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

564. Memorandum From the Under Secretary of State (Katzenbach) to President Johnson¹

Washington, May 28, 1968.

SUBJECT

• Proposed Security Council Resolution on Southern Rhodesia

After lengthy negotiations between the British and the Africans in New York, they have agreed on a new Security Council resolution on Rhodesia which we believe is livable from our point of view and which avoids more drastic action previously demanded by the Africans. The UK has taken the lead throughout and, as a result of a decision in London, will vote affirmatively for the resolution. This would also be our intention. The resolution is likely to be adopted unanimously.

Specifically, the resolution:

(a) Extends the existing sanctions on exports to and imports from Southern Rhodesia to cover all commodities except medical, educational and humanitarian supplies. Since the bulk of our trade with Rhodesia is already embargoed as a result of UN action, the practical effect on US trade is very marginal (only a total of about $5 million in imports and exports is involved).

(b) Prohibits investments or transfer of funds to Southern Rhodesia except for humanitarian purposes. Again this feature is marginal, since it does not touch past investments and no new American investments are expected in any case.

(c) Tightens transportation and air travel restrictions with regard to Southern Rhodesia in ways which do not directly affect the U.S.

(d) Bars entry into the U.S., except on humanitarian grounds, of persons travelling on Rhodesian passports and persons likely to work against the sanctions program or further the interests of the Rhodesian regime.

The resolution also establishes a Security Council Committee which would supervise the sanctions program and seek to ensure better compliance than in the past. We pressed for this provision in response to the desire of our own commercial interests who feel they are being asked to adhere to the sanctions program more strictly than commercial interests in certain other countries.

Finally, the resolution has two non-mandatory provisions: a request that member states take action which would have the practical effect of cutting off communications with Rhodesia; and a recommendation that consular and trade representation be withdrawn from Rhodesia.

Ambassador Goldberg would make clear in his explanation of vote that we consider these two paragraphs to be non-mandatory. At the same time he would indicate we believe the flow of information and communication with Rhodesia should continue. He would not make any specific statement with respect to the closing of our Consulate General in Salisbury leaving the option open as to what we might do in the future.

The vote is expected on either Wednesday afternoon or Friday morning. Ambassador Goldberg agrees with this course.²

Nicholas deB. Katzenbach

1. Source: Johnson Library, National Security File, Files of Walt W. Rostow, Meetings with the President, May-June 1968. Confidential.
2. On May 29, the Security Council unanimously adopted Resolution 253 (1968). For text, see Department of State Bulletin, June 24, 1968, pp. 847–849. On July 29, the President issued Executive Order 11419 implementing the mandatory provisions of Resolution 253. For text of the Executive Order and a Department of State announcement of the same date, see ibid., August 19, 1968, pp. 199–201.