INTERNATIONAL REVIEW SERVICE
B 1,635,781
ANALYSIS AND Review of INTERNATIONAL PROBLEMS
REV
BUHR
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63.1
.M633
1958
THE MIDDLE EAST
Unification Among Arab States
Edited by
A. G. Mezerik
Vol. IV No. 42
May 1958
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INTERNATIONAL REVIEW SERVICE
A.G. MEZERIK Editor
PHYLLIS GREENE Associate Editor
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CABLE: UNOVIRS
THE MIDDLE EAST: UNIFICATION AMONG ARAB STATES
Contents
Emergence of the United Arab Republic......
Yemen Association With United Arab Republic
Aden Important to Britain.....……………………..
Egyptians and Syrians Become Single Nationality.....
Former Egyptian and Syrian State Structures
UAR Constitution Vests Wide Powers in Chief Executive
Foreign Policies Coalesce
UN Representation Also Merges
No Change in Agreements with Israel
Integration of Economy Difficult due to Disparities
Positive Neutralism UAR Policy
Soviet Support of Egypt and Syria.....
Ideal of Arab Unity Common to Egypt and Syria
Previous Attempts at Arab Unity
The Arab Federation of Iraq and Jordan
Iraq and Jordan Government Structures
Strong Opposition to King in Jordan
Structure of Iraq-Jordan Federal Government
Effects of Federation on Israeli Treaties....
....
US Takes Over Jordan Subsidy.
Iraq Competes for Arab Leadership
Aid from West and Soviet Union
Oil - Richest Middle East Resource
Saudi Arabia Remains Outside Federation
The Pressure of Unification for the Sheikhdoms
Arab Nationalism Manifest in Suez Crisis
The Arab League
Lebanon Seeks to Stay Unattached
Chronology: Arab League Through 1958 Unifications....
References and Bibliography
……
……….
...:..
Appendixes:
A. Proclamation of the United Arab Republic
B. Provisional Constitution of the United Arab Republic
C. Charter of the Creation of the United Arab States
D. Proclamation of the Arab Federation of Iraq and Jordan
E. Provisional Constitution of the Arab Federation of Iraq and Jordan
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A. G. Mezerik 1957
THE MIDDLE EAST
The two movements toward unification in the Middle East fol-
Each merger
Unification Among Arab States
lowed close on one another, occuring at a time when the cold war
antagonists had intensified their preoccupation in the area.
the United Arab Republic, consisting of Egypt
and Syria and together with Yemen forming the United Arab States,
and the Arab Federation of Iraq and Jordan -- was proclaimed in the
spirit of Arab unity and dedicated to the eventual unification of all
Arab countries. Both federations have left room for adherence by
other Arab states.
G
Emergence of the United Arab Republic
The United Arab Republic fuses the Republics of Egypt and of
Syria into a single state, with one head, one legislature, one flag, one
constitution and one army.
The new state was proclaimed on 1 February 1958 on the decision
of 25 Egyptian and Syrian leaders meeting for one day in Cairo. Four
days later, the Presidents of Syria and Egypt announced this decision
to amalgamate to their Parliaments both of which nominated the
President of Egypt, Gamal Abdel Nasser, as the candidate for Presi-
dent of the new nation.
-
Approval by Plebiscite
On 21 February 1958, Egyptian and Syrian voters gave virtually
M
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The Middle East: Unification Among Arab States
unanimous approval to the union and to the designation of Mr. Nasser
as first President of the new republic. The vote was
Egypt: 6,102,128 Yes
(Reference 3).
-
For union
247 No
Syria: 1,312,759 Yes
39 No
For Nasser Egypt: 6,102,116 Yes
265 No
Syria: 1,312,809 Yes
186 No
The voting had wide public participation. Almost all eligible
Egyptians voted, and the Syrian vote represented 91.75 percent of the
voting roll more than double the turnout in regular elections.
(Reference 3).
Governments Resign, Parliaments Dissolved
On the completion of the plebiscite, the President of Syria, Shukri
al-Kuwatly, and his cabinet sent in their resignations to President
Nasser, as did the Egyptian cabinet. The two legislatures the
Egyptian National Assembly and the Syrian Chamber of Deputies
were dissolved. The flag of the new nation that of the 1952 Egyptian
revolution was raised over the Kubbah Palace in Cairo, the United
Arab Republic's capital. Within a short period, the new state received
recognition from many governments.
<
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International Review Service Vol. IV No. 42
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Yemen Association With United Arab Republic
On 2 March 1958, the Kingdom of Yemen announced that it was
joining the month-old United Arab Republic. This association was
formalized in Damascus on 8 March by an agreement entered into be-
tween President Nasser and Yemeni Crown Prince Saif al-Islam Mo-
hammed al-Badr, Yemen's act of association with the UAR does not
unite it with Egypt and Syria, but federates Yemen with the United
Arab Republic in a grouping called the United Arab States. In this
grouping, each of the parties keeps its own system of government.
The Charter for the Creation of the United Arab States calls for
a Supreme Council, composed of the heads of state - President
Nasser and the Imam (King) Ahmad which ''defines the higher poli-
cy of the Union with regard to political, defense and economic affairs".
(Reference 4). Functioning under the Supreme Council is a Union
Council, made up of an equal number of representatives of the UAR
and Yemen. The Presidency of the Union Council rotates between the
two countries annually. The permanent seat of the United Arab States
is the Yemeni port of Hodayeda. Through joint economic and cultural
councils, coordination of fiscal and educational policies is envisaged.
Yemen will pay 3 percent of the United Arab States budget. (Reference 5).
Glend
P
Yemen Act of Federation Affects UK and Aden
-
The UAR and Yemen can, under the Charter, consolidate their
diplomatic representation abroad, but this has not so far been done in
the case of United Nations representation. The foreign policies of the
UAR and Yemen are, however, unified. This brings the United Arab
4
The Middle East: Unification Among Arab States
Republic into direct involvement in the territorial dispute which Yemen
has with Britain over the British colony of Aden. Armed clashes over
the Yemen-Aden border have led to charges and counter-charges by
Yemen and Britain to the United Nations Security Council.
Aden Important to Britain
Aden has great value to the UK. Situated at the southern entrance
to the Red Sea, it was at one time a key coaling station on the route
from the Mediterranean to India. Today Aden is the location of oil
installations of vast commercial importance and one of the chief ports.
in the British Commonwealth. It is the base on which Britain relies
to support the defense of its oil supplies from the Persian Gulf.
British troops are now fighting in Aden against uprisings of peo-
ple of the protectorate, including forces of the Sultan of Lahej, one of
the major regional leaders. The armed forces of Yemen have been
fighting the British over Aden for some years.
Yemeni Army Now Commanded by Nasser
The Yemeni army, equipped recently by the USSR, now becomes,
in the new federation, unified with the army of the United Arab Re-
public, under the commander-in-chief, President Nasser. Yemen has
been allied militarily with Egypt since 1956.
Internal Rule in Yemen Unaffected
The government of Yemen, a dynastic monarchy whose method of
governing has remained unchanged since the Middle Ages, is unaltered
International Review Service Vol. IV No. 42
5
by the act of federation. Yemen's 4.5 million people do not change
their nationality or citizenship.
Egyptians and Syrians Become Single Nationality
The 24 million people of Egypt and 4 million of Syria are now
"'one people" citizens of the United Arab Republic, "in a unity where
all will share equal rights and duties". (References 6 and 7). They do not
need passports and visas to travel between Syria and Egypt. These
countries now have the designation of "regions" of the UAR, with
Syria called the Northern Region and Egypt, the Southern.
1
Former Egyptian and Syrian State Structures
Before the unification, Egypt was, by the constitution adopted in
1956, an Islamic Arab State under a republican and democratic form
of government. It had a President (Nasser) and a 350-member Na-
tional Assembly, elected through universal suffrage. The population of
Egypt is 91 percent Moslem, 7.89 percent Christian and .34 percent
Jewish. Education, on the statute books, is compulsory over the age
of seven and free through high school. Military service is compulsory
for all.
Practically, Egypt has, since July 1952, been a military dictator-
ship with but a single political party. Key figures in the government
were the members of the Society of Free Officers of the Egyptian
Army, headed by Col. Nasser, who forced the abdication of King Farouk.
Syria, independent only since 1944, when the French League of
Nations mandate ended, was also a republic. The government was
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The Middle East: Unification Among Arab States
modeled on that of France, consisting of a Chamber of Deputies, a
Premier and a President -- Sabri el-Assali and Shukri al-Kuwatly,
respectively, at the time of merger. This pattern of government was
set up by the Constitution of 5 September 1950, but had recently been
in effect only since early 1954, when the military dictatorship of Brig.
Gen. Qdib Shishekly was ended. The population of Syria is 75 percent
Moslem and 25 percent Christian and some Jewish. Education is free.
The President was by law required to be Moslem.
Political Parties Banned
As in France, many political parties were represented in the
Syrian Chamber of Deputies. This included the Communist, which had
one representative. With the establishment of the United Arab Repub-
lic, all the Syrian parties were dissolved to form a single party
called the National Front which merges with the National Front of
Egypt. Within the one-party system of Egypt, the Communist Party
has been, of course, illegal; a number of Egyptian communists are in
jail.
The government of Syria was a coalition dominated by the socialist
Baath National Resurrection Party, also called the Hourani Party, after
its leader. At the time of the creation of the United Arab Republic,
dissension almost constant in recent Syrian political life was
threatening to topple this coalition.
Most of the leaders of the last Syrian government have retained
high office in the United Arab Republic.
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UAR Constitution Vests Wide Powers in Chief Executive
the UAR voters
The provisional constitution of the United Arab Republic, signed
by President Nasser on 5 March, is designed to cover a transitional
period to last until a final constitution is written and is approved by
estimated at two or more years. The constitution
defines the UAR as a "democratic republic" (Article I) and provides
for a parliamentary system of government. It does not, as was the
case with Egypt, name a state religion.
The President, who is both chief of state and head of government,
is vested by the interim constitution with wide powers. These powers
are wider than those he had under the 1956 Egyptian constitution. They
include that of deciding when the interim form of government will be
terminated by a final constitution and referendum.
President Chooses All Government Officers
The President, who selects the ministers, also appoints an un-
limited number of vice presidents and the executive councils which
govern each of the two regions. These appointees, rather than form-
ing a collegial executive organ with collective responsibility, are in-
dividually responsible to the President. The President alone, as
stipulated in Article 47, lays down the general policy of the republic.
(Reference 8).
Legislature Not Based on Direct Representation
Decisive powers in the legislative sector of government are also
delegated to the President. He selects all the members of the
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The Middle East: Unification Among Arab States
legislature -- to be called the National Assembly
although half of
these must come from the former Egyptian and Syrian national legis-
latures, which were elected by the people. The constitution does not
delimit a term of office for the legislators.
The President has further prerogatives over legislation. He has
the right to dissolve the National Assembly with no conditions except
that of convoking a new assembly within 60 days. While the assembly
is in recess or "should the necessity arise", the President "may enact
decrees having the force of law or take decisions originally lying with-
in the competence of the assembly". These decisions must be sub-
mitted to the assembly whenever it next meets, but a two-thirds
majority is required to annul the Presidential decrees. (Article 53).
Foreign Policies Coalesce
under Mahmoud Fawzi, who was
now serves the United Arab Republic.
A single foreign ministry
Egyptian foreign minister
Egypt and Syria no longer have separate representation abroad, from
the consular to the ambassadorial level. Damascus, formerly the
capital of Syria, no longer houses embassies and legations; foreign
diplomatic representations in Damascus are now limited to consulates.
<
Gla
UN Representation Also Merges
The UAR, on 1 March 1958, notified Secretary-General Dag
Hammarskjold that it would be represented in United Nations as a
single member.
(Reference 9). On 7 March, the first manifestation
of the change took place at a meeting of the Trusteeship Council in
International Review Service Vol. IV No. 42
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New York, when the placard of Syria was changed to read, "United
Arab Republic". The names of Egypt and Syria now disappear in cur-
rent UN activities, such as the General Assembly and other UN bodies
among them the Disarmament Commission and the Collective Mea-
sures Committee, on which Egypt is represented. The UAR takes the
place of both Egypt and Syria, with Omar Loutfi, former Egyptian
permanent representative to the UN, now representative of the UAR.
International Obligations of Egypt and Syria Remain in Force
All international treaties and agreements concluded in the past by
Egypt or Syria will remain valid for the region which signed them.
This constitutional provision has been interpreted by UN Secretary-
General Hammarskjold as implying no change in agreements between
UN and Egypt on the stationing of United Nations Emergency Force
contingents in Egyptian-administered Gaza, Sharm el-Sheikh and
along the Egyptian-Israeli armistice line.
(Reference 10).
<<
No Change in Agreements with Israel
Similarly, no change is effected in the Egyptian-Israeli or Syrian-
Israeli armistice agreements of 1949 or in the structure of the com-
pliance machinery set up under these agreements. This machinery in-
cludes the Egyptian-Israeli and the Syrian-Israeli Mixed Armistice
Commissions and the UN Truce Supervision Organization.
The Mixed Armistice Commissions comprise three representa-
tives each from the armed forces of the parties to the truce. The
commissions serve as the tribunals to which cases of violation of the
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The Middle East: Unification Among Arab States
armistice are taken. The UN Truce Supervision Organization
(UNTSO) has no members from the parties to the Armistices. The
structure of these bodies remains unimpaired. However, they no longer
on the Arab side under two national governments and two
policies, but under a single policy, emanating from Cairo -- which al-
so controls the armed forces on both borders.
operate
C
..
