Shortly after this we adjourned for lunch and agreed to meet later in the afternoon after we had looked in detail at the proposals and, with advice from officials and the military, worked out our own detailed amendments. In the meantime the American team had made use of a direct secure line from No. 10 to the White House. As Al Haig’s memoirs reveal, he had also rung the Argentine Foreign minister, on hearing that the New York Times had just published the terms of the document which Sr. Costa Mendez had handed him at the airport in Buenos Aires, which were utterly inconsistent with the terms presented to us. Understandably, Mr Haig now wanted to know whether this document represented the Foreign minister’s suggestions or the final and official word of the Junta.
Our two teams met once more just before 6 p.m. There were a number of points to discuss; again, the single most important was the position of the task force. Al Haig said that President Galtieri would not survive if after the Argentinians had committed themselves to withdrawing from the Falkland Islands in two weeks the British newspapers continued to report that the task force was proceeding south. The Americans were not asking for our fleet to be turned around: but they were asking for it to be halted once an agreement had been reached. I replied that I would not survive in the House of Commons if I stopped the task force before Argentine withdrawal had been completed. Nor would I be prepared to do it. I was ready to let the troop ships proceed more slowly once an agreement had been signed. But the main task force must maintain its progress towards the Falklands Islands. I saw no reason to give Argentina the benefit of the doubt. I was prepared to halt the task force at the same distance from the Falklands as that between Argentina and the islands, but I could go no further than that.
We argued until late into the evening. Argentina, starting from the Communications Agreement of 1971, wanted their citizens to have the same rights to reside on the islands, own property and so on, as the Falklanders. They wanted the commission positively to promote that state of affairs and to decide upon such matters. We fought the proposal down on the grounds that the interim administration must not change the nature of life on the islands. We finally agreed that we would pursue further negotiations on a somewhat woolly text. There were, however, some conditions which had to be made absolutely clear — the withdrawal zones, the fact that the one Argentine representative per council must be local, and that Argentinians on the islands must have the same qualifying period for voting rights as the Falklanders.
This was not, however, quite the end of Easter Monday. Just before 10 o’clock that night Al Haig telephoned me to say that Sr. Costa Mendez had rung him to say that he saw no reason for the Secretary of State to go to Buenos Aires again unless any agreement about the Falkland Islands provided for the Governor to be appointed by the Argentine Government and for the Argentine flag to continue to be flown there. And if that was not possible, the Argentinians must have assurances that at the end of negotiations with Britain there would be a recognition of Argentine sovereignty over the Falkland Islands. Al Haig was shattered. I had mixed feelings about this news, but I was certainly not going to buckle under that sort of pressure. I told Mr Haig on the telephone:
If those are the conditions, you cannot return [direct to Buenos Aires]; but it has to be known publicly from your viewpoint that they’ve set those conditions and that was why you said ‘we cannot have those, we cannot therefore return.’ But it must be known from your viewpoint. Publicly.
Al Haig agreed; he was obviously very depressed.
Having decided not to go on to Buenos Aires, somewhat to our surprise the following morning the Americans sought another meeting with us. So our two teams met first thing. By this stage it was becoming obvious that the proposals the Americans had presented to us the previous day had no measure of Argentine approval. In fact, the status of all these proposals was doubtful. The more closely I questioned Al Haig on this point, the more uncertain it became. Since the proposals had not been agreed with the Argentinians, even if we accepted them, they might therefore not form the basis of a settlement.
This fact was made painfully clear at the meeting that morning when Mr Haig handed us a document embodying five points which he described as essential to the Argentine position. As he himself said, the practical effect of the Argentine tactics was to buy time. I always thought that this was their main purpose in negotiating.
I was becoming impatient with all this. I said that it was essentially an issue of dictatorship versus democracy. Galtieri wanted to be able to claim victory by force of arms. The question now was whether he could be diverted from his course by economic sanctions or, as I had suspected all along, only by military force. Mr Haig replied that he had made it abundantly clear to Argentina that if conflict developed the United States would side with Britain. But did we wish to bring the negotiations to an end today? He could say publicly that he was suspending his own efforts, making it clear that this was due to Argentine intransigence. But if he did so other less helpful people might try to intervene. I was keenly aware of that and I also felt that public opinion here required us not to give up on negotiations yet.
Later that day events took another bizarre turn. Al Haig told Francis Pym of the contents of a further discussion he had had on the telephone with Sr. Costa Mendez. Apparently, the Argentinians had now dropped their five demands and moved a considerable way from their previous position. Mr Haig thought there was a chance of a settlement on the lines we had been discussing, if we would agree to language about decolonization, subject to the wishes of the islanders, with perhaps one or two small changes in addition to make the proposals more palatable still. It was to turn out that this talk of decolonization held its own particular dangers, though we agreed to look at a draft. He also urged us not to be too rigid on the question of sovereignty. He had decided to return to Washington and would decide his next step there.
