Kissinger Henry. White House Years

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planningwithunenthusiastic agencieswhowerestillmumblingaboutforcing

greaterIsraeliflexibilityinnegotiations—irrelevanttotheproblemwefaced.

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Then,onJuly22—justwhenamilitaryclashseemedunavoidable—Nasser

suddenlyacceptedourproposalforacease‐fireandnegotiations.

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<<Contents>>

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Cease‐fireandStandstill

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hyNasseracceptedourproposalatthispointwillnotbeknownuntil

EgyptianandSovietarchivesbecomeavailable.Hemayhavefearedan

Israelipreemptivestrike.HeandhisSovietadvisersmayhaveinterpretedthe

WhiteHousepressstatementsbyNixonandmeasraisingadangerofAmerican

involvement.Morelikely,inthelightoflaterevents,heandtheSovietsmayhave

decidedfromthebeginningtousethecease‐fireoffermuchastheydidthe

abortiveinitiativeofMarch:asacoverformovingforwardthemissilecomplex

withminimumrisk.



TheAdministrationwaselated.Rogersclaimedcreditforhavingthoughtup

theinitiative—aclaimprivatelydisputedbySisco,whoinsistedthathehad

fatheredtheidea.NixonwasconvincedthathistoughstatementonJuly1had

donethetrick.Humilitynotbeingmystrong suit,Iwasnotloathtoascribesome

ofthe“success”tomystrongbackgroundersofJune26and30andmy

conversationswithDobrynin.Probablywewereallsomewhatright.Inanyevent,

itsoonturnedoutthatourelationwaspremature.



TheearlyeuphoriawasdeliberatelyencouragedbyDobryninonJuly23.He

usedaWhiteHousearrivalceremonyforPresidentUrhoKekkonenofFinland—

DobryninwaspresentasActingDeanoftheDiplomaticCorps—togivemea

previewofwhathewoulddeliverattheStateDepartmentintheafternoon:The

Sovietattitudetoa temporarycease‐firewaspositive,andtheSovietUnionalso

favoredtheresumptionoftheJarringmission.However,Moscowbelievedthat

JarringshouldhaveconcreteguidanceastothemeaningoftheUNresolutions

whoseimplementationhewassupposedtopromote.Dobryninthereforeurged

thattheTwo‐andFour‐Powertalksbespeededuptodevelopsolutionsonthe

outstandingissues.ShowingthattheSovietshadmasteredourcomplex

procedures,DobryninbroughtRogersaspecialmessageaswell.Deliveringthe

noteformallyattheStateDepartment,DobrynintoldRogerswhatheneglected

toconveytome—thattheSovietsagreedtoincludeamilitarystandstillinthe

cease‐fire.Incompensationhesubs equentlygavemeanote —ofwhichRogers

wasunaware—replyingfinallytomyqueriesofJune10andJune23aboutthe

continuedpresenceofSoviettroopsintheMiddleEast.Accordingtothenote,

theSoviets‐afteracomprehensivepoliticalsettlement‐would“probably”be

preparedtoconsiderwithdrawalaslongasitwasamutualobligation.WhenI

pointedoutthatwehadnotroopsintheMiddleEast,Dobryninatfirstsaidthat

thiswasallthebetterforusandthatthemutualityofobligationwasputinasa 

matterofprincipleforcosmeticeffect.Laterheamendedthistosaythatthe

UnitedStateswouldhavetowithdrawitsmilitarypersonnelfromIran.



