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

462. Summary of Conclusions of a Policy Review Committee Meeting¹

Washington, March 24, 1977, 3:30–5 p.m.

SUBJECT

• Latin America

PARTICIPANTS

• State

  • Warren Christopher
  • Terence Todman
  • William Luers

• Defense

  • Charles Duncan
  • Major Gen. Richard E. Cavazos

• Joint Chiefs of Staff

  • General George S. Brown
  • Lt. General William Smith

• CIA

  • Deputy Director Enno Knoche
  • [name not declassified]

• Treasury

  • Anthony Solomon
  • Edward Bittner

• Arms Control and Disarmament Agency

  • Leon Sloss

• Commerce

  • Frank Weil

• NSC

  • Dr. Zbigniew Brzezinski
  • David Aaron
  • Thomas Thornton
  • Robert A. Pastor

Overall Approach: Should the U.S. Move Away From the Special Relationship?

Deputy Secretary Christopher opened the meeting by saying that the new Administration had been dealing with many specific Latin American problems—for example, Panama, Cuba, and Mexico—but we had not had an opportunity to develop an overall approach,² particularly with respect to those economic issues which were of greatest concern to the Latin Americans.

Deputy Secretary Christopher suggested that in the light of the changes which had occurred in the last decade that the best overall policy for the U.S. might be a nonpolicy. All agreed we should carefully move away from attempting a special policy for Latin America, which in the past has locked us into a cycle of creating unrealistic expectations followed by bitter disappointments.

We should encourage the nations of Latin America to diversify their relationships with other countries and regions, and we should adopt policies which differentiate, handling specific problems bilaterally and general issues in global or North-South fora. To the extent that regional institutions can contribute to the effective resolution of individual problems, we should also use them.

On the question of U.S. intervention in the hemisphere, Dr. Brzezinski said that we should not react reflexively to Soviet probes, but rather should judge our response by the likely consequences if the U.S. did not intervene. Since Latin American governments are very concerned about their own independence, we should watch their reactions first.

The consensus was that we should not attempt to package our cluster of interests and differentiated policies into a single policy for the hemisphere.

Relationships With Military Governments

The consensus was that the U.S. should adjust its relations with individual countries so as to differentiate according to the kind of regime: warm relations with civilian and democratic governments, normal relations with non-repressive military regimes, and cool but correct relations with repressive governments.

David Aaron suggested joining the two agreed approaches—the movement toward globalism and establishing a closer affinity with democracies—by a Presidential trip to selected democracies, say in Latin America as well as in Africa, Asia, or perhaps Europe.

Aaron also said that if we are going to be sincere about moving toward a global approach, we must make clear that our policies with respect to democracies or repressive regimes must be the same in Latin America as in Africa or Asia. Given the special constituencies in the U.S., that would not be easy. We will have to go out of our way to do that.

Human Rights

The participants agreed that we should try not to have a different policy for the hemisphere than we have for the rest of the world, and we should try to persuade the Congress of the value of not differentiating between regions. We should also explore ways to express our policy on human rights in a more affirmative manner. Also, the Executive should seek greater discretionary authority from Congress so as to be able to make important definitional distinctions. For example, we should define gross violations of human rights as torture or degrading treatment instead of denial of due process. This will mean that seven-to-ten countries will be in violation rather than sixty-to-eighty. Our influence on trying to mitigate repressive policies abroad is likely to increase proportionately.

Arms Transfers

Leon Sloss from ACDA suggested that we approach the problem of restraining arms purchases on a global basis through both supplier and purchaser arrangements. General Brown and Deputy Secretary Duncan said that if such an approach failed, it was their preference that the U.S. should sell arms to the region rather than the Russians.

Organization of American States

Todman suggested that the U.S. try to strengthen the OAS by seeking the abolition of the Permanent Council and a reduction of our contribution from 66 percent to a level more in line with an equal relationship. Solomon said that any and all efforts to strengthen the OAS have come to nought because the Latins care more about the “perks” than we do and less about “streamlining” it or making it more efficient. The political costs of seeking its abolition are as great as trying to change it, and he therefore was discouraged whether anything constructive could be done.

Cultural and Educational Exchange

Christopher asked whether we should return to a more enlightened and generous policy with respect to cultural and educational exchanges with Latin America. Todman nodded yes.

Conclusion

It was agreed that the new directions recommended at the PRC meeting should be incorporated in the President’s Pan American Day speech.³

1. Source: Carter Library, National Security Council, Institutional Files, Box 38, PRM–17 (3). Secret. Pastor forwarded the summary of conclusions to Brzezinski under cover of a March 25 memorandum.
2. PRM/NSC–17, January 26, which directed a review of U.S. policy toward Latin America, and the study prepared in response to PRM/NSC–17, March 12, are scheduled for publication in Foreign Relations, 1977–1980, vol. XXIV, South America; Latin America Region.
3. Carter addressed the Permanent Council of Organization of American States on Pan American Day, April 14. (Public Papers: Carter, 1977, Book I, pp. 611–616) Carter also addressed the United Nations General Assembly on March 17, asserting: “We will put our relations with Latin America on a more constructive footing, recognizing the global character of the region’s problems.” (Public Papers: Carter, 1977, Book I, p. 446) The complete version of both speeches are printed as Documents 29 and 33, in Foreign Relations, 1977–1980, vol. I, Foundations of Foreign Policy.