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William M. LeoGrande
& Peter Kornbluh
the university of north carolina press chapel hill
This book was published with the assistance of a grant from
American University and the assistance of the William Rand Kenan Jr.
Fund of the University of North Carolina Press.
18 17 16 15 14 5 4 3 2 1
To the memory of friends and colleagues Robert A. Pastor,
Saul Landau, Viron P. “Pete” Vaky, Barry Sklar, William D. Rogers, and
Patricia Cepeda, who worked conscientiously for reconciliation between
Cuba and the United States but, sadly, did not live to see it
This page intentionally left blank
contents
acknowledgments xi
abbreviations xiii
notes 419
bibliography 485
index 501
This page intentionally left blank
illustrations
xi
National Security Archive, Marian Schlotterbeck, Michael Lemon, Andrew
Kragie, Erin Maskell, Carly Ackerman, and Tim Casey provided extraordi-
nary assistance. A special thanks to Joshua Frens-String for his contribution.
As an institution dedicated to obtaining the declassification of documents
on Cuba policy, the National Security Archive deserves a special thanks. Wil-
liam Burr offered invaluable Kissinger memoranda and telephone conversa-
tion transcripts. Svetlana Savranskaya shared her revealing research from
the Russian archives. Longtime archive friend and associate Jim Hershberg
shared his extraordinary work on Brazil. Sue Bechtel was consistently and
cheerfully helpful. Tom Blanton, as always, provided his substantive support,
creative ideas, and infectious enthusiasm.
The Arca Foundation hosted a conference at its Musgrove meeting center
that enabled us to bring together more than a dozen former U.S. policy mak-
ers and participants in U.S.-Cuba diplomatic contacts to share their experi-
ences and draw lessons from them; we are grateful for the support of Anna
Leffer-Kuhn. American University provided research support to help finance
our investigations. Mario Bronfman of the Ford Foundation, Andrea Pan-
aritis and the late Robert Vitarelli of the Christopher Reynolds Foundation,
and Dick and Sally Roberts of the Coyote Foundation provided generous
support to the National Security Archive’s Cuba Documentation Project that
sustained this historical inquiry from start to finish.
Two anonymous readers for the University of North Carolina Press pro-
vided close and thorough reviews. Their detailed comments demonstrated
an impressive knowledge of the history of U.S.-Cuban relations, and the final
result is better for having had their input. We also want to thank our editors,
Elaine Maisner, Ron Maner, and Brian MacDonald for their professionalism,
understanding, and advice. With infinite patience, Elaine helped us shape
this project from the outset and deftly guided us through the challenges,
choices, and decisions that inevitably confront coauthors.
In addition we benefited from the guidance and support of family and
friends. Peter Kornbluh gratefully thanks Joyce Kornbluh for her copyedit-
ing and proofreading talents, Gabriel Kornbluh for his technical skills, David
Corn for his steady encouragement, and Gabriela Vega for her consistent
interest, support, and sage advice. William M. LeoGrande thanks Marty
Langelan for her encouragement, understanding, and unfailingly good edi-
torial judgment.
Finally, we are especially grateful to Jimmy Carter and Fidel Castro for
taking time to talk with us about a unique history that they helped to create.
