18. Airgram From the Legation in Bulgaria to the Department of State0
A–248. Subject: Memorandum of Conversation—Prime Minister Todor Zhivkov.
Date: February 6, 1963
Place: Office of the Prime Minister
[Page 36]PARTICIPANTS:
- Prime Minister Todor Zhivkov
- Mr. Ivan Peynirdzhiev, Foreign Office Interpreter
- Deputy Prime Minister Petur Voutov
- American Minister Eugenie Anderson
- Mr. Alex Bloomfield, Second Secretary of Legation
The Prime Minister welcomed me and asked about my visit to the States. After my reply, Zhivkov remarked about the weather here, observing that, while the floods are serious at present, he believes there will be a better crop this year. He said there is an old Bulgarian saying, “The deeper the snow, the thicker the bread”.
Zhivkov asked me about the weather in the United States. When I confirmed that we, too, have had very cold weather, adding, “It’s been terribly cold all around the world”, Zhivkov laughed and said, “Yes, the weather has been cold, but the international climate has been improving.”
After exchanging these pleasantries, I said I was bringing the Prime Minister personal greetings from the President of the United States, John F. Kennedy.
Before going on, I asked Zhivkov to tell me about his recent travels; that I was interested in hearing his reactions to developments in East Germany and Yugoslavia. The following points were made:
East Germany
Economic relations are more important than political. East Germany occupies second place in Bulgarian foreign trade, and accounts for 12–13 percent of the Bulgarian total. He declared that he was impressed with the “stable economy” of East Germany. He lavished such praise on “The Wall” that I took sharp issue with him, and he then agreed with me that we should work against walls between peoples and countries.
Yugoslavia
Zhivkov seemed a little embarrassed as he began to speak about Yugoslavia. He mentioned the difference between Party and Government cooperation, and clearly stated that there are, and will remain, ideological differences between Bulgaria and Yugoslavia as indicated in the Resolution at the Bulgarian Eighth Party Congress.
However, he went on, “We are neighboring countries. We are both Socialist countries. We are all of Slavic origin and the same blood. For these reasons we are trying to improve relations.”
The Prime Minister said there have been improvements in some fields, such as border questions, trade, cultural, and trade unions. But he was not specific. He added, rather defensively, that this improvement should not have a bearing on Yugoslav relations with other countries. [Page 37] No one should expect “miracles” to have been accomplished at his meeting with Tito. There remained the problem of disagreement with Yugoslav “revisionist” policies. Zhivkov added that the ideological differences should not prevent closer cooperation between Bulgaria and Yugoslavia.
I responded that I was glad to hear of this attitude, which should mean that Bulgaria and the U.S. also could improve their relations. I said that my Government had had a chance to review its position and was anxious to settle the problems of the past so that we could move ahead to positive steps towards the improvement of the relations between Bulgaria and the U.S.
I added that I hoped the Bulgarian Government had also reviewed its position.
Financial Claims
I then raised the question of the financial claims, stating that we wish to resume talks. I asked him if Bulgaria was ready to put forward a new proposal.
In reply, the Prime Minister said that he was not informed on all the details but, as far as he knew, an agreement had almost been reached between the two governments. However, the United States Government almost doubled the amount shortly before the agreement was to be concluded. He asked whether, in the light of this, there was any guarantee that if we reached an agreement now, the U.S. Government would not again increase the amount of their claims.
I replied that, as Minister of the United States, I could assure him that, if an agreement were reached here in Sofia which was approved by the State Department, this agreement would be implemented and carried out by the U.S. Government.
Zhivkov then stated for his part he would instruct Deputy Foreign Minister Voutov, and that I could instruct any Legation officer, to carry on discussion on claims. He emphasized that the Bulgarian Government is willing to settle this question.
I added that I hoped agreement on a lump sum cash payment could be reached easily, and that technical talks concluding the agreement then could be worked out in a few months.