Hadweunderstoodthesituationbetter,wewouldhaverealizedthatwe

hadclearedonlytheloWesthurdle.Thenegotiationswehadarrangedwere

certaintodeadlocksinceEgyptstilldemandedrestorationofthe1967frontier

andIsraelstillinsistedonsubstantialterritorialchanges.EgyptexpectedAmerican

pressureonIsrael;Israel,underthesloganof“noimposedsettlement,”wanteda

freehand.Nixonhad notyetdecidedonwhathewoulddowhenthedeadlockin

thetalksbecameapparent.NorwastheSovietnoteallthatreassuring.Itdefined

neither“cease‐fire”nor“standstill.”ItrepeatedtheSovietinterpretationofthe

basisforJarring’smission,whichonallsignificantpointswasidenticalwiththe

radicalArabprogram.Itswillingnesstodiscusstroopwithdrawalwashedgedby

theword“probably”andlinkedtoanabsurdrequestforwithdrawalofUS

militarypersonnelfromIran.Aboveall,theSovietsmightsimplyberepeatingthe

maneuverofthepreviousMarch.Theofferofacease‐firenowmightmask,and

thenprotect,themovementoftheSoviet missilecomplexforwardtotheCanal.



Atthattime,suchconsiderationsweregenerallydismissedbecauseour

governmentwaspreoccupiedwiththeIsraelireactiontoourinitiative,whichwas

quiteobstreperous,matchingpricklinessofbehaviorwithshrillnessofrhetoric.

Butthisisscarcelyextraordinary.Twothousandyearsofsufferinghaveetched

thepremonitionoftragedydeepintothesouloftheJewishpeople.AndIsrael’s

positionasatinynationof2.5millionsurroundedbyclosetoonehundredmillion

potentialenemies,inaregionthathasseenempiresandstatescomeandgo,isa

constantremindertoeveryIsraeliofthetransitorinessofhistoricalexistence.

Israel’smarginofsurvivalissonarrowthatitsleadersdistrustthegreatgestureor

thestunningdiplomaticdeparture;theyidentifysurvivalwithpreciseca lculation,

whichcanappeartooutsiders(andsome timesis)pettifoggingobstinacy.Even

whenIsraelileadersacceptapeaceproposal,theyfirstresistfiercely,which

servesthepurposeofshowingthattheyarenotpushoversandthereby

discouragesfurtherdemandsforIsraeliconcessions.Andtheiracceptanceis

usuallyaccompaniedbyendlessrequestsforreassurances,memoranda of

understanding,andsecretexplanations—alldesignedtolimitthefreedomof

actionofarathervolatileallyfive thousandmilesawaythatsuppliesitsarms,

sustainsitseconomy,sheltersitsdiplomacy,andhasa seeminglylimitless

compulsiontoofferpeaceplans.



Thistendencyisreinforcedbyapoliticalsysteminwhichgovernmentsare

usuallyturbulentcoalitions ofseveralpartiesandautonomousfactions.Sucha

systemdoesnotmakeforrapiddecisionsorflexiblediplomacy.Anyleaderwho

advocatesaconcessioncanbepounceduponbyhiscolleaguesandshrilly

denouncedintheParliamentas,ifnotatraitor,thenatleastadupeofthewily

(orfoolish)Americans.AnIsraeliCabinet meetingiswellsuitedtonitpicking

peaceproposalstodeath,lessadaptedtodevelopinga long‐rangepolicy.Israel

sometimesfindsiteasiertoshifttheresponsibilityfordifficultchoicestoitsgreat

allythantomakethedecisionitself;“Americanpressure”canbeanexcusefor

whatmanyIsraelileadersknowintheirheartsisnecessaryforIsraelanyway.



ForIsraeltohaverespondedenthusiasticallytothecease‐fireproposaland

theprospectofnegotiationwouldthushavebeentotallyoutofcharacter.Nearly

twomoreweeksofdiplomaticexchangesandPresidentialinterventionswere

requiredtoelicitagrudginglyfavorableresponse.OnJuly23NixonsentMrs.Meir

anothermessageurgingtheIsraelistotakeadvantageofArabacceptanceofthe

USinitiative.AtthesametimeheassuredherthatwewouldnotforceIsraelto

accepttheArabinterpretationofSecurityCouncilResolution242indeveloping

guidelinesfortheJarringmission.Itwasjustaswellthatthisletterwasnot

publicizeduntillater,fortheArabshadbeengivenpreciselytheopposite

impressionwhenthecease‐fireinitiativewaspresentedtothem.



