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

328. Memorandum From the President’s Deputy Assistant for National Security Affairs (Haig) to President Nixon¹

Washington, September 26, 1970, 9 a.m.

SUBJECT

• The Situation in Jordan

The situation appears to have stabilized this morning. The cease-fire is holding up in both Amman and in the north. There has still, however, been no authorative fedayeen agreement to King Hussein’s terms and the other Arab leaders, especially Nasser, are growing increasingly impatient to end the conflict. Hussein appears to be holding out for a settlement on his terms and could decide to move again against the remaining fedayeen strongholds in the Irbid area if the commandos do not soon capitulate. Meanwhile, efforts are underway to mount an international medical and food relief effort to cope with the critical situation that has developed, especially in Amman.

The Military Situation

The latest cease-fire seems to have taken hold, at least for the time being. The Jordanian forces appear to be in effective control of most of Amman with the possible exceptions of the area where our Embassy is located and at least one of the refugee camps on the edge of the city. The fighting has apparently all but ceased in the north also. A newspaper man who toured the key northern towns of Ramtha, Irbid and Jarash yesterday with the permission of the commandos reported that all was quiet in these locations, with the fedayeen still in control. The towns, however, were all ringed by Jordanian troops and armor.

Despite the cease-fire, Sudanese President Numayri, accompanied by PLO leader Yasir Arafat, went back to Cairo with the rest of the Arab mediation delegation and charged the Jordanian army with violations. This news apparently then prompted Nasser to fire off a harsh cable to King Hussein alleging that “all the promises made to us have been completely ignored” and claiming that “there is a plan to liquidate the Palestinian resistance.” Nasser further complained that the Arab mediating committee had been “unjustifiably subjected to evasiveness.” Hussein responded this morning by denying that his forces had not broken the cease-fire and asserting that they would observe it in the face of “unceasing and unbearable provocations.” He also said that a new cabinet will be announced shortly.

King Hussein is coming under fire from other Arab states as well. In addition to the usual verbal blasts emanating from Baghdad and Damascus, Libya has broken relations with Jordan.

The Hostages

There is no further word on the remaining hostages. As you know, the Jordanian army yesterday freed 16 of the 54 hostages held by the guerrillas—two Germans, 6 Swiss and eight British. (One more hostage turned up in the course of the day after the original group of 15 was found.) The whereabouts of the remaining 38 American and dual American-Israeli nationals is still unknown, although there are unconfirmed reports that they were moved out of Amman to the Irbid area when the fighting broke out. If the remaining hostages are being held in Irbid it may be some time before the army is able to free them and they could still be used as bargaining counters by the fedayeen.

The Relief Problem

The Embassy reports that the food situation in Amman is critical. Those who can are leaving the city for surrounding villages but most of the people are pinned down by curfews and continuing skirmishes. What food stocks people had are now exhausted and the stores for the most part have been looted and will require a considerable period to be replenished. The army’s food supply is also dangerously low.

Following up on the contingency plans developed in the WSAG,² State has set up a new task force to report to Under Secretary Irwin to oversee the disaster relief effort.³ This is an interagency group. Most of our diplomatic and military posts in the area and in Europe have been instructed to take immediate action to obtain foodstuffs to be sent by air freight to Amman, drawing from PL–480 stocks as necessary. Defense has also tentatively authorized the use of the C–130’s at Incirlik in Turkey for airlifting food into Amman, including C-rations. Plans with the International Red Cross to move U.S. army field hospitals from Europe into Jordan are on standby to be implemented when the Red Cross feels it is safe to do so.

1. Source: National Archives, Nixon Presidential Materials, NSC Files, Box 615, Country Files, Middle East, Jordan, Vol. V. Secret; Nodis. The time is handwritten. A stamped notation indicates the President saw the memorandum.
2. See Document 326.
3. In telegram 159077 to all diplomatic posts, September 26, 2223Z. (National Archives, Nixon Presidential Materials, NSC Files, Box 615, Country Files, Middle East, Jordan, Vol. V)