Single Army Now on Israeli Borders with Syria and Egypt
The former Egyptian and Syrian forces are integrated into one
United Arab Republic army. Measures to integrate the armed forces
have been given priority over measures to integrate the economy
also a stated UAR goal.
Integration of Economy Difficult Due to Disparities
While there is a single UAR ministry of defense, realization of
integration of the two economies has begun on a more gradual basis.
Separate ministries of trade and economy and of agriculture are being
retained in Damascus and Cairo.
Rapid amalgamation of the two national economies is made diffi-
cult by the vast differences between them. Egypt has had a controlled
economy and strictly regulated currency
pegged to the British pound
sterling. Syria's economy has been free as has its currency, which is
geared to the French franc. Syrian money is worth more on the world
market than Egyptian. Land ownership in Egypt has been limited by
government action; in Syria, no land reforms or limitations on owner-
ship of land have been enacted.
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International Review Service Vol. IV No. 42
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Syria has a generally higher standard of living than Egypt, and
has been experiencing a comparatively rapid economic growth
though neither country has large known resources and both have little
industrialization. Syria has more fertile land per capita than Egypt
and is, compared to Egypt, underpopulated. (References 11 and 12).
al-
Ja
Viability of the UAR
The disparities between Egypt and Syria and the fact that the two
countries are not contiguous but separated by Israel and Lebanon may
affect the viability of the union. However, Syria and Egypt have worked
closely in the past, and the two countries have been formally allied
since 1955, when, with Saudi Arabia, they set up a joint command of
their armed forces under Egyptian Major General Abdel Hakim Amer.
This alliance was made during the period of the formation of the Bagh-
dad Pact, which Iraq joined in February 1955.
Egypt, from the outset, had labeled the Baghdad Pact an instru-
ment of Western imperialism deliberately designed to split the Arab
world.
G
Positive Neutralism UAR Policy
Syria, following Egypt's lead, adopted a policy in the cold war
characterized by President Nasser as "positive neutralism". This
policy, in effect, took both countries out of the Western sphere of in-
fluence. Egypt made an arms deal with the Soviet bloc in September
1955, and Syria followed by accepting Soviet arms and economic aid
in 1957. Syria also joined Egypt in recognizing the People's Republic
12
The Middle East: Unification Among Arab States
of China. In each case, Yemen also followed Egypt's example.
Soviet Support of Egypt and Syria
During the Suez crisis of 1956, the USSR gave help to Nasser by
threatening England and France with Soviet missiles and with Soviet
"volunteers" to fight against them in Egypt. This offer of Soviet help
has been described as decisive by President Nasser.
The Soviet Union also threatened to intercede with armed support
of Syria in the Syria-Turkey crisis of 1957, when the US and the West
supported Turkey. Soviet threats of intervention in behalf of Syria
were met by US warnings that it would retaliate if Turkey were at-
tacked. The crisis abated without armed involvement of the two big
powers. Egypt did send forces to Syria. These included men, planes
and arms.
Ideal of Arab Unity Common to Egypt and Syria
The basis for Egypt's action in the Syria-Turkey crisis was not
only common defense but also Arab nationalism. Both President
Nasser and former President al-Kuwatly credit Arab nationalism with
a highly important role in the unification of Syria and Egypt.
President Nasser is recognized as a leader of Arab nationalism
and is identified with the goal of Arab unity by large masses of people
in all Arab countries. Syria, in particular, has been a strong pro-
ponent of a single Arab nation and Damascus has been the seat of many
pan-Arabic movements.
International Review Service Vol. IV No. 43
13
Previous Attempts at Arab Unity
The UAR is not the first of the Arab unity movements. Greater
Syria and the Fertile Crescent were earlier proposals aiming at the
union of Syria, Palestine, Iraq and Jordan. These plans originated,
under British influence, in Baghdad after World War I. They were
rejected by Syria as being designed "to tie (Syria) to the wheel of
foreign influence and domination" a characterization made most
recently by Syrian President al-Kuwatly. (Reference 33).
This same reason imperialist instigation -- is given by the
United Arab Republic for its opposition to the merger of the Arab
states of Jordan and Iraq which was consummated two weeks after the
Egypt-Syria unification.
Arab Unity Basis of Both Mergers
On 14 February 1958, the Hashemite Kingdoms of Iraq and Jordan
were joined together at Baghdad. Just as the unity of all Arab peoples
was the stated goal of the unification of Egypt and Syria, so the Iraq-
Jordan merger also has as its stated basis this same Arab unity. In
other respects, the Iraq-Jordan merger is much different from the
United Arab Republic and opposes the UAR, characterizing it as an
"'unnatural union". (Reference 13).
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S
The Arab Federation of Iraq and Jordan
The Arab Federation of Iraq and Jordan unites two contiguous
kingdoms, ruled by monarchs who are cousins in the Hashemite dynasty.
King Faisal of Iraq and King Husein of Jordan are great grandsons of
the Sharif Husein, who in alliance with Great Britain --led the Arab
14
The Middle East: Unification Among Arab States
Revolt against the Ottomon Empire during World War I. The 1916 revolt
ended in defeat for the Turks. Their successors in hegemony over the
Arab world were the British.
Iraq and Jordan were created by the British as kingdoms for
Husein's sons Faisal I and Abdullah. These kingdoms have retained
strong British ties -- first as mandates of Britain under the League of
Nations, and later through military, commercial and economic agree-
ments.
Iraq and Jordan Government Structures
The British mandate over Iraq ended in 1936, and Iraq joined the
League of Nations. Iraq has had the same form of government since
1924 -- a constitutional monarchy with a popularly-elected Chamber
of Deputies and a Senate appointed by the King. Of the 4.8 million
people, most are Moslem.
Jordan did not become independent until 1946. The present system
of government was set up by the constitution of January 1952. This
gives legislative power to a Parliament, comprising a Senate nominated
by the King and a House of Representatives elected by the people. The
country has recently been ruled under martial law, imposed by King
Husein in April 1957.
Strong Opposition to King in Jordan
More than one-half of Jordan's 1.5 million citizens are Palestinians
either refugees from Israel or residents of the area of Palestine
which Jordan annexed as a result of the Palestine War of 1948. Since
they are a majority in Jordan, these Palestinians wield enormous
International Review Service Vol. IV No. 43
15
blame the West
political power and this has been directed against the King, whose
pro-Western orientation they regard as unfriendly to them. They
through the creation of Israel -- for their plight.
Most of this group support the anti-Israel, anti-imperialist policies
enunciated by President Nasser of Egypt.
Iraq and Jordan Retain Separate Governments
The individual kingdoms of Iraq and Jordan are not now super-
seded or amalgamated by their act of federation, which became effective
on 12 May 1958. Under the agreement of federation, signed on 14
February 1958 by King Faisal and King Husein, each of the two states
preserves its state entity, its sovereignty and its existing government.
No change in status is involved for the people of Iraq and Jordan,
who remain citizens of their respective countries. Women do not have
voting power in either country. Both countries have outlawed the
Communist Party.
-
Structure of Iraq-Jordan Federal Government
The federal government set up under the federation constitution
comprises an executive head, the King of Iraq; a federal legislative
council divided equally between Iraqi and Jordanian representatives;
a council of ministers appointed by the federation head, and a supreme
court, in which the two countries are represented equally. The capital
of the federated government alternates every half year between Baghdad
and Amman. (Reference 15).
The government of the federation is distinct from the national
governments; members of the federation bodies cannot serve simul-
taneously in national government organs.
16
The Middle East: Unification Among Arab States
The flag of the federation is that of the Arab Revolt of 1916 on
which the Hashemite federation bases itself -- but Iraq and Jordan also
retain their own flags. (Reference 16).
Foreign Affairs and UN Representation
Foreign affairs of both countries including diplomatic and consu-
lar representation -- now come under the jurisdiction of the federal
government. However, Jordan and Iraq continue to maintain their
separate representations in UN. Other Iraqi and Jordanian foreign
missions will be unified, although consulates remain separated.
Effects of Federation on Israeli Treaties
B
Treaties, including the Israel-Jordan armistice agreement, to
which either member of the federation is a party, remain in effect for
that party which signed them. Iraq belongs to the Baghdad Pact, but
Jordan never has joined, and the new federation arrangement does not
necessitate its joining.
Iraq, although its armies fought against Israel in the Palestine War
of 1948, does not have an armistice agreement with Israel. This has
led Israeli Premier David Ben-Gurion to state, regarding the possibili-
ties presented by unification of the Iraqi and Jordanian armies: "If the
Iraqi army approaches the Jordan, we will have to reserve our liberty
of action there." (Reference 14).
Armies Remain Separate
The armies of Iraq and Jordan will not be integrated, the King of
each country maintaining command over armed forces stationed in his
International Review Service Vol. IV No. 43
17
territory. The King of Iraq, however, is now commander-in-chief of
both forces which together are called the Arab Army. Defense is
the responsibility of the federation government.
Through the unification of the armies under the federation, Jordan
will benefit from the sizable military assistance which Iraq receives
through its alliances with the West.
Jordan Unable to Stand Alone Financially
Jordan has few resources and has never been able to exist without
subsidies. Jordan had from its birth depended for its security, and
subsistence, on Britain. The Jordanian army the Arab Legion
was British trained and equipped and was led by a Briton, Sir John
Bagot Glubb, from its inception in 1939 until King Husein dismissed
him in March 1956. Aside from defense, Jordan received from Britain
an annual subsidy of $35 Million.
In January 1957, King Husein abrogated the Jordanian-British
treaty, terminating the British subsidy. Egypt, Syria and Saudi Arabia
signed an agreement on 13 January 1957 to provide Jordan with the
$35 Million to replace the British subsidy. Of the three countries,
only Saudi Arabia paid, giving Jordan a total of $14 Million.
G
US Takes Over Jordan Subsidy
With the withdrawal of the British and the failure of the three
Arab states to replace the British subsidy, the United States became
the mainstay of Jordanian finances.
The US move toward support of Jordan was made in April of 1957,
when the regime of King Husein was in danger of overthrow by pro-Nasser
18
The Middle East: Unification Among Arab States
factions of the army and the population. At that time, the US stated that
the independence and integrity of Jordan were "vital to the national in-
terest of the United States" and dispatched the US Sixth Fleet to the
Eastern Mediterranean. (Reference 17).
Iraq Assumes Budget Responsibility
The federation should alleviate part of Jordan's financial problem,
since Iraq, for the first year, is to pay 80 percent of the federation's
budget, in which the army is the major item.
Iraq Rich in Oil and Resources
Iraq earns about $200 Million a year as one of the great oil-producing
countries of the world.
(Reference 11) The Iraq Petroleum Company,
owned by British, Dutch, French and US interests, controls Iraqi oil
production, sharing profits with the Iraqi government. Iraq allocates
70 percent of its income to economic development. These expenditures
have created substantial progress in industrialization for Iraq.
Iraq Competes for Arab Leadership
Iraq has, since the rise of Nasser, competed with Cairo for leader-
ship of the Arab world. In this competition, membership in the Baghdad
attacked by Nasser as inimical to Arab interests has proved
a handicap to Iraq, which finds itself under heavy pressure to demon-
strate its support of Arab nationalism.
Pact
Aid From West and Soviet Union
——
The US support of Jordan in 1957 intensified the cold war in the
Middle East theatre. Both Arab unification movements have taken
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International Review Service Vol. IV No. 43
19
place in the context of the cold war. In the pattern of this conflict, the
two sides in the cold war use economic and military aid to win support.
Egypt, Syria and Yemen all have received large-scale military and
economic aid from the USSR. (Reference 18). US aid to the Arab states
including Egypt but not Syria, which has never accepted it, or Yemen --
has been about $156 Million for the last five years most of this on
a grant basis. This US figure does not include military assistance or
surplus commodities. (Reference 19).
The United Arab Republic receives massive economic and military
Oil
aid from the Soviet bloc and it also receives aid from the West. The
- C
Federal Republic of Germany on 7 May 1958 made $95 Million in credits
available to the United Arab Republic.
Richest Middle East Resource
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Saudi Arabia.
In all calculations revolving around the Arab countries, oil is a
major factor. Europe is dependent on the Middle East for 95 percent
of its supply of oil. US interests have tremendous investments in
Mideast oil. Oil is the greatest resource of the Middle East.
The United Arab Republic has no oil, but controls the Suez Canal
and the Syrian pipelines the arteries through which almost all the
oil of the Middle East is transported including the oil of Iraq and
--
UAR Control of Transport Arteries
The importance of control of the Suez Canal and the pipelines was
demonstrated during the 1956 crisis when Egypt blockaded the Suez and
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The Middle East: Unification Among Arab States
Syrians blew up pipelines. Despite continued Western access to Saudi
Arabian and Iraqi oil during this period, lack of these transport arteries
created a fuel crisis in Western Europe.
Probability of UAR Nationalization of Pipelines
Egypt's success in nationalizing the Suez Canal Company and Egypt's
and Syria's close ties with the USSR aroused Western anxiety over
possible nationalization of the Syrian pipelines by the United Arab
Republic. This anxiety has been felt not only in the West, but in the
oil-rich sheikhdoms of the Persian Gulf and in Saudi Arabia.
Saudi Arabia Remains Outside Federation
Saudi Arabia has announced that it will not join either the United
Arab Republic or the Arab Federation, but that it would cooperate with
both. (Reference 20). Saudi Arabia, while having close links with US
interests through the Arabian-American Oil Company, has opposed
Arab participation in any military alliance, including the Baghdad Pact.
