Foreign Relations of the United States, 1969–1976, Volume XXIX, Eastern Europe; Eastern Mediterranean, 1969–1972

370. Telegram From the Embassy in Cyprus to the Department of State¹

Nicosia, June 4, 1971, 0755Z.

911. Subj: Cyprus: GOC Formally Complains about US Position in Cyprus Problem.

1. Summary: For reasons not yet entirely clear but presumably related to Archbishopʼs current trip to Moscow,² GOC has decided complain formally about alleged pro-Turkish bias of US policy toward Cyprus. In preliminary response we have strongly rebutted.

2. Over past month FonOff DirGen Veniamin has obliquely referred to unspecified “unsatisfactory” Embassy action vis-à-vis Turkish community and said he would be calling us in to review these in their totality. On June 3 Veniamin did call in DCM and made following formal oral presentation “at request of President Makarios and FonMin Kyprianou”:

3. Veniamin began by listing several instances of Embassy contacts with Turkish community in Cyprus which in the aggregate, he asserted, lent support to Turkish efforts win recognition for their administration as in some way legal and permanent. Veniamin chronicled Agricultural Attaché visits to “self-styled” Agriculture Minister Plumer; donation of books to union of Turkish Cypriot architects and engineers “without intention to do so having been previously communicated to FonMin”; donation of medical books to six Turkish hospitals “which are illegal,” again without prior information to GOC; donation of books to “self-styled” DefMin Orek for use of his “Ministry”; designation of Second Secretary Arthur Giese in TCPA Information Bulletin as American Embassy officer “responsible for Turkish Cypriot administration”; call on TCPA member for education Suha by Giese and his replacement Michael Austrian—“without prior call by latter on GOC MinEd”; invitations extended by US DefAtt to May 27 “dinner” to GOC DefMin Komodromos, to Orek also as MinDef and to General Tanyar as Deputy Commander of Cyprus Army—“a force which no longer has status.” (Note: this last was not a dinner but large reception for US Armed Forces Day. To such receptions, in keeping with our position that constitutional situation is frozen until solution reached we always invite GOC officials and such few Turks as held constitutional positions between 1960 and 1963. Customarily Turks do not appear because of presence of officials representing “illegal” GOC. In this case neither Komodromos nor Orek came. Tanyar did, but in Turkish not Cyprus army uniform.)

4. Veniamin then referred to USG use of term “unified” instead of “unitary” Cyprus on three occasions: Zieglerʼs statement at time of Makariosʼ visit;³ Amb Phillipsʼ address to Security Council at Dec 1970 meeting on UNFICYP renewal,⁴ and statement of Amb Bush at similar May 26 meeting.⁵ Veniamin said US is only country in world to use word unified rather than unitary and implications of this seem clear; USG obviously has in mind the imposition of a federal system on Cyprus.

5. Wrapping up this catalog, Veniamin said GOC forced conclude that USG has decided propitiate Turkey at expense of duly constituted Govt of Cyprus for reasons of military expediency. Despite GOCʼs high regard for USG and value it attaches to US friendship, it has been subjected by US to “pressures and provocations” and is a “victim of appeasement.” With specific regard to intercommunal talks, USG has pressed GOC concede more and more to Turks without urging matching concessions from them.

6. Veniamin repeated that démarche had been long in preparation and was being presented at personal instruction of Makarios. We should not think its timing related in any way to Presidentʼs current visit to Moscow. Amb Rossides being instructed make parallel presentation to Dept.⁶

7. DCM said he would convey details of this formal presentation to Amb Popper, etc. Formal reply might be expected from him.DCM asked, however, that his own following interim observations be passed upward:

8. It highly regrettable that GOC seems to have developed such misconceptions re USG Cyprus policy. Greece and Turkey are our friends; we do not measure our friendship in terms of size of armies; our relations are in balance. In Cyprus we recognize only one Govt with which we seek closest friendly relations as symbolized by meeting between President Nixon and Archbishop last year.

