Foreign Relations of the United States, 1977–1980, Volume XVI, Southern Africa

271. Memorandum From the President’s Assistant for National Security Affairs (Brzezinski) to President Carter¹

Washington, April 13, 1977

SUBJECT

• South Africa: Follow-Up to the NSC Meeting

In PD/NSC–5, following the NSC meeting on South Africa,² you directed Cy Vance and Andy Young to draw up a paper outlining “a sequence of events designed to promote the progressive transformation of South African society, including steps the U.S. might take”. The response is attached as Tab A.³

In summary, the paper recommends that:

—We make our general approach known through public statements, as you did in your UN speech.⁴

—Inform Vorster forcefully that our relations will suffer if South Africa does not make rapid movement away from apartheid.

—Take promptly a series of steps to distance ourselves from South Africa (e.g. strengthen our voluntary arms embargo; review our nuclear policy; restate opposition to homelands—the list is on pp. 5–6).

—Keep in mind a set of benchmarks by which we can judge South African progress (examples are provided on p. 4) but do not make this list known publicly or to the South Africans. State Department could monitor South African progress.

—According to performance, implement further sanctions or rewards, examples of which are listed in Tab B.⁵

Since the paper was written before your decision to have a representative meet with Vorster, it does not reflect that possibility.

The study correctly points out that a mechanical sliding scale relating benchmarks, rewards and punishments is not feasible. At the same time, however, the paper could have been more specific in a number of ways and hence more helpful. For instance, there is no suggestion as to timing (i.e., how soon should the South Africans take action and in what sequence) nor can we get very far if the criteria for South African action are set forth only in terms of “move toward” or “express intention”.

My staff will be in further touch with the Vice President’s office and with State to see if more specificity is possible or useful.

1. Source: Carter Library, National Security Affairs, Brzezinski Material, Brzezinski Office File, Country Chron File, Box 47, South Africa: 4–6/77. Secret. A copy was sent to Mondale. Carter initialed the memorandum and wrote at the top of the first page: “I would like V.P. comments.”
2. See Document 267.
3. Tab A is attached but not printed. Brzezinski revised this sentence to read: “The response is attached at Tab A; I suggest you only scan it.”
4. Carter delivered a speech before the UN General Assembly on March 17. For text of his remarks see, Public Papers: Carter, 1977, Book I, pp. 444–451.
5. Tab B is not attached.