American Republics Regional
1. National Security Study Memorandum 173
Summary: Kissinger instructed the CIA, the Treasury, and the Departments of State and Defense to carry out a review of U.S. policies and programs in Latin America.
Source: National Archives, Nixon Presidential Materials, NSC Institutional Files, Box H–197, Study Memorandums, NSSM 173. Secret; Limdis. Copies were also sent to the Chairman of the JCS, and the Assistant to the President for International Economic Affairs. The study prepared in response to this memorandum is published as Document 5. The August 30, 1969, Rockefeller Report on Quality of Life in the Americas is printed in the Department of State Bulletin, December 8, 1969, pp. 495–540. Nixon’s October 31, 1969, address outlining a policy of “mature partnership” with Latin America, is ibid., November 17, 1969, pp. 409–414. NSSM 15, February 3, 1969, is published in Foreign Relations, 1969–1976, vol. E–10, Documents on American Republics, 1969–1972, Document 1. NSSM 108, December 10, 1970, is in the National Archives, Nixon Presidential Materials, NSC Institutional Files, Box H–178, Study Memorandums, NSSM 108.
2. Memorandum From Secretary of State Rogers to President Nixon
Summary: In anticipation of the annual meeting of the General Assembly of the Organization of American States, Rogers reported on the state of U.S. relations with Latin America.
Source: National Archives, RG 59, Central Files 1970–1973, OAS 3. Limited Official Use. Documents on the special meeting of the UN Security Council held in Panama City from March 15 to 21 are in Foreign Relations, 1969–1976, vol. E–14. Documents on the annual meeting of the Inter-American Economic and Social Council that took place in Bogotá from January 30 to February 8 are in the National Archives, RG 59, ARA Files: Lot 72D23, 1/30–2/9/73 IA—ECOSOC Meeting—Bogotá.
3. Memorandum From Secretary of State Rogers to President Nixon
Summary: Rogers reported the outcome of the April 4–14 OAS General Assembly and noted that the meeting opened the door for more constructive relationships in Latin America.
Source: National Archives, RG 59, Central Files 1970–1973, OAS 3. Limited Official Use. Drafted by McNeil.
4. Conversation Among President Nixon, the United States Representative at the United Nations (Scali), and the Deputy Secretary of State (Rush)
Summary: Commenting on Rogers’s visit to Latin America, Nixon noted the importance of demonstrating U.S. interest in the region. Rogers visited Mexico, Nicaragua, Venezuela, Peru, Colombia, Brazil, Argentina, the Netherlands Antilles, and Jamaica from May 12 to May 28.
Source: National Archives, Nixon Presidential Materials, White House Tapes, Conversation 124–2. Secret. The editors transcribed the portion of the tape recording published here specifically for this volume, brackets indicate discussion omitted from the transcription or text added for clarity. The transcript is part of a Cabinet meeting that took place in the Cabinet Room of the White House from 11:06 to 11:59 a.m. In telegram 1729 from Rio de Janiero, May 19, Rogers transmitted his impressions to Nixon at the halfway point of his Latin American trip. (Ibid., NSC Files, Country Files, Box 772, Latin America, Brazil, Vol. IV, 1973–74) Rogers’s May 29 briefing of the Cabinet on his travels is ibid., Nixon Presidential Materials, White House Tapes, Conversation 124–3.
5. Study Prepared in Response to NSSM 173 by the NSC Interdepartmental Group for Inter-American Affairs
Summary: This study reviewed U.S. policy toward Latin America since 1969 and recommended a new strategy for relations with the region.
Source: National Archives, RG 59, ARA Files, Lot 75D476, JBK Chron—August 1974. Secret. NSSM 173, March 7, is published as Document 1. The study was transmitted to Kissinger under a May 29 covering memorandum from Crimmins with a copy of NSSM 173. All brackets appear in original except those indicating text omitted by the editors or identifying original footnotes.
6. Memorandum From Secretary of State Rogers to President Nixon
Summary: Rogers informed Nixon of a forthcoming OAS Special Committee meeting to discuss restructuring the inter-American system.