Along with Saudi Arabia, the trucial sheikhdoms on the east coast
of the Arabian peninsula
Kuwait, Qatar, Bahrein and Oman and Muscat
-- have remained aloof from alignment with either unification movement.
The sheikhdoms, like Saudi Arabia, would be profoundly affected by
UAR action closing the Syrian pipelines and the Suez Canal to their oil.
The Pressure of Unification for the Sheikhdoms
The sheikhdoms are subject to both external and internal pressure
to join with either Baghdad or Cairo. None of the sheikhdoms could, at
this time, join either merger except through Britain, which, by treaty
arrangements, controls their foreign affairs.
International Review Service
21
Vol. IV No. 43
The British treaties with all the sheikhdoms have the same main
with one another.
provisions: They give the rulers absolute control over all their subjects.
and Britain control over all foreign relations, including their relations
One of the sheikhdoms, Kuwait, is the richest oil producer in the
world; and two others, Qatar and Bahrein, are among the top producers.
Oman, with newly discovered oil reserves is the scene of conflict
between the Sultan of Muscat and Oman, backed by Britain, and the
Imam of Oman, now receiving support from President Nasser. US
companies own a substantial interest in the oil of these territories.
Arab Nationalism Manifest in Suez Crisis
During the Suez crisis, the Arab oil and dock workers of the
sheikhdoms supported Egypt by rioting and striking. This pressure
internally is in sympathy with President Nasser's nationalist aims,
and no Arab leaders publicly oppose Arab nationalism. Arab national-
ism is the basis of the only organization to which all Arab countries
belong the Arab League.
The Arab League
The Arab League is an association of eight Arab governments,
including both Egypt and Iraq and their partners in unification. The
league was established in 1945, encouraged by Britain, with the goal of
now the United Arab
eventual unification of its member states
Sudan.
-
Republic, Iraq, Jordan, Lebanon, Saudi Arabia, Yemen, Libya and
The Arab League has its headquarters in Cairo and now has little
22
The Middle East: Unification Among Arab States
influence with Western-oriented Arab countries. Iraq has refrained
from paying its dues to the league and no longer sends top-ranking
officials to its meetings. Nevertheless, no Arab country can afford to
disassociate itself from the league, which itself officially maintains a
non-partisan position as between Egypt and Iraq.
On the recent mergers, the Arab League issued this statement:
"It is expected that sooner or later there will be a form of union or
federation between the two newly-formed Arab entities; and other Arab
countries are expected to join the currents toward Arab unity."
(Reference 21).
Lebanon Seeks to Stay Unattached
Lebanon, caught between major Arab countries, has been seeking
to remain outside the Baghdad-Cairo competition. The government of
Lebanon declared on 25 March 1958 that it would join neither of the
Arab unification movements, or any other group that would limit its
"independence, sovereignty and freedom". (Reference 22). The Lebanese
Premier, Sami es-Solh, nevertheless stated: "The government also
considers that Lebanon is an integral part of the Arab world." (Reference 22).
Non-Arab Factors Large Influence in Unification Movement
All these are manifestations of the strength of Arab nationalist
feeling. However, the two Middle East unification movements are also
the result of the major impact of the cold war and power and oil politics.
These non-Arab causes may, in the future, play diminishing roles if the
International Review Service Vol. IV No. 43
23
of all.
mergers succeed in demonstrating how countries, unable to make their
own way politically or economically, can combine regionally to join
their cultures, resources, defense and markets for the advancement
#####
CHRONOLOGY OF THE MIDDLE EAST
1945
22 March
24 October
1946
4 February
22 March
1947
8 July
30 September
29 November
Arab League Through 1958 Unifications
Arab League formed in Cairo. Charter members
are Egypt, Iraq, Lebanon, Saudi Arabia, Syria,
Transjordan and Yemen. (Libya joins on 28 March
1953, Sudan becomes a member in 1956.)
United Nations comes into being. Arab states of
Egypt, Iraq, Lebanon, Saudi Arabia and Syria
among original members.
Lebanon and Syria complain to UN Security
Council that French and British troops from
World War II are still in their countries. Reso-
lution calling for withdrawal of these forces
vetoed by Soviet Union. (Troops leave Syria
in April. On May 9th, Lebanon reports success
of negotiations for withdrawal of troops.)
Transjordan administered by Great Britain
- achieves
under League of Nations mandate
independence. (Name changed to Jordan, April
1949). Signs mutual assistance treaty with
Britain.
Egypt asks UN Security Council to order total
and immediate evacuation of British troops from
Suez. Egypt also asks for unification of Egypt
with Anglo-Egyptian Sudan. No action taken.
Yemen admitted to UN.
-
UN General Assembly adopts Plan of Partition
and Economic Union of Palestine. Provides for
the division of Palestine into an Arab state, a
Jewish state and the city of Jerusalem, linked
in a economic union. These would come into
existence two months after evacuation of British
troops -- to be completed by 1 August 1948.
Partition opposed by Arab Higher Committee;
accepted by Jewish Agency for Palestine.
- 24-
-
International Review Service
25
Vol. IV No. 43
1948
15 March
14 May
15 May
17 May
1949
24 February
23 March
3 April
11 May
20 July
8 December
1950
24 April
25 April
5 September
Great Britain and Jordan sign 20-year mutual
assistance treaty (revision of the 1946 treaty)
under which Britain retains two air bases, tanks
and an infantry company in Jordan and provides
annual subsidy of £9,200,000 to Jordanian army
(Arab Legion).
British mandate in Palestine ends; independent
state of Israel proclaimed.. United States recog-
nizes Israel.
Arab states invade Israel. (Egypt, Jordan, Lebanon,
Syria and Iraq.) Israel repels attack and wins
territory beyond borders for Jewish state as out-
lined in 1947 Partition Plan.
USSR recognizes Israel.
Egypt and Israel sign armistice agreement.
Armistice agreement signed between Israel and
Lebanon.
Armistice agreement signed between Israel and
Jordan.
Israel admitted to UN.
Armistice agreement signed between Israel and
Syria.
-
Jordan formally annexes areas west of Jordan
River (Eastern Palestine) occupied during 1948
war with Israel. Notifies UN.
Fourth General Assembly establishes United
Nations Relief and Works Agency (UNRWA) which
sets up camps for Palestine refugees in Egypt,
Syria, Lebanon and Jordan.
G
Syrian Constituent Assembly adopts new consti-
tution.
Tripartite declaration by France, United Kingdom
and United States to take immediate action if any
Middle East country should violate frontiers or
armistice lines.
26
The Middle East: Unification Among Arab States
1950, continued
30 December
1951
29 April
18 June
20 July
1 September
15 October
27 October
1952
7-9 January
23-26 July
11 August
7 September
1953
2 May
18 June
Saudi Arabia and Aramco sign agreement giving
Saudi Arabia 50-50 share in net profits. This is
basis for subsequent agreements between oil
companies and other Middle East governments.
Iran Parliament votes nationalization of oil.
US and Saudi Arabia sign five-year agreement
under which US military aircraft use air base at
Dharhan in return for US assistance to Saudi
Arabia on arms and military advice.
King Abdullah of Jordan assassinated in Jerusalem.
Son, Prince Talal, succeeds to throne.
UN Security Council, acting on a complaint by
Israel, adopts resolution asking Egypt to end re-
strictions on passage of international shipping
through the Suez Canal wherever bound.
Egypt refuses to join Middle East Command pro-
posed by UK, US, France and Turkey.
Egypt abrogates Anglo-Egyptian Treaty of 1936
under which UK was permitted to maintain troops
in the Suez Canal Zone.
Suez Canal operations hampered by Egyptian
strike. Martial law declared.
Egyptian Society of Free Officers, headed by Col.
Gamal Abdel Nasser, deposes King Farouk and
sets up new government in Egypt under martial law.
Prince Husein succeeds Talal as King of Jordan.
Maj. Gen. Mohammed Naguib declared Premier
of Egypt by Revolutionary Council.
Prince Faisal becomes King of Iraq, succeeding
Ghazi I.
Egypt proclaimed republic. Premier Naguib
named President.
International Review Service Vol. IV No. 43
27
1953, continued
9 November
1954
22 January
28 February
18 April
25 April
11 June
27 July
19 October
14 November
1955
24 February
6 March
King Ibn Saud of Saudi Arabia dies. Succeeded
by son, Prince Saud.
USSR intensifies interest in Middle East. Vetoes
Western Security Council resolution on Israeli
water power project. Resolution strongly opposed
by Arabs.
Military dictatorship of Qdib Shishekly ends in
Syria. Country returns to constitutional regime.
Col. Nasser replaces Maj. Gen. Naguib as Premier
of Egypt.
US extends unconditional military aid to strengthen
Iraq army.
Premier Nasser announces that Egypt and Saudi
Arabia have agreed to pool defense and military
resources.
Britain agrees to withdraw troops stationed in
Suez Canal area.
Anglo-Egyptian agreement on evacuation of British
troops from Suez Canal area signed. Declares
that canal is an "integral part of Egypt". Britain
agrees to withdraw troops within 20 months but
retains for seven years the right to reoccupy the
Suez base in the event of an attack on any Arab
League state or Turkey.
Revolutionary Command Council places President
Naguib under house arrest. Prime Minister
Nasser becomes President.
Iraq and Turkey sign mutual defense treaty against
Communist aggression in the Middle East. (Begin-
ning of Baghdad Pact).
Negotiations begun 18 February by Egypt to form
new organization of Arab states results in agreement
28
The Middle East: Unification Among Arab States
1955, continued
15 March
5 April
17 April
7 June
23 September
27 September
10 October
11 October
11 October
20 October
27 October
21-22 November
14 December
to set up Egyptian-Saudi Arabian-Syrian Joint
Command under Egyptian minister of war, Abdel
Hakin Amer.
Britain joins Baghdad Pact.
UK concludes agreement with Iraq under which
British bases in Iraq will be taken over by Iraq
under Baghdad Pact.
Soviet Union denounces Baghdad Pact as method
"to achieve colonial enslavement" of countries of
the Middle East. (Reference 23).
King Saud offers full military and economic sup-
port to Egypt against Israel.
Pakistan joins Baghdad Pact.
President Nasser of Egypt announces signing of
agreement with Czechoslovakia for supply of
arms to Egypt in exchange for Egyptian cotton.
Soviet ambassador in Cairo offers technical
assistance to all underdeveloped Arab and Asian
countries.
Israel asks US to match arms shipments to Egypt
from Czechoslovakia.
Iran announces it will join Baghdad Pact.
Egypt and Syria sign mutual defense treaty. Sets
up machinery for supreme council, war council and
joint command under Egyptian Maj. Gen. Amer.
Prime Minister Nasser and Crown Prince Faisal
of Saudi Arabia sign five-year defensive alliance
in Cairo. (Same provisions as Egypt-Syria
defense treaty of 20 October 1950.)
At first meeting, Baghdad Pact powers set up
permanent secretariat in Baghdad. US sends
observer to meetings.
Jordan becomes member of UN.
International Review Service Vol. IV No. 43
29
1955, continued
16 December
19 December
1956
14 February
1 March
9 March
18 April
19 April
21 April
6 May
16 May
21 May
31 May
US and UK offer to contribute $56 Million and
$14 Million, respectively, to help Egypt finance
building of the Aswan High Dam. International
Bank, on 9 February 1956, agrees to contribute
$200 Million.
Jordanian government crisis results from de-
monstrations against government and proposals
that Jordan join the Baghdad Pact. King Husein
dissolves Parliament and calls for new elections
within four months.
(
USSR warns that any dispatch of American or
British armed forces to Middle East would be a
threat to peace.
King Husein of Jordan dismisses Lt. Gen. John
Bagot Glubb of Britain as chief of staff of the
Jordanian army (Arab Legion).
King Husein turns down offer of Egypt, Syria and
Saudi Arabia to replace British subsidy to
Jordanian annual budget.
US joins economic committee of Baghdad Pact.
US sets up military liaison with Baghdad Pact
and joins its committee to fight subversion.
Egypt, Saudi Arabia and Yemen sign five-year
trilateral military alliance.
Egypt and Jordan sign agreement on plans to
coordinate armies of the two states. Does not
provide for unified command.
Egypt recognizes Central Peoples' Government
of the Peoples' Republic of China.
Lebanon and Jordan agree to coordinate defense
plans and to unite forces in the event of war.
Jordan and Syria announce military agreement
under which they agree to joint military action
in case of war.
30
The Middle East: Unification Among Arab States
1956, continued
13 June
19 June
23 June
3 July
19, 20, 23 July
26 July
28 July
31 July
21 August
23 August
9 September
21 October
29 October
30 October
Last British soldiers leave Egypt.
President Nasser ends martial law in Egypt set
up after 1952 coup.
Nasser elected first President of Egyptian
Republic by a majority of 99.99 percent. Con-
stitution adopted.
Syria recognizes Central Peoples' Government
of the Peoples' Republic of China.
US, UK and International Bank withdraw offers
of aid for financing Aswan Dam.
President Nasser decrees the nationalization of
the Suez Canal Company.
British block Egyptian funds in the United Kingdom.
US freezes all assets of Egypt (about $40 Million)
and of Suez Canal Company in US.
Yemen recognizes Central Peoples' Government
of the Peoples' Republic of China.
Nikita S. Khrushchev, First Secretary of the
Soviet communist party, warns UK and France
that if war breaks out in the Middle East over
the Suez Canal "the Arabs will not stand alone".
(Reference 24).
President Nasser turns down plan adopted by
London Conference for operation of the Suez
Canal. States that purpose of this plan is to
"take the Suez Canal out of the hands of Egypt".
