Foreign Relations of the United States, 1964–1968, Volume XVI, Cyprus; Greece; Turkey

190. Telegram From Secretary of State Rusk to the Department of State¹

London, May 13, 1965, 1700Z.²

Secto 16. The Secretary’s conversation at noon today with Costopoulos, Palamas and Pilavachi showed clearly that Greeks feel on very shaky ground in regard to proposed bilateral talks with Turks re Cyprus.³ Main things worrying them seem to be:

A. Turkish insistence on talking about conditions for continued independence of Cyprus and reluctance to discuss enosis.⁴ Costopoulos repeated point he had previously made to Ball that Greece had no right to negotiate about independence of island in absence of Makarios and that any attempt to do so would open way for Archbishop to sabotage whole operation. On this, we suggested talks might begin without any prior understanding as to their basis and that Greeks could take initiative to bring up enosis with compensation at very beginning, thus channelling further discussion in right track from their point of view. Costopoulos looked dubious and did not comment.

B. Greece does not feel it can undertake talks without some UN connection; Costopoulos thinks it important that “third person” at least have blessing of UNSYG even if he is selected by prior agreement by the GOG and GOT. Still thinks New York is best location and cannot accept Turkish idea of talks under NATO auspices. We asked whether Greeks had yet made suggestion about New York to Turks. Costopoulos said no and indicated he was hoping we would present this idea to Turks. Secretary asked why they could not sit down together and exchange ideas on their respective 1st, 2nd and 3rd choices for location and personalities to be involved; perhaps one of these sets would match. Costopoulos did not respond directly, merely reiterating difficulty of discussing anything but enosis in absence of Cypriot representative.

C. He fears Turks will be unwilling devote time necessary to work out solution this very difficult problem and that if there are any delays in course of talks Turks will charge bad faith and take action or make threats which will completely upset situation. Secretary emphasized that to prevent such actions or threats it was absolutely essential to have complete calm on island and full protection for Turkish-Cypriots. Costopoulos rejoined it was equally necessary that Greeks and Patriarchate in Istanbul be protected, otherwise Greek public would explode. He urged that we use our influence to make this point understood in Ankara.

D. Costopoulos fears Turks want to make propaganda out of fact talks underway and might prematurely reveal substance of discussions. He emphasized that to prevent difficulties in Greece and above all sabotage by Makarios there must be absolute secrecy about substance, but he agreed it would probably be impossible to prevent public knowledge of fact talks themselves were underway. Secretary said he thought it should be possible to maintain secrecy on substance.

In course of discussion Secretary reiterated advice he had given Isik that above all contact must be maintained and participants must not be easily discouraged. Over a period of time new ideas might emerge. Assured Costopoulos that he believed Isik genuinely desired to keep things quiet on island, something which was essential to make lengthy talks possible.

Greeks mentioned Inonu press statement supporting present Turkish Cabinet in relation to Cyprus issue. Costopoulos himself volunteered that this seemed to show Turks really meant business. Secretary concurred.

Secretary asked about reaction to set of “agreed principles” we had submitted to them and to Turks.⁵ Almost exactly as Isik had done yesterday,⁶ Costopoulos replied most of points were acceptable but he felt there should be some additions. Also remarked that some points seemed in conflict with UNSC resolution of March 4. Secretary pointed out that if Greece and Turkey could agree on anything, they would certainly get unanimous endorsement from SC. Costopoulos asked whether our idea was that agreed principles should be published once understanding reached with Turks. Secretary said no, that idea was to give two parties a common basis to build on and enable them to launch negotiations on the easier rather than the most difficult issues. Jernegan suggested, however, that if agreement could be reached there would seem to be definite advantages in publishing, since a great many people in Greece and Turkey and elsewhere must be anxiously looking for signs of hope. Palamas replied problem would be adverse effect publication would have on Cyprus. Finally, Costopoulos suggested he could talk to Isik about principles tonight. Secretary agreed but said he did not think too much time should be spent on this at present moment since first essential was to get agreement on procedures.

With further reference to danger of violent action on either side, Costopoulos said we must keep in mind terribly important humanitarian aspect. If Turks attacked Cyprus whether by land or by bombing, Makarios would proceed to kill all Turkish-Cypriots and Turks would retaliate by killing all Greeks in Istanbul. Secretary again emphasized importance that there be complete calm on island. Costopoulos said during recent meetings in Athens Makarios had repeatedly promised GOG he would keep peace and abolish all measures directed against Turkish-Cypriots. He had also promised to refrain from initiating changes which would likely to provoke Turks: A) he will not carry out his plan to call new elections this summer when his present mandate runs out—instead he will continue in office without raising issue; B) he also agreed to refrain from appointing a pro-Greek Turkish-Cypriot minister, GOG having told him he must not bring a Quisling into his Cabinet.

Secretary suggested it might be useful for Turkish Ambassador Athens and Greek Ambassador-designate Ankara (both of whom are in London) get together this afternoon to see if they could smooth over some procedural difficulties before tonight’s meeting. Costopoulos gave tentative endorsement to this.

Secretary asked if there was anything special USG could do to help negotiations along. Costopoulos indicated he did not want US participating, since that would be regarded in Greece and Cyprus as US interference and pressure. He made no concrete suggestion except to say that he hoped for continued close US interest and occasional help.

It was agreed that Pilavachi should meet with Jernegan tomorrow morning to report on how things go tonight. (Will be recalled Isik is seeing Secretary again tomorrow, at which time we can get Turkish version).⁷

Rusk

1. Source: Department of State, Central Files, POL 27 CYP. Secret. Repeated to Athens, Ankara, Nicosia, and Paris for USRO.
2. Beginning in May 1965, the dates and transmission times of all incoming Department of State telegrams were in 6-figure date-time-groups. The “Z” refers to Greenwich Mean Time.
3. Isik and Costopoulos met during the NATO meeting. Their discussions were reported in Secun 15 from London, May 11. (Ibid.)
4. Reported in Secun 11 from London, May 11. (Ibid.)
5. Reported in Secto 2 from London, May 12. (Ibid.)
6. Rusk reported on his conversation with Isik in Secto 9 from London, May 13. (Ibid.)
7. Telegram 5519 from London, May 14, reported that Pilavachi stated that the Greek and Turkish Foreign Ministers had agreed on procedures for talks on Cyprus and provided details of concluding discussions between the Secretary and senior Greek and Turkish officials. (Ibid.)