144. Telegram from the Department of State to the Embassy in Panama1

300581. Subject: The Secretary’s Bilateral With Foreign Minister Boyd, 12/3/76, 4:00 pm—Summary.

1. Boyd delivered a private letter from Torrijos on the bombings which again rejected the allegations of National Guard involvement and “advised” the United States against making “threats” to Panama.2 The Secretary affirmed that the United States is not threatening Panama, but added that our information is highly credible and we will not reveal it. Both agreed that this affair should now be closed without public disclosure. The Secretary reminded the Minister, however, that we take this matter seriously.

2. On the negotiations the Secretary volunteered that he would send Bunker to Panama again, probably before Christmas—to “clean up remaining underbrush” and to “symbolize in a positive way the continuity of the United States commitment to the negotiation.” Boyd was gratified.

3. The Secretary emphasized, however, that it would be for the new administration to make the final, critical decisions, and he could in no way speak for it. “I cannot saddle them with major moves.”

4. He added that the United States basic, remaining concern is with Canal “defense.” Agreement on Canal operation seemed within reach. He declined to explain this administration’s present thinking on the duration issue to Boyd, saying no useful purpose would be served thereby.

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5. Responding to Boyd’s persistent queries respecting the new administration’s posture vis-à-vis the negotiations, the Secretary said he had spoken to the President-elect on Panama; he would be suggesting that Secretary-designate Vance give resolution of this problem a high priority;3 and he would do all he could to keep the matter from becoming a partisan one in the United States.

6. Over the past year Panama has shown great patience and wisdom, he explained, and it seemed to him that 1977 was the opportune time for concluding a new treaty. He felt that optimism is in order. So did Boyd. The Secretary warned that confrontational circumstances would certainly not help, however. Boyd said his government is not looking for them.

Comment: The exchange was pleasant enough but restrained. First names were not used. Though the bombing episode seemed to have been put to rest, it lingered in the air. For once Boyd did not talk right past the Secretary, but listened.

Obviously the Minister was pleased at the prospect of Bunker’s return, which his government had been seeking vigorously. He expressed no disappointment with the Secretary’s comment that this would be a symbolic, clearing-the-underbrush round of talks.

Robinson
  1. Source: National Archives, RG 59, Central Foreign Policy File, P840099–0440. Secret; Immediate; Nodis. Drafted by Bell; cleared in ARA, S, S/S, and L; approved by Bunker.
  2. See footnote 4, Document 142.
  3. See footnote 4, Document 136. In telegram 8444 from Panama City, December 14, the Embassy reported that Boyd had claimed that “the Panamanian positions on the treaty were passed on to Governor Carter through Sol Linowitz and members of the Ford administration and that Cyrus Vance has given high priority to the Canal question.” (National Archives, RG 59, Central Foreign Policy File, D760461–0063) Ambassador Jorden’s memoirs state that the Commission on United States-Latin American Relations, headed by Linowitz, provided Vance with a copy of its report on the Western Hemisphere, which made “early completion of a treaty with Panama a primary recommendation.” According to Jorden, President-elect Carter also received a copy of the report, which he read “over the Christmas holidays.” (Panama Odyssey, p. 341)