Israelrespondedwithrequestsforadditionalmilitaryassistance,especially

weaponsforthesuppressionoftheSovietsurface‐to‐airmissiles.Wepromised

sympatheticconsideration.Israelaskedforfurtherclarificationofourpositionon

suchissuesaswithdrawalsandrefugees.Ouranswersclarifiedlittlebecause

therewasnounifiedAdministrationpositionandbecausethosewhohadclear

ideaswereafraidtomakethemexplicitlesttheyabortIsrael’sconsenttothe

initiative.OnJuly30NixonbravelydeclaredinapressconferencethatIsraelcould

enternegotiationswithconfidence,“withoutfearthatbyhernegotiationsher

positionmaybecompromisedorjeopardizedinthatperiod.”FinallyonJuly31we

weretoldthattheIsraeliCabinethaddecidedinprincipletorespond

“affirmatively”;aformalresponsewould beforthcomingsoon.ThePresident

welcomedthedecisioninastatementfromSanClemente.



Israeliconcernswerefarfromgroundless.Clearly,theSovietsand

Egyptianswereusingtheperiodbeforethecease‐fireforarapidbuildupof

missilesalongtheCanal,violatingthespiritifnottheletteroftheprojected

standstill.ThemissileswouldsoonbeablenotonlytoprotecttheEgyptian

artillerypositionsontheWestbankoftheCanalbuttoreachacrossitandprotect

anEgyptianlanding.Andinacease‐firethosemissileswouldbeimmunefrom

retaliation.



OnAugust5Rabinhurriedintopaintagrimpicture:Uptofo urteenmissile

siteshadbeenmovedtowithinfiftykilometersoftheSuezCanal;threemissile

ambushsiteshadbeenmovedtowithintentotwentykilometers.OnJuly25;27,

and30Soviet‐pilotedaircrafthadengagedIsraeliaircraft;onJuly30fourRussian‐

pilotedaircrafthadbeenshotdownbytheIsraeliairforce.Rabinreiterated

Israel’sdeterminationnottopermittheforwardmovementofthemissile

complex.Hewassoemphatic aboutitinaconversationontheeveningofAugust

5thatIthoughttheIsraelismightactuallylaunchagroundattackagainsttheSA‐3

sitesclosetotheCanalbeforeacease‐fire,andsoinformedNixon.Atthelast

momenttheIsraeliCabinetdecidedagainstsuchamove.Ihaveneverknown

whetherRabinexaggeratedthelikelihoodoftheattackorwhethertherewasa

last‐minutechangeofheartin Jerusalem.Atanyrate,Israelinformedusofficially

ofitsacceptanceofthecease‐fireonAugust6.RogersandSiscorusheditto

completionbeforeanyonecouldchangehismind,cutting somecornersinthe

processwithrespecttotheJarringmission,whichinfuriatedtheIsraelis.



OnAugust7thecease‐firewentintoeffect,borninfatefulambiguity.

Therewasacease‐fireagreementbetweenEgyptandIsrael,whichprovidedalso

foramilitarystandstillinazonefiftykilometerswideoneithersideoftheCanal;

unfortunately,theagreedtextwasvagueastowhatactionswereprohibitedby

thestandstillcommitment.Aseparate“understanding”betweenIsraelandthe

UnitedStatessoughttofillthisgapbyoutliningourjointviewofwhatmeasures

wefeltwouldconstituteviolationsoftheEgyptian‐Israeliagreement.[

These

includedprohibitions:“(a)nottointroduce,moveforward,constructorotherwiseinstall

missilesinthiszone;(b)nottoconstructanyconcretestructuresfortheimplacementof

missiles;(c)nottocarryoutanyworkfortheestablishmentofanynewsitesformissiles;(d)

notwithstandingtheconsenttoexceptmaintenanceofexistinginstallations,noimprovement

shouldbemadeontheexistingmissilesitesorimplacements.”

