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THIS D O C U M E N T IS T H E P R O P E R T Y O F H E R B R I T A N N I C M A J E S T V S G O V E R N M E N T
Printed
for the Cabinet.
March
1956
SECRET
C M .
Copy N o .
(56)
21st C o n c l u s i o n s
CABINET
CONCLUSIONS
of a Meeting of the Cabinet held in the Prime Ministers
Room,
House of Commons,
S.W.1,
on Friday, 9th March, 1956, at 10-15 a.m.
Present:
T h e R i g h t H o n . Sir A N T H O N Y E D E N , M . P . , P r i m e M i n i s t e r .
The Most H o n . the MARQUESS OF
SALISBURY, L o r d P r e s i d e n t of t h e
Council.
T h e Right H o n . HAROLD MACMILLAN,
M . P . , C h a n c e l l o r of t h e E x c h e q u e r .
T h e Right H o n . JAMES STUART, M . P . ,
S e c r e t a r y of State for S c o t l a n d .
The Right H o n . ALAN LENNOX-BOYD,
M . P . , S e c r e t a r y of S t a t e f o r t h e
Colonies.
The Right H o n . DUNCAN SANDYS, M.P.,
Minister
of H o u s i n g
a n d Local
Government.
T h e R i g h t H o n . D . HEATHCOAT A M O R Y ,
M.P.,
Minister
of
Agriculture,
Fisheries a n d Food.
The
R i g h t H o n . IAIN M A C L E O D , M . P . ,
Minister
Service.
of
Labour
and
The
National
Right
Hon.
HEPBURN,
M.P.,
The
Right H o n . R. A. BUTLER, M . P . ,
L o r d P r i v y Seal.
The Right
H o n . GWILYM LLOYDG E O R G E , M . P . , S e c r e t a r y of S t a t e f o r
the H o m e Department a n d Minister
for W e l s h Affairs.
T h e R i g h t H o n t h e EARL OF H O M E ,
S e c r e t a r y of S t a t e for C o m m o n w e a l t h
Relations.
T h e R i g h t H o n . Sir W A L T E R M O N C K T O N ,
Q.C., M . P . , M i n i s t e r of D e f e n c e .
T h e R i g h t H o n . PETER THORNEYCROFT,
M . P . , P r e s i d e n t of t h e B o a r d of T r a d e .
T h e R i g h t H o n . Sir D A V I D E C C L E S ,
M . P . , M i n i s t e r of E d u c a t i o n .
T h e R i g h t . H o n . the EARL OF SELKIRK,
C h a n c e l l o r of t h e D u c h y of L a n c a s t e r .
PATRICK
BUCHAN-
M i n i s t e r of W o r k s .
T h e following w e r e also p r e s e n t :
The Right H o n . ANTHONY NUTTING,
M . P . , M i n i s t e r of S t a t e f o r F o r e i g n
Affairs.
The Right H o n . EDWARD HEATH, M.P.,
P a r l i a m e n t a r y Secretary, Treasury.
Sir A L E C K I R K B R I D E (Item
1).
T h e R i g h t H o n . Sir N O R M A N B R O O K ,
49919-1
Secretary.
B
CONTENTS
Minute
No.
Subject
1
Jordan
2
F a r m Price R e v i e w
3
Israel
Page
.
...
...
3
4
...
...
...
...
5
Jordan.
(Previous
Reference:
C M . (56) 19th
Conclusions,
M i n u t e 1.)
1. The Prime
Minister
said t h a t h e h a d a s k e d Sir A l e c
K i r k b r i d e to a t t e n d this m e e t i n g of t h e C a b i n e t in o r d e r t h a t h e
m i g h t give his i m p r e s s i o n s of t h e p r e s e n t s i t u a t i o n i n J o r d a n .
