Foreign Relations of the United States, 1969–1976, Volume XXIV, Middle East Region and Arabian Peninsula, 1969–1972; Jordan, September 1970

211. Telegram From the Department of State to Certain Diplomatic Posts¹

Washington, September 9, 1970, 0211Z.

147024. Subj: Secretary’s Appeal re Hijacked Passengers.

Summary: On September 8 Secretary called in all Arab Chiefs-of-Mission in Washington in order to make to them humanitarian appeal concerning safety of passengers now being held by the Popular Front for Liberation of Palestine (PFLP) in Jordan.² Secretary emphasized that USG does not hold any Arab government responsible for this inhumane act but expressed his hope that these governments might be able in some way to convey to perpetrators this act desire of civilized world that they release these innocent air passengers unharmed and at once. Secretary also stressed that USG does not in any way relate his humanitarian appeal to implementation of US peace initiative. Speaking on behalf of Arab Ambassadors, Kuwaiti Ambassador Ghoussein assured Secretary that Arab governments share US concern and they would do all in their power to convey Secretary’s humanitarian appeal. He noted, however, that PFLP is not beholden to any Arab government or to more moderate Palestinians. Jordanian Ambassador Sharaf said his government doing everything in its power to obtain early and safe release of passengers. End summary.

1. On September 8 Secretary called in all Arab Chiefs-of-Mission in order make appeal re passengers on planes hijacked to Jordan. Present included representatives from Kuwait, Lebanon, Saudi Arabia, Jordan, UAR, Libya, Morocco, Tunisia, Sudan, and Algeria.

2. Secretary emphasized purpose of meeting was to make appeal solely on humanitarian grounds re safety of passengers now being held by PFLP in Jordan. Secretary acknowledged that Arab governments could do little but wished to convey to respective governments his personal hope that all might be done to assure safety and immediate release of passengers. Specifically, Secretary requested that if Arab governments able they should transmit his humanitarian appeal to perpetrators of hijackings and emphasize to them that such actions can in no way benefit their cause.

3. Secretary pointed out if these passengers killed or harmed in any way, public outrage around the world would be great. While we have had similar instances of this kind of action in past, passengers have never been held for blackmail purposes, as in this case. Such threats to innocent and uninvolved air passengers threatens air traffic for entire civilized world. It could well set in train series of retaliations which could escalate problem and result in air traffic chaos around world. In addition, it would have immediately negative effect on Arab countries for reasons already being commented on by Arab press itself which has pointed out in last few days that world public opinion does not distinguish between Arabs and Arab governments and those outside of governments belonging to these radical groups.

4. To emphasize international nature of continued detention these passengers, Secretary indicated that among 123 passengers now being detained in Amman hotels and 150 still being held on the planes themselves are some 72 Americans as well as Germans, Swiss, Pakistanis, Greeks, Turks, Yugoslavs, Austrians, Ethiopians and others. While PFLP has made no demands on US, we nonetheless involved in terms of safety of our citizens and aircraft. Secretary reiterated his hope that Arab Ambassadors convey his humanitarian appeal to their governments and, if possible, through them to PFLP to release these people unharmed and promptly.

5. Dean of Arab Diplomatic Corps, Kuwaiti Ambassador Ghoussein, replied on behalf of Arab Ambassadors and expressed his appreciation for Secretary’s invitation to discuss this problem. Ghoussein noted that Secretary rightly understands that this radical group not controlled by any Arab Government or even by moderate fedayeen organizations. PFLP radical group acting on basis its own ideology and often against wishes of other Arab governments and peoples. Ghoussein assured Secretary that Arab Ambassadors would convey his appeal to their respective governments and added his personal hope that Arab efforts together with those of US might be successful. He expressed wish he could guarantee results but hoped Secretary would appreciate position of Arab Governments. In meantime, Ghoussein expressed hope that all involved in area would continue work together that peace might soon be achieved there because if something can be done in that regard other problems would also be solved. Ghoussein added that he would certainly not advance one word of defense on behalf of act of PFLP but he did wish to make some defense of ultimate purpose of the act which was to bring to world attention plight of Palestinians who after 20 years have reached point of desperation. In this regard Ghoussein quoted Arab proverb, “Fool can throw stone in well but it takes 100 wise men to get it out.” In conclusion Ghoussein hoped that USG would continue its efforts to implement its peace initiative.

