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ASPECTS of SOUTH YEMEN's FOREIGN POLICY L967-L982 by Fred Halliday Department of International History London School of Economic

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ASPECTS of SOUTH YEMEN's FOREIGN POLICY L967-L982 by Fred Halliday Department of International History London School of Economic ASPECTS OF SOUTH YEMEN'S FOREIGN POLICY L967-L982 by Fred Halliday Department of International History London School of Economics and Political Science University of London Thesis submitted for the degree of Doctor of Philosophy April 1985 Thesis Abstract This study analyses the foreign relations of South Yemen (since 1970 the People's Democratic Republic of Yemen) from independence in 1967 until 1982. It covers the first four Presidencies of the post- independence period, with their attendant policy changes, and ends with the resolution of two of the more pressing foreign policy conflicts with which South Yemen was concerned, its support for the guerrillas in North Yemen, who were defeated in the spring of 1982, and its conflict with the Sultanate of Oman, with whom diplomatic relations were concluded in October 1982. Chapter One provides an outline of the background to South Yemen's foreign policy: the outcome of the independence movement itself and the resultant foreign policy orientations of the new government; the independence negotiations with Britain; and the manner in which, in the post-independence period, the ruling National Front sought to determine and develop its foreign policy. The remaining four chapters focus upon specific aspects of South Yemen's foreign policy that are, it is argued, of central importance. Chapter Two discusses relations with the West - with Britain, France, West Germany and the USA. It charts the pattern of continued economic ties with western European states, and the several political disputes which South Yemen had with them. Chapter Three discusses the issue of 'Yemeni Unity' - the reasons for the continued commitment to this goal, the policy of simultaneously supporting opposition in North Yemen and negotiating with the government there, and the course of policy on creating a unified Yemeni state. Chapter Four considers the attempt to promote revolution in Oman, relations with other states in the Arabian Peninsula and the gradual lessening of tensions between 2 them and South Yemen. Chapter Five discusses relations with the USSR and China - the growth of military and economic links with Russia, the large but not complete area of PDRY-USSR political agreement, and the continued if sometimes tense relationship with China. The study ends with a brief Conclusion, suggesting some broader implications of South Yemen's foreign policy in this period. Contents Page Note on Nomenclature 5 Note on Transliteration 6 Introduction 7 Chapter One. The Development of Foreign Policy 18 A Revolutionary Outcome 18 The Independence Negotiations 19 The National Front and Foreign Policy 35 The Yemeni Socialist Party 48 Domestic Determinations, International Limits 59 Chapter Two. Relations with the West 80 Relations with the United Kingdom 84 Secondary Actors: France and West Germany 98 Relations with the USA: Causes of a Rupture 104 Chapter Three. The Pursuit of Yemeni 'Unity* 131 The Aspiration to 'Unity 1 131 Phases of Relations with the YAR 144 Sources of the 'Unity' Policy 173 Chapter Four. Regional Orientations: 'Solidarity 1 and Accommodation 186 Conflict with Oman: 1967-1982 188 Relations with Saudi Arabia 209 The Smaller Gulf States 221 Regional Involvements: the Horn of Africa, Iran, Palestine 227 Chapter Five. Relations with the USSR and China 246 Moscow and Aden: Initiating an Alliance 249 The Relationship Consolidated 260 A 'State of Socialist Orientation' 273 Relations with China 285 Conclusions 306 Appendices 313 Abbreviations 333 Bibliography 334 Note on Nomenclature The area referred to in this study as 'South Yemen 1 has been known in English by several names in the twentieth century. In earlier decades it was conventionally known as 'Aden 1 or 'Aden and the Protec­ torates', as well as by the broader geographic name 'South Arabia', and, after 1959, as the Federation of South Arabia. The official title of the state was, from 1967 to 1970, the People's Republic of South (or Southern) Yemen, and, from 1970 onwards, the People's Demo­ cratic Republic of Yemen. The terra 'South Yemen' is a geographic term that came into English usage after independence. In this work, the term 'South Yemen' is used, irrespective of historical period, to cover the geographic area, and the 'People's Democratic Republic of Yemen' to denote the post-independence state, except where the term People's Republic of South Yemen is specifically appropriate. The political organisation now ruling South Yemen has undergone several changes of title since its establishment in 1963. It was known from 1963 to 1967 as the 'National Liberation Front of Occupied South Yemen', from 1967 to 1972 as the 'National Front 1 , from 1972 to 1975 as the 'Political Organisation, the National Front', from 1975 to 1978 as the 'United Political Organisation, the National Front', and, from 1978 