It was clear from all this that Mr Haig was very anxious to keep the negotiations going. But had there been a genuine change of heart on the part of the Argentinians, or was it just wishful thinking on his part?
Wednesday 14 April was the day scheduled for a further Commons debate on the Falklands. It was an opportunity for me to spell out our objectives in the negotiations and to demonstrate to the outside world the united support of the House of Commons. I told the House:
In any negotiations over the coming days we shall be guided by the following principles. We shall continue to insist on Argentine withdrawal from the Falkland Islands and dependencies. We shall remain ready to exercise our right to resort to force in self-defence under Article 51 of the United Nations Charter until the occupying forces leave the islands. Our naval task force sails on towards its destination. We remain fully confident of its ability to take whatever measures may be necessary. Meanwhile, its very existence and its progress towards the Falkland Islands reinforce the efforts we are making for a diplomatic solution.
That solution must safeguard the principle that the wishes of the islanders shall remain paramount. There is no reason to believe that they would prefer any alternative to the resumption of the administration which they enjoyed before Argentina committed aggression. It may be that their recent experiences will have caused their views on the future to change, but until they have had the chance freely to express their views, the British Government will not assume that the islanders’ wishes are different from what they were before.
There were serious concerns underlying my reference to the possibility of the islanders changing their views on the future government of the Falklands: we worried that morale might collapse and that large numbers might leave. We were able to find out a certain amount about daily life under the occupation from messages which reached London, but the picture was far from complete.
While the debate was still in progress, Al Haig was on the telephone. The Argentinians were complaining that the United States was not being even-handed between Argentina and Britain and in particular that it was supplying military aid to Britain. He wanted
to make a statement which would allow him to return to Buenos Aires to continue the negotiations, ending with these three sentences:
Since the outset of the crisis the United States has not acceded to requests that would go beyond the scope of customary patterns of co-operation. That would continue to be its stand while peace efforts were under way. Britain’s use of US facilities on Ascension Island had been restricted accordingly.
While the debate continued, I discussed it with Francis Pym and, half an hour later, rang Al Haig back in Washington.
I was very unhappy about what he wanted to say and I told him so. Of course, a good deal was being done to help us. This was occurring within those ‘customary patterns of co-operation’ which applied between allies like the United States and Britain. But to link this with the use of Ascension Island was wrong and misleading. Moreover, to make such a statement would have a very adverse reaction on UK opinion.
I went on to point out that Ascension Island was our island, indeed the Queen’s island. The Americans used it as a base — but, as the Secretary of State well knew, this was under an agreement which made it clear that sovereignty remained with us. I am glad to say that Mr Haig agreed to remove all mention of Ascension Island from his statement.
The following day Al Haig flew from Washington to Buenos Aires for further talks. Back in London, however, it was the military realities which were most on my mind. The War Cabinet met that morning not in No. 10 but in the Ministry of Defence. We had important decisions to make. More troops were needed and had to be sent to join the task force. We had to look at the new draft we had agreed the previous day to consider. (Nothing came of it in the end.) We also had to prepare a message to the United States stressing the need for them to help enforce the agreement during that period and to ensure that when it ended the Argentinians did not attempt another invasion. I am afraid that we never got very far: the Americans were not keen to accept the role of guarantor.
However, our main business at the MoD was a thorough briefing on the military realities. It was important that we all knew precisely what forces were ranged against us, their capability, the effects of the Antarctic winter and, of course, the options available. Anyone who had harboured the idea that the task force could blockade the Falklands and mount raids in the case of the negotiations being unsuccessful was soon disabused. Quite apart from the likely losses of aircraft — the two aircraft carriers had only 20 Harriers between them — the difficulties of maintaining men and equipment in those stormy seas were huge. It was clear that we had a period of some two to three weeks in May during which we might land without terrible casualties. And then there were decisions to be made about how much more equipment, aircraft and troops to send, how to deal with the resulting prisoners of war, what to do about South Georgia and when. There was to be no respite at all. And these decisions must be made quickly. I looked from the Chiefs of Staff to my colleagues. It was a lot for them to take in. With the exception of John Nott, who of course was already briefed on the difficulties, they seemed somewhat taken aback. By this stage the press had learnt that we were at the MoD and I asked that everyone look confident as we left.
Our main task on Friday 16 April was to consider and approve the rules of engagement which would apply for transit from Ascension Island, for the 200-mile zone around South Georgia and for the purposes of South Georgia’s repossession. The rules of engagement are the means by which the politicians authorize the framework within which the military can be left to make the operational decisions. They have to satisfy the objectives for which a particular military operation is undertaken. They must also give the man on the spot reasonable freedom to react as is required and to make his decisions knowing that they will be supported by the politicians. So the rules have to be clear and to cover all possible eventualities. It was after very careful questioning of the Chiefs of Staff and the Attorney-General and after long discussion that they were approved. Many other rules of engagement would follow as each new phase of the operation had to be considered. This was the first time any of us had had to make such decisions.