Sir A l e c , w h o h a d served for m o r e t h a n t w e n t y y e a r s in J o r d a n a n d
h a d b e e n H . M . M i n i s t e r t h e r e u n t i l 1951, h a d h a p p e n e d t o b e i n
A m m a n o n p r i v a t e business at t h e t i m e w h e n G e n e r a l G l u b b
w a s dismissed. K i n g H u s s e i n h a d sent for h i m a n d , after d i s c u s s i n g
t h e s i t u a t i o n , h a d p r e s s e d h i m to c o m e specially t o L o n d o n i n o r d e r
to assure H e r Majesty's G o v e r n m e n t that neither the King nor the
G o v e r n m e n t of J o r d a n desired t o see a n y c h a n g e in t h e t r a d i t i o n a l
r e l a t i o n s of f r i e n d s h i p a n d c o - o p e r a t i o n b e t w e e n t h e t w o c o u n t r i e s .
F r o m t h e c o n v e r s a t i o n s w h i c h h e h a d h e l d in A m m a n , Sir A l e c w a s
satisfied t h a t t h e K i n g ' s dismissal of G e n e r a l G l u b b w a s n o t a s u d d e n
decision t a k e n in a m o o d of t e m p e r a m e n t a l instability, b u t d e r i v e d
f r o m a l o n g - s t a n d i n g dissatisfaction w i t h t h e w a y in w h i c h G e n e r a l
G l u b b h a d c o n t r o l l e d t h e A r a b L e g i o n . I t w a s essentially a n act
d i r e c t e d a g a i n s t G e n e r a l G l u b b p e r s o n a l l y ; it w a s n o t d e s i g n e d t o
disrupt Jordan's relations with the U n i t e d K i n g d o m ; and both the
K i n g a n d t h e P r i m e M i n i s t e r of J o r d a n w e r e n o w m o s t seriously
d i s t u r b e d at t h e possibility t h a t a l a s t i n g b r e a c h m i g h t t h e r e b y b e
c r e a t e d in t h e r e l a t i o n s b e t w e e n t h e t w o c o u n t r i e s . T h e i r p r i m a r y
object w a s t o p r e s e r v e t h e i n d e p e n d e n c e of J o r d a n , a n d t h e y
r e c o g n i s e d t h a t this c o u l d n o t b e p r e s e r v e d w i t h o u t t h e c o n t i n u i n g
f r i e n d s h i p a n d s u p p o r t of t h e U n i t e d K i n g d o m .
I n r e p l y t o q u e s t i o n s b y M i n i s t e r s , Sir A l e c K i r k b r i d e m a d e t h e
following p o i n t s : —
(a) T h e K i n g ' s a c t i o n h a d d e s t r o y e d t h e u n i t y of t h e A r a b
L e g i o n . W i t h o u t British officers in p o s i t i o n s of e x e c u t i v e c o m m a n d ,
t h e L e g i o n c o u l d n o t b e e x p e c t e d t o r e c o v e r its efficiency as a fighting
force. If, h o w e v e r , w e d e c i d e d o n t h a t a c c o u n t t o w i t h d r a w f r o m
J o r d a n , t h e H a s h e m i t e d y n a s t y in J o r d a n w o u l d fall a n d t h e c o u n t r y
itself w o u l d collapse. T h i s w o u l d h a v e s e r i o u s effects in I r a q . I t
w o u l d p r o b a b l y l e a d t o the fall of t h e H a s h e m i t e d y n a s t y , a n d t h e
e n d of British influence, in t h a t c o u n t r y a l s o . W e m u s t t h e r e f o r e
c o n t i n u e t o s u p p o r t J o r d a n in o r d e r t o p r o t e c t o u r vital i n t e r e s t s i n
Iraq.
(b) It w o u l d b e a m i s t a k e t o a t t e m p t t o b r i n g I r a q i n t o a n y
d i s c u s s i o n s w h i c h w e m i g h t n o w h a v e a b o u t t h e f u t u r e of o u r
r e l a t i o n s w i t h J o r d a n . T h e P r i m e M i n i s t e r of J o r d a n , w h o w a s i n
l e a g u e w i t h t h e S a u d i s , w a s a b i t t e r e n e m y of t h e P r i m e M i n i s t e r of
I r a q a n d w a s s t r o n g l y o p p o s e d to a n y closer a s s o c i a t i o n b e t w e e n
J o r d a n a n d I r a q . K i n g H u s s e i n w o u l d also r e s e n t a n y a t t e m p t b y
us t o i n s t i g a t e his relatives in I r a q to b r i n g p r e s s u r e t o b e a r o n h i m .