]



OurchargéinCairowasinstructedtoinformtheEgyptiansoftheexamples

intheIsraeli‐Americanunderstandingbuttosaythattheywereonly“illustrative”

ofactivitieswhichwouldbeviolationsofthestandstill.Asidefromthefactthatit

wasnotself‐evidenthowanunderstandingbetweenIsraelandtheUnitedStates

couldbindEgyptandtheUSSR,therewasalsoaseriousproblemoftiming.The

EgyptiansformallyacceptedourproposalearlyonAugust7ourtime,andthe

cease‐firewentintoeffectat1:00a.m.August8,Cairotime.Butbecauseof

hagglingwithIsraeloveritsterms,State’srepresentativedidnotcommunicate

the“illustrative”catalogueofpossibleviolationstoCairountil2:50p.m.Cairo

timeonAugust9,overthirty‐sixhourslater.Thisprovedtobesignificant;the

IsraeliswouldlaterclaimthatEgypthadviolatedthestandstillagreementinthe

August8‐9periodevenbeforeEgypthadanyprecisewayofknowingwhatwe

understoodbyastandstill.



Thedocumentsand“clarifications”werealsopassedonto theSoviets.But

Moscowwasnotformallyapartytoeitherthecease‐fireorthestandstill.Andas

thechargesofviolationsmounteditincreasinglyinsistedthatitwasnotbound

despiteitsapprovingnoisesofJuly23.



Fromthisprecariousbasethefirstinitiative fornegotiationsbetweenthe

partiessince1967waslaunched. Thefirstdayoftheceasefirewasquietalongthe

CanalthoughthePalestinianguerrillasbasedinJordanvowednottoobserveit.

WhiletheSovietsusedtheoccasiontocallonceagainfortotal Israeliwithdrawal,

theyalsopubliclydescribedthecease‐fireasan“importantfirststep.”TheUnited

StatesgovernmentbegantopreparefortheJarringtalksandtostudyIsraeli

militaryaidrequests.SiscoeventoldtheNSCSeniorReviewGrouponAugust12

that,lookingaheadtotheJarringtalks,hewasalreadybeginningtodrafta“full

agreement,”toincludedefinitiveprovisionsonfinalborders.Ourinternaldebate

overIsrael’saidrequestsrapidlyboggeddownintoabstractargumentsabout

whatkindofIsraelistrategytosupport.Thishadtheeffectofdelayingadecision,

sincethetypeofweapondependedonapriorinteragencyagreementonmilitary

doctrine.Thesesomewhatesotericdiscussionswere soonovertakenbyIsraeli

chargesthatthemilitarystandstillwasbeingviolated.



InformationontheearlyEgyptian‐Sovietmoveswasconfusedandnodoubt

wasputinthemostdramaticlightbyIsraelipublicity.Verificationwasnoteased

bytheamazingfactthatthestartingtimeofthestandstillwasinthemiddleof

thenight,whenreconnaissanceaircraftorsatellites,assumingtheywerereadyat

suchshortnotice,wouldhavebeenabletoseelittleanyway.Buttherewasno

doubtthatasubstantialforwardmove mentoftheEgyptian‐Sovietairdefense

complexhadtakenplaceinthenearlythreeweeksbetweenEgypt’sacceptance

oftheAmericanproposalandthebeginningofthecease‐fireandstandstill.

Almostcertainly,whateverwasunderconstructionatthetimetheceasefirewent

intoeffectwascompletedafterward.Thiscouldbesimplecynicism;itcouldalso

bethecasethattheSovietsandEgyptianswerecaughtbysurprisebythe

uncharacteristicspeedwithwhichourbureaucracymovedinlaunchingthecease‐

fire.



ByAugust13IsraelichargesofSoviet‐Egyptianviolationshadreachedour

press.InIsraelMenachemBeginwithdrewhisoppositionpartyfromthe

emergencycoalition inwhichithadparticipatedsince1967andviolentlyattacked

GoldaMeirforhavingagreedtotheUnitedStatesplaninthefirstplace.

