Foreign Relations of the United States, 1969–1976, Volume E–11, Part 1, Documents on Mexico; Central America; and the Caribbean, 1973–1976

15. Memorandum From the President’s Assistant for National Security Affairs (Kissinger) to President Nixon¹

Washington, April 19, 1974.

SUBJECT

• The Latin American Foreign Ministers Conference in Washington, and the OAS General Assembly in Atlanta

The Latin American Foreign Ministers Conference in Washington ended Thursday afternoon on a highly positive note. Our objectives of maintaining and furthering the cooperative spirit developed at the Mexico City meeting and of beginning the process of giving some practical content to this spirit and the principles of inter-American solidarity affirmed at Mexico City have been advanced.

The Communiqué (Tab A) issued after the Conference highlights the positive tone of the Conference. It:

—reaffirms our joint satisfaction over continuation of the cooperative spirit begun in Mexico City at Tlatelolco;

—describes the subjects discussed and general views expressed, largely on matters of trade and development; specifically, it notes the U.S. reaffirmation of its intention to refrain to the extent possible from establishing new trade restrictions on access to the U.S. market and to promote enactment of the proposed Trade Reform Act which would authorize generalized preferences, including in them products of particular interest to Latin America. It also notes the agreement to engage in consultations on subjects related to the Multilateral Trade Negotiations and other subjects to be discussed in world conferences;

—describes the working groups which were set up to translate this spirit into action in the fields of science and technology, and multinational corporations; and

—states that the Foreign Ministers will meet again in Buenos Aires in March of 1975 to continue the dialogue.

The Cuban question, which the Foreign Ministers of Argentina and Mexico had publicly committed themselves to raising at the Conference, was handled in a manner that minimized confrontation. In private meetings here with Argentine Foreign Minister Vignes and Mexican Foreign Minister Rabasa, I stressed the importance of having a positive Conference which avoided a confrontation or domination of the deliberations by the Cuba question at the expense of other more important matters. I explained the importance of holding this subject until after other business had been completed and of avoiding any kind of vote or decision. We were successful in getting their agreement on this.

Accordingly, at the Conference Vignes raised the subject in terms of the need to seek a solution but without making any specific proposals. Secretary Rabasa then suggested that Cuba be invited to the next meeting of Foreign Ministers. He was supported by the Foreign Ministers of Peru and Venezuela. I then proposed that before the next Conference Vignes, as Foreign Minister of the host government, consult with all the governments represented to get their views on the subject. The consultation would also include Colombia’s suggestion that Canada be represented at the next meeting. This compromise formula enabled us to defuse the Cuba question, maintain the constructive direction of the Conference and avoid its deteriorating into a confrontation which we could not have won in the press. The Conference closed without any decision, formal or informal, relating to Cuban participation beyond the general understanding that the Government of Argentina will consult. Your decision enabling our agreement to issue the licenses to subsidiaries of American companies in Argentina for trade with Cuba was instrumental in obtaining Argentina’s cooperative attitude in achieving this compromise.

The constructive spirit maintained at the Washington Conference is particularly important because of the carry-over effect to the General Assembly of the Organization of American States (OAS) which opens this Friday in Atlanta. We expect the positive and cooperative attitude maintained in Washington to characterize also the Atlanta meeting. The formal agenda of the General Assembly contains no major issues, concentrating on organizational business matters such as approval of the budget. It will, however, hear a report from the special committee which has been set up to make recommendations on the restructuring of the inter-American system. The Cuban subject will no doubt be raised in speeches in Atlanta in the form of objections to the maintenance of OAS sanctions against Cuba. As in the past, statements will be made on both sides. We believe, however, that the combination of the announcement to license subsidiaries and the brief airing of the issue

here in Washington will satisfy those Latins pressing for change in OAS policy toward Cuba—at least enough to avoid a showdown vote on the matter. Formally, a two-thirds vote would be required to terminate sanctions. However, a majority expression of such a view would be psychologically damaging to us. The number of countries which would support termination if a vote were taken is not entirely clear, but it is uncomfortably close to a majority.

Thus, I believe both in Washington and at Atlanta we will have avoided a breakdown in the momentum of a positive dialogue with the Latins and bought ourselves time on the Cuba issue. In press briefings we are stressing the positive nature of the Conference and the unaltered position of our Cuba policy.

1. 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)