(c) T h e J o r d a n G o v e r n m e n t w e r e u n l i k e l y t o a c c e p t s u g g e s t i o n s
t h a t t h e y s h o u l d l o o k t o E g y p t or S a u d i A r a b i a , i n s t e a d of t h e U n i t e d
K i n g d o m , for financial assistance. T h e y r e a l i s e d t h a t s u c h
financial
s u p p o r t w o u l d n o t b e c o n t i n u e d for l o n g w h e n o n c e t h e link b e t w e e n
J o r d a n a n d t h e U n i t e d K i n g d o m h a d b e e n b r o k e n . T h e object of
t h e s e o t h e r A r a b States w a s to a b s o r b J o r d a n , n o t t o p r e s e r v e its
independence.
(d) T h e r e l a t i o n s b e t w e e n t h e U n i t e d K i n g d o m a n d J o r d a n h a d
b e e n seriously s h a k e n b y t h e e v e n t s of t h e l a s t few d a y s , b u t t h e
d a m a g e w a s n o t i r r e p a r a b l e a n d t h e s i t u a t i o n c o u l d b e r e s t o r e d if
p r o m p t action were taken. W h a t was immediately required was an
assurance that the United Kingdom Government were not proposing
t o w i t h d r a w t h e i r s u p p o r t f r o m J o r d a n , a n d a n offer t o discuss t h e
t e r m s o n w h i c h British officers m i g h t serve w i t h t h e A r a b L e g i o n
in t h e f u t u r e .
The Prime
Minister
t h a n k e d Sir A l e c K i r k b r i d e for t h e
i n f o r m a t i o n a n d e x p l a n a t i o n s w h i c h h e h a d given t o t h e C a b i n e t .
Sir A l e c K i r k b r i d e t h e n w i t h d r e w f r o m t h e m e e t i n g .
49919-1
B 2 4
D i s c u s s i o n s h o w e d t h a t t h e r e w a s g e n e r a l a g r e e m e n t in t h e
C a b i n e t t h a t it w o u l d b e i n e x p e d i e n t for t h e G o v e r n m e n t to b a s e
t h e i r policy o n t h e a s s u m p t i o n t h a t friendly r e l a t i o n s b e t w e e n this
country and J o r d a n could not be restored. T h e extent to which we
c o u l d c o n t i n u e o u r T r e a t y obligations to J o r d a n m u s t , h o w e v e r ,
d e p e n d o n t h e f u t u r e reliability of the A r a b L e g i o n . O u r first t a s k
s h o u l d t h e r e f o r e b e t o discuss w i t h the J o r d a n G o v e r n m e n t t h e basis
o n w h i c h B r i t i s h officers m i g h t b e associated w i t h t h e L e g i o n i n t h e
f u t u r e . I t m i g h t , for e x a m p l e , b e possible to p e r s u a d e the J o r d a n
G o v e r n m e n t t o a c c e p t a definite c o m m i t m e n t t o r e t a i n a n u m b e r of
B r i t i s h officers in given p o s t s for specific p e r i o d s . T h e s c o p e of
t h e s e d i s c u s s i o n s m i g h t s u b s e q u e n t l y b e w i d e n e d so as t o c o v e r t h e
m o r e g e n e r a l p r o b l e m of f u t u r e r e l a t i o n s b e t w e e n this c o u n t r y a n d
J o r d a n . B e f o r e this w i d e r q u e s t i o n w a s b r o a c h e d , h o w e v e r , w e
s h o u l d c o n s i d e r h o w w e c o u l d r e d u c e t h e e x t e n t of o u r o b l i g a t i o n s
u n d e r t h e e x i s t i n g T r e a t y . I n p r e s e n t c i r c u m s t a n c e s it s e e m e d
undesirable that we should retain under any Treaty with J o r d a n
obligations greater than those which we h a d undertaken by the
T r i p a r t i t e D e c l a r a t i o n of 1950.