I had received the day before a message from President Reagan who had been rung by Galtieri, who apparently said that he was anxious to avoid a conflict. There was no difficulty in replying to that. I told the President:
I note that General Galtieri has reaffirmed to you his desire to avoid conflict. But it seems to me — and I must state this frankly to you as a friend and ally — that he fails to draw the obvious conclusion. It was not Britain who broke the peace but Argentina. The mandatory Resolution of the Security Council, to which you and we have subscribed, requires Argentina to withdraw its troops from the Falkland Islands. That is the essential first step which must be taken to avoid conflict. When it has been taken, discussions about the future of the islands can profitably take place. Any suggestion that conflict can be avoided by a device that leaves the aggressor in occupation is surely gravely misplaced. The implications for other potential areas of tension and for small countries everywhere would be of extreme seriousness. The fundamental principles for which the free world stands would be shattered.
On Friday 16 April our two vital aircraft carriers HMS Hermes and HMS Invincible reached Ascension Island.
After a week of labyrinthine negotiations, I spent the weekend at Chequers. I found time to have a private lunch with friends and an artist who was going to paint a view of the house and its surroundings. However, I had to return to No. 10 briefly on Saturday evening to receive a telephone call from President Reagan — there is a direct line from Chequers to the White House, but there were technical problems that day. I was glad to have the chance to go over the issues with the President. I was gladder still that he agreed that it would not be reasonable to ask us to move further towards the Argentine position. Al Haig had found the Argentinians even more impossible than on his first visit. The White House had instructed him to tell the Junta that if they persisted in their intransigence this would lead to a breakdown of talks and the US Administration would make clear who was to blame.
After church on Sunday morning John Nott came to lunch and we discussed the military and diplomatic situation.
Far away in the Atlantic HMS Hermes, Invincible, Glamorgan, Broadsword, Yarmouth, Alacrity and the Royal Fleet Auxiliaries Olmeda and Resource left Ascension Island for the south.
That day I also telephoned Tony Parsons at home in New York to discuss what, if anything, we should do at the United Nations. We were in the happy position of having almost perfect backing for our position, in the form of UNSCR 502. But the problem was that as the Haig initiative was manifestly stalling and as military conflict loomed there was a risk that somebody else would take an initiative and that we would be placed in a difficult and defensive position in the Security Council. We could attempt to forestall that by tabling a resolution ourselves. But then it would be amended in ways which were simply not acceptable to us. Tony Parsons and I agreed that the best we could do for the moment was to hold our ground and seek to resist the pressure, which would undoubtedly mount.
WEEK FOUR
It was on Monday that I first read the details of the proposals discussed by Al Haig and the Argentinians in Buenos Aires. In conveying them to us, the Secretary of State said that his own disappointment with this text prevented him from attempting to influence us in any way. Indeed, the proposals were quite unacceptable. The closer one looked the clearer it was that Argentina was still trying to keep what it had taken by force. The Argentinians wanted to give themselves the military advantage and have our forces redeployed far from the islands. They were intent on subverting the traditional local administration by insisting that two representatives of the Argentine Government should serve on each of the Island Councils. They wanted to flood the islands with their own people to change the nature of the population. Finally, they were not prepared to allow the islanders to choose if they wished to return to the British Administration they had enjoyed before the invasion. This latter p
oint was shrouded in obscure language but the intention was very clear. The wording of their proposal was:
December 31st 1982 will conclude the interim period during which the signatories shall conclude negotiations on modalities for the removal of the islands from the list of non-self-governing territories under Chapter XI of the United Nations Charter and on mutually agreed conditions for their definitive status, including due regard for the rights of the inhabitants and for the principle of territorial integrity applicable to this dispute…
The innocuous sounding reference to removing the islands from the list under Chapter XI ruled out a return to the status quo ante the invasion and so effectively denied the islanders the right to choose freely the form of government under which they were to live. A great many words to shroud the simple fact that the use of force would have succeeded, dictatorship would have prevailed and the wishes of the islanders would have been overridden. These proposals were so poor that we told Al Haig that we saw no need for him to come to London from Buenos Aires and promised to let him have detailed comments on the text when he returned to Washington.
On the same day I received a telegram from Buenos Aires which confirmed that there was no apparent let-up in the Junta’s determination to secure sovereignty over the islands. Every five minutes or so Argentine Radio would play the ‘Malvinas song’ which ran, ‘I am your fatherland and may need you to die for me.’ Soon that sentiment would be put to the test: it was on this day that the War Cabinet authorized the operation to repossess South Georgia — although the recovery was somewhat delayed because our ships arrived in a Force 11 gale which lasted for several days.
The Downing Street Years, 1979-1990 Page 26