(Reference 25).
Elections in Jordan bring anti-West party to
power.
Israel invades Egypt.
British and French issue ultimatum to Israel
and Egypt to cease fire within 12 hours and to
withdraw troops to 10 miles on either side of
the Suez Canal or British and French troops
will intervene.
International Review Service Vol. IV No. 43
31
1956, continued
31 October
1-2 November
2 November
3 November
4-5 November
4 November
6 November
10 November
15 November
22 December
28-31 December
1957
5 January
British and French bombers attack Egyptian air-
fields.
UN First Special Emergency General Assembly
adopts US resolution calling for ceasefire and
withdrawal of troops in Egypt and for steps to
be taken to reopen the Suez Canal and to restore
"secure freedom of navigation". (Reference 26).
Suez Canal blocked by sinking of ships in Canal.
Syrians blow up oil pipelines in Syria.
UN Emergency General Assembly establishes
United Nations Emergency Force (UNEF) to
secure and supervise cessation of hostilities
in Egypt.
Following Israeli attack on Egypt, Iraqi Syrian
and Saudi Arabian troops sent to Jordan to sup-
port Jordanian army.
Soviet Union threatens British and French with
rockets during Suez crisis.
USSR announces that Soviet volunteers may go
to Egypt if Britain, France and Israel refuse to
withdraw their forces from Egyptian territory.
First UNEF troops land in Egypt.
British and French forces complete withdrawal
from Egypt.
UN begins Suez Canal clearance at request of
Egyptian government.
Tag
President Eisenhower announces new US policy
(Eisenhower Doctrine) for development of econo-
mic strength of countries in the Middle East and
for supplying military assistance and cooperation
to countries requesting aid "against overt armed
aggression from any nation controlled by inter-
national communism". (Reference 27).
32
The Middle East: Unification Among Arab States
1957, continued
12 January
13 January
19 January
21 January
11 February
12 February
27 February
9 March
11 March
1 April
8 April
9 April
10 April
Syria denounces Eisenhower Doctrine.
USSR denounces Eisenhower Doctrine as inter-
ference in internal affairs of Middle Eastern
states.
-
Egypt, Saudi Arabia and Syria sign agreement
with Jordan to provide £12,500,000 ($35 Million)
annually for next 10 years to Jordan replacing
British subsidy. They also denounce the Eisenhower
Doctrine.
Baghdad Pact group supports Eisenhower Doctrine.
USSR proposes conference and declaration by
Big Four powers on Middle East which would bar
military alliances, such as Baghdad Pact, all
foreign bases in area and all arms shipments to
area.
UK and Jordan cancel 1948 mutual assistance
treaty. UK to remove all troops and liquidate
all bases in Jordan. Jordan relinquishes British
subsidy.
Egypt, Syria, Saudi Arabia and Jordan issue joint
statement declaring their positive neutrality in
cold war.
Eisenhower Doctrine enacted into law by US
Congress permits President to allot up to $200
Million in foreign aid funds for Middle East.
US, UK and France reject Soviet proposal of
11 February for a Big Four Mideast declaration.
US denounces Soviet arms shipments to Middle
East as upsetting balance of arms between Middle
East countries which is maintained by West.
Saudi Arabia pays £5,000,000 annual subsidy
to Jordan.
Saudi Arabia signs five-year extension of agree-
ment with US on Dhahran Air Base.
Suez Canal completely cleared of 1956 invasion
damage.
King Husein of Jordan dismisses government of
Premier Saleiman Nabulsi.
International Review Service Vol. IV No. 43
33
1957, continued
14-15 April
19 April
25 April
29 April
12 June
6 August
13 August
18 August
3 September
5 September
10 September
12 September
13 September
King Husein dismisses pro-Egyptian leaders
in Army and government.
USSR proposes Big Four declaration to renounce
use of force in the Middle East.
US Sixth Fleet moves into Eastern Mediterranean.
King Husein imposes martial law; installs new
cabinet. Charges Egypt with supporting a con-
spiracy to overthrow him.
US appropriates $10 Million in aid to Jordan.
US rejects USSR proposal of 19 April for Big
Four Mideast declaration.
In Syrian-USSR communique, Soviet Union prom-
ises economic and military aid to Syria.
Syria accuses US of plotting to overthrow Syrian
President Shukri al-Kuwatly. Expels three US
Embassy employees in Damascus. US retaliates
by requesting recall of Syrian Ambassador to
US, Farid Zeneddine.
Coup in Syria places pro-Soviet officers in
control of Syrian army.
Egypt and Syria sign agreement for economic
union. Set up committee to work out details.
US announces Eisenhower Doctrine might be
invoked if Syria goes further toward "interna-
tional communism". US airlifts arms to Jordan
and steps up delivery of arms to Iraq, Lebanon
and Saudi Arabia.
-
Soviet Foreign Minister Andrei Gromyko accuses
US of planning with Turkey to subvert government
of Syria and states that movements of Turkish
troops near Syrian border threaten Syria.
Syria accuses US of inciting Turkey to concen-
trate a "huge army" on Syrian border. (Reference 28).
C
USSR Premier Nikolai A. Bulganian in letter to
Premier Adnan Menderes of Turkey accuses Turkey
34
The Middle East: Unification Among Arab States
1957, continued
14 September
4 October
9 October
13 October
15 October
16 October
16 October
20 October
21 October
1 November
20 November
of concentrating her troops on Syria's borders
for US-planned attack on Syria.
Turkey denies plan to attack Syria.
USSR launches first earth satellite.
First Secretary Khrushchev threatens Soviet
intervention in the Syria-Turkey crisis: "If war
breaks out, we are near Turkey and you are not.
When the guns begin to fire, the rockets can be-
gin flying and then it will be too late to think about
it." (Reference 29).
Egypt announces the dispatch of Egyptian troops
and tanks to bolster Syria against Turkey.
Deployed near Turkish border.
US Secretary of State John Foster Dulles, during
Syria-Turkey crisis, warns Soviet Union that if
it attacks Turkey, US will retaliate by bombing
Soviet territory.
Syria requests UN consider item entitled "Com-
plaint About Threats to the Security of Syria and
to International Peace". (Reference 30).
Soviet Union charges that "Turkish General Staff,
together with American advisers, has elaborated
detailed plans for an attack by Turkey on Syria,
their intention being to carry it out immediately
after the elections in Turkey on October 27th of
this year". (Reference 31).
King Saud offers to mediate Syrian-Turkish crisis.
Turkey accepts King Saud's offer of mediation.
UN General Assembly concludes debate on Syrian-
Turkish crisis. No vote taken on Syrian resolu-
tion to send UN investigation mission to area or
on resolution to send Secretary-General Dag
Hammarskjold to mediate issue.
M
G
US releases about one-fourth of blocked Egyptian
assets and pays $600,000 to joint fund for economic
development in Egypt.
International Review Service
35
Vol. IV No. 43
1958
21 January
27-30 January
1 February
5 February
14 February
21 February
1 March
2 March
5 March
8 March
8 March
25 March
9 April
USSR proposes that Middle and Near East "can
and must become a zone free of nuclear and
rocket weapons".
Fourth session of Baghdad Pact Council meets in
Ankara, Turkey. US Secretary of State Dulles
promises military aid to nations in the pact re-
questing aid against armed aggression by a
communist-controlled country.
United Arab Republic proclaimed in Cairo, creating
union of Syria and Egypt.
President Nasser and President al-Kuwatly an-
nounce decision to form United Arab Republic
to Egyptian and Syrian Parliaments.
Arab Federation of Iraq and Jordan proclaimed.
Faisal of Iraq is head of federation.
People of Syria and Egypt vote on unification.
Give almost unanimous approval to formation of
United Arab Republic and to designation of Nasser
as first President of the Republic.
United Arab Republic notifies Secretary-General
of the United Nations that it will be represented
in UN as a single member.
Yemen announces that it is joining United Arab
Republic.
President Nasser accuses King Saud of responsibil-
ity for plot to assassinate him.
UAR interim constitution signed.
President Nasser swears in UAR Vice Presidents
and 15 members of UAR cabinet.
Kingdom of Yemen signs federation agreement
with United Arab Republic, forming United Arab
States.
Lebanon declares it will not join either Arab
merger.
Jordanian government approves constitutional
amendments delegating some of King Husein's
powers to head of new federation, King Faisal.
G
36
The Middle East: Unification Among Arab States
1958, continued
18 April
29 April
29 April
5 May
7 May
10-14 May
12 May
Saudi Arabia announces that it will not join either
Arab merger.
President Nasser arrives in Moscow.
Suez Canal Company compensation agreement
signed in Rome between representatives of United
Arab Republic and stockholders of Suez Canal
Company. Government of UAR agrees to pay
28,300,000 Egyptian pounds (approximately US
$81 million) to Suez Canal Company and leaves
all assets of company outside Egypt to stockholders.
Flag of United Arab Republic flown for first time.
at United Nations Headquarters.
West Germany grants 400 million Deutsche marks
(about $95 Million) to UAR for purchase of indus-
trial goods in West Germany.
Iraq Chamber of Deputies and Senate ratify consti-
tutional amendment legalizing Iraq's entry in
federation with Jordan.
Federation of Iraq and Jordan comes formally
into existence.
#####
G
REFERENCES AND BIBLIOGRAPHY
1. "Survey of International Affairs, 1939-1946, The Middle East in the War," Royal Institute of Inter-
national Affairs, Oxford University Press, London, 1952.
2. "Middle East Journal," Volumes 1 - 10; Middle East Institute, Washington, D.C.
3. New York Times, 23 February 1958.
4. Charter of the United Arab States (Unofficial Translation); (Reprinted here, Appendix C).
5. "Le Commerce du Levant," Beirut, 15 March 1958.
6. "Proclamation of the United Arab Republic," Egyptian Mission to the United Nations, Press Release,
2 February 1958. (Reprinted here, Appendix A).
7. "Speech by Gamal Abdel Nasser delivered to the National Assembly on 5 February 1958," Egyptian
Mission Press Release, 6 February 1958.
8. Charter of the United Arab Republic. (Reprinted here, Appendix B).
9. Notification of United Arab Republic Representation in the United Nations, UN Press Release SG/669;
7 March 1958.
10. "Press Conference by the Secretary-General held at United Nations Headquarters on Thursday,
20 March 1958," UN Note to Correspondents No. 1760.
11. "Economic Developments in the Middle East, 1955-1956," United Nations, Sales No. 1957.II.C.2.
12. "Statistical Yearbook, 1957,” United Nations Sales No. 1958.XVII.1.
13. "Statement by Iraqi Foreign Minister, Dr. Fadhil al-Jamali as reprinted in New York Times, 7 March
1958.
14. "The Israel Weekly Digest," Volume I, No. 23, 6 March 1958.
15. Constitution of the Arab Federation (Unofficial Translation). (Reprinted here, Appendix E).
16. Unofficial Translation of the Text of the Agreement of the Arab Federation as published in "Arab News
and Views," Volume IV, No. 4, Arab Information Center; 5 March 1958. (Reprinted here, Appendix D).
17. United States Department of State Declaration, 25 April 1957, as reported in New York Times, 26 April
1957.
18. "Soviet Bloc Economic Offensive in Less Developed Areas," US Department of State Bulletin, Volume
XXXVIII, No. 970, 27 January 1958.
19. New York Times, 8 February 1958.
20. New York Times, 19 April 1958.
21. Statement by Ambassador Kamil Abdul Rahim, Representative of the Arab League in New York; Arab
Information Center Press Release, 14 February 1958.
22. Statement by Premier Sami es-Sohl of Lebanon, as quoted in New York Times, 26 March 1958.
23. New York Times, 17 April 1955.
24. New York Times, 24 August 1956.
25. New York Times, 10 September 1956.
26. "Test of Resolution Adopted by the General Assembly at its 563rd Plenary Meeting on 2 November
1956," UN Document A/3256 (A/RES/390).
27. New York Times, 6 January 1957.
28. New York Times, 13 September 1957.
29. New York Times, 10 October 1957.
30. "Letter Dated 15 October 1957 from the Minister of Foreign Affairs and Chairman of the Delegation of
Syria, Addressed to the Secretary-General," UN Document A/3699, 16 October 1957.
31. "Letter Dated 16 October 1957 from the Head of the Delegation of the USSR, Addressed to the President
of the General Assembly," UN Document A/3700, 17 October 1957.
32. Antonius, George, "The Arab Awakening," Hamish Hamilton, London, 1938.
33. "Official Gazette of Syria," No. 11-22, Damascus, 22 February 1958.
#####
- 37 -
¡
•
APPENDIX A: PROCLAMATION OF THE UNITED ARAB REPUBLIC
On February 1, 1958, in a historic session held at
Kubbah Palace in Cairo, His Excellency President Shu-
kry El-Kuwatly of Syria, and President Gamal Abdel-
Nasser of Egypt, met the representatives of the Re-
publics of Syria and Egypt, El-Sayed Sabry El-Assaly,
El-Sayed Abdel-Latif El-Boghdady, El-Sayed Khaled El-
Azm, El-Sayed Zakaria Mohieddin, El-Sayed Hamed El-
Khoga, El-Sayed Anwar El-Sadat, El-Sayed Fakher El-
Kayyaly, El-Sayed Maamoun El-Kozbary, El-Sayed Hus-
sein El-Shaffei, El-Sayed Assaad Haroun, General Abdel-
Hakim Amer, El-Sayed Salaheddin El-Bittar, El-Sayed
Kamaleddin Hussein, El-Sayed Khalil El-Kallas, El-
Sayed Noureddine Tarraf, El-Sayed Saleh Akeel, El-
Sayed Fathy Radwan, General Afif El-Bizry, El-Sayed
Mahmoud Fawzy, El-Sayed Kamal Ramzi Stino, El-
Sayed Aly Sabri, El-Sayed Abdel-Rahman El-Azm and
El-Sayed Mahmoud Riad.
