UNITED NATIONS, OCT. 11 -- After an all-night session, the 15 members of the U.N. Security Council failed today to reach agreement on a draft resolution that would condemn Israel for Monday's killing of 19 Palestinians on Jerusalem's Temple Mount.

The United States has insisted that any resolution be balanced and that it condemn the violence of the Palestinians as well. As a result, it is calling for wording that would condemn "the acts of violence, including those committed by the Israeli security forces."

The Palestine Liberation Organization and a number of nonaligned countries have argued that the resolution should mention Israel only.

At the same time, European and Arab countries appeared to be pressing the United States to go along with a resolution that would give the Security Council a more active role in evaluating events in Israel's occupied territories.

Initially, the United States opposed a draft resolution that would authorize the Security Council to send a commission to the area. Instead, it proposed that Secretary General Javier Perez de Cuellar send a mission that would report back to him at an unspecified date.

However, some U.S. allies, including France and Canada, as well as a number of Arab and nonaligned countries made no objection to a Security Council commission as called for in the original draft resolution. After a series of negotiating sessions, the United States agreed to a formula under which the secretary general would appoint a mission and then report to the council on its findings before the end of October.

But still in dispute is a proposal for the secretary general to recommend "ways and means for ensuring the safety and protection of the Palestinian civilians under Israeli occupation as well as Islamic and Christian holy sites." The PLO had requested a U.N. role in protecting Palestinians; the United States and Israel oppose this.

{In Jerusalem, about 35,000 Jews celebrated the end of the Sukkot festival at the Western Wall, Judaism's holiest site, where Jewish worshipers were stoned Monday by Palestinians standing atop Temple Mount. Nearby, police used tear gas and rubber bullets to break up two protest marches by Palestinians, the Associated Press reported.}

The council is to resume informal consultations on Friday. But the length of the negotiations already has led to charges by the PLO and Iraq that the United States and its allies are operating on a "double standard." Pointing to the speed with which resolutions against Iraq were adopted, they said the council only works when the United States wants it to.