Source: National Archives, RG 59, Central Files 1970–1973, OAS 3. Confidential. Drafted by Rozanne Ridgway in ARA–LA/PLC, and cleared by Jova. A draft of the memorandum was sent to Rogers for his signature under a June 15 covering memorandum from Kubisch. (Ibid.) Telegram 4977 from Lima, July 15, transmitted the final report of the OAS Special Committee meeting, which accepted the “notion that times call for profound changes in system” while avoiding “specific conclusions on what form those changes should take.” (Ibid., Central Foreign Policy File, [no film number])
7. Briefing Memorandum From the Assistant Secretary of State for Inter-American Affairs (Kubisch) to Secretary of State Kissinger
Summary: Kubisch provided a study reviewing the state of U.S.–Latin American relations and highlighting the need for a new conceptual framework for policy towards the region.
Source: National Archives, RG 59, Records of Henry Kissinger, Entry 5403, Lot 78D217, Box 3, Nodis Letters HAK, 1973–1977, Folder 3. Secret; Nodis. Page numbers reflect original pagination. All brackets are in the original except those indicating missing text or text omitted by the editors. No record of the September 27 staff meeting at which Kissinger requested this paper has been found. At an October 5 luncheon in New York honoring Latin American delegations to the UN General Assembly, Kissinger offered a toast inviting the region’s Foreign Ministers to take part in a “new dialogue” with the United States. (Department of State Bulletin, October 29, 1973, pp. 542–543)
8. Telegram 9439 From the Embassy in Colombia to the Department of State
Summary: This telegram reported on the November 14–16 Bogotá meeting of Latin American Foreign Ministers, noting that many participants saw the conference as a “turning point in hemispheric relations.” The meeting was held in response to Kissinger’s invitation to enter into a “new dialogue.”
Source: National Archives, RG 59, Central Foreign Policy File, [no film number]. Confidential; Immediate. Repeated to USUN and CINCSO. The reference to telegram 9439 in paragraph number 11 constitutes an apparent typo in the original text. Telegrams 9235 and 9437 from Bogotá are both dated November 17. (Ibid.)
9. Memorandum From William Jorden of the National Security Council Staff to the President’s Assistant for National Security Affairs (Kissinger)
Summary: Jorden suggested Kissinger use an upcoming meeting with Latin American Foreign Ministers in Mexico City to develop a consensus on new international economic rules.
Source: National Archives, Nixon Presidential Materials, NSC Files, Country Files, Box 788, Latin America, Mexico, Vol. IV, 1973. Secret. Sent for action. Published from a copy unsigned by Rostow. Kissinger initialed his approval of the memorandum’s recommendation and next to it, “Urgently.” At the top of the memorandum Kissinger wrote, “See note,” referring to that comment. In a January 21 letter to Kissinger, Walt Rostow referenced indirectly this memorandum, suggesting the Mexico City meeting be used to develop international rules of the game and launch certain new initiatives. (Ibid., RG 59, Central Foreign Policy File, P740047–0005)
10. Transcript of Secretary of State Kissinger’s Staff Meeting
Summary: Kissinger and Department of State officials discussed prospects for the upcoming Mexico City meeting with Latin American Foreign Ministers.
Source: National Archives, RG 59, Transcripts of Kissinger Staff Meetings, 1973–1977, Entry 5177, Lot 78D443, Box 2. Secret; Nodis. Drafted on February 15 by Springsteen. All brackets are in the original except those indicating text omitted by the editors. Kissinger chaired the meeting, which began at 3:15 p.m. and was attended by all principal officers of the Department or their designated alternates. Kissinger was in Panama City on February 7 to sign a statement of principles for negotiation of a new Panama Canal Treaty.
11. Memorandum From the President’s Assistant for National Security Affairs (Kissinger) to President Nixon
Summary: Kissinger briefed Nixon on proposals he planned to present at a meeting of Latin American Foreign Ministers in Mexico City.
Source: National Archives, Nixon Presidential Materials, NSC Files, Country Files, Box 788, Latin America, Mexico, Vol. IV, 1973. Confidential. Sent for information. Marked: “The President has seen.” Tab A (the Latin American Foreign Ministers’ proposed agenda for the Mexico City meeting), Tab B (the agenda proposed by the United States), Tab C (a February 15 memorandum from the President’s Assistant for International Economic Affairs, Peter Flanigan, to Nixon regarding U.S. strategy for the Mexico City meeting), and Tab D (a February 12 memorandum from Rush to Nixon providing background information on the meeting and an outline of the proposed U.S. strategy for the event) are attached, but not published.