However,theStateDepartmenttookthelinethattheUnitedStateshadreached

“noconclusions”abouttheIsraelireportsofviolations.OurAmbassadorinIsrael,

WalworthBarbour,wasinstructedtourgetheIsraeligovernmenttoceasepublic

discussionofthematter.Instead,Israelwasaskedspeedilytoappointits

representativetotheJarringtalks.



OnAugust15AmbassadorRabincameintoseeme.Hepresenteda

demarchefromGoldaMeirreviewingtheevidencethatfourteenSA‐2Sbackedup

bySA‐3Shadbeenmovedintothestandstillzone.AsaresultIsraelhadlostfive

Phantoms(sucharethewondersofaMiddleEastcease‐fire).Inotherwords,

afterourmildresponsetothefirstforwardmoves,madearoundthetimethe

standstillwentintoeffect,theSovietsandEgyptianshadmadeadditional

deployments,thistimeclearlyinviolationoftheagreement.Mrs.Meiraskedto

presenthercasetothePresidentpersonally.Thiswasjudgedinopportunebythe

StateDepartment,whichwaseagertogettheJarringtalksunderway.InsteadI

arrangedanopportunityforRabintoshowtheIsraeliintelligencetoNixon.Rabin 

usedtheoccasiontocomplainbitterlyaboutthereluctanceofourintelligence

communitytoacceptIsraelievidence;theviolationsweregenuine,hesaid.The

upshotwasthatNixonapprovedarapiddeliveryofShrikemissilesforuseagainst

theSA‐3complexandlateragreedtoseeMrs.MeirinSeptemberwhenshe

wouldbeintheUnitedStatesforthetwenty‐fifthanniversaryoftheUnited

Nations.



TherewassomemeritinRabin’scomplaintofthereluctanceoftheUS

intelligencecommunitytofindviolations.AsIexplainedto thePresident:



Israel,withhersurvivalatstake,cannotaffordtotakechances…Thenatureofthe

Israelis’situationisboundtoinfluencetheirinterpretationofambiguousevents.We,onthe

otherhand,haveanincentivetominimizesuchevidence,sincetheconsequencesoffinding

violationsaresounpleasant.Violationsforceustochoosebetweendoingsomethingabout

themandthusrisktheblowupofourinitiative;ordoingnothingandthusrenegeonour

promisestoIsrael,posingthethreatofhertakingmilitaryaction.Accordingly,wetendtolean

overbackwardstoavoidtheconclusionthattheArabsareviolatingtheceasefireunlessthe

evidenceisunambiguous.



Whateverthereason,itisprobablethatourhesitantfirstresponse

encouragedNassertoacceleratetheforwarddeploymentofmissiles.Wewere

witnessing,infact,areplayofeventsofthespring:aseeminglymarginalSoviet

move,followedbyapause forconsolidationandanalysisofourreaction,

succeededbyarapid,dramaticbuildup.Admittedly,theevidenceinthefirsthalf

ofAugustwasambiguousastowhetherthedisputedactivityhadtakenplacejust

beforeorjustafterthecease‐firewentintoeffect.Therewasnodoubt,however,

thatwheneveritoccurreditwasindefianceofthewarningofJune2bythe

SecretaryofStatetoDobryninthatSovietmissileswithinthirtykilometersofthe

Canalcouldnotbeconsidereddefensive. 



ByAugust19newevidencehadbeenreceivedconfirming,asIsraelalleged,

clear‐cutviolationsofthestandstillagreement.ThisforcedtheStateDepartment

toformalaction.Butthepublicresponse,bywayofastatementbythe

Department’spressspokesman,wasagainsolow‐keyastosuggestthatwewere

lookingforpretextstoavoidactionratherthantoseekremedies:



Wehaveconcludedthattherewasforwarddeploymentofsurface‐to‐airmissilesinto

andwithinthezoneWestoftheSuezCanalaroundthetimetheceasefirewentintoeffect.

