Foreign Relations of the United States, 1964–1968, Volume XVIII, Arab-Israeli Dispute, 1964–1967

112. Memorandum of Conversation¹

Washington, December 4, 1964, 4 p.m.

SUBJECT

• Jordan Arms Problem

PARTICIPANTS

• State Department:
• M—Governor Harriman
• NEA—Phillips Talbot
• NE—Harrison M. Symmes
• G/PM—Howard Meyers
• M—Frederic Chapin
• NE—Andrew I. Killgore
• Defense Department:
• Peter Solbert, Deputy Assistant Secretary of Defense, ISA
• Charles Quinn, DOD, ISA
• White House:
• Robert Komer

Governor Harriman said he had read and understood various briefing papers prepared for him by the Department in connection with the meeting. He therefore proposed a discussion of the issues, asking Deputy Assistant Secretary of Defense Solbert to begin. Mr. Solbert stated that we had to do the minimum necessary to keep Jordan on our side. He thought this would involve selling American supersonic aircraft, mentioning the F–104C as a likely prospect. To Governor Harriman’s question on why DOD wanted to sell the F–5,² Mr. Solbert replied that, in his view, the F–5 would entail a lesser political reaction, plus the fact it is easier to maintain. To a series of questions from the Governor, Mr. Solbert replied that the Jordanians say they now want to buy three squadrons of supersonics at 20 planes to the squadron, that Jordan has approximately 24 jet-trained pilots and that beginning delivery dates of any American supersonic fighters to Jordan would be at least three years into the future.

Governor Harriman inquired if there was anything more to be said favoring the sale of American supersonic aircraft. Mr. Solbert stated we had also to consider a Jordanian request for a large amount of ground equipment for its Army. Governor Harriman asked a number of questions, drawing out replies from Mr. Solbert on the source of funds for Jordan’s military purchases, the relative importance of the ground and air buildup and types of tanks desired.

Governor Harriman asked what the chances would be of diverting the Jordanians to a West European supersonic aircraft. Mr. Talbot responded that it comes down to what kind of arms policy we want to pursue over the years in the Near East. In his opinion, Jordan’s acquisition of either MIG’s or American supersonic aircraft would trigger irresistible pressures from Israel for reciprocal or better treatment. Governor Harriman’s question therefore came down to the nub of the issue. A short discussion then ensued on how strong Israeli pressure would be if American supersonics of any kind were sold to Jordan.

Governor Harriman asked what attitude Jordan would have toward taking West European supersonics. Assistant Secretary Talbot replied he understood that King Hussein had expressed a desire for the French Mirage IIIC to President De Gaulle during the King’s recent visit to France. Mr. Talbot proposed we tell Hussein that if a West European aircraft were available he should obtain this type aircraft and that we could not, for political reasons, supply an American aircraft. If the King persisted that he must bend to UAC pressures to accept a MIG squadron, we should inform him that to do so would be at the cost of reduced American support to Jordan.

Mr. Komer expressed the view that we probably had not worked hard enough initially to persuade King Hussein against early acquisition of any supersonic aircraft and that we should go back and inform him we could not supply American, nor could we acquiesce in his acquisition of Soviet aircraft. We should also go to Cairo in a further effort indirectly to dissuade Jordan from acquiring supersonics. However, we would leave enough opening in our position with Hussein to be able to fall back to a European supersonic if this appeared absolutely necessary. Governor Harriman asked if the group could agree on a European airplane. Mr. Talbot said that this would be his recommendation. Mr. Komer replied we should make every effort to dissuade the King from any early supersonics at all but he recognized that we might fail. There was general agreement that pre-Summit and other pressures of last summer, which had required our buying time rather than confronting Hussein head-on, had now eased. We could and should now take a harder line.

To Governor Harriman’s question on the timing of our reply to King Hussein on supersonics, Mr. Talbot said he did not favor borrowing trouble by saying anything to the King at this point. We would like to leave the situation somewhat flexible and review what our reply should be as December 31, 1964 approached.

Mr. Komer proposed letting the White House handle any disappointed American airplane manufacturers who might protest a European aircraft sale to Jordan. This proposal was immediately accepted without debate. Mr. Komer thought we should make crystal clear to King Hussein our opposition to his acquisition of MIG’s. Governor Harriman agreed, stating we would probably have to pull out of Jordan if Hussein did so. Mr. Talbot agreed that any appearance of hesitation on the aircraft issue might well be fatal to our aims.

Mr. Talbot replied to Governor Harriman’s request for a summary of his recommendations by proposing (1) that an amended version of the Air Survey Report consistent with our political objectives be worked out for presentation to the Government of Jordan, (2) that when our position is ready we inform Hussein there are a whole range of priorities in Jordan’s drive for increased armaments, (3) that Jordan can well do without any supersonic aircraft, (4) that the acquisition of Soviet MIG’s would be a very critical matter from our point of view, and (5) (if Hussein were adamant) that acquisition of West European supersonics could be acquiesced in by us. The Governor said he was persuaded of the wisdom of Mr. Talbot’s recommendations.

Governor Harriman asked how we would deal with Hussein in carrying out these tactics. In the discussion that followed, the consensus was: (1) Our future discussions will be at the Hussein level; (2) We would have either the Ambassador or a special emissary pursue the discussions with Hussein; (3) We would discuss a full package, ground and air, with Hussein, rather than proceeding piecemeal; (4) The question of who would pursue the discussions with Hussein would be decided after the details of our ground and air positions had been worked out in Washington.

A further exchange took place involving Mr. Solbert, Governor Harriman, Mr. Meyers and Mr. Symmes concerning the F–5 aircraft. A discussion ensued of its characteristics and whether there would be any value in offering it to Jordan. Governor Harriman could not see the advantage to offering the F–5. Selling it to Jordan would have almost if not all of the adverse effects on our arms policy that we saw in the F–104. However, if it were desired to hold it deep in the background as a possibility ultimately to sell to Jordan, should everything else fail, he would not object. Governor Harriman said he hoped as a result of the foregoing words that the U.S. Air Force and the Pentagon would not try to sell the F–5 to the Jordanians while we were trying to induce the Jordanians either to forego supersonics or settle on a West European squadron.

A short discussion followed on the desirability of better controlling American aircraft manufacturers in various parts of the world. Mr. Meyers said quite effective controls had been established over the activities of American aircraft salesmen in South America and he deemed it desirable that further efforts be made to assert this kind of control in the Middle East area. Others present emphatically agreed.

1. Source: National Archives and Records Administration, RG 59, Central Files 1964–66, DEF 12 JORDAN. Secret. Drafted by Killgore on December 15 and approved in M on December 22.
2. A December 5 memorandum from the Joint Chiefs of Staff to McNamara (JCSM–1019–64) stated that the F–5 aircraft was preferred for sale to Jordan but recommended selling F–104H aircraft if the F–5 was unacceptable to the Jordanians. (Washington National Records Center, RG 330, OASD/ISA Files: FRC 68 A 306, 452.1 Jordan)