12. Minutes of a Cabinet Meeting
Summary: Nixon commented on the situation in Latin America, expressing the view that the region’s future depended on private investment.
Source: National Archives, Nixon Presidential Materials, NSC Files, Presidential/HAK Memcons, Box 1028, Memcons, 1 Jan 1974–28 Feb 1974, HAK and Presidential, 1 of 3. Confidential.
13. Telegram Tohak 9 From the President’s Deputy Assistant for National Security Affairs (Scowcroft) to the President’s Assistant for National Security Affairs (Kissinger)
Summary: Scowcroft transmitted Nixon’s comments on Kissinger’s memorandum regarding the Mexico City meeting with Latin American Foreign Ministers, highlighting the President’s concern regarding investment climate in the region.
Source: Ford Library, National Security Adviser, Scowcroft Daily Work Files, Box 6, 2/19–28/74. Secret; Sensitive; Eyes Only. Printed from the draft copy initialed by Scowcroft.
14. Telegram 47899 From the Department of State to All American Republic Diplomatic Posts
Summary: The Department transmitted its appraisal of the Tlatelolco Conference of Foreign Ministers held in Mexico City in February, concluding that the meeting marked a significant shift in U.S.-Latin American relations.
Source: National Archives, RG 59, Central Foreign Policy File, [no film number]. Confidential. Repeated to USCINCSO for POLAD. Drafted by Bloomfield; cleared in draft by Bowdler, Szabo, and Einaudi, and approved by Kubisch.
15. Memorandum From the President’s Assistant for National Security Affairs (Kissinger) to President Nixon
Summary: Kissinger reported on a meeting with Latin American Foreign Ministers held in Washington to continue the dialogue established in Mexico City in February.
Source: Ford Library, National Security Adviser, Scowcroft Daily Work Files, Box 6, 4/19–30/74. Confidential. Sent for information. Scowcroft initialed the memorandum for Kissinger. Tab A is the April 18 communiqué issued at the conclusion of the Washington meeting of Foreign Ministers, published in the Department of State Bulletin, May 13, 1974, pp. 517–519. The decision to hold the Washington meeting was reached at the Tlatelolco Conference in February. (Ibid., p. 516) In telegram 85239 to all American Republic diplomatic posts, April 26, the Department reported that the Washington meeting had been a success. (National Archives, RG 59, Central Foreign Policy File, D740117–0803, D740109–0672, D740098–0734) In telegram 51 from Atlanta, May 2, the Delegation to the OAS General Assembly informed the Department that the meeting there had been “marked by a pronounced optimism on the future of U.S.-Latin relations,” although little progress was made in defining the role of the OAS in the inter-American system. (Ibid., D740105–0151, D740104–1073)
16. National Security Decision Memorandum 257
Summary: This directive implemented policies toward Latin America announced at the Mexico City and Washington conferences.
Source: National Archives, Nixon Presidential Materials, NSC Files, Subject Files, Box 364, National Security Decision Memoranda. Confidential. Also sent to the Director, OMB and Counsellor to the President for Economic Policy. In a May 21 memorandum to Scowcroft, Low outlined minor revisions made to an earlier draft of the NSDM. (Ibid., NSC Miscellaneous Files, Institutional Materials, Box 1068, NSC Institutional Papers—June 1974, 6 of 10) In a June 6 memorandum, Low asked Scowcroft to sign off on the NSDM, noting Kissinger had twice approved the substance of the document and Nixon had reviewed it. (Ibid.) In a report transmitted under a November 21 memorandum from Ingersoll to Ford, the NSC Under Secretaries Committee assessed implementation of the policies outlined in this NSDM. (Ford Library, National Security Adviser, NSC Institutional Files, Box H–74, Institutional Files—Under Secretaries Committee, NSC–U/DM–129)
17. Transcript of a Staff Meeting of the Under Secretary of State for Political Affairs (Sisco)
Summary: Department officials discussed the potentially negative impact countervailing duties on Brazilian, Argentine, and Colombian products would have on Secretary Kissinger’s Latin American initiatives.