Thereissomeevidencethatthiswascontinuedbeyondtheceasefiredeadline,althoughour

evidenceofthisisnotconclusive…Weareexamining[additionalinformationfromIsrael]…We

donotnowanticipatemakingfurtherpublicstatementsonthismatter…



Intandemwiththepublicannounceme nt,Egyptwasinformedofsomeof

theevidencewehad.Butsincetheevidencewas“notconclusive,”wetoldthe

Egyptiansthatwewouldnotmakeanypubliccharges;weremindedthemofwhat

wereconsideredviolationsandwarnedthatfurthersuchactivitywould

jeopardizepeacetalks.TheSovietswerealsoinformedoftheapproachinCairo.

Finally,amajoreffortwasmadetopersuadetheIsraelistoreactwithrestraint

andnottocausefuturedifficulties bypublicity.AsecondAmericandemarchewas

madeinCairoonAugust22whenwepresented“incontrovertible”evidenceof

violations.



IftheUnitedStatesprotestsanissue,itmustdosoforcefullyandwith a

descriptionoftheremedialactionitexpects.Aplaintivetoneistheleastlikelyto

evokeasatisfactoryresponse;itsuggeststhattheprotestmaybefortherecord

only.Itdeprivestheoffendingcountryof adomesticpretextforchangingcourse.

Thisisespeciallyimportantwhenthesubjectispoliticallysensitiveandthepolicy

noteasytoreverse.OnAugust24,thedaythatJarringannouncedthestartof

peacetalksinvolvingthechiefUNdelegatesofIsrael,Egypt,andJordan,Egypt

flatlyrejectedourchargesofviolations.Cairotookthepositionthatitsactions

wereconsistentwithitsinterpretationoftheagreement;thatitwouldnot

introduceadditionalmissilesinto thezonebutreservedtherightto“rotate”them

inandout;thatitwouldnotconstructanynewsitesbutreservedtherightto

“maintain”and“repair”existingones;thatIsraelwasviolating thecease‐fireand

thatAmericanarmssupplytoIsraelrancountertoassurancesgivenbyRogersas

wellasthecease‐fireagreement.



AtthisjunctureIadvisedthePresidentthatwewereexpendingallour

creditwiththeIsraelissimplytoestablishacease‐firebeforethetalkshadeven

begun.Andthesetalkswerecertaintobringevenmoredeep‐seated

disagreementstothesurface.TheSovietsandNasserwerelikelyto“betempted

tobelievethatwearewillingtoacquiesceintheirviolationsofthestandstill

cease‐fire,despiteourdirectwarningstothemandourpromisestoIsrael.This

hasseriousconsequencesforourcurrentinitiativeintheMiddleEast,thelonger

termprospectsfortheareagenerally,andUS‐Sovietrelations.”Itwascrucialto

takeaharderlineagainstviolationsofthecease‐fireandtobringtheir

responsibilitieshometotheSoviets.



Arationaldiscussionoftheseissueswasmadenexttoimpossiblebythe

extraordinarydiplomaticproceduresthathaddevelopedinthepreviouseighteen

months,andbythepersonalrivalrybetweenRogersandme.Nixon’spenchant

foroperatingthroughhisAssistantsratherthanhisCabinetcouldbemanaged—if

withgreattension—solongastheWhiteHousewasindeedincharge.Butwhen

operationalcontrolofsensitivenegotiationslefttheWhiteHouse,theweakness

ofthesystembecameglaring.TheStateDepartmentsimplydidnotknowenough

aboutthePresident’sthinkingtopursuethenuancesofhispolicy.Itstendencyto

nudgemattersinitsownpreferreddirectionandtointerpretPresidential

instructionsinamannercompatiblewithitspreconceptionsmademattersworse.

ItwasimpossibletoformulatePresidentialinstructionswithanyconfidencethat

theintangiblesunderlyingthemwouldbeunderstoodorimplemented.



