559. Background Paper Prepared in the Department of State1
VISIT OF UNITED KINGDOM PRIME MINISTER HAROLD WILSON
June 19672
SOUTHERN RHODESIA
Summary:
Following the unilateral declaration of independence by the Rhodesian Front regime of Ian Smith from the United Kingdom on November [Page 944] 11, 1965, the UN Security Council, at the request of the British, approved a voluntary economic sanctions program against Southern Rhodesia. During 1966 intermittent talks were held between the United Kingdom and Rhodesian representatives and, with the rejection on December 5 of the HMS Tiger “working document” by the Rhodesian “cabinet,” the UK requested the Security Council to impose limited mandatory economic sanctions against Southern Rhodesia to strengthen and supplement the voluntary program. Such sanctions were approved by the Council on December 16 with the concurrence of the US.
Discussion:
Under voluntary sanctions, total exports from Southern Rhodesia are estimated to have fallen from nearly $400 million in 1965 to an estimated $224 million in 1966, a drop of some 40%. (These figures do not include gold or re-exports. Gold exports amount to approximately $21 million annually.) Under the mandatory sanctions program, a further reduction in Rhodesian exports of approximately $55 million is anticipated if South Africa and Portugal, while not complying with the program, do not increase their trade with Southern Rhodesia.
Although it is estimated that the gross domestic product fell by 15% in 1966 compared to 1965 and present estimates suggest a further drop of about 10% by September 1967, the Rhodesians have not sought a settlement with the UK.
In late April a conversation was held in Salisbury between the British Governor and Ian Smith, apparently on the Governor’s initiative. Smith’s remarks were subsequently dismissed by Commonwealth Secretary Bowden as not having contained any real concessions and, therefore, as not providing a promising basis for re-opening talks.
It seems likely, however, that over the next two or three months the British will seek to create opportunities for re-opening negotiations with the Smith regime. If exploitable opportunities seem to exist, the British may be prepared to make further concessions to the so-far intractable Rhodesians in an effort to reach a settlement.
UK Position:
In the Commonwealth communique issued in London, September, 1966, the UK stated that, should the Smith regime not take steps to return to constitutional government by the end of 1966, it would: (a) withdraw all previous proposals made to the Rhodesians; (b) not propose to Parliament a settlement involving independence before majority rule; and (c) provided full Commonwealth support was obtained, seek selective mandatory economic sanctions against Southern Rhodesia in the UN.
With the collapse of the HMS Tiger talks, the UK sought and obtained Security Council action on mandatory economic sanctions. The [Page 945] UK continues to make clear both publicly and privately that it wishes to avoid economic warfare with South Africa and that it hopes to avoid having sanctions against Rhodesia affect British-South African trade. In any future discussions at the UN, the British would probably oppose any call by others to expand sanctions to include the Portuguese territories and South Africa, although they might not go so far as to use the veto. As in the past, the British would very probably oppose any proposal to use force against the Smith regime.
US Position:
The entire international community acknowledges that Southern Rhodesia is a British colony. We believe it is important that the present sanctions program be made as effective as possible in the hope that the Smith regime will be led to reconsider its position and agree to a settlement to open the way to majority rule with minority rights protected. In cooperating with the international community in the sanctions program, we have been careful to commit ourselves only to the present program.
- Source: Johnson Library, National Security File, Country File, United Kingdom, Visit of PM Wilson, 6/2/67. Confidential. Drafted by Thomas A. Fain of AFSE; cleared by Leddy and Springsteen, Goldstein, Director of the Office of United Nations Political Affairs Elizabeth Ann Brown, Ruth S. Gold of E, McElhiney, and Trimble.↩
- Prime Minister Wilson visited Washington June 2–3. No record of discussion of Rhodesia during his visit has been found.↩