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

441. Telegram 217552 From the Department of State to the Embassy in Barbados¹

Washington, November 5, 1973, 1521Z.

217552. Subject: Grenadian Independence. Reference: Bridgetown 1425; 1426.

1. We have read with great interest your telegrams reporting your recent conversations with Premier Eric Gairy of Grenada and your comments on the nature of our post-independence relationship with that island.

2. As you will recall, we have had strong reservations over Great Britain’s intention to grant independence to Grenada, a 133 square mile island with less than 100,000 citizens and little visible means of support. On several occasions we have discussed the problem with the British and have encouraged them to move slowly in granting independence or ideally to defer it indefinitely. Given the various demands on British resources elsewhere, they have obviously decided to push this fledgling out of the nest and thereby eliminate yet another drain on Her Majesty’s Exchequer. (We realize that Gairy himself was helpful to them in taking this decision, bent as he appears to be on leading his fellow Grenadians willy-nilly into independence.) Despite Britain’s decision, which now appears irrevocable, we continue to have strong reservations about Britain, or the Dutch for that matter, cutting loose their Western-Hemispheric dependencies and leaving them on our doorstep as non-viable and potentially troublesome independent nations and we will continue to make this point to London and The Hague as opportunity presents itself.

3. Grenada is, of course, the first of possibly as many as six independent political entities which can be fashioned out of the associated states. Whether or not the other islands will opt for full independence or choose (a) to remain with Britain or (b) seek a form of independence as part of a federation will depend to a large extent on Grenada’s experience in the post independence period. We are not, as you note in your cable, prepared at this stage to take on additional bilateral aid responsibilities in the world. We prefer to make what resources we have available for Grenada and the other islands through the CDB. Whatever hope Gairy has for post-independence assistance will be limited in the first instance to Britain (which has in our view a continuing moral obligation to Grenada after independence), Canada, and/or the Caribbean Development Bank. If Grenada is able to gain admission to the United Nations and the OAS (this latter is a very “iffy” possibility) it will also have access to the UNDP and the IDB. In any event, no great cornucopia will open and shower largesse on Grenada on February 7. The post-independence period will likely be a turbulent and disappointing one for Mr. Gairy and for the Grenadians. If this is indeed the case, the other associated states may very likely be discouraged from seeking an early severance of the British cord.

4. We feel it important that in these pre-independence months we speak very candidly to Mr. Gairy about what we won’t be able to do after independence so that his disappointment may be tempered. It would be dishonest on our part and probably adversely affect the post-independence relationship with St. George’s if we are not absolutely candid with him from the start. We are certain that you have in your last meeting been preparing Gairy so that he will not be surprised by our failure to make bilateral assistance available to him and his government immediately after independence. It will be important in your future meetings with him between now and February 7 to reiterate this position for his benefit so that he does not miss the message. (In any conversations you may have with Gairy, you may wish to emphasize that since 1970, AID has made loans of $32.3 million available to the Caribbean Development Bank. Much of the $22.3 million in loans authorized during FY 73 is not yet committed by the Bank, which is giving priority in its allocation to the less developed countries, including Grenada. The CDB has allocated $250,000 of the 1970 AID loan to the CDB Special Fund for Grenadian projects, specifically small industrial credits and Carriacou Airport extension. It is our understanding that the CDB has identified for possible allocation from the second AID loan to the Special Development Fund requirements in excess of $700,000 for Grenadian projects, including industrial estates, land settlements on Grenada and Carriacou, the marketing board and communications on Carriacou. In addition, Grenada is eligible for sub-borrowing under the AID Housing Loan to the CDB.)

5. We have since receipt of your cable taken another look at the possibility of some resident U.S. presence in Grenada after February 7. On the basis of our review and in light of current budgetary limitations, we feel that there is no possibility that we would be in a position to establish even a one man post in St. George’s after independence. Even if the post were created with only a limited consular responsibility, we fear that Gairy would be tempted to use it at best as a sounding board and at worst as a hostage. There is also the risk that it would become a focal point for any unrest that might develop in independent Grenada. We will, however, make every effort to increase Embassy Bridgetown’s travel allotment so that you and your staff may travel to Grenada as frequently as may be necessary after independence.

6. In response to the recommendations contained in your telegram, we have developed the following information:

A. U.S. Delegation: Department memo to White House on composition of official delegation will follow recommendations outlined in reftel. Memo to White House must include formal invitation from Government of Grenada. We would hope that the formal invitation will be forthcoming at an early date.

B. Assignment of Navy Ship: Department informed by DOD that Navy can arrange to have a suitable ship available for port call at time of Grenada independence celebrations. Ship would hold open house and provide battery salute at appropriate time. DOD does not believe it practical to depend upon ship for transportation from Barbados to Grenada, or to provide vehicles for use on shore. Commanding Officer will want to release two-thirds of crew (approximately 200 men) for shore leave. Navy will need to know docking facilities available in St. George’s before making final determination on ship.

C. “Fly Past”: Neither U.S. Navy “Blue Angels” nor U.S.A.F. “Thunderbirds” are available during January–February period. DOD is investigating possibility of obtaining team from Puerto Rico Air National Guard.

D. U.S. Independence Gift: S/CPR states that official U.S. gifts must be decorative—an urn, a tray, etc. There are no exceptions and funds for decorative gift may not be used for any other purpose. We will explore possibility of supplementary “tangible gift” (e.g., an ambulance, hospital equipment, etc.) which might be given in conjunction with official gift.

E. Special Development Activities Fund: A recent proposal to create an SDAF for an independent Bahamas was denied. Similarly, there does not appear to be any prospect that an SDAF can be established for Grenada.

7. We regret not being in a position to respond more affirmatively to your proposals. We do intend to be a helpful good neighbor to Grenada—but within the limits imposed by a realistic assessment of our own interests.

Rush

1. Summary: The Department expressed concern about the prospect of the emergence of “non-viable and potentially troublesome” island nations in the Caribbean and stated that it was not prepared to offer bilateral aid to Grenada when the British colony attained independence.

   Source: National Archives, RG 59, Central Foreign Policy File, [no film number]. Confidential; Limdis. Repeated to The Hague, London, Port of Spain, Georgetown, and Curacao (by pouch). Drafted by Burke; cleared in draft by Gilbert Sheinbaum in EUR/WE, Joseph Becelia in EUR/NE, George Krieger in ARA/MGT/FM, Patrick Daly in S/CPR, and William Wheeler in ARA–LA/CAR, and in substance by Fred Flemings in PM/ISO and R. Gooden in DOD/OSD; and approved by Shlaudeman. In telegram 1425 from Bridgetown, October 11, the Embassy recommended at least modest aid to Grenada as an independence gift. (Ibid., [no film number]) In telegram 1607 from Bridgetown, November 22, Donovan reported that the Embassy had delivered a letter to Gairy outlining the U.S. position on development aid and diplomatic representation. (Ibid.) In telegram 241 from Bridgetown, February 8, 1974, the Embassy reported that independence celebrations had taken place without incident, despite political tensions during the period leading up to the ceremonies and the arrest of Maurice Bishop of the opposition New Jewel Movement on the eve of independence. (Ibid.) Telegram 1426 from Bridgetown was not found.