Israeli Attack on Beirut Airport and Hijacking of TWA Flight 840, January-December 1969
1. Telegram 294530 From the Department of State to the Consulate in Montreal
A message from Deputy Assistant Secretary of State Loy to IATA Director-General Knut Hammarskjold expressing U.S. concern about recent hijackings. Loy condemned Israel for the attack on Khaldeh Airport in Lebanon and noted that the U.S. had registered disapproval of the Athens hijacking of an El Al aircraft.
Source: National Archives, RG 59, Central Files 1967-69, POL 27 ARAB-ISR. Unclassified. Drafted by Loy (E/TT), cleared by Roger P. Davies (NEA) and Styles (E/OA/AVP), and approved by Rusk.
2. Telegram 6001 From the Department of State to the Embassy in Israel
A message from Deputy Assistant Secretary of State Loy to IATA Director-General Knut Hammarskjold expressing U.S. concern about recent hijackings. Loy condemned Israel for the attack on Khaldeh Airport in Lebanon and noted that the U.S. had registered disapproval of the Athens hijacking of an El Al aircraft.
Source: National Archives, RG 59, Central Files 1967-69, POL 27 ARAB-ISR. Unclassified. Repeated to Montreal, Ottawa, Beirut, London, and Rome. Drafted by Loy (E/TT), cleared by Roger P. Davies (NEA) and Styles (E/OA/AVP), and approved by Rusk.
3. Telegram 8296 From the Department of State to the Consulate in Montreal
The Department informed posts that at the ICAO meeting Lebanon would seek sanctions against Israel for the Beirut airport raid and gave details of Israel’s counter-complaint on the Athens El Al hijacking. The Department stressed its position that the ICAO should avoid political debate and concern itself with the technical aspects of aviation security.
Source: National Archives, RG 59, Central Files 1967-69, POL 27 ARAB-ISR. Limited Official Use. Repeated to 25 posts and the U.S. representative to ICAO. Drafted by Thomas J. Carolan, Jr. (IO/UNP) on January 19; cleared in NEA/IAI, E/OA/AL, NEA/ARN, L/UNA, IO/UNP, and L/SCA; and approved by Popper (IO).
4. Telegram 9888 From the Department of State to the Embassies in Lebanon and Israel
The Department informed the Embassies that the ICAO Council voted to consider the Lebanese complaint on the Beirut airport raid but to exclude the Israeli counter-complaint on the Athens El Al hijacking. Australia, Canada, the United Kingdom, and the U.S. began to draft a resolution on prevention of violence against international civil aviation.
Source: National Archives, RG 59, Central Files 1967-69, POL 27 ARAB-ISR. Limited Official Use. Repeated to USUN. Drafted by Carolan; cleared in NEA/ARN and in substance in NEA/IAI and E/OA/AL; and approved by Brown.
5. Telegram 16529 From the Department of State to the Embassies in Lebanon and Israel
Embassies Beirut and Tel AVIV were informed that ICAO President Binaghi announced that the ICAO Council had adjourned its extraordinary session to discuss the Beirut airport raid without reaching agreement on a course of action.
Source: National Archives, RG 59, Central Files 1967-69, POL 27 ARAB-ISR. Limited Official Use. Repeated to Montreal and USUN. Drafted by Carolan on January 31; cleared in NEA, E, and L; and approved by Brown.
6. Memorandum from Acting Secretary of State Richardson to President Nixon
Richardson reported that the Department of State had taken action in response to the Zurich El Al attack, and that a discussion had taken place between Israeli Minister Argov and Assistant Secretary of State Sisco. Sisco informed Argov that the U.S. was sending a letter of protest to the UN Security Council and urged France and the UK to do the same. The matter would also be placed on the ICAO Council agenda.
Source: National Archives, RG 59, Lot File: 74D 164. Secret.
7. Telegram 146454 From the Department of State to the Embassy in Lebanon
The Israeli Embassy reported that TWA Flight 840 from Rome to Tel Aviv had been hijacked and was presumed en route to Lebanon. Instructions to Embassy Beirut stressed U.S. insistence that all passengers be treated as a single group.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Confidential; Flash. Repeated Flash to Tel Aviv, Rome, Ankara, Cairo, Amman, Montreal, and USUN. Drafted by Atherton; cleared in NEA/ARN, IO/UNP, and E/AV; and approved by Davies.
8. Telegram 147491 From the Department of State to the Embassy in Italy
The Syrian Government hinted that the release of TWA Flight 840 passengers might be tied to the release of Syrian military pilots held by the Israelis. The Israeli Government told Syria and the United States that this would not happen.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret; Immediate; Exdis. Repeated to Tel Aviv. Drafted and approved by Davies and cleared by Eliot.
9. Telegram 147505 From the Department of State to the Representative to the International Civilian Aviation Organization (Butler)
Butler was instructed to deliver an enclosed letter concerning TWA Flight 840 to the ICAO. The text includes details of the hijacking incident.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Unclassified. Drafted by Harry Feehan (E/AO/AVP) and Loy on August 30; cleared by U. Alexis Johnson, Davies, Carolan, and L; and approved by Loy.