The purpose of this meeting was to discuss the final
measures to be taken for the realisation of the Arab
peoples' will, and the execution of what the Constitutions
of both republics stipulate, namely that the people of
each of them form a part of the Arab Nation. They,
therefore, discussed the decisions unanimously approved
by the National Assembly of Egypt and the Syrian
House of Representatives that unity should be establish-
ed between the two countries as a preliminary step to-
wards the realisation of complete Arab unity. They
also discussed the clear signs manifest in the past few
years, that Arab nationalism was the inspiring spirit
that dominated the history of Arabs in all their dif-
ferent countries, their common present and the hoped-
for future of every Arab.
They came to the conclusion that this unity which
is the fruit of Arab nationalism is the Arabs' path to
sovereignty and freedom, that it is one of humanity's
gateways to peace and co-operation, and that it is there-
fore their duty to take this unity with persistence and
determination staunch and unwavering, out of the circle
of wishes and aspirations to where it can be converted
into a reality. They came out of this with the convic-
tion that the elements conducive to the success of the
union of the two republics were abundant, particularly
recently after their joint struggle - which had brought
them even closer to one another made the meaning
of nationalism considerably clearer, stressed the fact
that it was a movement for liberation and rehabilita-
tion and that it was a faith in peace and co-operation.
For all this, the participants declare their total
agreement, complete faith and deeply rooted confidence
in the necessity of uniting Egypt and Syria into one
state to be named "The United Arab Republic."
They have likewise decided to declare their un-
animous agreement on the adoption of a presidential
democratic system of government for the Arab Re-
public. The executive authority shall be vested in the
head of the state assisted by the ministers appointed
by him and responsible to him.
- 38 -
The legislative authority shall be vested in one le-
gislative house. The new republic shall have one flag.
one army, one people who shall remain joined in a unity
where all will share equal rights and duties, where all
will call for the protection of their country with heart
and soul, and compete in the consolidation of its inte-
grity and the insurance of its invulnerability.
His Excellency President Shukry El-Kuwatly and
President Gamal Abdel-Nasser will each deliver a state-
ment to the people in the Syrian and the Egyptian
Parliaments respectively on Wednesday, February 5.
1958 in which they will announce the decisions reached
in this meeting and explain the principals of the unity
on which this rising young republic shall stand.
The peoples of Egypt and Syria shall be called upon
to participate in a general plebiscite on the principles
of this unity and the choice of the head of the state
within thirty days.
In proclaiming these decisions, the participants feel
great pride and overwhelming joy in having assisted in
taking this positive step on the road to Arab unity and
solidarity a unity which had been for many an epoch
and many a generation the Arabs' much cherished hope
and greatly coveted objective. In deciding on the unity
of both nations, the participants declare that their unity
aims at the unification of all the Arab peoples and
affirm that the door is open for participation to any
Arab state desirous of joining them in a union or
federation for the purpose of protecting the Arab peoples
from harm and evil, strengthening Arab sovereignty.
and safeguarding its existence.
May God protect this step we have taken and those
which are to follow with His ever vigilant care and
benevolence so that the Arab people under the banner
of unity may live in dignity and peace,
APPENDIX B: PROVISIONAL CONSTITUTION OF THE UNITED ARAB REPUBLIC
ARTICLE 1:
ARTICLE 2:
ARTICLE 3:
ARTICLE 4:
ARTICLE 5:
ARTICLE 6:
ARTICLE 7:
ARTICLE 8:
PART I
THE UNITED ARAB STATE
The United Arab State is a democratic, independent, sover-
eign Republic, and its people are part of the Arab Nation.
ARTICLE 12:
Nationality in the United Arab Republic is defined by law.
Nationality of the United Arab Republic is enjoyed by all
bearers of the Syrian or Egyptian nationalities; or who are
entitled to it by laws or statutes in force in Syria or Egypt
at the time this Constitution takes effect.
PART II
BASIC CONSTITUENTS OF THE SOCIETY
Social solidarity is the basis of society.
National economy is organised according to plans which
conform to the principles of social justice, and aim at the
development of national productivity and the raising of the
standard of living.
Private property is inviolable. The law organises its social
function. Property may not be expropriated except for
purposes of public utility and in consideration of just
compensation in accordance with the law.
Social justice is the basis of taxation and public imposts.
PART III
PUBLIC RIGHTS AND OBLIGATIONS
No infraction and no punishment may be imposed except
by virtue of the law. Penalties may not be inflicted except
in respect of offences committed subsequently to the date
of the law prescribing them.
The extradition of political refugees is prohibited.
ARTICLE 9:
ARTICLE 10: Public liberties are guaranteed within the limits of the law.
ARTICLE 11:
Defence of the Fatherland is a sacred duty, and the ful-
filment of military service is an honour for all citizens.
Conscription is obligatory in accordance with the law.
All citizens are equal before the law. They are equal in
their rights and obligations, without distinction of race,
origin, language, religion or creed.
PART IV
THE SYSTEM OF GOVERNMENT
CHAPTER I
Head of the State
The President of the Republic is the Head of State. He
exercises his powers in the manner prescribed by this
Constitution.
- 39 -
APPENDIX B, continued
ARTICLE 13:
ARTICLE 14:
ARTICLE 15:
ARTICLE 16:
ARTICLE 17:
ARTICLE 18:
ARTICLE 19:
ARTICLE 21:
ARTICLE 22:
ARTICLE 23:
ARTICLE 24:
ARTICLE 25:
ARTICLE 26 :
CHAPTER ||
The Legislature
ARTICLE 27:
The legislative power is vested in an Assembly named the
National Assembly. Number of the members of the National
Assembly and their choice are determined by Presidential
Decree. At least half of the number of members must be
members of the Syrian Chamber of Deputies and the
National Assembly of Egypt.
The National Assembly exercises control over the acts of
the Executive in the manner prescribed by this Constitution.
ARTICLE 20: The Assembly shall elect a President, and
Presidents at the first ordinary meeting.
To be member of the Assembly, a person must no be less
than thirty years of age according to the Gregorian
Calendar.
The National Assembly has its seat in Cairo. It may be
convened elsewhere upon the demand of the President of
the Republic.
The President of the Republic convokes the Assembly and
declares the closure of its session.
Meetings of the National Assembly, without summons, and
outside its sessions are null and void, and decisions taken
therein are null and void, according to the law.
Before admission to the exercise of their functions members
of the Assembly shall take the following oath before the
Assembly in public session :
"I swear in the name of Almighty God to preserve faithfully
the United Arab Republic and its Regime, to watch over the
interests of the People and integrity of the Fatherland, and
to respect the Constitution and the Law."
two Vice-
Meetings of the Assembly are public. Nevertheless, the As-
sembly can meet in camera following the demand of the
President of the Republic or 20 of its members. The As-
sembly decides thereafter whether the discussion of the
question under consideration should or should not be
resumed in public.
No law may be enacted unless approved by the Assembly.
No draft law may be adopted unless a vote is taken on
each of its articles separately.
The Assembly draws up its own internal regulations
determining the manner in which it exercises its powers
Every member of the National Assembly is entitled to ad-
dress to the Ministers questions or interpellations. Inter-
pellations may not be discussed until after at least seven
days from the date of their presentation, except in the case
of urgency and with the consent of the Minister concerned.
Any twenty members of the National Assembly may ask for
the discussion of a general question with a view to ascer-
taining the Government's policy and exchanging views on
such a question.
The National Assembly may express its wishes and proposals
to the Government regarding several questions.
No impost may be established, modified or abolished except
by a law. No-one may be exempted therefrom except in
the cases specified by the law.
No other tax or duty may be exacted except within the
limits defined by the law.
40 -
-
APPENDIX B, continued
ARTICLE 28:
ARTICLE 29:
ARTICLE 30:
ARTICLE 31 :
ARTICLE 32:
ARTICLE 33:
ARTICLE 34:
ARTICLE 35:
ARTICLE 36 :
ARTICLE 37:
ARTICLE 38:
ARTICLE 39 :
ARTICLE 40:
ARTICLE 41:
ARTICLE 42:
The law defines the basic rules of the collection of public
revenues and the manner of their expenditure.
The Government may not contract any loans, nor undertake
any project which would be a burden on the State Treasury
over one or more future years, except with the consent of
the National Assembly.
No monopoly may be granted except by law and for a
limited duration.
The law prescribes the manner of the preparation of the
Budget, and its presentation to the National Assembly.
The project of the State's General Budget must be submitted
to the National Assembly for its examination and approval
at least three months before the end of the financial year.
Each section of the Budget must be voted separately.
The National Assembly may not introduce any amendments
to the draft budget except with the approval of the Govern-
ment.
Every transfer of funds from one section of the Budget to
another must be approved by the National Assembly, as
well as any expenditure for which no provision is made
therein or exceeding the budgetary allocations.
The provisions relating to the Budget of the State are appli-
cable to independent or annexed budgets.
The law determines the rules regarding the budgets of other
public institutions.
No member of the National Assembly may, during the ses-
sion, be subject to a criminal prosecution without the per-
mission of the Assembly, except in cases of flagrante
delicto.
The Assembly must be given notification on any case where
prosecution is undertaken while the Assembly is in recess.
No member of the National Assembly may be deprived of
his mandate except by a decision of a two-thirds majority
of the Assembly, upon a proposal of twenty of its members,
and this on the ground of loss of confidence and esteem.
The President of the Republic has the right to dissolve the
National Assembly. In this case, a new Assembly must be
formed and convocated within a period of sixty days from
its dissolution.
When the National Assembly declares a vote of no con-
fidence in a Minister, he must resign.
A motion of censure concerning a Minister may not be
submitted to the Assembly until after an interpellation has
been addressed to him. Such a motion must be proposed by
twenty members of the Assembly. No decision may be taken
before at least three days from the date of the presentation
of the motion.
Withdrawal of confidence must be pronounced by the major-
ity of the members of the Assembly.
No-one may at the same time be a member of the National
Assembly and incumbent of a public function. The law
determines the other cases of incompatibility of functions.
No member of the National Assembly may be appointed to
the board of a company during the period of his mandate
except in the cases prescribed by the law.
No member of the National Assembly may, during the
period of his mandate, acquire or take or lease any State
property, or lease, sell or exchange to or with the State
any part of his property whatsoever.
- 41
-
APPENDIX B, continued
ARTICLE 43: Members of the National Assembly receive a remuneration
prescribed by the law.
ARTICLE 44:
ARTICLE 45:
ARTICLE 45:
ARTICLE 47:
ARTICLE 48:
ARTICLE 49:
ARTICLE 50:
ARTICLE 51:
ARTICLE 52:
ARTICLE 53:
ARTICLE 54:
CHAPTER III
The Executive
The executive power is vested in the President of the
Republic, and he exercises it in the manner prescribed by
the Constitution.
The President of the Republic may not, during his term of
office, exercise a liberal profession or undertake any
commercial, financial or industrial activity. Nor may he
acquire or take or lease any property belonging to the
State, or lease sell or exchange to or with the State any
part of his property whatsoever.
The President of the Republic may appoint one ore more
Vice-Presidents, as he may relieve them of their posts.
The President of the Republic appoints the Ministers and
discharges them from their functions. Ministers of State, and
Secretaries of State may be appointed. Each Minister
supervises the affairs of his Department, and executes the
general policy drawn by the President of the Republic.
The Vice-President, or the Minister may not, during his
tenure of office, exercise a liberal profession, engage in
commercial, financial or industrial activities, nor may he
acquire or take on lease any property belonging to the
State, or lease, sell or exchange any part whatsoever of
his own property to, or with the State.
The President of the Republic and the National Assembly
have the right to bring a Minister to justice for infractions
committed by him in the exercise of his functions. The
indictment of a Minister by the National Assembly is
effected by a proposal submitted by at least one-fifth of
the members of the Assembly. Such indictment must be
approved by a majority of two-thirds of the members of the
Assembly.
The President of the Republic has the right to initiate laws,
to oppose and to promulgate them.
If the President of the Republic opposes a draft law, it is
sent back to the National Assembly within the thirty days
following the date of its communication to him.
If it is not referred back to the Assembly within this period,
it is considered law and promulgated.
If a draft law is referred back to the Assembly within the
prescribed time, and is voted a second time by a majority
of two-thirds of its members, it is considered law and
promulgated.
While the National Assembly is in recess, the President of
the Republic may enact decrees, having the force of law,
or take decisions originally lying within the competence of
the Assembly, should the necessity arise. Such decrees and
decisions must be submitted to the National Assembly at
its first meeting. If, however, the Assembly opposes them
by a two-thirds majority, they are no longer effective from
the day of their opposition.
The President of the Republic enacts the regulations.
necessary for the organisation of the public service depart-
ments and supervises the administration thereof.
ARTICLE 55: The President of the Republic is the Supreme Commander of
the Armed Forces.
- 42
-
APPENDIX B, continued
ARTICLE 56 :
ARTICLE 57 :
ARTICLE 58:
ARTICLE 59:
ARTICLE 60:
ARTICLE 61:
ARTICLE 62:
ARTICLE 63:
ARTICLE 64 :
ARTICLE 65:
ARTICLE 66:
ARTICLE 67:
ARTICLE 68:
The President of the Republic concludes treaties and com-
municates them to the National Assembly. Such treaties will
have the force of law after their conclusion, their ratifica-
tion and their publication in conformity with the rules in
force.
