Foreign Relations of the United States, 1969–1976, Volume XXIX, Eastern Europe; Eastern Mediterranean, 1969–1972

364. Telegram From the Embassy in Greece to the Department of State¹

Athens, April 13, 1971, 1511Z.

1764. Subj: Cyprus: Greek-Turkish Bilateral Agreement. Ref: Athens 1630.²

1. I asked Palamas flatly today whether Greece and Turkey intended to negotiate agreement on Cyprus, pointing out that experience had seemed to show that continuation of intercommunal talks best present approach to Cyprus problem. Palamas said that Makarios in fact wanted no agreement, and his intemperate talk about enosis could only be harmful. If no agreement could be reached through intercommunal talks, Greece and Turkey would have to look for other solution. In fact, present situation one of de facto partition. Alternatives were return to London-Zurich agreements, which Makarios had already rejected, agreement through intercommunal talks, which Makarios refused to allow to succeed, or continuation of present de facto partition. However, as Pipinelis has made clear, in deadlock of this kind, with its inherent dangers, Governments of Greece and Turkey could not stand idly by.

2. I observed that bilateral Greek-Turkish agreement unlikely to be accepted by Makarios who had big potential for causing trouble. Palamas said that basically any agreement reached by Turkey and Greece should be acceptable to Cypriot population who most involved. I reiterated my concern and noted that if Governments of Turkey and Greece able to reach far-reaching agreement of this kind, they should seek to exert such influence as they had to assure the success of the intercommunal talks.

3. In reply to my query, Palamas said he looked quite favorably upon new Turkish Government³ which he considered quite capable, referring specifically to the new prime and foreign ministers. He disagrees with opinion expressed by Greek Cypriots that this government would be more difficult to deal with on Cyprus issue. Palamas said GOG seeks to broaden basis of relations between the two governments, which now as in past continue to express themselves to too great a degree through the Cyprus issue.

4. Comment: While I doubt Governments of Greece and Turkey will reach an agreement in near future over Makariosʼ head, situation clearly calls for renewed effort to push intercommunal talks. While Ambassador Popper can undoubtedly shed light on this point, I can hardly believe that Makarios would take an agreement involving double enosis without fierce resistance with, at the present time, unforeseeable consequences. On the other hand, the Prime Minister here attaches great importance to good relations between Greece and Turkey because of the Soviet threat, and he wishes to get the Cyprus issue removed as the determinant of relations between the two countries. It is clear that bilateral talks have taken place over Cyprus and will continue in future. We are analyzing in separate cable political implications in Greece of an effort to achieve bilateral settlement. We would be interested in Ankaraʼs and Nicosiaʼs views on this subject.⁴

5. Request addressees give fullest protection to this information and source.

Tasca

1. Source: National Archives, RG 59, Central Files 1970–73, POL 27 CYP. Secret; Limdis; Noforn. Repeated to Ankara and Nicosia.
2. Dated April 7; the Embassy reported on a conversation with Chorafas who hinted that Greece and Turkey were considering bilateral talks on Cyprus. (Ibid.)
3. On March 12 the Turkish military intervened to force the resignation of Prime Minister Demirel. Nihat Erim formed a multi-party coalition government on April 7.
4. In telegram 655 from Nicosia, April 24, Popper commented: “I believe Amb. Tasca is absolutely right in urging caution regarding any rash Greek-Turkish bilateral action which would result in Makarios precipitating a new Cyprus crisis. At the same time, since Greece and Turkey are obviously going to step up their bilaterals on Cyprus … situation demands we seek to induce Athens and Ankara to focus their talks on ways and means of producing some progress in Cyprus intercommunal negotiations.” (National Archives, RG 59, Central Files 1970–73, POL 27 CYP) In telegram 2608 from Ankara, April 16, Handley commented that Erimʼs government would be more active on Cyprus issues and was conducting a policy review. (Ibid., Nixon Presidential Materials, NSC Files, Box 592, Country Files—Middle East, Cyprus, Vol. I Jan 1969–June 30, 1974)