160. Telegram From Secretary of State Rusk to the Department of State0
Secto 44. At 1700 Secretary met Foreign Minister Popovic. Also present were Under Secretary Nikezic, Assistant Secretary Lekic and Director Petric. Meeting lasted one hour and half.
After agreement discuss bilateral and then broader international issues, Secretary began by stating US Government had serious desire steadily improve our relations with Yugoslav Government. While recognizing there are and will continue to be differences in points of view some questions, it was our hope that each side would work toward resolving them. Immediate problem of MFN was before Congress and it was our hope that discussion there would help clarify our relations. Secretary said he could not give any clear assurances at this time what Congress would do but President and he had talked with congressional leaders and there was reason to expect that some who had been unhelpful in past might be silent this year. He pointed out we had not carried out the provision in the Trade Act Law withdrawing MFN and would not as long as Congress has the matter under consideration. Secretary said it would assist us in handling matter on Washington scene if matter of public statements and exchanges between governments could be avoided.
Popovic replied he did not have much comment now; history of matter well known; Yugoslavs regarded it as an important problem not because of economic substance but because it was a political problem which until solved threatens the whole fabric of our relations. He knew it was not an act by US Government and recognized difficulties in correcting matter. Yugoslavs were encouraged by information they had received that difficulties might be less than before, which they attributed to efforts of most authoritative members US Government. Expressed optimism that matter was on way to be solved. Pointed out that Yugoslavs had refrained from too negatively presenting matter before Yugoslav public opinion. They had congressional problem much in mind and would continue to show restraint in hope problem can be solved.
Popovic then raised question of Yugoslav emigre activities in US noting that US had already taken some measure to ameliorate situation. Yugoslavs were not asking for an unreal maximum and recognized that under American law the US restricted as to what could be done. However, Yugoslavs hope that most extreme actions can be discouraged in [Page 351] order that relations not be affected in a negative manner. Solution of this problem could only help both sides.
Secretary commented he aware of incidents in past for which we had expressed regrets. We would continue carefully follow this matter but there was limit to what we can do not only because of constitutional provisions but because US was nation of emigres. Within range of free speech and freedom of press, we will take action to prevent anything harmful to Yugoslav officials or property or which could injure relations between two countries.
Popovic then raised question sales military spare parts. Pointed out there had already been failure to meet certain contractual obligations and this created difficulty for normal function Yugoslav Army. Secretary replied he was familiar with this problem and hoped a solution can be found. Pointed out that this solution for US has two points: the technical legal point under the law of certain findings which the President must make but it was also a political matter as we must consult with congressional leaders and thus it has some political connection with problem MFN. Promised to take up question when he returned Washington.
Discussion then turned to international issue with Secretary remarking that we were trying to reach agreement on one of two points with Soviet Union though we don’t see any possibility of a broad detente. Secretary cited outer space, recent message to Khrushchev from Macmillan and President on nuclear test ban, non proliferation and Berlin.1 With regard to nuclear test ban expressed belief that number of inspections should not be allowed to stand in way of achieving agreement. Until we could obtain agreement on character of inspections it relatively meaningless to discuss number. Believed this could be worked out so that espionage would not come into question. Described dangers of armaments race and thought agreement on ban still in national interest of three countries. Secretary stated we had been disappointed that temperature of Khrushchev’s interest in nuclear test ban seemed to have fallen since last December.
Popovic noted Yugoslavs were not so well qualified to talk about this question. Said they were not enough acquainted with latest proposal to have definite opinion. Yugoslavs appreciated dangers in sense Secretary spoke about arms race and danger of other nations arming themselves with nuclear weapons. Yugoslavs had impression that Western side insisted too much on inspection and USSR too much on espionage.
They were hopeful two sides could find basis for agreement but had impression both sides seemed to be more rigid than warranted. Yugoslavs [Page 352] unable judge Secretary’s estimate Soviets had cooled off on test ban treaty.
After brief general discussion disarmament Secretary brought up question of Cuba pointing out potential dangers as long as Soviet forces present on island. Observed there were two non-negotiable points, i.e., military and political connection of Cuba with Moscow, and illegal intrusion of Cuba into affairs of other LA countries. Reviewed history of Castro movement and commented Castro appeared to have abandoned his original commitments and turned revolution into something else. We did not oppose Castro just for historical reasons but problem related to present security needs. So long as Soviet troops are there Cuba will continue to be a difficult question.
Popovic expressed recognition importance US attached to Cuban question and as unresolved question it constituted threat to peace not only in that region but to world. Yugoslavs considered real social revolution had taken place in Cuba and that the regime there represents basic aspirations of Cuban people. Recognized this viewpoint different from Secretary’s. Pointed out that even before Soviet troops or arms were introduced into Cuba differences between US and Cuba were great. Asked if modus vivendi could not be found which might then eventually lead to a solution.
Secretary replied though we did not know too much about attitude and thinking present Cuban regime, we knew that there were those who believed Cuba should have close ties with Soviet Union while others believed that ties should be with Peiping. What US did not find were those who want reconciliation with the other LA countries. Hence the Secretary was not hopeful of a solution particularly in the light of two non-negotiable points he had mentioned.
Ambassador Kennan pointed out US had never made an issue of nationalized properties in Cuba and that it was not question of social revolution but rather a question of Cuban attitude toward the US and toward their responsibilities to other countries in Western hemisphere. Secretary noted 1959 Castro visit to US and our attempt to establish good relations. However, by May 1960 it was evident Castro rejected all overtures and a great many of Castro’s old associates in revolutionary movement had abandoned him. Cuba was a highly exposed nerve to the American people and the Yugoslavs should know that last October was a unique moment on two counts, i.e., for the first time US and Soviet forces confronted each other and for the first time their leaders faced the possibility of general nuclear war. Emphasized this could not help but affect all our relationships until problem was solved.
Popovic said Yugos properly appraised dangers in this situation. Noted that US making efforts calm situation which had not been accepted by “certain circles” in US. Secretary replied it was true President [Page 353] was trying to keep country calm and realistic on these matters but this was not easy on issue which struck so deep in American opinion. Emphasized that Yugoslavs should understand depth of feeling in US on Cuban question.
Discussion ended with the brief description at request of Popovic of Secretary’s impressions his visit to Pakistan and India in particular in regard to Kashmir problem.
- Source: Department of State, Central Files, ORG 7 S. Confidential; Priority. Repeated to Zagreb. Secretary Rusk visited Yugoslavia May 4–5 on his return from a trip to South Asia.↩
- Dated April 15; for text, see vol. VI, Document 93.↩