However, peace treaties, treaties of alliance, commercial
and navigational treaties as well as all treaties entailing
territorial changes or affecting the rights of sovereignty, or
those involving expenditure by the Public Treasury for
which no provision is made in the Budget, will not become
effective until after ratification by the National Assembly.
The President of the Republic may declare a state of
emergency.
The United Arab Republic consists of two regions: Egypt
and Syria. In each, there shall be an executive council
appointed by Presidential decree. This executive council
has the competence to examine and study matters pertain-
ing to the execution of the general policy in the region.
CHAPTER IV
The Judicature
Judges are independent. They are, in the administration of
Justice, subject to no other authority save that of the law.
No power in the State may interfere in lawsuits or in the
affairs of justice.
Judges are irrelievable, in the manner prescribed by law.
The law organises the various jurisdictions and determines
their attributions.
Sessions of the Courts are conducted in public, unless a
court decides, in the interests of public order or morality,
to sit in camera.
Judicial decisions are pronounced and executed in the
name of the Nation.
PART V
GENERAL RULES
Cairo is the capital of the United Arab Republic.
The law determines the national flag and the regulations
relative thereto.
The law also determines the State Emblem and the re-
gulations relative thereto.
The law only legislates post-operatively; it has no retro-
active effect. Nevertheless, provisions to the contrary may
be stipulated in a law except in criminal matters with the
approval of the majority of the members of the National
Assembly.
Laws are published in the Official Gazette within two weeks
from the date of their promulgation, and come in force ten
days thereafter. Nevertheless this time may be extended
or curtailed by a special provision in the law.
PART VI
INTERIM AND FINAL RULES
All laws, decrees and regulations in force in each of the
two regions of Egypt and Syria at the time this Constitution
comes into effect shall remain valid within the regional
spheres, for which they were intended. These laws, decrees
and regulations may, however, be abrogated or amended
according to the procedure established in the present
Constitution.
- 43 -
APPENDIX B, continued
ARTICLE 69: The coming into effect of the present Constitution shall not
infringe upon the provisions and clauses of the international
treaties and agreements concluded between each of Syria
and Egypt and the foreign powers.
ARTICLE 70:
ARTICLE 71:
ARTICLE 72:
ARTICLE 73:
ARTICLE 1:
ARTICLE 2:
These treaties and agreements shall remain valid in the
regional spheres for which they were intended at the time
of their conclusion, according to the rules and regulations
of the International Law.
ARTICLE 3:
A special budget, alongside the State Budget, shall be
drawn up and put in force in each of the present regional
sphere of each of Syria and Egypt until the coming into
effect of the final measures for the introduction of a single
budget.
The public services and administrative system existing at
the time the present Constitution comes into effect shall
remain in force in Syria and Egypt until their reorganisation
and unification by Presidential Decree.
Citizens shall constitute a National Union Work for the
realisation of national aims and the intensification of the
efforts for raising a sound National Structure, from the
political, social and economic viewpoints. The manner in
which such a union is to be formed shall be defined by
Presidential Decree.
APPENDIX C: CHARTER OF THE CREATION OF THE UNITED ARAB STATES
The present provisional Constitution shall be in force until
the annoucement of the people's approval of the final
Constitution of the United Arab Republic.
Issued on Wednesday, March 5th, 1958.
(signed)
Gamal Abdel Nasser
The Charter for the creation of the "United Arab States" was signed
at the Guest Palaca at Damascus on March 8th between the United
Arab Republic and the Kingdom of the Yemen. President Abdel Nasser
signed on behalf of the U. A. R., while Emir Mohamed el Badr,
Crown Prince of the Yemen, signed for the South Arabian Kingdom.
The text of the Charter is as follows:
PART I
THE UNION
A Union named the United Arab States is hereby created.
It includes the United Arab Republic, the Kingdom of Yemen
and those Arab States which will agree to join this Union.
Each State will preserve its international personality and its
system of government.
Citizens of the Union are equal in public rights and ob-
ligations.
44
APPENDIX C, continued
ARTICLE 4:
ARTICLE 5:
ARTICLE 6:
ARTICLE 7:
ARTICLE 8:
ARTICLE 9:
ARTICLE 10:
ARTICLE 12:
ARTICLE 13:
ARTICLE 14:
ARTICLE 15:
ARTICLE 16:
ARTICLE 17:
Each citizen in the Union has the right to work and to
occupy public functions in the united countries without
discrimination and within the limits prescribed by Law.
ARTICLE 11: A Customs Union shall be established between united
countries. It will be governed by the conditions and re-
gulations prescribed by Law.
ARTICLE 18:
Freedom of movement in the Union is guaranteed within the
limits prescribed by Law.
Member States shall pursue the unified foreign policy drawn
by the Union.
Diplomatic and consular representation of the Union abroad
shall be assumed by a single mission in those cases speci-
fied by the Union.
The Union shall have unified Armed Forces.
Economic Affairs in the Union are organised according to
plans aimed at the development of production, the ex-
ploitation of natural resources, and the coordination of
economic activities.
Currency Affairs in the Union shall be determined by Law.
The Law organises the stages and means of coordination of
Education and Culture in the Union.
PART II
AUTHORITIES
The control of Union Affairs shall be assumed by a council
named the "Supreme Council". It shall be composed of the
Heads of the member states.
The Supreme Council shall be assisted in its functions by a
council named "The Union Council".
The Union Council shall include an equal number of Re-
presentatives from Member States. The number of Members,
the duration of Membership and the regulations to which
they are subject shall be defined by Law.
Presidency of the Union Council shall be assumed alter-
natively by each member state for a period of one year.
The State which is to assume presidency of the Council shall
appoint the President, who shall have one or more Vice-
Presidents from the Member State or states.
The Supreme Council defines the higher policy of the Union
with regard to political defense, economic and cultural
matters. It enacts the laws which are necessary to this
effect. It is the supreme authority to which the determination
of attributions shall be referred.
The decisions of the Council shall be issued with the un-
animous approval of the Council.
The Supreme Council shall enact the Union laws falling
within its competence in accordance with this Charter, after
the agreement of the competent authorities in each state.
- 45 -
APPENDIX C, continued
ARTICLE 19:
ARTICLE 20:
ARTICLE 22:
ARTICLE 21: The Union Council is the permanent authority of the Union.
It shall assume the examination of political affairs und shall
set down the unified yearly programme which includes the
regulations and measures leading to the achievement of
Union.
ARTICLE 23:
ARTICLE 24:
ARTICLE 26:
ARTICLE 27:
The Supreme Council appoints the Commander-in-Chief of
the Armed Forces of the Union.
ARTICLE 29:
The General Budget of the Union shall be issued by Decree
of the Supreme Council. The Law shall determine its re-
sources and the contribution of each Member State.
PART III
GENERAL AND INTERIM RULES
ARTICLE 25: A Decree shall be issued by the Supreme Council determin-
ing the permanent seat of the Union of Arab States, its
limits and the city in which the Union Council and the bodies
attached to it shall hold their meetings by rotation.
ARTICLE 30:
The decisions and the yearly programme elaborated by the
Union Council are to be submitted to the Supreme Council
for ratification. It decides on the decisions taken by the
Union Council which have been subject of an opposition
from one of the two states or more.
ARTICLE 32:
The following bodies are attached to the Union Council:
a) The Defense Council
b) The Economic Council
c) The Cultural Council
The decisions taken by these bodies shall be submitted
to the Union Council for ratification.
The Law defines the manner of the formation of these
bodies attached to the Union Council and their attributions.
ARTICLE 28: The Head of each State shall appoint a minister to the
United Arab States to supervise the enforcement of the
Union's decisions in respect of the region he belongs to.
The Law determines the rules to be applied to the region
of the permanent seat of the Union.
Union Laws shall have full force in the united countries.
They come into effect fifteen days after their publication in
the Official Gazette of the Union unless otherwise specified
by Law.
The Head of each State shall appoint a minister to represent
him before the head or heads of the other states. This
minister shall have the capacity of local ministers.
Diplomatic representation between Member States of the
Union shall be abolished.
ARTICLE 31: The customs regulations observed in each member state
shall remain in effect until the establishment of the Customs
union between them. Meanwhile the Law may prescribe a
special customs system to be observed by all Member
States.
The present charter shall come into effect on the day of its
approval, pending the establishment of the permanent
system for the Union.
Damascus, March 8th, 1958.
- 46
-
APPENDIX D: PROCLAMATION OF THE ARAB FEDERATION OF IRAQ AND JORDAN
Whereas: the great Arab Revolt led by His Majesty the great
savior Al Hussein Ibn Ali was a proclamation of a new dawn
for the Arab nation advanced by the sacrifices of martyrs for
the liberation of the Great Arab Nation and unification of
its peoples; an attempt to regain the prestige of Arabs among
the nations of the world; and a contribution to the progress
of human civilization;
Whereas: the blessed revolution emanated from the surge of
Arabs toward liberty and unity based upon the glorious past
of the Arab World, faith in itself and its old and eternal mission;
Whereas: the mission of the Arab Revolt, for which its lea -
der has striven, passed to the sons and grandsons and was
inherited by generation after generation to remain always as
a flame illuminating the path of the Arab nation toward the re-
alization of its hopes and aspirations for the complete unity
which integrated all the elements leading to liberty, happi -
ness and strength; the regaining of the glories and preserva -
tion of its heritage, and its sacred aims; and the assurance
of a happy future under the auspices of this blessed unity;
Therefore: the two Hashemite states decide to form a feder -
ation between themselves based upon these sublime aims.
I
An Arab Federation is established on February 14, 1958 be-
tween the Hashemite Kingdom of Jordan and the Kingdom of
Iraq to be called the Arab Federation. This Federation is
open to other Arab States which wish to join it.
II
Each of the two States reserves its integral State entity, its
sovereignty, and its existing government.
III
The international treaties, pacts and agreements which bound
each of the two states before the establishment of the Feder -
ation will remain valid with respect to the state which con-
cluded them, without binding the other state. But the inter-
national treaties, pacts and agreements which will be conclu -
ded after the establishment of the Federation and which will
involve Federation matters will come under the authority and
responsibility of the Federation government.
IV
Directly after the official declaration of the Federation, meas -
ures for complete unity between the two Federation States
will be taken in the following areas:
a) Unity in foreign policy and diplomatic representation.
b) Unity of the Jordanian and Iraqi armies under the name
Arab Army.
c) Elimination of customs barriers between the two coun-
tries and unification of customs laws.
d) Unification of educational curricula.
- 47 -
V
The two parties agree to carry out, as quickly as possible,
the necessary measures for unifying the currency and coor-
dinating the financial and economic policy of the two countries
VI
Whenever necessity and interest requires the unification of
any other area other than those mentioned in Article Four,
the necessary measures will be undertaken according to the
constitution of the Federation to put that area under the com
petence and authority of the Federation government.
VII
The Arab Revolt flag will be the flag of the Federation and
the flag of each of the two states.
VIII
a) Federation affairs will be undertaken by a Federation gov
ernment composed of a legislative council and an executive
authority.
b) Each of the national Jordanian and Iraqi parliaments e
lects the members of the legislative council from among
their members. Each state will have the same number of
representatives.
c) The members of the executive authority will be appointe
according to the regulations of the Federation constitution to
carry out matters under the authority of the Federation gov
ernment.
IX
The King of Iraq will be the Head of the Federation govern
ment. In case of his absence for any reason the King of Jo
dan will be the Head of the Federation government. Each o
the two Kings reserves his constitutional authority in his
Kingdom and when another state joins the Federation, the
question of the Head of state will be reviewed according to
conditions.
X
The federal capital will be Baghdad for six months and Am
man for the other six months consecutively.
XI
a) The Federation government will prepare the Federatio
constitution according to the basis indicated in this agreem
and the constitution of each of the two states will be amend
to the extent required, and within the limits expressed by t
Federation constitution.
b) The necessary steps and measures required for the es
blishment of the Federation government and the enactment
a Federation constitution will be carried out within a peri
not exceeding three months from the date of the signing o
this agreement.
XII
This agreement is to be concluded according to the consti
tional principles of each of the two states.
APPENDIX E: PROVISIONAL CONSTITUTION OF THE ARAB FEDERATION OF IRAQ
AND JORDAN
CHAPTER 1: FUNDAMENTAL PRINCIPLES
ARTICLE 1: The Arab Federation shall consist of the Iraqi Kingdom of Iraq and the Hashimite
Kingdom of Jordan. Membership in the federation is open to every Arab state desirous
of joining it in agreement with the government of the federation.
ARTICLE 2:
ARTICLE 3:
ARTICLE 4:
ARTICLE 5:
ARTICLE 6:
(unofficial translation)
ARTICLE 7:
ARTICLE 8:
Subject to the provisions of this constitution, each member state of the federation
shall retain its independent international status and its own system of government.
International treaties, pacts, and agreements to which any of the member states of the
federation had committed itself before the establishment of the federation or before
accession to the federation shall remain valid as regards the state which concluded
it and are not binding upon the other members. International treaties, pacts, and
agreements concluded thereafter will be within the jurisdiction and power of the
government of the federation.
The government of the federation shall consist of the head of the federation, a legisla-
tive authority, an executive authority, and a judicial authority.
A. The King of Iraq shall be the head of the federation. In his absence the King of
Jordan shall be the head of the federation. In the event of the absence of both kings,
the head of the federation, with the approval of the council of ministers of the federa-
tion, shall appoint a deputy or a body to represent him for the purpose of exercising
his powers during his absence. The head of the state may define the powers to be
exercised by the deputy or the body representing him.
