Foreign Relations of the United States, 1977–1980, Volume XVII, Part 3, North Africa

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

Washington, February 24, 1977

SUBJECT

• U.S. Relations with Libya and Iraq

In response to a recent memorandum from the Secretary of State,² you asked why we should not initiate proposals for normalizing relations with Iraq and Libya.³

We maintain active commercial relations with both nations, and Libya has recently indicated its interest in establishing normal diplomatic relations.⁴ Iraq is rapidly assuming a more important role in the economic and political activities of the Persian Gulf area and has resolved, at least for the moment, the border dispute and the Kurdish issue which had been a major source of irritation in its relations with Iran.

In both cases, I believe that we should be alert for opportunities to develop more normal relations. The timing, however, of any U.S. unilateral move in this direction will be extremely important since it will be interpreted by other Middle Eastern states as a signal of our intentions and could have major implications for the success of our efforts to promote an Arab-Israel settlement. Both Libya and Iraq are viewed as pariahs by their neighbors. Thus, I would recommend that any move on our part toward closer ties be carefully prepared in advance through consultations with our friends in the area, particularly the Egyptians and the Saudis, and I believe we should avoid any new moves in that direction while our Middle East negotiations are in their present delicate state.⁵

1. Source: Carter Library, National Security Affairs, Brzezinski Material, Country File, Box 48, Libya: 1/77–1/81. Secret. Sent for information.
2. See Document 82.
3. See footnote 1, Document 82.
4. In telegram 230 from Tripoli, February 15, Bergstrom reported that in a February 14 meeting, Sahad reiterated Libya’s desire for improved relations with the United States, and presented Libya’s positions on the two barriers to improvement: the Middle East and terrorism. (Carter Library, National Security Affairs, Staff Material, Middle East, Subject File, Box 61, Libya: 2/77–12/78)
5. Carter wrote at the bottom of the memorandum: “OK, but moves to normalize relations may keep Iraq & Libya from trying to disrupt Mid E efforts. How can/could we move?”