9. In interest of GOC, of Cypriots generally, and of peaceful solution to this islandʼs problem we maintain certain contacts with leadership of Turkish community. We have done this since 1963 and will continue to do so. Ambassador has instructed all Embassy officers not to make any change in past patterns or lend themselves in any way to present efforts of Turkish communityʼs administration to win recognition as an entity equal to sovereign Govt of Cyprus. Turkish Cypriots know this. Indeed, they complain bitterly that our undiluted recognition of President Makariosʼ govt has contributed substantially to failure resolve Cyprus problem.

10. We are not a party to intercommunal talks. We have offered become involved in any useful way if parties wished, but they have firmly said they do not. In these circumstances we have followed policy of benevolent surveillance. This has permitted us to make suggestions from time to time, but the record shows absolute impartiality of such suggestions. For example, our position at present stage of negotiation, as communicated to both parties, is that Denktash should take a step forward to match that of Clerides on Nov 30. There has been no pressure, provocation or appeasement.

11. We have attached no legalistic significance to use of “unified” as opposed to “unitary.” We have used both in the past. There is no hidden meaning in this.

12. As to specifics of GOC dossier, we recognize Orek and Plumer individually as “ministers” and will continue to do so in absence constitutional solution. We deal with GOC ministers also holding these portfolios as representatives of a recognized govt—there is a material difference. We give books to groups in both communities without regard to politics. We will continue to do so. We have a Turkish language officer as we have several officers who speak Greek. Our officers work in fields where their abilities lie. Regardless of what TCPA Bulletin may say neither Giese nor his replacement Austrian is the Embassy representative to a “Turkish Communal Administration.”

13. Finally, fact that there is one stable and recognized Govt of Cyprus today and that we have situation of relative stability on Cyprus is due in no small measure to exercise of United Statesʼ influence as a world power working impartially between friends. This contrasts with role of others who rely on propaganda rather than engaging in friendly, helpful persuasion.

14. Veniamin expressed appreciation for these remarks which he said constituted welcome reaffirmation of US policy approach to Cyprus problem. He promised this interim reply would be conveyed upward.

15. Comment: While Veniamin denies it, seems obvious to us that timing of his démarche was dictated by Makariosʼ present visit to Moscow. Makarios could be trying to justify to us his current warming to Soviets; or he could be trying to nudge us out of our balanced position and towards GOCʼs, through implicit threat of still greater pro-Soviet gestures if we do not comply. Perhaps there are other motives. Whatever the purpose, we feel we must resist this transparent pressure ploy. It is first evidence of Makariosʼ change in position toward us in response to recently altered Cyprus situation, and sharpest presentation Embassy has received in my two years here.

16. Obviously we could not allow this sort of distortion of US policy to go without firm reply. I know Dept will answer Rossidesʼ presentation when made in similar vein. In terms of further action locally I will request appointment with Makarios promptly after his return from Moscow to reinforce essentials reply already made.⁷

Popper

1. Source: National Archives, RG 59, Central Files 1970–73, POL 27 CYP. Confidential; Priority. Repeated to Ankara, Athens, London, USNATO, EUCOM, USDOCOSOUTH, and USUN.
2. June 2–9.
3. A copy of the text of the Ziegler briefing after the October 25, 1970, meeting between Nixon and Makarios is in the National Archives, Nixon Presidential Materials, NSC Files, Box 592, Country Files—Middle East, Cyprus, Vol. I Jan 1969–June 30, 1974).
4. For text, see Department of State Bulletin, January 11, 1971, pp. 70–71.
5. For text, see ibid., June 28, 1971, pp. 842–843.
6. No record was found.
7. In telegram 970 from Nicosia, June 11, Popper reported on the verbal protest he delivered to Kyprianou. (National Archives, RG 59, Central Files 1970–73, POL 27 CYP)