B. In the event of the accession of other countries to the federation, the question as to
who shall be chief of state of the federation shall be reconsidered as circumstances
require.
The seat of the government of the federation shall be on an alternate basis in Baghdad
for a period of six months a year and in Amman for a similar period of six months. By
agreement among the governments of the member states this order may be changed and
a permanent seat fixed for the government of the federation as circumstances require.
A. The flag of the federation shall be in the following form and measurements: its
length shall be twice its width; it shall be divided horizontally into three equal sec-
tions with black on top, followed by white, and finally by green; on the mast side of
the flag there shall be a red equilateral triangle with a base equal to the width of the
flag.
B. The emblem, insignias, medals, and national anthem of the federation shall be
determined by special laws.
C. Member states shall retain their own flags.
Citizens in the countries of the Arab Federation, irrespective of their race and
religion, and in accordance with the laws in force, shall enjoy the liberties and rights
guaranteed by the International Charter of Human Rights. Every citizen shall have the
right to own property and to move freely in all parts of the federation, the right to live
and reside in any area in the federation, and the right to choose any occupation and
practice any trade, business or work, and to join educational institutions.
- 48
APPENDIX E, continued
CHAPTER II: THE LEGISLATIVE AUTHORITY
ARTICLE 9: The legislative authority of the federation lies in the federal council and the
head of the federation.
ARTICLE 10:
ARTICLE 11:
ARTICLE 12:
A. The federal council shall consist of 40 members, 20 of whom shall be from
Iraq and 20 from Jordan.
B. Each of the provinces of the two kingdoms shall be represented by at least
one member. These members shall be elected in accordance with the law.
C. The Kings of Jordan and Iraq shall appoint the remaining deputies of the total
decided upon in accordance with Paragraph A of this article, provided that such
(appointed deputies) will not be less than five and not more than seven for each
of the two states.
D. Subject to the numerical proportion stipulated in Paragraph A of this article, the
total number of members of the council and the method by which they are chosen
may be reviewed by law.
E. The first federal council shall be formed by the election of the members
referred to in Paragraph B of this article by the Chamber of Deputies in each of
the two states and from among its members. The remaining members shall be
appointed in accordance with Paragraph C of this article.
F. Deputies elected to membership on the federal council in accordance with
Paragraph E of this article may not retain their seats in the Chamber of Deputies
which elected them. They shall have to choose between these two memberships
within eight days of their election.
G. Membership in the federal council and in the parliament in any of the two
states may not be combined. The member who is either elected or appointed to
the federal council shall choose between one or the other of these memberships
within eight days of election or appointment.
A. Membership in the federal council, (holding of) public office, or service with
a person in contractual relationship with any public authority in any of the
states of the federation, may not be combined. Persons who rent state lands or
other properties are exempted from these provisions. "Public office" in this
regard means any office giving the holder a salary from the treasury of any of
the member states.
B. Before assuming his duties a member of the federal council shall take before
the council the following oath: "I swear by Almighty God to be loyal to the Arab
Federation, to preserve the constitution of the federation, and to faithfully carry
out the duties entrusted to me."
/
The head of the federation shall summon and prorogue terminate the federal
council in accordance with the provisions of this constitution.
ARTICLE 13: A. The term of the federal council is four Gregorian years. In each year there
shall be an ordinary session beginning on the first Saturday in January. Where
the aforementioned day is a public holiday, the appropriate day shall be the
following day. Where the council is not summoned to meet at the aforementioned
time, it shall meet by operation of the provisions of the constitution.
- 49 ·
APPENDIX E, continued
ARTICLE 14: A. The duration of an ordinary session is four months. The head of the federa-
tion may extend this period if necessary.
ARTICLE 15:
ARTICLE 16:
ARTICLE 17:
ARTICLE 18:
ARTICLE 19:
ARTICLE 20:
ARTICLE 21:
ARTICLE 22:
B. The head of the federation may, by a federal decree published in the Official
Gazette, postpone the meetings of the federal council only twice, provided that
the total duration of such postponements during any single ordinary session does
not exceed two months. The duration of such postponements are not included in
assessing the duration of the session.
ARTICLE 23:
B. The head of the federation may summon the (federal) council to meet in
extraordinary sessions if necessary, or following a request therefore signed by
a majority of the members of the council, for the purpose of considering specific
matters, after which the head of the federation terminates the extraordinary
session. At an extraordinary session the council may discuss only the specific
matters for which the session in question was called.
The head of the federation shall open the ordinary session of the federal council
by delivering an inaugural speech about the general policy of the federation. The
head of the federation may delegate the Premier or a minister to conduct the
ceremonies of inauguration and deliver the speech. The federal council shall
submit its reply to the inaugural speech within a period not exceeding two weeks.
A. At the beginning of each ordinary session the federal council shall elect from
among its members a president and two vice presidents, who may be reelected.
B. Where it meets in extraordinary session without having a president, the council
shall elect a president for a period ending at the start of the ordinary session.
The meetings of the council shall be public. Private meetings may be held upon.
the request of the appropriate minister, or the president of the federal council,
or at the request of 10 members (of the council).
The president and members of the federal council shall receive honorariums to be
fixed by law.
The council shall set down its standing orders.
A member of the council may resign by submitting a letter to the president of the
council. The president shall submit the resignation to the council, which may
accept or refuse the resignation.
Meetings of the council shall not be considered valid unless two-thirds of the
members of the council attend. The decisions of the council shall be passed by
absolute majority of the members present, except in those cases where a special
majority is stipulated. The president of the council shall not participate in the
voting, but shall have a deciding vote to break a tie vote.
A. No member of the federal council may be detained or tried while the council
is in session, unless the council agrees to this by absolute majority, except
where the member is apprehended while in the act of committing a felony. In this
case, the council shall be notified of the matter when it meets.
B. No member of the council may suffer liability in respect to views or opinions
expressed during the performance of his duties in the council.
A. Where a member of the federal council loses eligibility in accordance with the
laws of the state to which he belongs, his membership of the federal council
shall lapse and his seat shall become vacant.
- 50 -
APPENDIX E, continued
ARTICLE 24:
ARTICLE 25:
ARTICLE 26:
ARTICLE 28:
ARTICLE 29:
ARTICLE 30:
B. Where the seat of any member of the council becomes vacant before the expira-
tion of its term, for any reason whatsoever, such seat shall be filled in accordance
with the provisions of Article 10 of this constitution.
ARTICLE 27: A. The head of the federation may dissolve the federal council.
ARTICLE 31:
A new federal council shall be elected within three months before the expiration
of the term of the existing council. Where it is impossible to conduct the elections
at the appropriate time, the term of the existing council shall be extended until
the election of the new council.
The council shall supervise the activities of the executive authority in the manner
stipulated in this constitution.
The chairman of the council of ministers of the federation or ministers who are
members of the federal council may speak and vote in the (federal) council.
Ministers who are not members of the (federal) council may speak in the council
but may not vote. Ministers or their deputies have precedence over all other
members in addressing the council. No others may enter the meeting hall or speak
therein without an invitation from the president of the council.
B. Where the council is dissolved the new council shall be elected forthwith. Where
this is impossible elections shall take place at the first meeting of the two
parliaments.
C. The new council shall be summoned to an extraordinary session within 20 days of
the completion of its election. Such extraordinary sessions may not in any event
extend beyond the 31st day of December, and shall be terminated on that date in
order that the council may hold its first ordinary session in accordance with the
provisions of this constitution. Where the extraordinary session is held in the
months of January or February it shall be considered as the first ordinary session
of the council.
D. Where the council is dissolved for any reason whatsoever the new council may
not be dissolved for the same reason.
The council may conduct an inquiry in matters falling within its jurisdiction in
accordance with its standing orders.
The council of ministers of the federation shall submit every draft law to the
(federal) council. With the exception of financial matters, 10 members of the
federal council may propose laws.
A. Every draft law proposed by the council of ministers shall be referred to the
appropriate committee of the federal council which shall report on it. Later, it
shall be submitted to the council to be discussed and voted upon.
B. Every proposal for a draft law submitted by members of the federal council
shall be referred to the appropriate committee of the council which shall report on
it. The proposal shall then be submitted to the (federal) council, and if accepted
it shall be referred by it to the council of ministers in order that it may be drafted
in the form of a draft law for submission (to the federal council) either in the same
session or in the next session. Where the federal council rejects a proposal, such
proposal may be resubmitted only at another session.
The federal council shall vote upon a draft law section by section, and later vote
upon it as a whole. With the approval of the council a draft law may be voted upon
simply as a whole.
- 51 -
-
APPENDIX E, continued
ARTICLE 32:
ARTICLE 33:
A. Every draft law approved by the federal council shall be submitted to the head
of the council for assent.
ARTICLE 36:
ARTICLE 37:
B. Where the head of the federation does not wish to give his assent to the law he
may send it back to the council within 30 days from the date when it was sub-
mitted to him, with an indication of the reasons his assent was not given. If the
head of the federation does not send the law back within this period, the law
shall be deemed to have received the assent and hence be promulgated.
C. If the law is sent back to the (federal) council in the manner stipulated herein
before, and if it is then approved once more by a vote of two-thirds of its mem-
bers, the law shall be submitted for assent. If the law is not returned duly
as sented within the period stipulated in Paragraph B it shall be deemed to have
received assent and hence be promulgated.
ARTICLE 34: Every member of the (federal) council may ask questions of and interpolate any
minister in accordance with the standing orders.
Every law shall be published in the Official Gazette of the federation within 15
days of receiving assent, and it shall come into force in the countries of the
federation 30 days after such publication, unless a special provision is made in
the law stipulating that it shall come into force on another date.
CHAPTER III: THE EXECUTIVE AUTHORITY
ARTICLE 35:
ARTICLE 40:
The executive authority shall be vested in the head of the federation who shall
exercise it through the council of ministers of the federation in accordance with
the provisions of this constitution.
The head of the federation is immune to obligations and responsibilities.
The head of the federation shall exercise his powers by means of federal decrees
issued following proposals by the ministers concerned. To be valid, such decrees
must be signed by the chairman of the council of ministers and the ministers con-
cerned. Federal decrees appointing, dismissing, or accepting the resignation of
the chairman of the council of ministers are excepted from these provisions. How-
ever, federal laws appointing, dismissing, or accepting the resignations of
ministers shall be signed by the head of the federation and the chairman of the
council of ministers.
ARTICLE 38: The council of ministers of the federation shall consist of a chairman and as
many ministers as the interests of the federation require. A vice chairman of the
council of ministers and minister of state may be appointed, provided, however,
that in the selection of ministers due consideration is given to insuring that the
member states of the federation are represented in the council of ministers. Such
ministers must hold the nationality of one of the member countries and must
possess the qualifications required of the members of the chamber of deputies
in the member states.
ARTICLE 39: The chairman of the council of ministers and the ministers shall take the follow-
ing oath before the head of the federation: "I swear by Almighty God to be loyal
to the Arab Federation, and to preserve the constitution of the federation, and to
faithfully carry out the duties entrusted to me.
""
A council of ministers shall undertake the management of all the affairs of the
federation within the sphere of the powers indicated in this constitution, or in
accordance with any law or regulation promulgated by virtue thereof.
- 52 -
APPENDIX E, continued
ARTICLE 41: A. Every minister is responsible for the affairs of his own ministry, and he shall
implement the general policy of the federation.
B. The decisions of the council of ministers shall be submitted to the head of
the federation for information, and the head of the federation may request
reconsideration of any of these decisions. The decisions of the council of
ministers shall be implemented by the chairman of the council of ministers and
the ministers within their respective responsibilities.
ARTICLE 42: A. A ministerial post and membership of the federal council may be combined.
However, a ministerial post in the council of ministers of the federation and a
ministerial post or membership of parliament in any of the member states may not
be combined.
ARTICLE 45:
B. A minister of state shall undertake the matters entrusted to him by the chair-
man of the council of ministers.
ARTICLE 46:
ARTICLE 43: A. The head of the federation shall appoint, dismiss, or accept the resignation
of the chairman of the council of ministers of the federation, and, on the recom-
mendation of the chairman of the council of ministers, shall appoint, dismiss, or
accept the resignations of ministers.
ARTICLE 47:
B. A ministerial post and public office or service with a person in contractual
relationship with the government of the federation or with any public authority in
any of the member states of the federation may not be combined. A minister may
not buy or hire any of the property of the government of the federation or the
property of any of the governments of the federation, even through public
auction.
During his ministerial term of office a minister may not likewise become a
member of the board of management of any company, or undertake any commercial
or financial activity, or receive salary from any official or unofficial organiza-
tion, or practice a free profession.
ARTICLE 44: The salaries of the chairman of the council of ministers and the ministers shall
be fixed by law.
B. When the chairman of the council of ministers resigns, is dismissed, or dies,
all the ministers are considered to have resigned or been dismissed.
The chairman of the council of ministers and the ministers are collectively
responsible to the federal council for the general policy of the federation. Each
minister is also responsible for the affairs of his ministry.
Should the federal council, by absolute majority of all its members, give a vote
of non-confidence in the council of ministers, the council of ministers shall
resign forthwith. If the vote of non-confidence appertains only to one minister
that minister shall likewise resign.
A. A meeting to decide on confidence in the council of ministers or in any one
minister shall be held either at the request of the chairman of the council of
ministers or following a request signed by at least 10 of the members of the
federal council.
B. Voting on confidence in the council of ministers may be postponed only once
for a period not exceeding seven days if the chairman of the council of ministers
or the minister concerned so requests. The council of ministers may not be
dissolved during this period.
