Foreign Relations of the United States, 1969–1976, Volume E–10, Documents on American Republics, 1969–1972

254. Memorandum From Ashley Hewitt of the National Security Council Staff to the President’s Assistant for National Security Affairs (Kissinger)¹ ²

Washington, January 18, 1972

SUBJECT:

• Warming in Relations Between Panama and Cuba

Attached at Tab A for your information is a report which I requested from CIA on the evolution of relations between Panama and Cuba. I think you will find it of interest.

Briefly, it notes that a clear trend toward establishing more frequent contacts and closer relations between Panama and Cuba is evident and predicts continuation of this trend. CIA believes that, in the short term, Panamanian strongman General Torrijos will stop short of establishing formal diplomatic relations with Cuba, fearing that such a move might jeopardize the chances of obtaining a new Panama Canal treaty. (In fact, Castro reportedly has advised Torrijos against formal establishment of relations, saying this would only cause Panama problems with the U.S.) CIA believes, however, that in the longer term Panama may move to establish relations regardless of the outcome of the treaty negotiations.

The change in the official Panamanian attitude toward Cuba appears to have been an evolutionary development and is reflected in Panamanian approval in September for the opening of a Cuban Prensa Latina office in Panama; increased Panama-Cuba contacts, often at Panamanian initiative; increased use of these contacts as an informal communication channel; and, most recently, Torrijos’ private description of the sending of a delegation to Cuba to negotiate the release of the crews of two Panamanian-flag ships seized by the Cubans last month as being a first step in the establishment of formal relations. The Panamanian Foreign Minister announced last November that Panama was seriously studying the question of renewal of diplomatic relations with Cuba.

The official attitude change appears to have been influenced by three trends in Panama:

• —The growing leftist posture of the Torrijos Government;
• —The development of Torrijos’ nationalism along anti-US lines; and
• —The efforts by Torrijos to gain international support for Panama’s demands for a new canal treaty.

Closer Panamanian-Cuban relations are attractive to Torrijos as a means of enhancing his revolutionary image at home and abroad and of demonstrating his independence of the U.S. To Castro, on the other hand, such relations offer the possibility of lessening U.S. influence in Latin America (and particularly in the Caribbean), as well as of developing some leverage to encourage Torrijos to adopt more leftist policies.

1. Source: National Archives, Nixon Presidential Materials, NSC Files, Box 781, Country Files, Latin America, Cuba, Vol. IV, 1972. Secret. Sent for information. Haig initialed the memorandum. Attached but not published at Tab A is a January 13 CIA Intelligence Memorandum.
2. Hewitt summarized a report on the evolution of relations between Panama and Cuba that was prepared by the CIA.