361. Telegram From the Embassy in Greece to the Department of State1
3507. 1. FonMin Pipinelis, suffering from thrombosis incurred after strenuous recent activities and affecting his right leg, summoned British Ambassador Stewart and me to his home this noon to describe his recent secret meeting in Switzerland with Turk FonMin Caglayangil and a new initiative on Cyprus. He mentioned that he had seen Canadian Ambassador on same subject earlier today and that Caglayangil was giving similar information today to our colleagues in Ankara.2
2. According to Pipinelis, he and Caglayangil agreed to tackle long-term Cyprus settlement by focussing first on getting for an independent Cyprus a constitution that would be acceptable to both Greek Cypriots and Turk Cypriots. Plan they drew up calls for joint secret request to Canada to convene and chair a four-cornered conference of Greek and Turk FonMins with Makarios and Kutchuk to settle constitutional questions but not deal with other outstanding issues. Questions of [Page 744] Greek military personnel serving with Cypriot National Guard and of treatment of minorities in Greece and Turkey would meanwhile be dealt with under separate procedures that Pipinelis and Caglayangil also discussed.
3. Pipinelis emphasized that Canada would be asked to present conference idea as exclusively its own, and that no Cypriots would be informed of secret prior Greek-Turk understanding. He hopes Canada will see its way clear to lead this initiative despite preoccupation of government leaders with forthcoming elections. As he sees desirable scenario, approaches to Makarios and Kutchuk would be made after some days, to reduce chance of Canadian initiative being linked to rumors of Pipinelis-Caglayangil meeting, but four-way meetings would start after Cypriot elections later this month. Pipinelis believes UNSYG will welcome Canadian initiative as alternative to his own flagging efforts to exercise good offices.
4. It was improved climate following November crisis that led to his meeting with Caglayangil, Pipinelis said. Feelings had calmed down in Greece and Turkey, tenseness on island had relaxed, and on January 12 Makarios had taken constructive step of announcing plans to present a new constitution for Cyprus. However, it became apparent new storm clouds gathering and conditions might again deteriorate. Both he and Caglayangil concluded, therefore, that time had arrived for action. Caglayangil had been good enough to suggest they meet secretly, and Pipinelis had readily agreed despite his doctor’s efforts to prevent him from traveling.
5. In considering next steps on Cyprus, GOG had reasoned that a final settlement would in any case be so difficult that parties must start by concentrating on what aspect most likely to succeed, or least likely to fail. With Makarios’ plan to present Constitution, this had become obvious starting point. Caglayangil agreed with this reasoning, and they had no difficulty in deciding to focus on how to get a constitution for an independent Cyprus that would be agreeable to both Greek Cypriots and Turk Cypriots, leaving all other issues to be handled separately or later.
6. At first Pipinelis had proposed that constitutional talks be conducted between Greek Cypriots and Turk Cypriots under aegis of UNSYG. But Caglayangil had rejected this because of Turk distrust of U Thant. Then Pipinelis had proposed that Greek Cypriots and Turk Cypriots be stimulated to meet together by themselves. Caglayangil has found this idea unsatisfactory because “you have a strong advocate on your side and we don’t on ours.” Finally they reached agreement on a conference at which Turk and Greek FonMins, Makarios and Kutchuk would all sit together. Caglayangil noted that this was first time a Turkish Foreign Minister had agreed to negotiate directly with Makarios.
[Page 745]7. How should such a conference be convened? Pipinelis was definite that Makarios should not have reason to think this a put-up job between Greeks and Turks. Initiative would need to come from outside. After considering whether US or UK would be well situated to play this role, Pipinelis and Caglayangil had concluded it would be better for initiative to come from Canada which naturally interested and involved through UNFICYP. Thus their secret request to Canada today. Meanwhile they hope US and UK can stand ready to help as needed. In particular, they hope US and UK can encourage Makarios to see importance of proceeding carefully toward agreement with Turk Cypriots on new constitution.
8. In response to our questions, Pipinelis told Stewart and me that he and Caglayangil had also discussed question of Greek officers and noncoms with Cypriot National Guard. Caglayangil had explained pressures GOT is under to get action. Pipinelis had replied that throughout crisis he had known that this was a question Greece could not resolve without agreement of Makarios and that premature removal of leadership would leave National Guard dangerously undisciplined. However, it of little importance to Greece itself whether few military involved stay on island or return home; he would be prepared to try to get Makarios’ agreement to progressive withdrawal of Greeks. GOG would prefer that in any case as soon as conditions safe and Makarios agrees, Sir Michael Stewart then told Pipinelis of Kyprianou’s statement to HMG January 30 that Cypriots acknowledge GOG right to withdraw its military personnel from Cypriot National Guard, and also that Makarios wants to reduce size of National Guard. Pipinelis welcomed this news, especially as Makarios told him he would not agree to removal of Greek personnel at this stage. Pipinelis indicated he might have another try on this with Makarios after Cypriot elections.
9. Finally, Pipinelis said he and Caglayangil had agreed to establish Ambassadorial-level commission to examine each country’s complaints about treatment of minority in other country. Precedent for this exists in Averoff-Zorlu agreement of 1959 that activated Bitsios-Kuneralp investigations. These had proved useful though intrusion of Cyprus crisis of that era prevented their implementation. Pipinelis thinks similar approach may help Greece and Turkey deal with complaints now being raised about difficulties experienced by Greeks in Istanbul, Imbroz and Tenedos and by Turks in Thrace.
10. Comment: Pipinelis was obviously pleased with results of meeting, whose accomplishments appear to have exceeded all expectations.
Pipinelis repeatedly warned us of importance of avoiding leaks.