I reminded the Prime Minister of his remark before my departure for the United States to the effect that the normalization of relations with the United States would be worth a great deal to Bulgaria, whether it cost Bulgaria $350,000 or $10 million. Zhivkov laughingly confirmed this previously stated remark and repeated that it should not be difficult to reach an agreement.
[Page 38]El Al Claims1
I then said that there is another outstanding question, the El Al claims. At this point, Deputy Foreign Minister Voutov intervened before Zhivkov could reply. Voutov said that this question was already settled; that the Bulgarian Government had deposited a check in an American bank which would satisfy the claims presented by the lawyers of the victims’ heirs; that Mr. Davis and Mr. Vedeler had approved the settlement; and that he (Voutov) had a written statement of acceptance by the lawyers.
I asked for clarification, stating that I did not believe the question had been settled yet. The Prime Minister broke in to minimize the importance of the dispute. He said that this will be clarified, that there was no problem. He added that the Bulgarian Government views this accident not only from the financial, but also from the humanitarian point of view, and that Bulgaria is willing to meet fully all just claims. He suggested that Minister Voutov and I discuss the problem later.2
Citizenship Cases
I also mentioned that there is another question to be solved before we can fully normalize our relations. This is a citizenship question, but that, in view of the recent signs that the Ministry of Foreign Affairs is making some progress in the Bonev and Dorset cases, I would not go into this matter today. The Prime Minister did not reply and appeared to be uninformed.
Future Developments in U.S.-Bulgarian Relations
The Prime Minister said that, in his view, all of these questions could be solved very easily, without problems; but that the real question is: What will follow the settlement of these problems?
I replied that I had had several conversations in Washington with, among others, President Kennedy, the Secretary of State, and other officials in the Department of State and that we envisage several practical steps which could be taken after the settlement of the outstanding problems, such as:
- a.
- The establishment of a Bulgarian trade office in New York.
- b.
- Raising the status of our Missions to Embassies here and in Washington.
- c.
- A cultural exchange program.
It was obvious that these answers did not fully satisfy Mr. Zhivkov and that he had something else on his mind.
I went on to explain that, while there is objection on the part of certain Congressmen to repealing the bar to giving certain countries Most Favored Nation status, President Kennedy intends to request Congress to leave to his discretion the application of any repeal where he thinks it would be in the best interests of the United States. I added that, of course, it is not possible at the present time to predict what will develop in the future regarding Bulgaria. However, I said, President Kennedy had assured me of his interest in developing trade relations with Bulgaria and other Eastern European countries.
Zhivkov’s Criticism of U.S. Policy
The Prime Minister said that the Bulgarian people are realistic and they see that the Department of State’s policy towards Bulgaria was not “realistic” for the past four years. The Department’s attitude would not be realistic in the future, either, if it expects any changes in the Bulgarian political system. “Even if I,” he said, “would like to be instrumental in such changes, I would be deprived of power immediately.”
Replying to my request for clarification of what he meant by “unrealistic”, Zhivkov stated that, although Bulgaria is a small country, it is in the center of the Balkan Peninsula and that the Balkan problems cannot be solved only with the help of Greece and Turkey, and without Bulgaria.
For the past four years, he continued, there has been no improvement in relations between United States and Bulgaria. Smilingly, he said, he did not know whether Minister Voutov is to be blamed for this, or whether my predecessor was at fault; that my predecessor had done absolutely nothing here; that it was as if he were not present in Bulgaria. At this point, I said I did not think that he should criticize my predecessor who represented the United States, as I am doing, and that Minister Page is a countryman of mine.
I said that I am not only the Minister of the United States, but also a personal representative and friend of the President of my country. I assured the Prime Minister that I was willing to cooperate with him and suggested that, rather than dwelling on the past, we should make a new start in relations between our two countries by the two of us working together.
Zhivkov replied that he does not wish to dwell on the past, but to learn from it.