T h e C a b i n e t t h e n c o n s i d e r e d the d r a f t of a p e r s o n a l m e s s a g e
f r o m t h e P r i m e M i n i s t e r t o t h e K i n g of J o r d a n a n d of a f o r m a l n o t e
t o t h e J o r d a n G o v e r n m e n t . T h e first of t h e s e w a s i n t e n d e d as a
r e p l y t o K i n g H u s s e i n ' s m e s s a g e to t h e P r i m e M i n i s t e r in T e l e g r a m
N o . 364 f r o m A m m a n . Its p u r p o s e w a s t o m a k e it plain t h a t t h e
U n i t e d K i n g d o m G o v e r n m e n t w e r e p r e p a r e d t o m a t c h a n y efforts
which the J o r d a n G o v e r n m e n t might n o w be ready to m a k e to
s t r e n g t h e n t h e A n g l o - J o r d a n alliance. T h e s e c o n d draft, w h i l e
reaffirming t h e d e c i s i o n t h a t British officers c o u l d n o t n o w h o l d
p o s i t i o n s of e x e c u t i v e c o m m a n d in t h e A r a b L e g i o n , suggested t h a t
d i s c u s s i o n s s h o u l d b e h e l d a b o u t the t e r m s o n w h i c h British officers
m i g h t s e r v e i n J o r d a n in t h e f u t u r e .
I n d i s c u s s i o n v a r i o u s suggestions w e r e m a d e for a m e n d m e n t
of t h e s e t w o d r a f t s . I t w a s also a g r e e d t h a t t h e y s h o u l d b e
a c c o m p a n i e d b y a t e l e g r a m of i n s t r u c t i o n s t o H . M . A m b a s s a d o r
i n A m m a n m a k i n g it clear t h a t t h e discussions w h i c h h e w a s
a u t h o r i s e d to o p e n w i t h t h e J o r d a n G o v e r n m e n t s h o u l d at this s t a g e
b e c o n f i n e d t o q u e s t i o n s affecting t h e service of British officers in
J o r d a n , n o w a n d in t h e f u t u r e , a n d t h a t h e s h o u l d n o t e m b a r k o n t h e
w i d e r issue of f u t u r e r e l a t i o n s b e t w e e n t h e U n i t e d K i n g d o m a n d
J o r d a n u n t i l h e h a d received further i n s t r u c t i o n s .
The Cabinet—
(1) I n v i t e d t h e M i n i s t e r of State for F o r e i g n Affairs t o revise t h e
drafts of the m e s s a g e to K i n g H u s s e i n a n d of the n o t e t o
t h e J o r d a n G o v e r n m e n t , i n t h e light of the c o m m e n t s
m a d e i n the C a b i n e f s discussion, a n d t o p r e p a r e a draft
of the i n s t r u c t i o n s t o H e r M a j e s t y ' s A m b a s s a d o r at
A m m a n which should accompany those messages.
(2) T o o k n o t e t h a t t h e Minister of S t a t e for F o r e i g n Affairs
w o u l d s u b m i t drafts of these t h r e e t e l e g r a m s for t h e P r i m e
Ministers approval.
F a r m Price
Review.
(Previous
Reference :
C M . (56) 2 0 t h
Conclusions,
M i n u t e 10.)
2. The Minister
of Agriculture
said t h a t , after t h e C a b i n e f s
m e e t i n g o n t h e p r e v i o u s d a y , h e h a d c o m m u n i c a t e d t o Sir J a m e s
T u r n e r , the P r e s i d e n t of t h e N a t i o n a l F a r m e r s ' U n i o n , the G o v e r n ­
m e n f s decision t h a t t h e c u r r e n t review of f a r m prices s h o u l d b e
c o n c l u d e d o n t h e basis of a schedule of g u a r a n t e e s r e p r e s e n t i n g a n
i n c r e a s e of £ 2 4 millions, as c o m p a r e d w i t h t h e p r e v i o u s year, a n d
i n c l u d i n g a n i n c r e a s e of \d. a gallon in t h e g u a r a n t e e d price for milk.
