54. Telegram From the Department of State to the Embassy in Turkey 1
1296. Deliver Inonu soonest following message from President:
“Dear Mr. Prime Minister:
I am gravely concerned by the information which I have had through Ambassador Hare from you and your Foreign Minister that the Turkish Government is contemplating a decision to intervene by military force to occupy a portion of Cyprus. I wish to emphasize, in the fullest friendship and frankness, that I do not consider that such a course of action by Turkey, fraught with such far-reaching consequences, is consistent with the commitment of your Government to consult fully in advance with us. Ambassador Hare has indicated that you have postponed your decision for a few hours in order to obtain my views. I put to you personally whether you really believe that it is appropriate for your [Page 108]Government, in effect, to present an ultimatum to an ally who has demonstrated such staunch support over the years as has the United States for Turkey. I must, therefore, first urge you to accept the responsibility for complete consultation with the United States before any such action is taken.
It is my impression that you believe that such intervention by Turkey is permissible under the provisions of the Treaty of Guarantee of 1960. I must call your attention, however, to our understanding that the proposed intervention by Turkey would be for the purpose of supporting an attempt by Turkish Cypriot leaders to partition the Island, a solution which is specifically excluded by the Treaty of Guarantee. Further, that Treaty requires consultation among the Guarantor Powers. It is the view of the United States that the possibilities of such consultation have by no means been exhausted in this situation and that, therefore, the reservation of the right to take unilateral action is not yet applicable.
I must call to your attention, also, Mr. Prime Minister, the obligations of NATO. There can be no question in your mind that a Turkish intervention in Cyprus would lead to a military engagement between Turkish and Greek forces. Secretary of State Rusk declared at the recent meeting of the Ministerial Council of NATO in The Hague that war between Turkey and Greece must be considered as ‘literally unthinkable.’2 Adhesion to NATO, in its very essence, means that NATO countries will not wage war on each other. Germany and France have buried centuries of animosity and hostility in becoming NATO allies; nothing less can be expected from Greece and Turkey. Furthermore, a military intervention in Cyprus by Turkey could lead to a direct involvement by the Soviet Union. I hope you will understand that your NATO Allies have not had a chance to consider whether they have an obligation to protect Turkey against the Soviet Union if Turkey takes a step which results in Soviet intervention without the full consent and understanding of its NATO Allies.
Further, Mr. Prime Minister, I am concerned about the obligations of Turkey as a member of the United Nations. The United Nations has provided forces on the Island to keep the peace. Their task has been difficult but, during the past several weeks, they have been progressively successful in reducing the incidents of violence on that Island. The United Nations Mediator has not yet completed his work. I have no doubt that the general membership of the United Nations would react in the strongest terms to unilateral action by Turkey which would defy the efforts of the United Nations and destroy any prospect that the United Nations [Page 109]could assist in obtaining a reasonable and peaceful settlement of this difficult problem.
I wish also, Mr. Prime Minister, to call your attention to the bilateral agreement between the United States and Turkey in the field of military assistance. Under Article IV of the Agreement with Turkey of July 1947,3 your Government is required to obtain United States consent for the use of military assistance for purposes other than those for which such assistance was furnished. Your Government has on several occasions acknowledged to the United States that you fully understand this condition. I must tell you in all candor that the United States cannot agree to the use of any United States supplied military equipment for a Turkish intervention in Cyprus under present circumstances.
Moving to the practical results of the contemplated Turkish move, I feel obligated to call to your attention in the most friendly fashion the fact that such a Turkish move could lead to the slaughter of tens of thousands of Turkish Cypriots on the Island of Cyprus. Such an action on your part would unleash the furies and there is no way by which military action on your part could be sufficiently effective to prevent wholesale destruction of many of those whom you are trying to protect. The presence of United Nations forces could not prevent such a catastrophe.
You may consider that what I have said is much too severe and that we are disregardful of Turkish interests in the Cyprus situation. I should like to assure you that this is not the case. We have exerted ourselves both publicly and privately to assure the safety of Turkish Cypriots and to insist that a final solution of the Cyprus problem should rest upon the consent of the parties most directly concerned. It is possible that you feel in Ankara that the United States has not been sufficiently active in your behalf. But surely you know that our policy has caused the liveliest resentments in Athens (where demonstrations have been aimed against us) and has led to a basic alienation between the United States and Archbishop Makarios. As I said to your Foreign Minister in our conversation just a few weeks ago,4 we value very highly our relations with Turkey. We have considered you as a great ally with fundamental common interests. Your security and prosperity have been a deep concern of the American people and we have expressed that concern in the most practical terms. You and we have fought together to resist the ambitions of the communist world revolution. This solidarity has meant a great deal to us and I would hope that it means a great deal to your Government and to your people. We have no intention of lending any support to any solution of Cyprus which endangers the Turkish Cypriot community. We have not been able to find a final solution because this is, admittedly, one of the [Page 110]most complex problems on earth. But I wish to assure you that we have been deeply concerned about the interests of Turkey and of the Turkish Cypriots and will remain so.
Finally, Mr. Prime Minister I must tell you that you have posed the gravest issues of war and peace. These are issues which go far beyond the bilateral relations between Turkey and the United States. They not only will certainly involve war between Turkey and Greece but could involve wider hostilities because of the unpredictable consequences which a unilateral intervention in Cyprus could produce. You have your responsibilities as Chief of the Government of Turkey; I also have mine as President of the United States. I must, therefore, inform you in the deepest friendship that unless I can have your assurance that you will not take such action without further and fullest consultation I cannot accept your injunction to Ambassador Hare of secrecy and must immediately ask for emergency meetings of the NATO Council and of the United Nations Security Council.
I wish it were possible for us to have a personal discussion of this situation. Unfortunately, because of the special circumstances of our present Constitutional position, I am not able to leave the United States. If you could come here for a full discussion I would welcome it. I do feel that you and I carry a very heavy responsibility for the general peace and for the possibilities of a sane and peaceful resolution of the Cyprus problem. I ask you, therefore, to delay any decisions which you and your colleagues might have in mind until you and I have had the fullest and frankest consultation.
Sincerely, Lyndon B. Johnson”5
- Source: Johnson Library, National Security File, Head of State Correspondence, Turkey, Prime Minister Inonu. Secret; Flash; Exdis. Drafted and approved by Rusk and cleared by Bundy for the White House. Repeated to London, Nicosia, Athens, and Paris, also for USRO.↩
- For text of the May 12 statement, see Department of State Bulletin, June 1, 1964, pp. 850–852.↩
- For text of the agreement on economic and technical cooperation, signed in Ankara on July 12, 1947, and entered into force the same day, see 61 Stat. 2953.↩
- See Document 37.↩
- The letter was released by the White House in January 1966 and printed in Middle East Journal 20 (1966), pp. 386–393.↩