xii acknowledgments
abbreviations
xiii
MemCon Memorandum of Conversation
MINFAR Ministerio de las Fuerzas Armadas Revolucionarias de Cuba
(Ministry of the Revolutionary Armed Forces)
MININT Ministerio del Interior de Cuba (Ministry of the Interior)
MINREX Ministerio de Relaciones Exteriores de Cuba (Ministry of
Foreign Relations)
MPLA Movimento Popular de Libertação de Angola (Popular
Movement for the Liberation of Angola)
MRBM medium range ballistic missile
NCPAC National Conservative Political Action Committee
NGO nongovernmental organization
NID National Intelligence Daily
NIE National Intelligence Estimate
NPP national policy paper
NSC National Security Council
OAS Organization of American States
OCB Operations Coordinating Board (Eisenhower administration)
OFAC Office of Foreign Assets Control, U.S. Department of the
Treasury
ONDCP Office of National Drug Control Policy
OSS Office of Strategic Services
PRC Policy Review Committee (Carter administration)
SALT Strategic Arms Limitation Treaty
SWAPO Southwest African People’s Organization
UN United Nations
UNDCP United Nations International Drug Control Program
UNITA União Nacional para a Independência Total de Angola
(National Union for Total Independence of Angola)
USAID U.S. Agency for International Development
USG United States Government
USINT U.S. Interests Section
USSR Union of Soviet Socialist Republics
xiv abbreviations
back channel to cuba
This page intentionally left blank
introduction
rebuilding bridges
Our relations are like a bridge in war-time. I’m not going to talk about who blew
it up—I think it was you who blew it up. The war has ended and now we are
reconstructing the bridge, brick by brick, 90 miles from Key West to Varadero
beach. It is not a bridge that can be reconstructed easily, as fast as it was de-
stroyed. It takes a long time. If both parties reconstruct their part of the bridge,
we can shake hands without winners or losers.
—Raúl Castro to Senators George McGovern and James Abourezk, April 8, 1977
In early April of 1963, during talks in Havana over the release of Americans
being held in Cuban jails as spies, Fidel Castro first broached his interest in
improving relations with the United States. “If any relations were to com-
mence between the U.S. and Cuba,” Castro asked U.S. negotiator James Don-
ovan, “how would it come about and what would be involved?”1
Sent to Cuba in the fall of 1962 by President John F. Kennedy and his
brother Robert to undertake the first real negotiations with Cuba’s revolu-
tionary regime, Donovan had secured the freedom of more than one thou-
sand members of the CIA-led exile brigade that Castro’s forces had defeated
at the Bay of Pigs. In addition to the prisoners, Donovan also secured Cas-
tro’s confidence. Through trips in January, March, and April 1963, he built
on that confidence to negotiate the freedom of several dozen U.S. citizens
detained after the revolution. In the respectful nature of their talks, Castro
found the first trusted U.S. representative with whom he could seriously dis-
cuss how Havana and Washington might move toward restoring civility and
normalcy in the dark wake of the Bay of Pigs and the Cuban missile crisis. “In
view of the past history on both sides here, the problem of how to inaugurate
any relations was a very difficult one,” Castro observed.
“So I said, ‘now do you know how porcupines make love?’” Donovan re-
membered responding. “And he said no. And I said well, the answer is ‘very
carefully,’ and that is how you and the U.S. would have to get into this.”2
As Donovan pursued his shuttle diplomacy during the spring of 1963,
some Kennedy administration officials sought to use his special relationship
1
with Castro to begin a dialogue toward ending hostilities with Cuba. Within
the CIA, however, others saw a different opportunity—an opportunity to use
the negotiations, and the negotiator, to assassinate Fidel Castro. Knowing
that Donovan planned to bring a scuba diving suit as a confidence-building
gift for the Cuban leader, members of the covert “executive action” unit de-
veloped a plot to contaminate the snorkel with tubercle bacillus, and poison
the wetsuit with a fungus. “They tried to use him as the instrument . . .
the lawyer who was negotiating the liberation of the Playa Girón prisoners!”
Castro exclaimed years later.3 Only the intervention of Donovan’s CIA han-
dlers, Milan Miskovsky and Frank DeRosa, prevented him from becoming an
unwitting, would-be assassin.4
The CIA’s infamous assassination plots—exploding conch shells, poison
pens, poison pills, sniper rifles, toxic cigars—are the stuff of legend in the his-
tory of U.S. policy toward the Cuban revolution. Washington’s efforts to roll
back the revolution, through exile paramilitary attacks, covert action, overt
economic embargo, and contemporary “democracy promotion” programs,
have dominated and defined more than a half century of U.S.-Cuban rela-
tions. What Henry Kissinger characterized as the “perpetual antagonism”
between Washington and Havana remains among the most entrenched and
enduring conflicts in the history of U.S. foreign policy.