onwards, as the 'Yemeni Socialist Party'. I have tried to use whichever term is appropriate for the period under discussion, but for the post-1967 years have used the terms 'ruling organisation' and 'ruling party' interchangeably. Note on Transliteration The main system of transliteration from Arabic used here is that of the Encyclopaedia of Islam. However, where names of places or people are conventionally rendered into English in other forms, these latter have been retained (e.g. Aden, Bahrain, Imam, Nasser, Saudi Arabia, Yemen). Introduction The purpose of the following study is to analyse the foreign relations of South Yemen during the first decade and a half since its indepen­ dence, from November 1967 until the end of 1982. Such an analysis will involve discussion of some central components of the PDRY's foreign policy, the more important positions on foreign policy adopted by South Yemen's government and, where relevant, the corresponding policies of other states and political groups with which it has had contact. This work is intended to be a contribution of relevance to three separate areas of study - the modern history of Arabia, the analysis of the foreign policies of third world states, and the com­ parative study of the external relations of post-revolutionary regimes. Rather than attempting the establishment of a comprehensive, empirical, record, the analysis aims, within the constraints of the available information and space, to elicit some themes in South Yemeni foreign policy that are both significant in themselves and of broader, comparative, interest. It is this selective approach which has guided the choice and ordering of the different chapters. Chapter One establishes the domestic context of South Yemen's foreign relations-. It charts the transfer of power from Britain and the determination of the regime's foreign policy in the years after independence by successive governments and congresses. The four chapters that follow each focus upon a major theme in South Yemen's foreign policy. These chapters analyse both the reasons for this policy being a central one and the manner in which policy on this issue has developed. Chapter Two discusses South Yemen's policy towards political and economic ties with the west. While all transitions from colonial rule to independence involve an element of discontinuity, the degree of 8 discontinuity, even rupture, attendant upon decolonisation in South Yemen was greater than in many other post-1945 instances. The question arises of to what point such a radical or revolutionary decolonisation was taken, not only internally but also internationally, and what the costs of this kind of decolonisation were. This issue is posed with especial force in regard to two aspects of South Yemen's foreign policy: its diplomatic relations with the west, and its ties to western economies, upon which its prosperity had hitherto relied. The second theme in South Yemen's foreign policy to be analysed is the claim that the PDRY was only part of a divided country, a 'greater 1 Yemen encompassing the two states of North and South Yemen, as well as, on occasion, parts of Saudi Arabia. This comprises the material of Chapter Three. The problem of national unity has arisen in many other parts of the contemporary world. This has been the case in Germany and Korea, where since 1945 two distinct states have come into existence. It has also been so in, among other places, Mongolia, Bengal, Somalia, and Ireland: in these latter cases independent and distinct states have claimed that part of their national territory remains under the control of another state. In many of these 3 'unity 1 and territorial claims persist even where realisation of "unity 1 seems remote. 2 It is not necessary to believe that unity of the two Yemeni states was feasible to see that the issue of 'unity 1 , and of the conflictual but persistently intimate relations between the two states, was an important factor in South Yemen's foreign policy, not least because here the issue of national unity intersected with that of promoting change in another state. The history of policy on Yemeni 'unity' provides an example of interaction between two states of similar national but divergent social characters that is pertinent to some of the other instances. 9 South Yemen's foreign relations with neighbouring states are of interest for a further reason, namely the intention which they embodied of encouraging revolution in other states of the region apart from North Yemen. This topic forms the subject-matter of Chapter Four. As much as any state in this century that has issued from a revolution, South Yemen sought to conduct its foreign relations at two, often contradictory, levels - that of inter-governmental relations, with other states, and that of relations with revolutionary forces within other states, ones that were seeking to overthrow the existing govern­ ments. This commitment to opposition groups was true of South Yemen's relations towards all three of its land neighbours - Saudi Arabia and Oman as well as North Yemen - and towards other remoter states in the region - Ethiopia, Iran and Israel.
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