Source: National Archives, RG 59, Transcripts of Kissinger Staff Meetings, 1973–1977, Entry 5177, Lot 78D443, Box 4. Secret. Drafted on June 24. Sisco chaired the meeting in place of Kissinger, who at the time was briefly in the United States between foreign trips; Sisco was Acting Secretary from June 10 to 19 and from June 25 to July 9. The meeting began at 3 p.m. and was attended by all of the principal officers of the Department or their designated alternates. All brackets are in the original except those indicating text omitted by the editors and “[Mr. Sisco]”, added for clarity. In a June 25 staff meeting, Department officials noted the Treasury had initiated countervailing duty proceedings against Colombia and Brazil. At Kissinger’s request, Treasury officials delayed announcing similar actions agianst Argentina for seven days. Kubisch observed the announcement “couldn’t be more untimely,” coming as it did in “the immediate aftermath of Secretary Kissinger’s initiatives in Latin America.” (Ibid.)
18. Action Memorandum From the Permanent Representative to the Organization of American States (Mailliard) to Secretary of State Kissinger
Summary: Mailliard outlined possible U.S. responses to growing Latin American interest lifting regional sanctions against Cuba.
Source: National Archives, RG 59, Central Foreign Policy File, P850149–0967. Confidential; Exdis. Sent through Kubisch. Drafted by Mailliard and McNeil. Copies sent to Feldman and Lord. Tabs not attached and not found. Kissinger did not initial any of the memorandum’s recommendations, and he wrote, “See me—This is very complicated as the President has strong views on it.”
19. Transcript of Secretary of State Kissinger’s Staff Meeting
Summary: In a discussion with Department officials regarding Latin American interest in lifting sanctions against Cuba, and the possibility of Cuban attendance at a meeting of Foreign Ministers planned for March 1975 in Buenos Aires, Kissinger stated he was willing to consider changes in U.S. policy toward Cuba but would not be pushed into an opening with Havana.
Source: National Archives, RG 59, Transcripts of Kissinger Staff Meetings, 1973–1977, Entry 5177, Lot 78D443, Box 2. Secret. Kissinger chaired the meeting, which began at 3 p.m. and was attended by all principal officers of the Department or their designated alternates. All brackets appear in original except those indicating text omitted by the editors and “[Mr. Kubisch]”, added for clarity.
20. Telegram 169437 From the Department of State to All American Republic Diplomatic Posts
Summary: The Department informed posts of its view that an OAS resolution eliminating CIAP did not necessarily imply that the Alliance for Progress had been terminated, adding that the United States continued “to cooperate with the Latins to promote the general objectives and principles of the Alliance.”
Source: National Archives, RG 59, Central Foreign Policy File, D740212–0166. Limited Official Use. Drafted by Noonan; cleared by Schlaudeman, Donor Lion in ARA–LA, and in draft by Paul Montavon in ARA/USOAS; and approved by John Ford. Repeated to USCINCSO. In airgram A–6287 to all American Republic posts, August 8, the Department further explained the U.S. position regarding the OAS vote on the Alliance for Progress. (Ibid., P740084–1381) Telegram 1670 from Quito is dated March 14. (Ibid., [no film number])
21. Memorandum for the President’s File
Summary: In a meeting with Latin American Ambassadors on the day he took office, President Ford assured representatives of the region that his administration would continue an expanded dialogue with the countries in the Western Hemisphere.
Source: Ford Library, National Security Adviser, NSC Latin American Affairs Staff Files, Box 12, President Ford—Memcon, August 12, 1974—Latin American Ambassadors. Confidential. Transmitted to Kissinger under an August 10 memorandum from Low. Kissinger did not sign the memorandum. All brackets are in the original except those indicating text omitted by the editors. President Nixon resigned on August 8.
22. Memorandum From Stephen Low of the National Security Council Staff to the President’s Deputy Assistant for National Security Affairs (Scowcroft)
Summary: Low analyzed the prospects for OAS action to lift diplomatic sanctions against Cuba and proposed a U.S. strategy for handling the issue.
Source: Ford Library, National Security Adviser, Presidential Country Files for Latin America, Box 3, Cuba 1. Secret; Completely Out of the System. Kissinger wrote, “Good job,” on the memorandum. On an August 23 memorandum from Kubisch to Kissinger recommending U.S. acquiescence on Cuba as long as no substantive action occurred before November, Kissinger wrote, “We would like to delay through election.” (National Archives, RG 59, Central Foreign Policy File, P850149–0196)
23. Memorandum of Conversation
Summary: Kissinger briefed Ford in advance of meeting with Argentine Foreign Minister Alberto Vignes on OAS initiatives related to Cuba.