6. Secretary emphasized he did not wish in any way to relate peace initiative to his humanitarian appeal regarding safety of detained passengers. Secretary noted this appeal not relevant to initiative except in terms of public opinion. In any case, USG in no way relates them and he wished it clearly understood by Arab Ambassadors that nothing he had said here concerning his humanitarian appeal would in any way diminish USG efforts on peace initiative. Secretary added that in addition he did not wish imply by this humanitarian appeal that USG held respective governments responsible for acts by group such as PFLP, which US also fully appreciates is not even under control of more moderate fedayeen. In this connection, Secretary noted that we have also publicly made clear need to take into account wishes of Palestinians in any final Near East peace settlement. With regard to peace initiative, USG will continue to do everything it can to be fair and balanced as it pursues implementation peace initiative. Secretary reiterated that this kind of lawless, irrational act can only render grave disservice to Palestinian cause in long run. Moreover, such acts would: (1) seriously jeopardize future of air travel in civilized world, resulting in unwillingness of people to fly and (2) make it impossible to capture and hold perpetrators these crimes if these groups continue hijack aircraft in order obtain release those involved in earlier attempts.

7. Jordanian Ambassador Sharaf stated his Government feels special responsibility given fact hijacked planes in Jordan. He noted Secretary had placed his appeal in proper humanitarian perspective and assured Secretary GOJ would do all in its power to obtain eventual release passengers. GOJ now trying achieve all this through understanding with parties involved which is based on reason as much as possible. GOJ would continue trying do its best settle this problem promptly.

8. Secretary expressed his appreciation for Sharaf’s response and again stated that he making his appeal solely on humanitarian grounds, noting that USG had recently made strong appeal to Israelis concerning detention Algerians. Continued detention of innocent men, women and children under adverse desert conditions might result in sickness and even death. For this reason Secretary wished make his humanitarian appeal because this problem for all civilized people everywhere.

9. Secretary asked Sharaf if Jordanian military people in contact with any fedayeen. Sharaf replied the Jordan Chief of Staff as well as other senior Jordanian officials have been on airstrip since arrival of planes. GOJ has organized airlift of necessary supplies for passengers and is in constant consultation with Palestinian Armed Struggle Command to obtain release these people. Sharaf concluded that there apparently have been differences of views during negotiations as well as some confusion. In any event he again assured Secretary GOJ would do all in its power obtain early release passengers.

10. Secretary assured Ambassadors that in any public statement the State Department would emphasize humanitarian nature his appeal and in no way indicate that USG holds any Arab Governments responsible for these hijackings.

Rogers

1. Source: National Archives, RG 59, Central Files 1970–73, AV 12 US. Limited Official Use. Drafted by Scotes on September 8, cleared by Seelye and Eliot, and approved by Sisco. It was sent to Amman, Beirut, USINT Cairo, Jidda, Kuwait, Addis Ababa, USINT Algiers, Tripoli, Rabat, Tunis, USINT Khartoum, London, Paris, Rome, Geneva, Bern, Athens, Rawalpindi, Ankara, Bonn, New Delhi, Tel Aviv, Vienna, Belgrade, and Moscow.
2. Another record of the meeting is in a memorandum from Rogers to Nixon, September 8. (Ibid., President’s Evening Reading: Lot 74 D 164) For text, see Foreign Relations, 1969–1976, volume E–1, Documents on Global Issues, 1969–1972, Document 48.