286. Memorandum From the Executive Secretary of the Department of State (Tarnoff) to the President’s Assistant for National Security Affairs (Brzezinski)1
SUBJECT
- Disputed Islands Negotiations—Gilbert Islands
I. Introduction
The Gilbert Islands are expected to become independent in the spring of 1979. Gilberts leaders and the U.K. have been pressing us to resolve the problem of U.S. claims to 14 islands in the Gilberts chain. Resolution of the claims issue would enable us to avoid appearing to be engaged in a confrontation with a small third-world country over territory to which our claims are, for the most part, relatively weak. Such a confrontation would be detrimental to our broader foreign policy, security, and economic interests in the South Pacific.
There is general agreement among concerned U.S. government agencies that we should relinquish our claims. Relinquishment will improve the climate for achievement of U.S. objectives with respect to access to territory in the Gilberts for security related purposes and access to fisheries.
Although it is unlikely that we will be able to conclude negotiations before the Gilbert Islands become independent, beginning negotiations as soon as practical and seeking a timely resolution to the issue would be an indication of our good faith and have a positive impact on our relations with the Gilberts and other South Pacific countries. We have suggested that the first round of negotiations take place in Hawaii January 25–26.2
II. The US Presence in the Gilberts (Canton and Enderbury)
Since the late 1930’s, and particularly during World War II, the US has made extensive use for civil aviation and military purposes of Canton and other islands in the Phoenix Group, which will come under Gilbertese administration after Independence. However, all these activities have been without prejudice to US or UK claims; the United [Page 936] States and UK agreed in 1939 to joint administration of Canton and Enderbury for 50 years.
On November 14, 1970, the United States paid the UK $240,000 for the exclusive use and occupancy of Canton, Enderbury, Birnie and Hull Islands, together with similar use rights for Sydney and Gardner Islands as well, for a period of ten years. The agreement authorized the United States to construct, operate and maintain an electronic research and test facility at the Canton Island complex. This facility was very actively employed for MIRV testing in the early 1970’s, but since 1975 the entire complex has been in caretaker status, with 35 US contractor personnel maintaining the facility.
DOD is committed to keeping a presence on Canton until September 30, 1979, but will begin withdrawing its equipment after January 1, 1979. For the period from independence to 1980, DOD wishes to maintain the rights and privileges concerning Canton, Enderbury and Hull that the USG has under the 1970 US-UK agreement.
III. U.S. Goals and Objectives in the Negotiations
A. Security
1. Immediate
a) acceptance by the Government of the Gilberts of the substance of the 1970 US-UK agreement.
b) a commitment by the Gilbert Islands that they will consult with us should any third party wish to use Gilberts’ territory for military purposes.
2. Contingent Objectives
DOD has not made up its mind as to the future need for Canton, Enderbury and Hull. Because of political problems with some of the landowners in the Marshall Islands, Defense is studying possible alternative sites in place of the Kwajalein Missile Range.
The results of the study will determine what terms DOS wishes to negotiate with the Gilbert Islands for use or access to the Canton complex after 1980.
a) Option to lease Canton, Enderbury and Hull.
b) Lease to continue U.S. presence in Canton beyond 1980.
B. Marine Resources
1. A commitment to give non-discriminatory treatment to U.S. fishing vessels and to the non-U.S. fishing vessels that supply American canneries in Pago Pago.
2. An expression of intent to cooperate in conservation, management, utilization and exploitation of fisheries resources.
[Page 937]3. Willingness to consider arrangements that would permit access by non-U.S. owned fishing vessels that supply the American canneries in Pago Pago.
C. Other
Agreement to cooperate in scientific research, especially marine research on Christmas and Canton Islands. We are consulting with interests in the State of Hawaii to clearly define these positions.
V. Action Requested
We now require the approval of the President to go ahead with these negotiations. Since we intend to conclude the agreement as a treaty, we will consult with the Congress in advance. We have consulted with American interest groups such as the U.S. tuna industry and we anticipate little opposition.
- Source: Carter Library, National Security Affairs, Staff Material, Far East, Platt Chron File, Box 66, 1/1–22/79. Confidential.↩
- A report on the Honolulu negotiations is in telegram 85342 to London, April 6. (National Archives, RG 59, Central Foreign Policy File, D790157–0563)↩
- Wisner signed for Tarnoff above Tarnoff’s typed signature.↩