Sir J a m e s T u r n e r h a d n o w indicated t h a t t h e f a r m e f s w o u l d b e
p r e p a r e d t o a c c e p t a s e t t l e m e n t o n t h e basis of a figure of
i f
£ 2 5 ^ millions w i t h a s o m e w h a t different s c h e d u l e of g u a r a n t e e s ,
i n c l u d i n g a n i n c r e a s e of \d. a g a l l o n o n milk. T h e M i n i s t e r said t h a t
he c o u l d n o t r e c o m m e n d a c c e p t a n c e of t h e latest s c h e d u l e p u t
f o r w a r d o n behalf of t h e f a r m e r s : in p a r t i c u l a r h e w o u l d n o t b e in
f a v o u r of i n c r e a s i n g t h e price of m i l k b y m o r e t h a n %d.: b u t h e w a s
disposed, for t h e s a k e of a n a g r e e d s e t t l e m e n t , t o offer a r a t h e r
different s c h e d u l e of g u a r a n t e e s r e p r e s e n t i n g a t o t a l i n c r e a s e of
£25!- millions.
The Chancellor of the Exchequer
said t h a t , in view of t h e c o u r s e
w h i c h t h e n e g o t i a t i o n s h a d t a k e n , t h e r e w a s m u c h t o b e s a i d for
imposing a settlement.
I t w o u l d b e difficult for t h e f a r m e r s t o
criticise effectively a s e t t l e m e n t a t £ 2 4 m i l l i o n s w h e n it w o u l d be
k n o w n t h a t they h a d b e e n r e a d y to a c c e p t o n e of £25-J millions. H i s
o w n p r e f e r e n c e w a s t h e r e f o r e for a d h e r i n g t o the d e c i s i o n w h i c h the
C a b i n e t h a d r e a c h e d o n t h e p r e v i o u s d a y . If, h o w e v e r , a n a d d i t i o n a l
£1 million w a s t o be offered it w a s i m p o r t a n t t h a t the i n c r e a s e t o b e
m a d e s h o u l d be o n e w h i c h c o u l d b e justified o n e c o n o m i c g r o u n d s .
H e w o u l d b e strongly o p p o s e d t o a n y f u r t h e r i n c r e a s e in t h e p r i c e of
milk.
D i s c u s s i o n s h o w e d t h a t o p i n i o n in t h e C a b i n e t w a s d i v i d e d o n
this q u e s t i o n .
S o m e M i n i s t e r s s a w positive a d v a n t a g e in i m p o s i n g a s e t t l e m e n t
o n this occasion. T h e y t h o u g h t t h a t this w o u l d be c o n s i s t e n t w i t h
t h e G o v e r n m e n t s g e n e r a l e c o n o m i c policy a t this t i m e . I t w o u l d
h e l p t h e G o v e r n m e n t t o justify decisions w h i c h t h e y m i g h t
s u b s e q u e n t l y be r e q u i r e d t o t a k e in r e s p e c t of o t h e r i n d u s t r i e s . I t
w o u l d also b e likely t o h a v e a s a l u t a r y effect in s t r e n g t h e n i n g the
f a r m e r s ' o p p o s i t i o n t o f u r t h e r w a g e claims b y f a r m w o r k e r s .
O t h e r M i n i s t e r s t h o u g h t it w o u l d b e u n w i s e t o f o r e g o this
o p p o r t u n i t y of a r r i v i n g a t a n a g r e e d s e t t l e m e n t w i t h t h e f a r m e r s . I t
w o u l d n o t seem r e a s o n a b l e to h a v e b r o k e n off n e g o t i a t i o n s w h e n the
g a p d i v i d i n g the t w o p a r t i e s w a s s o small a figure as £1 million. T h e
G o v e r n m e n t h a d b e e n r i g h t t o s h o w t h a t , in p r e s e n t e c o n o m i c
c i r c u m s t a n c e s , t h e y w e r e r e s o l v e d t o d e a l firmly w i t h t h e f a r m e r s ; b u t
they h a d a c h i e v e d t h a t object b y r e d u c i n g t h e f a r m e r s ' d e m a n d f r o m
£41 millions t o £ 2 5 millions. A n i m p o s e d s e t t l e m e n t w a s likely t o
give rise t o political difficulties in t h e H o u s e of C o m m o n s a n d
b i t t e r n e s s in the r u r a l c o n s t i t u e n c i e s .
