Foreign Relations of the United States, 1964–1968, Volume XXIV, Africa

541. Telegram From the Department of State to the Embassy in the United Kingdom¹

Washington, September 8, 1966, 11:27 a.m.

42780. Subj: UK Question on Sanctions for Rhodesia.

1. At own request, UK Minister Stewart called on Assistant Secretary Sisco (IO) late Sept 7 with HMG request for US assessment of feasibility of an SC res on Southern Rhodesia which would impose mandatory sanctions on all transit of POL for Rhodesia through Mozambique and forbid importation by UN member states of certain Rhodesian products, possibly including pig iron and chrome ore.

2. As background, Stewart said meeting of UK Cabinet in London yesterday had decided with regard Rhodesia that it would be difficult hold Commonwealth together solely on basis of UK agreement to a Canadian suggestion for a selective ban on Rhodesian exports. Cabinet had decided this step inadequate and they would have to go further but wanted take only minimum action in UN necessary to hold Commonwealth together “without risking UK vital economic interests” or “putting UN on dangerous course.” Stewart said Cabinet therefore considering package res which would ban transit of POL for Rhodesia through Mozambique and forbid importation by UN members of pig iron and chrome. Cabinet wished avoid risk of being forced into oil sanctions against South Africa. Stewart said he had been instructed to ask US assessment on chances such package res in SC. Cabinet would consider question tomorrow AM and wished US views by that time if possible.

3. Sisco replied that he would have to report this conversation to Mr. Ball who returning same evening and to Ambassador Goldberg to obtain official US view. Meanwhile, he could only give preliminary observations of purely personal nature. Sisco said effort to limit res to transit POL through Mozambique unlikely to wash in SC, would probably elicit immediate move to broaden res to include SA in light of known fact that South Africa main source oil supply to Rhodesia and Mozambique mainly transit area for POL originating in South Africa. Second, such step would clearly discriminate against Portugal and elicit very strong Portuguese reaction against those who supported it.

4. Leaving aside question of general advisability Chapter VII action this subject, Sisco said sanctions on pig iron might not, to limited extent his information on this subject, cause great economic dislocation for US because our imports Rhodesian pig iron sporadic and infrequent. Chrome was more important issue because high grade chrome ore in short supply on world market and important US companies now dependent on Rhodesian sources. He added important consideration here was that such action taken by itself was highly unlikely impress Commonwealth members or to hold back pressure in SC for extension of measures to cover imports into Rhodesia including POL.

5. Sisco said real question raised by UK query is ultimate UK position on sanctions toward South Africa. If UK decided that oil embargo against South Africa was an ultimate possibility in order meet political demands of maintaining Commonwealth, this would be important factor in overall equation. If on other hand, UK not planning take this decision and considered potential damage arising from it outweighed risk to Commonwealth, it would then appear unwise to take steps in SC on Rhodesia which would at minimum raise African expectations, whatever the tactical advantage. Stewart agreed that this was fundamental problem posed by his instructions. He added that HMG apparently felt it would not be in position veto Chapter VII res on South Africa and wished if possible to avoid being boxed in on this.

6. Dept has reviewed UK proposal. You may inform FonOff that Sisco’s remarks represent Dept’s assessment. Minister Stewart being informed here. We also reaffirming to him what Ball told Brown in London: we cannot veto res involving South Africa under conditions projected.

Ball

1. Source: Department of State, Central Files, POL 16 RHOD. Secret; Immediate. Drafted by Dean, cleared by Ball, and approved by Sisco. Repeated to USUN, Salisbury, Capetown, and Lisbon.