618. Memorandum From the Under Secretary of State for Economic Affairs (Mann) to the President’s Deputy Special Assistant for National Security Affairs (Komer)1
SUBJECT
- Cessna Aircraft for South Africa
The question is whether an export license should be granted for the export to South Africa of eight twin engine Cessna aircraft (Model 411) for 1.5 million dollars. An additional sale of $250,000 in spare parts may be requested later.
Senator Carlson and Senator Pearson point out that similar aircraft can readily be procured elsewhere by South Africa; that export licenses for the sale of 50 Cessna planes to South Africa have already been approved this year; that denial of the licenses may mean the loss by the manufacturer of future sales in South Africa ($39 million was the value of US aircraft exported to South Africa last year); and that refusal “will uselessly endanger” our gold position and “needlessly restrict an American manufacturer engaged in international commerce.”
[Page 1049]Ambassador Goldberg and the UN and African bureaus strongly urge that the license be denied. Ambassador Goldberg believes that statements of our officials made in the United Nations after clearance with the Department have already committed us to deny the license.
I have three recommendations:
-
First, the application for these particular eight aircraft be denied because:
- a)
- These particular aircraft are intended to be registered in the South African Air Force and flown by Air Force pilots.
- b)
-
They are, I am informed, each to be equipped with a special type of radar and used by the South African Air Force for surveillance to locate smugglers. In case of hostilities they could, and probably would, be used for air reconnaissance and possibly for other military purposes. The sale could therefore be said to violate the spirit, if not the letter, of the Security Council resolution of 7 August 1963 which
“3. Solemnly calls upon all States to cease forthwith the sale and shipment of arms, ammunition of all types and military vehicles to South Africa.”
- Second, for the time being, that sales of this type of Cessna aircraft to South Africa be continued when it is determined that the end used is civilian rather than the military and when it is not equipped with special radar facilities. Radar facilities of the type normally used by aircraft for safety purposes could be provided.
- Third, that no public statements or commitments be made, for the time being, that could result in the discontinuance of our engagement in trade in peaceful goods in South Africa. We have said in the United Nations that, in practice, “the embargo of the United States on all arms and military equipment to South Africa has extended to materials which are likely to be used for or are easily adaptable to military purposes.” If this statement were strictly interpreted, virtually all US trade with South Africa would be prohibited, since it is hard to imagine what exports would not be consumed or used in the event of war by the South African government or population. Clearly this would not be in our interest.
On February 25, Komer sent Mann a memorandum that reads: “Tom, I fully agree with the three recommendations in your memorandum of February 24, 1966, on the sale of Cessna aircraft to South Africa. As set out in your memo, your interpretation of our arms embargo accurately reflects the intent of NSAM 295 from which our policy guidelines on this subject are derived.” (Ibid.)2