Foreign Relations of the United States, 1977–1980, Volume XXIX, Panama

264. Memorandum From Robert Pastor of the National Security Council Staff to the President’s Assistant for National Security Affairs (Brzezinski)¹

Washington, March 12, 1980

SUBJECT

• Sea-Level Canal Study (U)

When Gabriel Lewis was here, he met with the President and gave him a message from President Royo.² At your request, Les conveyed a message from the Friday breakfast about the Sea-Level Canal issue which was quite different from what Lewis said. We have since clarified the problem within the Executive Branch and I recommend that you send the memorandum at Tab I³ to the President which nails down our understanding of this issue. Simply put, we are asking the President to approve our informing the Panamanians and Japanese that he is favorably disposed to undertaking a tripartite feasibility study for a sea-level canal.⁴ (C)

Since Gravel, who is the main catalyst behind this effort, might do an end-run to the President on this issue, we are giving him a little bit more information. Stu Eizenstat and Frank Moore will be sending a separate memo on a political deal that they want to work out with Gravel on this and other matters. (C)

RECOMMENDATION: That you sign the memo at Tab I and forward it to the President. (You do not need to send State’s memo at Tab A.)⁵ (U)

1. Source: Carter Library, National Security Affairs, Brzezinski Material, Brzezinski Office File, Box 38, Brzezinski Office File Country Chron., Panama, 1980. Confidential. Sent for action. An unknown hand wrote: “thru: Madeleine Albright.” Aaron initialed the memorandum. A copy was sent to Owen.
2. Lewis delivered Royo’s message to Carter on February 22. In telegram 54083 to Panama City, February 29, the Department reported that Lewis had communicated Panama’s hope that the United States would participate in a sea-level canal feasibility study and wrote: “Ambassador requested determine from Lewis with more precision Panamanian views on study to include concept and timing.” (National Archives, RG 59, Central Foreign Policy File, D800104–0669) In telegram 1986 from Panama City, March 3, Moss reported that the Panamanian proposal “envisaged a trilateral study, Panama-US-Japan,” and that Royo had requested the United States indicate it would favor Japanese participation in the study. (Carter Library, National Security Affairs, Staff Material, North/South, Box 43, Pastor, Country, Panama, Sea Level Canal, 7/77–10/80) In a March 11 memorandum to Brzezinski, Tarnoff noted that on February 22 Carter indicated “a willingness to respond favorably” to Royo’s request, provided that such action was consistent with the Panama Canal Treaties. (Carter Library, National Security Affairs, Brzezinski Material, Brzezinski Office File, Box 38, Brzezinski Office File Country Chron., Panama, 1980)
3. Not attached.
4. An unknown hand highlighted this sentence, placed an arrow in the left margin, and underlined “approve our informing the Panamanians and Japanese that he is favorably disposed to undertaking a tripartite feasibility study for a sea-level canal.” Denend drew a line from this sentence and wrote at the end of the memorandum: “3/19 Ok approved per ZB”. In telegram 73383 to Panama City and Tokyo, March 20, the Department instructed the Embassy to communicate orally to Lewis that Carter was “favorably disposed” to participation in a sea-level canal feasibility study with Panama and Japan and that Panama and the United States should begin bilateral discussions on how to implement Article 12 of the Panama Canal Treaty. (Carter Library, National Security Affairs, Staff Material, North/South, Box 43, Pastor, Country, Panama, Sea Level Canal, 7/77–10/80)
5. Brzezinski did not indicate his approval or disapproval of the recommendation.