Trade Proposal
The Prime Minister then said that Bulgaria is very much interested in developing trade with the United States. If favorable terms can be arranged, [Page 40] he said, Bulgaria is desirous now of purchasing from the U.S. one or two chemical factories. Bulgaria has already received three offers from other countries, one being very favorable, he said, implying that Bulgaria is not dependent on the United States for purchasing chemical works, since it is able to obtain them from other countries, such as West Germany, France and even Japan.
He said that, if there should be any difficulties in selling such chemical factories directly to Bulgaria, this could be overcome through an un-named third country. I did not reply to this extraordinary suggestion. Indeed, Zhivkov rushed on to the next subject, not appearing much interested in whether or not I responded.
Press Attacks on President Kennedy
Zhivkov then raised the subject of my informal discussion with Voutov on January 31 (Legtel 322)3 in which I had expressed my displeasure over derogatory cartoons and press attacks on President Kennedy.
I reiterated that the attacks against the United States Government, and even President Kennedy, which appear in the press, and caricatures of the President which are displayed certainly do not contribute to the improvement of relations between our two countries. I said that I, as personal representative of the President, consider such attacks and pictures as personally offensive. I added that President Kennedy is devoted to peace and wishes Bulgaria no harm, only good.
The Prime Minister pointed out that our two countries live under different systems and that, also, the American press is critical of Communist regimes.
I explained that the American press is not controlled by our Government and, furthermore, what I had in mind is not the criticism of ideologies, or systems, but concrete attacks against the U.S. Government, and even the head of our Government.
“The American press,” I added, “has not been critical of you, Mr. Prime Minister. On the contrary, I have read in the American press some very complimentary remarks about you.”
The Prime Minister then said that he agreed with me; that he is not now aware of concrete facts to which I have referred but he deplores them. He assured me that, today, he would issue appropriate instructions that such attacks should not be repeated.
Then Zhivkov added that, shortly after his appointment as Prime Minister, personal derogatory remarks about him had appeared in some “Western press”, not naming the exact source. He said he had [Page 41] thought of asking the Foreign Office to call the Chief of Mission of that particular country here in Sofia and to draw his attention to these press remarks, but since these attacks had soon stopped he thought action would no longer be justified.
Our meeting, which lasted for one hour and fifteen minutes, ended on a cordial note. Toasts were exchanged to the further development of better relations between our two countries, with the Prime Minister adding his hope that considerable progress will be achieved before our next meeting. As I was leaving the room, I admired the bouquet of roses on the table. Minister Voutov selected the nicest one and handed it to Zhivkov who presented it to me.
Comments
I had the impression that Zhivkov was less buoyant than at the time of our first meeting.4 Probably his first two months as Prime Minister have been a strain, in spite of his allegations that things have been going well here. Zhivkov also may have felt less confident in my presence when confronted with specific issues, than on the occasion of our first meeting when he could confine himself to generalities.
I was struck again, as during our first visit, by Zhivkov’s reference to Bulgaria being a small country, and his repeated complaint that Bulgaria has felt ignored by the U.S. I was surprised that he stated so clearly that Bulgaria has no choice over its Soviet alignment.
I noted that Minister Voutov took a harder position than Zhivkov whenever the former entered the conversation. I also observed that Voutov’s smile frequently turned into a smirk, and felt that he was trying to impress me and the Prime Minister that he will be a tough bargainer. However, I believe that Voutov has a great deal at stake in reaching agreement with the U.S. now and that Zhivkov has committed himself to do so.
- Source: Department of State, Central Files, POL Bul–US. Confidential. Drafted by Anderson. Repeated to Belgrade.↩
- Reference is to the shooting down of an El Al airliner by the Bulgarian Air Force on July 27, 1955.↩
- Anderson and Voutov discussed these issues in a February 18 meeting. A memorandum of their conversation is in Department of State, Central Files, POL Bul-US.↩
- Dated February 1. (Ibid., Edu 7)↩
- See Document 16.↩