396. Telegram From the Department of State to the Embassy in the United Kingdom0
1205. Since late July Soviet ship arrivals Cuba in addition normal tanker and cargo vessel movements are estimated total at least 26 including vessels now en route. Six passenger vessels have debarked and four more reported en route.
Cargo vessels known carried both military and economic goods, with high proportion former. Information to date indicates military goods consist large quantities transportation, electronic and construction equipment such as communications and radar vans, trucks, mobile generator units, tracked and wheeled prime movers, cranes, trailers and fuel tanks. Possible limited quantity weapons. Such equipment points to probable establishment sophisticated communications and radar net, possibly surface to air missile sites and installations.
Passenger vessels arrived or now en route estimated will have carried some 5,500 passengers. At least about 1,500 are believed to be economic technicians. Composition remainder unknown but are thought to include additional civilian as well as large number military technicians (including possibly military construction and engineer crews). No evidence presence Bloc combat units. Since debarkations, equipment and personnel reported concentrated eight areas in Cuba primarily coastal regions. Construction activity of as yet undetermined nature underway some these areas.
While the US realizes that there have been earlier shipments of munitions to Cuba in substantial volume, accompanied by military technicians, and that there have been even larger bloc shipments of munitions to other countries (FYI—such as Indonesia—end FYI) nevertheless this sudden and major increase in movement of military goods and personnel to Cuba cannot help but arouse great apprehension throughout the Western Hemisphere. The volume of arrivals is exceedingly great for such a short period of time. The aggressive activities and intentions of the Castro regime backed by the Soviet bloc toward the countries of Latin America and particularly the small, relatively weak, countries of the Caribbean have been all too evident ever since Castro came to power in Cuba. Castro regime has built up and is supporting with money, literature, [Page 970] and extensive training in Cuba, including training in street and guerilla warfare, revolutionary elements who are a threat to democratic and peaceful governments.
Castro is an emotional, irresponsible and dynamic leader, faced with difficult domestic economic problems and increasing unrest at home, and equipped with what is now the strongest military force in the whole Caribbean area, and in some elements, in any Latin American country. US not concerned about utilization of this force in overt agression. US would deal with that situation immediately within Hemisphere system. However, this amount military force in Castro hands creates psychological pressures and opens up possibilities for illicit trade or supply of arms for subversive elements. Thus such force is a power to be reckoned with in the struggles, increasingly vigorous, of Latin American political forces.
This renewed evidence of Soviet willingness to make sacrifices on behalf of Cuban strength is also significant of Soviet interest and willingness to invest scarce resources, not only in Cuba, but also in an attempt to expand its influence in other areas of Latin America. Cuba is in no position to pay for these items and will not be for some time to come. These deliveries therefore represent a significant Soviet policy decision to strengthen Cuba.
The US believes that its NATO allies with whom we are so closely engaged in other areas in combatting the spread of Soviet power will be concerned with this new development and will wish to join with us in examining what more can be done to limit the capacity of the Soviets and their agent, Castro, from further extending their power in the Western Hemisphere and to make it more difficult for the Communists to maintain their control of the future of Cuba. While it is in no sense an immediate prospect, a failure of Communism here where it has been so openly backed by the Soviets would represent a major loss of prestige with impacts far wider than the Western Hemisphere and of a nature which could only be beneficial to the interests of the free world.
Attention is called to the fact that Canada has managed quietly but effectively to maintain a close embargo over shipment of items to Cuba which originate in the US and over those which are under COCOM control. It is hoped that other NATO countries will reexamine their situation ensure that they are doing at least this much to avoid assisting and strengthening economic and military potential of Cuban regime.
It would also seem desirable to ensure that Castro is not able to meet his present needs by borrowing against future repayment prospects. These do not presently appear very great outside of his trade with Soviet bloc. For both commercial and political reasons it would seem desirable that we all continue to refrain from extending government credit for purchases by Cuba.FYI. It would also be helpful if at early stage special [Page 971] report by NATO countries on extension of credits to Cuba, as agreed in NAC, could be submitted. We recognize this has mainly psychological significance but believe it would exercise certain pressure on countries re surveillance of trade with Cuba. End FYI.
The US recognizes that a more complex and difficult question is involved in the question of availability of ships to maintain the flow of goods to Cuba. Nevertheless we feel that it behooves the NATO countries in the light of these new moves to reexamine with care their position in order to determine if there is any way in which they can make it more difficult for the Soviets to meet the needs of their partner at the end of this long line of communications. Since the effectiveness of any such moves is greatly diminished in view of the surplus of ships available for charter, unless most of the principal maritime countries concur, this is perhaps a subject which might be discussed in an appropriate NATO forum.
Department desires action addressees drawing on foregoing inform host government at high level US concern over this most recent evidence of increased Soviet military involvement this Hemisphere and urge reexamination its policy toward Cuba. Department may send additional instructions this subject info addressee posts.
For USRO. You should discreetly and informally undertake parallel action with delegates of countries action addressees, and inform SecGen Stikker. Would also appreciate your personal assessment desirability and feasibility having subject introduced agenda one of upcoming NAC meetings.
- Source: Kennedy Library, National Security Files, Countries Series, Cuba, Cables, 7/12/62-9/7/62. Secret; Priority. Drafted by Hurwitch and Martin and cleared with EUR/SOV and EUR. Also sent to Paris as telegram 1301, to Bonn as telegram 590, and to Rome as telegram 470. Repeated to Copenhagen, Lisbon, Oslo, Athens, Brussels, The Hague, Luxembourg, Ankara, Moscow, and USRO.↩