Source: Ford Library, National Security Adviser, Memoranda of Conversations, Box 6, 9/21/74. Secret; Nodis. The meeting was held in the Oval Office. All brackets are in the original except those indicating text omitted by the editors. In a September 21 conversation, Kissinger, Ford, and Vignes agreed the United States and Argentina would work to postpone OAS action on Cuba until after U.S. elections in November. The memorandum summarizing that discussion is published in Foreign Relations, 1969–1976, vol. E–11, Part 2, Documents on South America, 1973–1976, Document 22. In a September 21 memorandum to Kissinger, Bowlder reported that the OAS Permanent Council voted on September 20 to convoke a meeting of Foreign Ministers in Quito on November 8 to consider the Cuba sanctions. (National Archives, RG 59, Central Foreign Policy File, P850148–2126)
24. Telegram 240009/Tosec 444 From the Department of State to the Embassies in Pakistan and Afghanistan
Summary: Ingersoll and Rogers noted that failure of the resolution to lift OAS sanctions against Cuba threatened regional relations. They recommended discreet efforts to ensure its passage at the upcoming meeting of Foreign Ministers at Quito.
Source: National Archives, RG 59, Central Foreign Policy File, D740312–0179. Confidential; Immediate; Exdis. Drafted by McNeil; cleared by Mailliard, Feldman, Einaudi, Shlaudeman, Rogers, and Luers; and approved by Ingersoll. In an October 17 memorandum to Ingersoll, Rogers stated that discord at Quito would “harm the ‘new dialogue’ itself,” and he envisioned a scenario in which a vote to lift sanctions would be in the U.S. national interest. (Ibid., P850150–0066) In telegram 241946/Tosec 614 to Tehran, November 3, Lewis and Einaudi noted the broader implications of the Quito Conference, concluding that “we cannot afford to see a stalemated outcome.” (Ibid., D740314–0912) In telegram 5097/Secto 427 from Bucharest, November 4, Kissinger replied that “we will not organize votes for a resolution which we basically do not favor,” reiterating his instructions to abstain. (Ibid., P850027–1638) Telegram 236997 to New Delhi, October 27, is ibid., D740307–0305. Telegram 14456 from New Delhi, October 28, is ibid., D740307–0367.
25. Memorandum From the President’s Deputy Assistant for National Security Affairs (Scowcroft) to President Ford
Summary: Scowcroft reviewed options available to the United States regarding the vote on OAS sanctions against Cuba at the upcoming meeting of Foreign Ministers in Quito, Ecuador.
Source: Ford Library, National Security Adviser, NSC Latin American Affairs Staff Files, 1974–1977, Country Files, Box 2, Cuba—Political, Military 1. Confidential. A note on the memorandum reads: “Pres has seen.” In telegram 7696/Depto 42 from the Embassy in Ecuador, November 12, the Embassy reported twelve countries had voted for the resolution to discontinue diplomatic sanctions, three had voted against it, and six countries, including the United States, had abstained. Because it did not pass by a two-thirds vote, the resolution failed. (Ibid.) Ingersoll’s explanation of the abstention is published in the Department of State Bulletin, January 6, 1975, pp. 8–9.
26. Briefing Memorandum From the Deputy Secretary of State (Ingersoll) and the Assistant Secretary of State for Inter-American Affairs (Rogers) to Secretary of State Kissinger
Summary: Ingersoll and Rogers reviewed the state of U.S. relations with Latin America in the wake of the inconclusive Quito meeting of Foreign Ministers.
Source: National Archives, RG 59, Central Foreign Policy File, P850146–0796. Confidential; Exdis. Drafted by Rogers on November 14. In telegram 252031 to all American Republic diplomatic posts, November 15, the Department transmitted this analysis to the field and instructed posts to express the U.S. view on the Quito meeting in conversations with host government officials and local media representatives. (Ibid., D740334–0985, D740329–0675)
27. Briefing Memorandum From the Assistant Secretary of State for Inter-American Affairs (Rogers) and the Director of the Policy Planning Staff (Lord) to Secretary of State Kissinger
Summary: This memorandum analyzed Latin American frustration with the New Dialogue.
