconversation

withMrs.Meir).



Aseriousbureaucraticbattlewaslooming.OnSeptember27Dobrynin

calledonmewiththeperennialSovietsuggestionofajointUS‐Sovietposition,

thistimetoprovideguidelinesforJarring,theUNSpecialRepresentative.I

rejectedtheoverturewiththeargumentthataslongastheSovietswereso

unhelpfulonVietnam,jointactionelsewherewouldbe“difficult.”Ihadno

intentiontoactjointlywiththeSovietUnionwhentheSovietsclearlyexpectedto

getafreerideonourexertions.ButmyrebuffmerelysentDobryninbackinto

otherchannels.Hecontinued intensivetalkswithSiscoinSeptemberand

October.PickingupthreadsoftheMoscowvisit,SiscoandDobryninmulledover

thevariousprovisionsofapossibleEgyptian‐Israelisettlement.ByOctober14,

Siscowasreportingthattherewasenoughprogressonprocedures(suchas

holdingindirecttalks,asRalphBunchehadconductedtwentyyearsearlieronthe

isleofRhodes)towarrantmovingaheadtotheissueofboundariesthefollowing

week.



Ihadmydoubtsaboutthis“progress.”IthoughttheSovietswereusingthe

MiddleEast,likeSALT,tomakeNixonthinktwiceabouthisthreatenedNovember

1“deadline”overVietnam(seeChapterVIII).Myconcernswerenoteasedbythe

meetingbetweenDobryninandthePresidentonOctober20.Dobryninreadfrom

anaide‐mémoire,puttingalltheblamefortheMiddleEastimpassesquarelyon

Washington.Nixonrepliedsharply,pointingoutthattheSovietshadbeentotally

inflexibleonIsraeliwithdrawalwithoutindicatinganysacrificetheywouldask

fromEgypt;theSovietclienthadlostthewar,hadlosttheterritory,andwasinno

positiontobemakingdemands.



WhileNixonwasfacingdownDobrynin,Siscowasanglingforauthorityto

tellDobryninaboutourfallbackpositionacceptingthe1967frontierlinkedto

securityguarantees.Hewantedtomoveaheadatameetingscheduledfor

October28.IdiscussedthiswiththePresident,whoagreedthereshouldbeno

AmericaninitiativesofanykindbeforetheNovember1Vietnamdeadline.Nixon

had,infact,givenaflatorderthattherebenofurthercontactsatallwiththe

SovietsuntilhehadgivenhismajorNovember3speechonVietnam.Sisco

protested,becauseRogershadalreadypromisedGromykothatSiscoand

DobryninwouldmeetonOctober28. (Thiswashardlyaconclusiveargument,

sinceSiscocouldalwayshavestalled.)ButNixonwassoabsorbedwithVietnam,

preparinghisNovember3speechanddealingwiththeMoratorium,thathehad

evenlessstomachthanusualforafightwithhisSecretaryofState.Heyielded

reluctantly.Characteristically,hesoughttohedgehisbetsbyaskingJohnMitchell

andLeonardGarment—counselortothePresidentandadviser onJewishaffairs—

toletJewishcommunityleadersknowhisdoubtsaboutState’s diplomacy.Nixon

impliedstronglytothemthathewouldseetoitthatnothingcameofthevery

initiativeshewasauthorizing.



WewereintheanomalouspositionofNixon’sleaningtowardmystrategy

butgoingalongwithRogers’stactics.Thereasonsforhisrelativedeferenceto

RogersonMiddleEastpolicyarethoseImentionedatthebeginningofthis

chapter.Nixonunderstoodwellenoughthatthediplomacywouldgonowhere;

wheneveritthreatenedablowuphewouldusuallyfollowmyadvicetoabortit.

Andthefinalironywasthattheresultingpolicyoffitsandstarts,oftantalizing

initiativeslateraborted,wasthefunct ionalequivalentofwhatIwantedto

achievebydesign:toputusintothepivotalpositioninthenegotiationsandto

demonstrateSovietinabilitytoproduceprogress.



Untilthisdemonstrationhadbeenmade,therewasnogainfortheUnited

Statesinpursuinganactivepolicy.OccasionallyNixonwastemptedtoimposea

settlement.Ononeofmymemorandainlate1969,informinghimofKing

Hussein’spessimismaboutpeac eprospectsinthefaceofIsrael’stoughstand,

Nixonwroteinlonghand: “Iambeginningtothinkwehavetoconsidertaking

strongstepsunilaterallytosaveIsraelfromherowndestruction.”Butonfurther

considerationhealwaysstoppe dshort,becausein1969thebeneficiariesofsuch

acoursewouldhavebeentheSovietUnionandSovietclientsvociferouslyhostile

tous.