2 introduction
negotiating a state of peaceful coexistence with Castro. During Gerald Ford’s
presidency, Henry Kissinger directed his aides to “deal straight with Castro”
and negotiate improved relations like “a big guy, not like a shyster.” Jimmy
Carter actually signed a presidential decision directive to “achieve normal-
ization of our relations with Cuba” through “direct and confidential talks.”5
Given the domestic political sensitivity surrounding any hint of better re-
lations with Havana, these talks, and many other contacts with Cuba, have
often been conducted through secret, back-channel diplomacy. To maintain
plausible deniability, U.S. presidents have turned to third countries, among
them Mexico, Spain, Britain, and Brazil, as hosts and facilitators. To limit
the political risk of direct contact, Washington and Havana have developed
creative clandestine methods of communication—deploying famous literary
figures, journalists, politicians, businessmen, and even a former president of
the United States as interlocutors. When face-to-face talks have been neces-
sary, Cuban and U.S. officials have met furtively, in foreign cities such as Paris,
Cuernavaca, and Toronto, or in private homes, crowded cafeterias, promi-
nent hotels, and even on the steps of the Lincoln Memorial in Washington,
D.C. On several occasions, White House and State Department officials have
secretly traveled to Havana to negotiate face-to-face with Fidel Castro.
Not surprisingly, this rich history of U.S. back-channel diplomacy with
Cuba has been shrouded in secrecy, buried in thousands of classified files
that record the internal debates, meetings, agendas, negotiations, argu-
ments, and agreements that have transpired over more than half a century.
In the absence of an accessible historical record, scholarship and analysis on
U.S.-Cuban relations has largely focused on the more prominent and visible
history of antagonism, skewing the historical debate over whether better ties
were possible—or even desirable. The dearth of evidence on the many efforts
to find common ground has empowered the “anti-dialogueros,” as one U.S.
official called them, to cast serious diplomacy with Cuba as an oxymoron
at best, a heresy at worst. Long after the end of the Cold War, talking with
Cuba remained a delicate and controversial political proposition—even as
the benefits have become increasingly obvious to both countries.
introduction 3
Other documents randomly have
different content
place remaining 66 (68-70) sts on holder for right front.
Continue as follows on right sleeve.
Body: Beg at front edge of left front, from right side, take up 66 (68-
70) sts of left front; 89 (93-105) sts of back, slip last 66 (68-70)
sts of right front on left-hand side of circular needle. Join yarn,
finish right front working as before on front border facing and
cable twist.
Neck ribbing: Working from right side, pick up and k 15 sts on 15 sts
of facing and border; 18 (18-19) along shaped edge of neck to
end of 2nd cable stripe, 3 sts across top of sleeve; 24 (26-28)
across back of neck to end of 4th cable stripe; 3 sts across top
of sleeve; 18 (18-19) sts along shaped edge to end of 6th cable
stripe; 15 sts on sts of border and facing; 96 (98-102) sts.
Rows 1, 2 and 3: K 2, P 2.
Row 4: (Buttonhole row) K 2, bind off 2 sts, k until 13 sts from last
bind off, bind off 2, k 2. P 2 across row.
Finishing: Turn back front facings along turning st and hem to wrong
side. Sew open ends of front borders and facings tog, neatly at
neck and lower edge. Finish buttonholes in blanket st working
through both thicknesses.
NO. 1227
KNITTED LOOP HAT
1227
MATERIALS:
Mohlon (2 2-oz. skeins)
One pair No. 6 Knitting Needles
1½ yard 1½-inch wide ribbon
GAUGE:
7 sts = 2 ins.
SIZE:
To fit average head.