Source: National Archives, RG 59, Records of Henry Kissinger, Entry 5403, Lot 78D217, Box 14, Briefing Memoranda, 1975, Folder 6. Confidential. Drafted by Bloomfield, Lewis, and Einaudi on January 14. The January 2 memorandum from Rogers to Kissinger and its tabs are not attached and not found. At the January 10 staff meeting, Kissinger asked “how in a period of six months what was considered a promising new approach [the New Dialogue] is turning into a bone of contention.” (Ibid., Transcripts of Kissinger Staff Meetings, 1973–1977, Entry 5177, Lot 78D443, Box 2) The Kissinger trip to Latin America mentioned in the closing lines of this memorandum was scheduled for mid-February but was postponed due to developments in the Middle East. (Telegram 23922 from the Department to Buenos Aires; Ibid., Central Foreign Policy File, P830106–2733)
28. Telegram 22865 From the Department of State to All American Republic Diplomatic Posts
Summary: Latin American objections to the U.S. Trade Act of 1974 prompted postponement of the March Foreign Ministers’ meeting in Buenos Aires. While the Department acknowledged the action raised doubts about the new regional dialogue, it stated that strengthened relations with Latin America remained a key element of U.S. foreign policy.
Source: National Archives, RG 59, Central Foreign Policy File, D750036–1053. Confidential; Priority; Stadis. Drafted by Bloomfield, cleared by Shlaudeman and Einaudi, and approved by Bowdler. In telegram 637 from Buenos Aires on January 28, the Embassy transmitted an Argentine Government statement announcing that Latin American objections to discriminatory provisions of the U.S. Trade Act of 1974 had prompted it to propose postponing the Buenos Aires meeting of Foreign Ministers. (Ibid., D750031–1016) According to a January 23 memorandum of conversation, Kissinger and Argentine Ambassador Orfila discussed the possible postponement of the Buenos Aires meeting. Kissinger told Orfila that Latin Americans “can’t have it both ways. They can’t complain of the lack of priority [in U.S. policy] and behave as they are behaving now. Why should the United States put itself in this position? What do we get from the new dialogue? It seems to me that the new dialogue consists of a list of things for us to do and there is not much interest in what the Latin Americans can do for us.” The memorandum is published in Foreign Relations, 1969–1976, vol. E–11, Part 2, Documents on South America, 1973–1976, Document 25.
29. Telegram 30391/Tosec 39 From the Department of State to the Consulate General in Jerusalem
Summary: Rogers briefed Kissinger on key issues in U.S. relations with Latin America and summarized U.S. policy goals in the region, which included resolving problems involving Cuba and Panama, modernizing the OAS, and concentrating on the maintenance of strong bilateral relationships.
Source: National Archives, RG 59, Central Foreign Policy File, D750048–0675. Confidential. Drafted and approved by Rogers. On March 1, Kissinger delivered a speech in Houston on U.S.-Latin American relations in which he highlighted U.S. interest in negotiating a Panama Canal treaty, defining the place of Cuba in the hemisphere, and expanding trade and economic ties. (Department of State Bulletin, March 24, 1975, pp. 361–369)
30. Briefing Memorandum From the Assistant Secretary of State for Inter-American Affairs (Rogers) to Secretary of State Kissinger
Summary: Analyzing the state of U.S.-Latin American relations and assessed U.S. interests in the region, Rogers suggested the United States rely less on multilateral forums and more on bilateral relationships in its dealings with Latin America.
Source: National Archives, RG 59, Central Foreign Policy File, P830035–1100. Confidential. Drafted by Rogers on March 4. According to telegram 52560/Tosec 155 to Kissinger in Aswan, March 8, Rogers was to travel to Argentina, Uruguay, Chile, Peru, Brazil, Venezuela, and Colombia between March 10 and March 17. (Ibid., D750081–0245) No post-trip briefing memorandum from Rogers to Kissinger on Latin America has been found. The memorandum from Rogers to Kissinger on the postponement of the Buenos Aires meeting has not been found. The cable from Crimmins referred to in the final paragraph of this memorandum is telegram 1508 from Brasilia, February 27. (Ibid., D750070–0373.)