OnOctober28SiscoatlastpresentedtoDobryninthefallbackpositionthat

Statehadbeenitchingtoputforward—committingtheUnitedStatestothe1967

internationalboundarybetweenIsraelandEgypt.Itincludedprovisionsonpeace

andsecurityarrangementsthatState,withoutdefiniteproof,gambledwouldbe

attractiveenoughtopersuadeIsraeltowithdrawandtoconvincetheSovietsto

pressEgypt.Bothhopesweretobedisappointed.



ContrarytoState’sprediction,ourofferevokedonlyanoncommittalSoviet

response,andcontrarytowhatNasserhadledustobelieveearlier,acceptingthe

prewarfrontiersdidnotimproveourrelationswithhim.Instead,hemadeafiery

speechtohisNationalAssemblyonNovember6declaringthathewouldreclaim

theoccupiedterritoriesby“fireandblood”insteadofpolitical“half‐solutions,”

andaccusingtheUnitedStatesofmilitaryinvolvementonIsrael’sbehalf.So

extremewasthisNasseroutburstthat,inararemove,theStateDepartment

issuedarebuttalcallingNasser’spositiona“setback”topeace.Notlong

afterwardEgyptianForeignMinisterMahmoudRiadtermedourpeaceplan

(includingitsnewlineonborders)“evenworse”thanpreviousproposals.Even

morepredictablewastheIsraeliattitude.Theconcessionsonthedefinitionof

peace,whichweresupposedtogainIsrael’sacquiescence,werebrushedaside.

Israelprotestedinthestrongestdiplomatictermsagainstourputtingforward

specificformulationsonfrontiers.AmericansupportersofIsraelexpressedalarm.

Andthefightingescalatedyetagain,especiallyalongtheSuezCanal.Acoup in

LibyainSeptember1969,overthrowingthemonarchyandestablishingQaddafias

ruler,arousedapprehensionaboutthepoliticalfutureofthearea(andcostusour

basingprivilegesthere).Lebanonwasdisintegrating;weheldemergency

meetingstoreviewcontingencyplansshouldopencivilwarbreakout.Amongour

friends,moderateleadersintheMiddleEast—KingHussein,KingHassanof

Morocco,PrinceFahdofSaudiArabia,theShahofIran,andtheLebanese—told

useitherdirectlyorthroughenvoysoftheirdespairatthegrowingradicalization

oftheregion.



<<Contents>>



****



TheRogersPlan



B

utlikeagambleronalosingstreak,theadvocatesofanactiveAmericanrole

wantedonlytoincreasethestake.Ignoringtheclearlystatedpositionsofthe

twosides,theyinsistedthatacompromisewasstillpossiblealongourchosen

route;theycontinuedtobelievethatIsraeliflexibilityonborderscouldbe

purchasedbyimprovingthecontentoftheprovisionsonpeace.Inlate

November,therefore,theState Departmentformallyrecommendedtothe

PresidentthattheFour‐Powertalksberesumed.Itwasproposedthatwesubmit

aJordaniancompanionpapertoourEgyptianplanembodyingsubstantiallythe

sameprinciples.Wecoulddonolessforafriendthananadversary,itwassaid,

andinanyeventPresidentJohnsonhadineffectpromisedJordanthe1967

borderswithminorrectificationsasabaitforJordanianacceptanceofResolution

242.Itwasarguedthatthiswouldgiveusabalancedpositionintheeyesofthe

worldandmightprovideastartingpointforlaternegotiationseveniftheyfailed

now.Whatthe“world” wastowhoseeyeswewereappealingwasnotspelled

out,northelong‐termbenefittobederi vedfromaproposalalmostcertaintoget

nowhere.Nooneexplainedwhythispapershouldachieveahappierfatethanthe

Egyptiandocumentorwhatwasthepurposeofaccumulatingrejections.



