Foreign Relations of the United States 1977–1980; Volume XV; Central America, 1977–1980

342. Memorandum From the President’s Assistant for National Security Affairs (Brzezinski) to President Carter ¹

Washington, November 28, 1980

SUBJECT

• Your Meeting with Costa Rican President Carazo (U)

Carazo is in Washington to receive an honorary degree at Georgetown, and he asked to see you to express his personal gratitude for your human rights policies to Latin America. In addition, he will ask you to support an increase in development aid and a $2.9 million PL–480 Title II program. He also wants you to reject the CAB’s recommendation to award Air Florida the only American non-stop service between Miami and San Jose. (His preference is Pan American.) Unfortunately, you cannot be very forthcoming, except in accepting his congratulations. (S)

Costa Rica is a friend in trouble, a model democracy in a region of violence and radical change. However, since its per capita GNP is about $1500, qualifying it as a middle-income LDC, we find ourselves continuously constrained from being as helpful as we would like or as they are to our concerns. They have helped us on the Cuban refugee issue and in opposing Cuba for a UN Security Council seat (which they finally lost when Cuba threw its support to Panama). They have adopted a constructive approach to El Salvador and Nicaragua, and indeed the only important issue of some disagreement between us is Carazo’s unwillingness (or inability) to close down the Cuban operations center (in San Jose) which directs Cuba’s illegal arms trafficking and guerrilla movements in the region. (One possible reason for Carazo’s inaction is the possibility that the Cubans are blackmailing him because of the possibility of Carazo’s son’s involvement.) Ed and I agree that you should emphasize the importance of his acting strongly against Cuban officials who are using Costa Rica to promote terrorist activities in Central America.² (S)

Partly because of global economic conditions and regional political crises, Costa Rica is in an extremely difficult state. Some observers have begun to compare it to Uruguay—a model South American social democracy for 30 years, which deteriorated rapidly into chaos and terrorism in the 1970’s. Your meeting with Carazo is one of many examples of the political support we have provided to Costa Rica. In the economic area, we have not been as helpful. Our aid program remains small—$7.6 million in FY ’81—and there are many in the government who would prefer to phase it out. The Title II PL–480 program of $2.9 million was personally requested by Carazo, but since Costa Rica is a middle-income LDC, OMB, IDCA and USDA oppose it, but would support a Title I program of the same amount. On this, you should respond that we are still reviewing the availability of both Title I and Title II resources and await Congressional appropriations. (Owen has agreed to chair an inter-agency group and submit a formal recommendation to you after the meeting.)³ With regard to Carazo’s request on awarding the air link to Pan American, OMB submitted a memo to you on November 19 recommending that you approve the CAB’s award to Air Florida.⁴ If you take no action, CAB’s recommendation will take effect on December 9. We recommend that you hear Carazo out. (S)

In addition, you may want to encourage Carazo to continue playing an active leadership role on human rights and on seeking moderate political solutions in Central America. (S)

1. Source: Carter Library, National Security Affairs, Staff Material, North/South, Pastor Files, Country Files, Box 10, Costa Rica: 5/80–1/81. Secret. Sent for information. For the memorandum of conversation, see Document 343.
2. Reference is to Muskie. In a November 25 memorandum to Carter, Muskie included a suggested talking point for Carter to make during his meeting: “We believe that you are as concerned about Cuban interventionist activities in Costa Rica and in the region as we are. We hope you can act promptly and strongly against any Cuban officials who may use Costa Rica to promote terrorist activity elsewhere in Central America or otherwise abuse their welcome.” (Ibid.)
3. In a January 8, 1981, memorandum to Pastor, Denton summarized the policy supported by the interagency Food Aid Working Group: “All agencies agreed that the appropriate form of food aid for Costa Rica should be a Title I program rather than Title II, given that country’s relatively high income level. However, the Costa Ricans have been led to expect a favorable response to their request for a Title II program in FY 1981. A refusal at this stage would have a negative impact on US relationships with that country especially since no Title I program could be implemented in its place this fiscal year. A consensus was reached on a compromise position: 1) Allocate a Title II program of up to $2 million only for 1981. 2) Advise the government of Costa Rica that US consideration of a Title I food aid program in FY 1982 would be contingent upon demonstrated food and economic need. 3) In light of their legislative procedures, Costa Rica should now begin their internal procedures to consider such a program.” (Carter Library, National Security Affairs, Staff Material, Special Projects, Hazel Denton, Box 56, Costa Rica, 8/80–1/81)
4. Not found.