Foreign Relations of the United States, 1961–1963, Volume XXI, Africa

220. Memorandum From the Joint Chiefs of Staff to Secretary of Defense McNamara⁰

Washington, May 31, 1963.

JCSM-416-63

SUBJECT

• Proposed Regular Scheduled Military Air Transport Service (MATS) Flights Throughout Africa

1. The Joint Chiefs of Staff have held for some time that the United States should develop and maintain the capability of conducting small or large-scale military air transport operations in support of US national security policy objectives in Africa. This will require arrangements for operating rights, servicing and supporting facilities, and aircrew familiarity in the area on a continuing basis.

2. The Joint Chiefs of Staff consider that the establishment of regularly scheduled MATS operations throughout Africa is the most effective method of achieving this capability. Furthermore, they believe that such action is desirable at this time for the following reasons:

a. A series of contingency plans involving 39 African nations has been developed to support US national security objectives, e.g., MATSOPLAN 133/62 supports CINCLANTOPLAN 330/61 and JTF-Four OPLAN 330/61. The establishment of MATS routes will enhance the capability to execute these plans, should the need arise.

b. The very substantial assistance (made possible by US military airlift resources) which the United States has recently rendered African nations, as well as other underdeveloped nations throughout the world, has created a favorable image of the United States, demonstrating the advantages accruing to cooperating nations through the maintenance of a MATS operation in their areas.

c. The Soviet Bloc civil air offensive in Africa, designed primarily to enhance Bloc capabilities for subversion, intelligence collection, and airlift in support of such operations, is a matter of increasing concern to the Joint Chiefs of Staff.

d. US Government activities in Africa are expanding at a rapid rate. In many instances, commercial air service provided by US flag carriers to or near these locations is inadequate or nonexistent. At the same time, sufficient airlift requirements have been generated by the presence of State Department, MAAG, AID, USIA,CIA, and NASA personnel to justify the establishment of a MATS channel traffic route, the operational costs of which might be absorbed by selective adjustments to the Industrial Fund point-to-point tariff rates. It will not be necessary under this funding concept to designate a sponsoring agency.

3. The extension of MATS routes into Africa could, under some circumstances, encounter political problems. The Joint Chiefs of Staff feel, however, that these problems can be overcome by pointing out to African governments the advantages to be gained from the initiation of such air service. Extension of MATS routes into Africa would facilitate the support of US technical, economic, and military assistance programs in the countries concerned. Also, the establishment of MATS service would enable the United States to respond to the contingency needs of African nations and the United Nations on a timely and orderly basis.

4. The most feasible concept for the establishment of scheduled MATS flights throughout Africa at this time appears to be to provide regular air service to various US Embassies on that continent. On this basis, the Joint Chiefs of Staff have developed an illustrative plan, attached hereto as the Appendix.¹

5. The initial step in implementing this plan should be the conduct of a thorough route and site survey to identify and resolve the problems inherent in any operation of this type, including determination of the traffic loads and requirements of the user agencies. It is anticipated such a survey can be completed within four months after authorization. In the light of the findings, and to accommodate specific requirements, as may be determined in consultation with the Department of State, the plan can be modified, changed in scope, or made flexible as to itinerary. Definitive requirements for overflight/landing rights and rights for positioning support personnel and equipment will be based on the result of the survey and the needs of interested agencies.

6. Implementation of this plan will not result in the stationing of large numbers of additional US military personnel in Africa. Other than at the initial entry point, such as Wheelus AFB, Libya, or Torrejon, Spain, where US military presence already is established, and the mid-route support base, where a total of not more than ten MATS personnel will be required, the plan calls for the introduction of only two US military personnel per stop. These numbers may be adjusted as contractual arrangements mature. The political disadvantages resulting from an increased US military presence in politically sensitive countries thus will be avoided.

7. Experience indicates that the annual costs of the operation envisaged would be around $1.75 million. Based on estimated airlift requirements, the anticipated traffic revenues are expected to offset initially about 65%, or $1.13 million of these costs. The Joint Chiefs of Staff suggest that any deficit which may accrue, now estimated at about $620 thousand, might be absorbed by selective adjustments to the Industrial Fund point-to-point tariff rates charged all DOD and other users of MATS airlift. They consider that such adjustments to the Industrial Fund tariff rates, as may be required to support these operations in the initial stages, are justified by the national security policy considerations involved. Neither an increase in total MATS aircraft nor in the total objective flying hour utilization program will result.

8. The Joint Chiefs of Staff recommend that you approve in principle the attached plan for conducting regularly scheduled MATS flights throughout Africa. They also request that you approve the conduct, in the near future, of a route survey which will provide the basis for a fuller examination by the Joint Chiefs of Staff of the feasibility of the proposed routes and their economic implications. The Joint Chiefs of Staff suggest that you raise this matter with the Secretary of State, in the context of the Department of State letter of 2 March 1961, in order to obtain his concurrence and cooperation.²

For the Joint Chiefs of Staff:

Maxwell D. Taylor³
Chairman
Joint Chiefs of Staff

0. Source: Washington National Records Center, RG 330, OSD Files: FRC 69 A 3131, Africa, 1963. Secret.
1. Not attached to the source text.
2. On June 8, the Joint Chiefs of Staffs proposal to establish regularly scheduled MATS flights throughout Africa was transmitted under cover of a letter from Deputy Assistant Secretary of Defense Bundy to Deputy Assistant Secretary of State for Politico-Military Affairs Kitchen. Bundy noted that the Department of State had refused a similar request in March 1961 on grounds that not enough advantages would accrue to the countries concerned to justify U.S. requests, but argued that in the ensuing period U.S. Government activities had expanded to a sufficient degree to overcome the previous political objections. He requested Department of State approval for the conduct of a route survey which would provide the basis for further examination of the feasibility and economic implications for MATS operations in Africa. (Ibid.)
3. Printed from a copy that indicates Taylor signed the original.