Loop Stitch: * Using a double strand of yarn, with wrong side facing
you, insert hook in next st., y.o. hook and draw through this st.,
y.o. and draw through 1 loop on hook, holding third finger of
left hand in back of work over yarn, insert hook in same st.,
yarn over hook and pull through st., y.o. hook and pull through
3 loops on hook, remove finger, repeat from * for loop st.
Crown: Chain 3, join with sl. st. to form ring. 6 sc in ring. 2nd round.
Work 2 loop sts. in each sc around (12 loop sts.) 3rd round: * 2
sc in first st, 1 sc in next st. * repeat between * around. (18 sc.)
4th round: Work * 2 loop sts in next st., 1 loop st. in each of
next 2 sts, repeat from * around (24 sts). 5th round: Work * 2
sc in next st., 1 sc in each of next 3 sts. repeat from * around
(30 sts.) Continue to work this way increasing 6 sts. every round
until there are 66 sts. in round. (Piece should measure about 7
inches in diameter.)
Brim: Round 1: Work loop st. to end of round, join with slip st. to
first st., chain 1, turn. Round 2: With right side facing you, 1 sc
in each st., join with slip st. to first st., chain 1, turn. Repeat last
2 rounds 2 times more. Continuing on right side work 6 rounds
of sc. Repeat rounds 1 and 2 for 3 times. Fasten off. Trim with
ribbon or cord around hat at the 6 rounds of sc.
10
NO. 1229
KNITTED COSSACK HAT
1229
MATERIALS:
1 (2-oz. skein) Knitting Worsted
1 (2-oz. skein) Mohlon
1 pair Knitting Needles size 10½
(or any size which will give the stitch gauge given below)
GAUGE:
11 sts = 4 inches
4 rows = 1 inch
With 1 strand knitting worsted, cast on 59 sts for facing.
Row 3—K.
1st round: * 1 s.c. in next st., yarn over crochet hook 2 times, insert
hook in next st., yarn over and pull through 2 loops 3 times in
succession (a long st. made), repeat from * around.
2nd round: Work * 1 long st. in first s.c., then 1 s.c. in next long st.
repeat from * around. Repeat these 2 rounds until piece
measures 6 inches above turning row.
1228
MATERIALS:
6 oz. Mohlon for sizes 4 & 6
8 oz. Mohlon for sizes 8-10-12
One pair Size 3 Knitting Needles
One pair Size 5 Knitting Needles (or—Any Size needles which
will give the stitch gauge given below:)
5 Buttons
Crochet Hook—Size 1
GAUGE: 6 sts = 1 inch
PATTERN STITCH:
Rows 1 and 4: Knit
Rows 2 and 3: Purl
Shape Armholes: At the beg. of each of the next 2 rows bind off, 4
(4-4-5-6) sts. Dec. 1 st. ea end of needle every other row 3 (3-
4-5-5) times. Work even on 58 (62-66-68-72) sts until armholes
measure 5 (5½-6-6½-7) inches.
Shape Neck: At front edge bind off 8 (8-8-8-8) sts. Dec 1 st at same
edge every other row 6 (6-6-6-6) times and AT THE SAME TIME
when armhole measures 5 (5½-6-6½-7) inches SHAPE
SHOULDER. At arm edge bind off 5 (6-7-7-8) sts. 2 (3-2-3-2)
times and 6 (0-6-0-7) sts once.
Right Front: Work to correspond to left front, reversing all shaping.
Right Front Band: With right side facing you, work 3 (3-3-3-3) rows
SC on right front edge. Buttonholes: On next row starting at
lower edge, work 2 SC, ch 2, sk 2 SC, 1 SC in next SC, make 4
more buttonholes evenly spaced—the last one to be made ½
inch below start of neck shaping work 3 (3-3-3-3) rows more in
SC. Fasten off.