IcouldhaveactedasanintermediaryhadmyrelationswithRogersbeen

happier.Butbythesummerof1970itwascleartohimthathewasbeing

excludedfromkeydecisionsonalmostallissuesexcepttheMiddleEast,orelse

broughtinsolatethathisrolewasthatofaratifierratherthanofapolicy

formulator.Indeed,itmusthaveoccurredtohimthatitcouldnotbe

happenstancethatsomanyPresidentialdecisionsweretakenwhenhewason

foreigntrips.Hispridedidnotlethimadmitthatthiscouldta keplaceonlyatthe

instanceofhisoldfriend,thePresident.Hethereforeblamedme.Norwashe

totallywrong.NixondistrustedStateandwantedse nsitive mattershandledby

theWhiteHousealone,butmypresencemadethetwo‐channelprocedures

possibleandIwasquitewillingtostepintothebreachtoconductnegotiations

withmysmallstaffandnointeragencyliaison.Theproceduressopainfulto

RogerswereclearlyinstigatedbyNixon;itisequallyevidentthatInurturedthem.

NeitherRogersnorImusteredthegracetotranscendanimpassethatweshould

haverecognizedwasnotinthenationalinterest.Ifwehadbeenpreparedto

overcomeournotinconsiderableegos,wecouldhavecomplementedeach

other’sefforts.Eventhen,ofcourse,therewouldhaveremainedlargeareasof

disagreementonpolicyandtactics.



TheMiddleEastwastheonesubjectonwhichRogerswasgiventhe

responsibilityandtheauthority.AndtheMiddleEastcease‐firehadseemedlikea

greattriumph,thefirstuncontrovertedachievementoftheNixonAdministration

inforeignpolicy.Understandably,Rogerswasreluctanttofacetheprospectthat

itmightfa il;hewasacutelysensitivetoanyhintofWhiteHouseinterference.He

tendedtoconsidermyconcernsasanattempttodeprivehimofhisonefieldof

glory.Siscowascaughtinthemiddle.Heroically,hesoughttonavigatebetween

conflicting,occasionallyirreconcilableperspectives,andtoremainloyaltoboth

hisSecretaryandhisPresident.Heoftensteadiedtheship,buthewasinno

positiontogiveitacleardirection.



OnlythePresidentcoulddothat,buthavingdecidednottorelyontheNSC

stafffortheMiddleEast,anddistrustingtheStateDepartmentmachinery,hewas

leftwithnoinstrumentforsustainedgovernmentalaction.Hisusualresponseto

controversyamonghisadviserswasprocrastination.InareasunderWhiteHouse

controlthisdidnoultimatedamagebecausetosomeextentIcouldmanage

eventsuntiltheyforcedaPresidentialdecision.Butinthepassionate

circumstancesoftheMiddleEasttheprocedureriskedbeingoutstrippedby

events—adangerreinforcedbyNixon’sannualAugustsojourninSanClemente,

whichslowedtheadministrativepaceonallPresidentialissues.Moreover,Nixon

wasstilltoyingwiththeideathatheshouldweighinpersonallywithaSoviet

summit.



AmeetinginSanClementeonAugust25ofthePresident,Rogers,Sisco,

andmeendedinconclusivelyandacrimoniouslyafterRogersaccusedmeof

seekingtofomentacrisisbybeingsoinsistentonceasefireviolations.Butcrises

cannotbeavoidedbydenyingthecircumstancesthatproducethemorblaming

thebearerofbadtidings.BytheendofAugusteventsbegantoasserttheirown

logic;wewereindangeroflosingourmarginfordecisionpreciselybecausewe

pretendedthatwecouldextenditthroughthestrenuousexerciseofgoodwill.



OnAugust28theSovietsputthemselvesclearlyonNasser’ssideinthis

dispute,seizingtheoccasionofaUScommunicationofAugust8thathad

informedthemwewouldbemonitoringthecease‐firewithU‐2reconnaissance

aircraft.(Ithoughtthatcommunicationamistakethenbecauseitwould

encouragetheSovietstotakeapositiononanactionwhichwasneededto

monitortheagreement.Itisgenerallyunwiseindiplomacytoraiseanissuewhen