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

43. Telegram From the Embassy in South Africa to the Department of State¹

Cape Town, February 4, 1977, 1525Z

166. Subj: Namibia: International Acceptability of Turnhalle² Proposals. Ref: (A) Cape Town 0164³ and 0165;⁴ (B) State 019705.⁵

1. During recent conversation with Pik Botha (reftel B), Secretary Vance counseled that SAG refrain from taking any decisions that might foreclose the possibility of an internationally acceptable settlement. The proposals being developed by the Turnhalle Constitutional Committee and Mudge’s scenario for drafting of final constitution as described in reftels A raise serious doubts about international acceptability of what SAG has in mind for conducting Namibia to independence. A unitary state with powers focused in central government seems to be in the making. There is nothing, however, to indicate they are thinking of involving the UN or finding formula for SWAPO and other groups participating except in remark made by Mudge to Summerhayes that perhaps outside observers could witness referendum of final constitution prior to independence.

2. I doubt that UN or SWAPO would be willing to participate at that late stage. But they might be willing to do so if there were more meaningful participation at an earlier period. For example, if instead of the interim government appointing a constitutional commission to draft the final constitution, as Mudge suggested, it were to call for an elected constitutional convention on a basis in which SWAPO and other groups would be free to put up and freely campaign for delegates, and the UN could participate in conducting the elections and observing the proceedings as well as being on hand to help arrange the subsequent referendum, then the chances of the SAG meeting basic elements for international acceptability would be met or at least the criticism of the more extreme anti-South African elements substantially deflected. In order to work out such an arrangement, it might be possible to get representatives of the Namibia interim government, SWAPO and UN together with some form of SAG presence.

3. I submit this suggestion because I think the time is rapidly approaching when we and the British, and possibly the French, need to discuss this aspect with the SAG. Perhaps this idea merits discussion with Tony Duff when he comes to Washington for high-level consultations next week.

Bowdler

1. Source: National Archives, RG 59, Central Foreign Policy File, P840086–0956. Secret; Immediate; Nodis.
2. The Turnhalle Constitutional Conference in Windhoek involved a series of meetings from 1975 to 1977, which sought an internal settlement for Namibian independence. The conference excluded SWAPO.
3. In telegram 164 from Cape Town, February 4, the Embassy discussed the progress at the Turnhalle Constitutional Conference toward “agreeing on bases for interim government in Namibia.” (National Archives, RG 59, Central Foreign Policy File, D770041–0069)
4. In telegram 165 from Cape Town, February 4, the Embassy transmitted the text of Chapter II, “Protection of Fundamental Rights” for Namibia’s interim government. (National Archives, RG 59, Central Foreign Policy File, D770041–0068)
5. In telegram 19705 to Cape Town, January 28, the Department reported on Botha’s January 25 meeting with Vance. (National Archives, RG 59, Central Foreign Policy File, P84008–0031) The memorandum of conversation of this meeting is printed as Document 260.