Foreign Relations of the United States 1977–1980; Volume XV; Central America, 1977–1980

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

Washington, January 12, 1978

SUBJECT

• Secretary Vance’s Meeting with Rowlands on Belize²

I sat in on the meeting yesterday between British Minister of State, Ted Rowlands, and Secretary Vance to discuss the status of negotiations on Belize. Rowlands insisted that we agree to mediation by an American as soon as possible. He said that we should try to convince the Guatemalans and the Mexicans of the need for mediation and he would convince Price of Belize. He is also meeting with various Caribbean leaders to try to persuade them to support a settlement.

There are two items, in particular, which I want to bring to your attention. First, Rowlands suggested Sol Linowitz as a mediator, and he insisted that the mediator should be an American. I think the idea is an excellent one, but the timing is all wrong.³ First of all, Linowitz is going to be very much involved in the ratification process even though he no longer has an official position.⁴ The Belizean negotiations will not only take a great deal of time during the next three or four months, but they are also likely to require his urgent attention at different critical times. I could easily see the possibility of his having to be in Guatemala and in the Senate at the same time. Besides the question of timing, there is the problem of having Linowitz, the architect of a Canal Treaty which is hardly the focus of universal agreement, get stuck in the middle of another dispute. It will neither help Linowitz’s reputation at the critical moment when he needs the most credibility, but it could rebound to affect the ratification process. At the minimum, it could divert attention to an issue which is even more difficult to understand than the Canal Treaties.

I saw that the President scribbled on Vance’s Evening Report that the choice of Linowitz was okay with him.⁵ I spoke with Phil Habib about this issue after Vance’s meeting, but I don’t know whether Phil had an opportunity to raise it with Vance or if Vance had an opportunity to transmit it to Christopher or call Linowitz. I’m just flagging this issue because I believe it may have very significant implications for the Canal Treaties. You may want to call Vance to get up to date on this issue.

Incidentally, the problem of timing is inevitable since the present reasoning is that a settlement must be reached in Belize before the inauguration of a new President in Guatemala in July. Therefore, the next few months for the Belize issue, as well as for the Canal Treaties, are critical.

The second issue which I want to bring to your attention is the question of providing financial incentives for settlement to both Guatemala and Belize. Vance and Rowlands spoke about this, and the consequences seemed to be that some form of assistance would be necessary. Given the President’s frugality, and our predisposition not to use US money to achieve a settlement which is in the interest of the parties anyway, we may want to raise this issue with the President before going much further.

1. Source: Carter Library, National Security Affairs, Staff Material, North/South, Pastor Files, Country Files, Box 2, Belize: 2/77–10/80. Secret. Inderfurth also initialed this copy of the memorandum.
2. See Document 18.
3. Brzezinski placed a vertical line and a question mark next to this passage and wrote at the top of the page: “RP Should we be mediating at all? ZB.”
4. “Ratification process” refers to the submission to the Senate of the Panama Canal Treaties for ratification.
5. The Department’s evening report to Carter described Vance’s meeting with Rowlands, noting: “Rowlands suggested Sol Linowitz as a possible mediator, and Cy agreed to contact him to see if he would be willing, and to consider other possible candidates if Sol is not available.” Carter wrote in the margin: “Linowitz: ok—Our administration no.” (Carter Library, National Security Affairs, Staff Material, North/South, Pastor Files, Country Files, Box 2, Belize: 2/77–10/80)