12
NO. 1231
SOUFFLE JACKET
1231
MATERIALS:
8 oz. Mohlon
Knitting Needles Nos. 9 and 10½ (14 inch)
Four long stitch holders
SIZE: Fits any size from 10 to 20
JACKET: Yoke: Beg at neck edge, with No. 10½ needles, cast on
loosely 50 sts. Shape Raglan: Row 1 (wrong side): Work in
ribbing of k 1, p 1 on 5 sts (center band), P to last 5 sts, work in
ribbing of k 1, p 1 on last 5 sts (center band). Row 2 (right
side): Yarn in back, sl 1 as if to p, (K 1, p 1) twice, k 9 for left
front, yo (an inc), k 1 (seam st), mark this st and following
seam sts, yo, k 2 for sleeve, yo, k 1 (seam st), yo, k 14 for back,
yo, k 1 (seam st), yo, k 2 for sleeve, yo, k 1 (seam st), yo, k 9,
(p 1, k 1) twice, sl 1 right front—8 increases made.
RIGHT SLEEVE: Beg on wrong side, with No. 10½ needles, cast on 1
st at beg of next row for underarm, work in pat st across row,
cast on 1 st at end of row for underarm—34 sts. Continue in pat
st, dec 1 st each side every 6th row 3 times—28 sts. Work until
piece measures 8′′ from underarms, end on p row. Change to
No. 9 needles. Work in ribbing of k 1, p 1 for 2′′. Bind off in
ribbing.
LEFT SLEEVE: Sl sts from holder to No. 10½ needle. Work as for
right sleeve.
BODY: Sl sts from right front holder to No. 10½ needle. From right
side, join yarn at underarm, work in established pat to front
edge. Turn. NEXT ROW: (wrong side): Work sts of right front,
cast on 2 sts for underarm, work sts of back, cast on 2 sts for
underarm, work sts of left front—102 sts. Working center bands
as established and pat st between center bands, dec 1 st at
center of each underarm (for side seams) every 4′′ twice—98
sts. Work even until piece measures 1′′ from underarms, end on
wrong side and inc 1 st at center of last row—99 sts. Change to
No. 9 needles.
TIES: From right side, with No. 9 needles, pick up and k 8 sts on
side of right front waistband. Work in ribbing of k 1, p 1 for 2′′,
end on wrong side. Change to No. 10½ needles. Work in pat st
for 12 rows, end on p row. Bind off loosely in k. Make tie on
side of left front waistband in same way. Weave underarm and
sleeve seam.
13
NO. 1239
PONY-TAIL HAT IN CROCHET
1239
MATERIALS:
1 2-ounce skein Mohlon
1 Size F Aluminum Crochet Hook
No doubt this cute head covering will be a hit with the young crowd.
The yarn curls are fashioned to resemble a pony tail.
With 2 strands of Mohlon chain 15, turn.
Repeat the same as previous rows, inc 1 dc in each row, and inc the
chains to 52, 55, 55, then dec to balance first half making
chains 55, 55, 52, 50, 45, 40. Work 3 more rows to correspond
to first 3 rows.
Each end of cap may be left straight or join yarn and decrease sts to
form a point. Attach yarn to end of cap, chain 40. 2 sc in each
of first 20 sts, sc in remaining chain.
1252
MATERIALS:
1 2-oz. skein Mohlon
1 pair #11 Needles
1 pair #6 Needles
Repeat rows 1 & 2 until piece measures 24 inches long, ending with
row 2.
Thread end of yarn into tapestry needle. Weave loops of last row to
cast-on edge of first row.
If 2 colors are desired, cast on 15 sts of 1 color, tie on 2nd color and
cast on 15 sts.
Work same as above, being sure to twist yarn when changing color.
14
NO. 1223
KNITTED PILLBOX HAT
1223
MATERIAL REQUIRED:
1 2-oz. skein Mohlon
1 pr. No. 9 Knitting Needles
Row 6: Purl.
Row 7: Knit.
Row 8: Purl.
Row 13: K 2 together, leave 12 inches yarn, draw through 10 sts and
fasten securely. Sew up seam. Tack up hem.
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