IntransmittingthisStateproposaltothePresidentIrepeatedyetagainmy

bynowtiresomerefrainthatalloftheseexercisesweredoomedto futility.No

schemewasconceivablethatcouldbridgethegapbetweenthetwosides:“It

cannotproduceasolutionwithoutmassivepressureonIsrael.Itismorethan

likelygoingtowindupantagonizingbothsides.Itmayproduceawar.”Ifeared

thatIsraelinfrustrationmightstrikepreemptively,orthattheArabcountries

wouldshifttohostilitywhenwefailedtoimposeourproposals.EveryAmerican

initiativethatfailedplayedintothehandsoftheSovietsandstrengthenedthe

radicals.



NixonscheduledanNSCmeetingforDecember10toconsiderourcourse.

Inthemeantimenofurtherproposalsweretobeputforward.SecretaryRogers,

however,hadscheduledacomprehensivepublicstatementofourMiddleEast

policyforaspeechonDecember9.Itwasanoddchoiceofdate,sincethespeech

wouldbegiventhedaybeforeanNSCmeetingthatwassupposedtodecideonits

subjectmatter.RogersassuredthePresidentthathemeanttobreaknonew

ground.RogersandSiscosuccessfullyarguedthatthespeechwouldnotprejudice

anyPresidentialdecisionsthatwouldcomeupattheDecember10NSCmeeting.

(ItwasapowerplaytocircumventtheNSCsystemthatwouldneverhav eworked

onanotherissueoratalatertime.)



SoRogersspokeontheeveningofDecember9,1969,totheGalaxy

ConferenceonAdultEducation,anundoubtedlydistinguishedgroupwhose

compellingrequirementforahigh‐levelpronouncementontheMiddleEast

continuestoescapeme.Theaddressbecamefamousasthe“RogersPlan.”

Rogersstressedthatourpolicywasbalancedandthatbothsideshadtomake

concessions.AndhesetforththepositionsthatSiscoandYosthadbeen

presentingintheTwo‐andFour‐Powerforums.Rogersinsiste dthatthe

conditionsandobligationsofpeacehadtobedefinedinspecifictermsonsuch

issuesasfreenavigationandsovereignty;reliablesecurityarrangementshadto

beworkedoutbythepartieswithAmbassadorJarring’shelp.Buthisformulation

oftheterritorialissuewaswhatcapturedalltheattention:



Webelievethatwhilerecognizedpoliticalboundariesmustbeestablishedandagreed

uponbytheparties,anychangesinthepre‐existinglinesshouldnotreflecttheweightof

conquestandshouldbeconfinedtoinsubstantialalterationsrequiredformutualsecurity.We

donotsupportexpansionism.Webelievetroopsmustbewithdrawnastheresolutionprovides.

WesupportIsrael’ssecurityandthesecurityoftheArabstatesaswell.



ApplyingtheseprinciplestoanEgyptian‐Israeliagreement,Rogerswenton

toproposethewithdrawalofIsraeliarmedforcestotheinternationalborder

betweenIsraelandEgypt.



Withinhourseveryonewasshootingatthespeech.Preciselybecausethe

speechcontainedelementsalreadyrejectedbybothsides,itwasboundtobe

attackedfromalldirections.TheArabpress,mainlyEgyptian,treatedthespeech

asanAmericantricktopretendtoArabsthattheUnitedStateswasimpartial,as

wellastoundermineSoviet‐Egyptianrelations.TheSovietsfirstissuedafairly

conciliatorystatementsayingtheRogersspeechwaslong“overdue”;thereal

questionwaswhethertheUnitedStateswouldpressIsraeltowithdraw. Later,

PravdafellintolinewithEgyptianreactionsandde nounced itasanAmerican

attempttomaskitspartialitytowardIsrael.Thedayafterthespeech,theIsraeli

Cabinetrejectedalloutsideeffortstoprescribeboundaries;PrimeMinisterMeir

saidthatRogerswas“moralizing”andthatthemajorpowerscouldnotmake

peaceonbehalfofothers.TheConferenceofPresidentsofMajorAmerican

JewishOrganizationsexpressed“graveconcern”;membersoftheCongress

weighedin.EbanwasdispatchedtoWashingtonagaintoconferwithAmerican

officials.



ItwasinthiscongenialatmospherethattheNationalSecurityCouncilon

December10consideredtheStateDepartment’sproposaltoputforwardaplan

onJordancomparabletothatonEgypt.WhatpossessedtheDepartmentto

perseverewhenalltheevidenceindicatedcertainfailuremustbelefttostudents

ofadministrativepsychology.Perhapswhenenoughbureaucraticprestigehas