- 53 -
APPENDIX E, continued
ARTICLE 48: Every council of ministers shall submit a statement of policy to the federal
council within one month of the date of its formation. If the federal council
ARTICLE 49:
ARTICLE 50:
is in session, the council of ministers shall ask for a vote of confidence on this
statement of policy; and if the federal council is not in session or is dissolved,
the inaugural speech shall be considered a statement of policy for the purpose of
this article.
ARTICLE 54:
The ministers are responsible for any crimes they commit in the performance of
their functions.
ARTICLE 51: The head of the federation shall appoint, dismiss, or accept the resignations of
the diplomatic representatives of the government of the federation in the manner
stipulated by the law. He shall also accept the credentials of the diplomatic
representatives of foreign countries.
ARTICLE 55:
A. The federal council may impeach the ministers who shall be tried before the
federal supreme court. The impeachment shall be made following a secret
ballot by a majority of two-thirds of all members of the council.
ARTICLE 52: The head of the federation concludes the treaties, pacts, and agreements apper-
taining to the powers of the government of the federation, and assents to them.
after ratification by the federal council.
ARTICLE 56:
B. A minister against whom an impeachment order has been made in the manner
indicated herein before shall be suspended until the supreme court decides on
his case.
ARTICLE 53: A. The head of the federation is the commander in chief of the Arab army. He
declares war with the approval of the federal council, and where the council is
dissolved it shall be summoned to meet forthwith for this purpose.
B. The King of Jordan shall be the commander in chief of the armed forces of the
Arab army stationed in Jordan.
C. The actual carrying out of the functions of the command (of the armed forces)
shall be vested in the staff headquarters of the Arab army.
D. The head of the federation, upon the recommendation of the minister of defense
and the chairman of the council of ministers of the federation, shall appoint the
chief of staff of the Arab army, his assistants, the frontline commanders, the
division commanders, and those of equal status, in accordance with the law.
E. Military ranks shall be granted and withdrawn in accordance with the provisions
of the respective constitutions of the two countries following a recommendation by
the minister of defense and the chairman of the council of ministers of the federa-
tion in accordance with the provisions of the federal law relating to the service
of officers, and they shall be published in accordance with a federal decree.
The head of the federation issues the necessary decrees for the implementation of
the laws.
The law shall define the terms for appointment, salaries, promotions, discipline,
retirement, and other aspects of civil and military service appertaining to all the
employees of the federal government.
If, during the meetings of the federal council or during the period when it is
dissolved, anything happens to warrant the taking of urgent necessary measures,
the head of the federation may issue federal proclamations with the force of law.
Such proclamations, which may not contravene the provisions of this constitution,
--
54 -
APPENDIX E, continued
ARTICLE 57:
shall be submitted to the federal council for discussion at the first meeting it
holds after their issuance. If the federal council rejects such proclamations they
shall be declared invalid from the date of such rejection, provided that they may
not affect commitments and rights acquired under them.
ARTICLE 59:
All regulations and proclamations shall be issued with the approval of the council
of ministers. They shall be signed by the chairman of the council of ministers
and the ministers.
CHAPTER IV: THE JUDICIAL AUTHORITY
ARTICLE 58: A. There shall be formed a supreme court consisting of a president and six
judges, three of whom shall be members of the court of cassation in each of the
countries of the federation or leading jurists of similar rank.
B. The quorum in the supreme court shall consist of five judges, including the
president.
C. The supreme court shall meet in the headquarters of the government of the
federation.
E. (as received-Ed.) The judgments of the supreme court shall be final and
binding, and a law shall indicate the manner in which they are to be implemented.
The following matters shall fall within the exclusive jurisdiction of the supreme
court:
A. The trial of members of the federal council and federal ministers.
B. The determination of disputes between the government of the federation and
one or more of the members of the federation, or the disputes between the members.
C. The giving of legal advice in matters referred to it by the chairman of the
council of ministers of the federation.
D. The interpretation of the constitution of the federation and the federal laws at
the request of the chairman of the council of ministers of the federation-the
decisions made by the court in this regard shall have the power of an interpreta-
tive provision.
E. The constitutional validity of federal laws and proclamations, following a
request from the chairman of the council of ministers of the federation or the
chairman of the council of ministers of any one of the member states-the
decision providing for the constitutional invalidity of the law or proclamation
shall invalidate such law or proclamation from the date of the issuance of the
decision.
F. The appeal of final judgments made by the courts of the member states, where
such judgments involve the determination of a dispute relating to the provisions
of this constitution or any federal law.
G. The appeal of judgments made by the federal courts in accordance with the laws.
ARTICLE 60: A. The head of the federation, with the approval of the council of ministers, shall
appoint the president of the supreme court and all the members of the court.
These may not be dismissed.
- 55 -
APPENDIX E, continued
ARTICLE 61:
B. A law shall define the qualifications of the members of the supreme court, the
terms of their appointment, and all matters relating to their service.
The federal council may set up other federal courts if necessary.
CHAPTER V: THE POWERS OF THE FEDERATION
ARTICLE 62: A. The following matters shall fall within the exclusive jurisdiction of the
government of the federation:
1. Foreign affairs and diplomatic and consular representation.
2. The conclusion of international treaties, pacts, and agreements.
ARTICLE 63:
3. The protection of the countries of the federation and the preservation of
their domestic and foreign security and safety.
4. The setting up and management of armed forces under the name of "the
Arab Army." No member of the federation may maintain any armed forma-
tions except domestic police and security forces.
5. The organization of the supreme defense council, military service and
mobilization by special laws.
6. The customs affairs and legislation appertaining thereto.
7. The coordination of financial and economic policy.
8. Currency affairs and the organization of banking affairs.
9. The unification of educational policy, systems, and syllabuses.
10. Common road and communications affairs.
11. Any matter which the federal council, by a majority of two-thirds of its
members, and following the approval of the governments of the member states,
may consider as a federal matter.
B. All other matters and powers shall continue to be within the jurisdiction of
the governments of the member states of the federation.
All federal laws, regulations, decrees, and proclamations, and all decisions
made by the federal authorities in accordance with the provisions of this con-
stitution, shall be immediately applicable to all authorities and individuals in
the member countries.
CHAPTER VI: THE FINANCES OF THE FEDERATION
ARTICLE 64:
A. There shall be alloted to the government of the federation for disposal fixed
sources of revenue through the imposition of taxes and fees. The member states
shall surrender these sources of revenue to the government of the federation to
the extent which enables it to carry out its duties and responsibilities in
accordance with the provisions of this constitution.
B. The Iraqi Government undertakes to supply the government of the federation
with 80 percent of the revenue of the budget of the first year. The Hashimite
Kingdom of Jordan undertakes to supply 20 percent of this revenue.
- 56 -
APPENDIX E, continued
ARTICLE 65: The estimates of revenue and expenditure of the federal government shall be
stipulated in an annual budget ratified by a law before the beginning of the
financial year, which begins on March 1 every year.
ARTICLE 66:
ARTICLE 68:
C. Upon the termination of the first financial year the provisions of Paragraph A
of this article shall come into operation; and if the surrender (of funds) stipulated
therein does not take place, the federal government may impose upon the revenues
of the member states the proportions which it considers necessary to meet the
expenditure of the federation.
ARTICLE 67: The federal council shall debate the budget item by item. If the ratification of
the budget is not possible before the beginning of the financial year, expenditure
shall continue by means of monthly appropriations at a proportion of one-twelfth
of the previous year's budget for every month.
ARTICLE 70:
No salary may be earmarked, no grant made, and no part of the funds of the
federal treasury spent unless an appropriation is made in the federal budget, and
unless the specific purpose of its expenditure is stipulated in the law.
ARTICLE 71:
ARTICLE 69: A. A law shall set up an audit bureau to control the revenue and expenditure of
the government of the federation, the method of spending, and the audit of the
accounts.
No sum may be transferred from one item to another in the budget, and no sum
shall be added to or reduced or abolished from the operative budget, except by law.
B. The audit bureau shall submit to the federal council at the beginning of every
ordinary session, or whenever the federal council so requires, a general report
containing its views and remarks and a statement of the violations committed
and the responsibilities arising therefrom.
C. The law shall make provisions for the immunity of the chief of the audit bureau.
The government of the federation may, in accordance with the law, own, manage,
or dispose of movable and immovable property.
All the funds, realty, and properties of the federation, and all things earmarked
for the federation or allotted to it, or acquired by it by any means whatsoever,
shall be exempted from the taxes and fees imposed by the laws in each of the
countries of the federation.
CHAPTER VII: THE AMENDMENT OF THE CONSTITUTION
ARTICLE 72: This constitution may be amended in the following manner:
A. The head of the federation, with the approval of the council of ministers, and
the federal council, following a request signed by 21 of its total members, may
request that an amendment be made to this constitution. The request shall
specify the matters which it is desired to amend, abolish or add.
B. The federal council shall discuss the request for amendment and shall make a
decision thereupon by a majority of two-thirds of its total membership.
C. If the federal council agrees to the amendment it shall refer it to the legislative
authorities in the member states. If these authorities agree to the amendment by
an absolute majority at a joint session of parliament, the amendment shall come
into force after approval by the head of the federation in the manner stipulated in
Article 32.
- 57 -
-
APPENDIX E, continued
CHAPTER VIII: MISCELLANEOUS PROVISIONS
ARTICLE 73: A. In the event of an emergency likely to disturb public order in any part of the
countries of the federation, the head of the federation may, in pursuance of a
resolution by the council of ministers of the federation proclaim by federal
decree a state of emergency in the entire federation or in any specific part
thereof. The administration of the regions to which the state of emergency
applies shall be conducted in accordance with a special law which shall vest
in one or more persons specified by the law the power to take the necessary
measures and steps to restore public order, and the power to suspend ordinary
laws. The law shall also make provisions for trying persons for specific crimes
before special courts.
ARTICLE 75:
B. In the event of serious disturbances or an emergency in any part of the
countries of the federation, or in the event of the threat of aggression against
any region of the countries of the federation, the head of the federation may, in
pursuance of a resolution by the council of ministers of the federation, proclaim
by federal decree martial laws in the region or district in which the serious
disturbances of emergency is taking place or which are involved in the threat of
aggression.
ARTICLE 76:
C. Federal decrees may provide for power to suspend ordinary laws or regulations
in force in the regions and to the extent stipulated in such decrees. All persons
engaged in the enforcement of such decrees shall remain liable for legal
responsibility arising from their actions in accordance with the provisions of
laws and regulations, until such time as they are absolved of such responsibility
by a law promulgated for this specific purpose.
D. If any of the member states of the federation, by virtue of its valid laws,
proclaims a state of emergency or martial law in its country or any part of it,
such member state may take the necessary measures and steps to enforce the
state of emergency or martial law in accordance with the provisions of its own
laws, and without reference to the government of the federation. Military forces
in such country shall be responsible for implementing the aforementioned
measures and steps, provided that the federal government is informed thereof.
ARTICLE 74: The government of the federation shall fix the times and the procedure for
assuming from the governments of the member states all the powers within its
jurisdiction.
E. If all the governments of the member states of the federation proclaim a state
of emergency or martial law in their countries in such a manner that all the
countries of the federation are involved, this shall be deemed to be a proclama-
tion made by the government of the federation. Thereupon, the provisions of
Paragraphs A and B of this article shall be implemented.
The federal council formed after the issuance of this constitution shall be con-
sidered the first federal council. The first meeting held by this council shall be
considered an extraordinary session, and this meeting shall be concluded before
January 1959 in order that the council may begin its first ordinary session
stipulated in Article 13 of this constitution.
The first budget of the government of the federation shall be submitted to the
federal council during the extraordinary session stipulated in Article 75 here in
before.
ARTICLE 77: This constitution shall come into force after it is approved by a joint session of
parliament in each of the member states, and after ratification in accordance
with constitutional provisions.
- 58 -
APPENDIX E, continued
ARTICLE 78:
ARTICLE 79:
ARTICLE 80:
All laws, regulations, and legislation affecting the powers of the government of
the federation and in operation in the member states on the promulgation of this
constitution shall remain operative and in force in each of the member states
until they are repealed or amended or replaced by other legislation issued in
accordance with the provisions of this constitution.
Each member state shall amend its constitution in order that its provisions may
become compatible with the provisions of this constitution, and it shall adhere
to the provisions of this constitution.
The council of ministers of the government of the federation and the governments
of the member states are charged with implementing the provisions of this con-
stitution.
#####
- 59 -
APPENDIX F: MAP OF MIDDLE EAST

T
Ismailla
Nila
MEDITERRANEAN
S E A
U
Port Said
CYPRUS
STEL AVIV
Gaza
CAIRO
Suez
(E G Y P T)
UNITED ARAB REPUBLIC
PENINSULA
R E
E
R
Source: United Nations
BEIRUT
ISRAEL
-Tripoli
Saida
Hebron
Nablus
Jericho
JERUSALEM
Dead
LEBANON
Aqaba
K
Orendes
JORDAN
(ARAB
FEDERATION)
DAMASCUS
AMMAN
Aleppo
(SYRIA)
UNITED ARAB REPUBLIQ
E
•
Deir-az-Zor
- 60-
-
Mosul
SKETCH OF THE MIDDLE EAST
Scale 1:4,000,000
Boundaries and/or demarcation lines
SAUDI
Euphrates
I
A
(ARAB FEDERATION)
Tigris
R
BAGHDAD
Q
IRAN
ARABIA
Abadan
KUWAIT
UNIVERSITY OF MICHIGAN
3 9015 06477 1473