The expected failure of a delegation, headed by Australian prime minister Robert Menzies, to convince Nasser to accept the decisions of the first London Conference on the Suez crisis and the growing signs of an imminent Franco-British military operation moved John Foster Dulles, the U.S. secretary of state, to call for a second conference, which convened in London on 19 September. The eighteen states that had signed the first declaration adopted Dulles's proposal to establish a Suez Canal Users' Association (SCUA), which was mandated to deal with matters of finance and administration of the Canal on a practical level and thus enforce the users' rights. But, as Anthony Eden later said, the new association was "stillborn". The new Egyptian management continued to operate the Canal successfully, leaving the SCUA unable to enforce its own agenda.
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