T h e r e w a s , h o w e v e r , a g r e e m e n t in t h e C a b i n e t t h a t , e v e n if
a n o t h e r £1 million w e r e t o b e c o n c e d e d , n o c o n c e s s i o n s h o u l d be
m a d e t o t h e f a r m e r s o n t h e prices of milk, eggs o r pigs. I n all the
c i r c u m s t a n c e s t h e best c o u r s e w o u l d b e for the M i n i s t e r of
A g r i c u l t u r e t o i n f o r m Sir J a m e s T u r n e r t h a t t h e G o v e r n m e n t w e r e
n o t p r e p a r e d to i n c r e a s e t h e g u a r a n t e e d p r i c e of milk b y m o r e t h a n
\d. a gallon, a n d t o see w h e t h e r h e h a d a n y o t h e r p r o p o s a l t o p u t
forward.
The Cabinet—
A u t h o r i s e d t h e M i n i s t e r of A g r i c u l t u r e t o i n f o r m t h e
P r e s i d e n t of t h e N a t i o n a l F a r m e r s ' U n i o n t h a t the
G o v e r n m e n t were not prepared to increase the guaranteed
price of m i l k b y m o r e t h a n \d. a gallon.
Israel.
(Previous
Reference :
C M . (56) 17th
Conclusions,
M i n u t e 4.)
3. The Minister
of State for Foreign Affairs recalled t h a t at
their m e e t i n g o n 2 8 t h F e b r u a r y t h e C a b i n e t h a d n o t e d t h a t , in his
f o r t h c o m i n g visit to I s r a e l , t h e F o r e i g n S e c r e t a r y w o u l d a v o i d a n y
a c t i o n impliedly r e c o g n i s i n g J e r u s a l e m as its capital. T h e F o r e i g n
Secretary h a d a c c o r d i n g l y p r o p o s e d t h a t h e s h o u l d call o n t h e Israeli
F o r e i g n M i n i s t e r in T e l A v i v a n d o n t h e P r i m e M i n i s t e r in J e r u s a l e m .
H e h a d b e e n t o l d in r e p l y t h a t it w o u l d b e i m p r a c t i c a b l e for t h e
Israeli F o r e i g n M i n i s t e r t o receive h i m f o r m a l l y in Tel A v i v . T h e
F o r e i g n S e c r e t a r y c o u l d n o w decline t o visit J e r u s a l e m , a c c e p t i n g t h e
risk t h a t t h e Israeli G o v e r n m e n t m i g h t say t h a t in t h a t e v e n t they
w o u l d prefer t h a t h e s h o u l d n o t visit Israel at all. A l t e r n a t i v e l y , h e
could c a r r y o u t t h e p r o g r a m m e w h i c h t h e y suggested, b u t issue a
public s t a t e m e n t thereafter m a k i n g it clear t h a t this d i d n o t i m p l y
r e c o g n i t i o n of J e r u s a l e m as Israel's capital. T h e first of t h e s e c o u r s e s
was m o r e in a c c o r d w i t h t h e policy w h i c h w e h a d h i t h e r t o p u r s u e d ,
b u t it m i g h t give rise t o political criticism in P a r l i a m e n t .
I n d i s c u s s i o n it w a s suggested t h a t in this m a t t e r t h e F o r e i g n
Secretary s h o u l d b e g u i d e d by t h e p r e c e d e n t established b y t h e U n i t e d
States S e c r e t a r y of State. If h e p a i d the s a m e visits a s M r . D u l l e s
h a d d o n e , this s h o u l d give rise t o n o political criticism. If h e m a d e
this offer a n d t h e Israeli G o v e r n m e n t rejected it, h e c o u l d t h e n offer
to visit T e l A v i v b u t n o t J e r u s a l e m .
The Cabinet—
I n v i t e d the M i n i s t e r of S t a t e for F o r e i g n Affairs t o a d v i s e
t h e F o r e i g n Secretary in t h e sense of their discussion.
Cabinet Office, S.W. 1,
9th March,
1956.