I think the · ‘This state is in trouble’ letter is significant, as it had been sent on Dec. 16, 1969, a Z high season.

The cipher is short, five symbols only, next to five faded crosses.

I checked approx. 1,800 five letter words of the cipher’s structure, out of the 1,800 only about fifteen remained. Most of those words were without any useful context. One, however, was outstanding and additionally quite well matching to the sketch of faded crosses next to it.

The most likely solution, imo, thus is

FADED

One may argue alternatives, however this is a good match.

QT