10. Memorandum of Conversation
Davies and Williams discussed the Flight 840 hijacking situation. Williams reported that the Israeli Consulate in New York was harassing TWA, and that there was an organized effort to dictate TWA’s actions in connection with the hijacking. Davies said that the U.S. Government had urged the Israelis to cool the situation down, and that the U.S. would not allow the commercial considerations of one of its flag carriers to be damaged.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret; Exdis. Drafted by Bryan H. Baas (NEA/ARN), and approved by Brown.
11. Telegram 147525 From the Department of State to the Embassy in Israel and the Consulate in Jerusalem
The Department endorsed the positions taken by Chargi Zurhellen in conversations with the Israelis over TWA Flight 840 and defended the actions taken by TWA.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret; Flash; Exdis. Drafted and approved by Davies, and cleared by Lloyd (S/S).
12. Telegram 147543 From the Department of State to the Embassy in Israel
The Department of State reported a frank conversation between Acting Assistant Secretary of State for Near Eastern and South Asian Affairs Davies and Israeli Chargi Argov on the hijacking of TWA Flight 840. Davies observed that he thought Syria might be looking for a way out of the situation.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret; Immediate; Exdis. Drafted by Baas and Davies, cleared by Lloyd, and approved by Davies.
13. Telegram 7222 From the Embassy in Lebanon to the Department of State
Embassy Beirut expressed reluctance to use PanAm’s overflight issue as a way to pressure Syria over TWA Flight 840, and confessed that the Embassy could not think of any levers to secure the release of the remaining Israeli passengers. While deploring the PFLP hijacking, Embassy Beirut opined that Syria had handled the matter correctly.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret; Immediate; Limdis.
14. Telegram 5517 From the Embassy in Italy to the Department of State
The Italian Foreign Office noted that the Syrians were again suggesting the swap of the Israeli passengers of TWA Flight 840 for imprisoned Syrian pilots; Embassy Rome commented that there was virtually no chance the Israelis would agree to this scheme.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret; Priority; Exdis. Repeated to Tel Aviv.
15. Memorandum From Secretary of State Rogers to President Nixon
Rogers briefed the President on the status of TWA Flight 840, detailed the action taken by the airline and the U.S. Government, and noted the arrival in Damascus of two representatives from the International Committee for the Red Cross.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret. Attached but not printed was a transmittal memorandum Sisco sent to Rogers indicating that the memorandum was drafted by Baas and cleared by Johnson and Davies.
16. Memorandum of Conversation
TWA Chairman Tillinghast reported to Deputy Assistant Secretary for Transportation and Telecommunications Loy conversations that had taken place between TWA executives and General Akil in Syria on the status of TWA Flight 840. The Syrians clearly stated their intention to hold the two remaining passengers until the Israeli Government freed their pilots. Akil also said that the PFLP would not benefit from the hijacking.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Limited Official Use. Drafted by Loy. The conversation was held in Paris.
17. Letter from Israeli Minister for Foreign Affairs Eban to Secretary of State Rogers
Eban requested that the U.S. Government spare no efforts to free the two Israeli passengers of TWA Flight 840 in light of the worsening situation.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. No classification marking.
18. Information Memorandum from the Assistant Secretary of State for Near Eastern and South Asian Affairs (Sisco) to Secretary of State Rogers
Sisco provided Rogers with a status report on TWA Flight 840, noting action taken by the ICAO and the NATO Advisory Committee. Sisco highlighted the current efforts taken by the ICRC, World Health Organization, and the Governments of Italy and the USSR. He reported that the U.S. would ask the Israelis to consider the proposed Syrian pilot swap.
Source: National Archives, RG 59, Central Files 1967-69, AV 12. Secret; Exdis. Drafted by Seelye and cleared by Davies and Loy. A copy was sent to Johnson.
19. Memorandum From the Executive Secretary of the Department of State (Eliot) to the President’s Assistant for National Security Affairs (Kissinger)
The Department of State provided a follow-up report on TWA Flight 840 that noted on-going contacts with Italy and the USSR, a request for assistance to UN Secretary-General U Thant, emergency sessions of the ICAO, contact with Director-General of IATA Hammerskjold, and contacts with the ICRC.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret. Drafted by Thomas J. Scotes (NEA/ARN) on September 9 and cleared by Sisco, Seelye, Loy, and in substance with Johnson.
20. Memorandum From Secretary of State Rogers to President Nixon
Rogers updated the President on efforts to resolve the TWA Flight 840 hijacking and free the remaining Israeli hostages. Rogers cited U.S. activity to gain adherence to the Tokyo Convention, efforts to resolve the Cuban hijacking situation, and work in the UN Security Council and the ICAO.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Confidential. Drafted by Styles on September 16. Kissinger summarized and sent this memorandum to the President, stating that it “represented a reasonable package at the present time.” (Ibid., Nixon Presidential Materials, NSC Files, Subject Files, Box 131, Hijackings II)
21. Telegram 159327 From the Department of State to the Embassy in Israel
Acting Secretary of State Richardson informed Embassy Tel Aviv that Israeli Counselor Raviv had been told that third-party efforts to secure the release of the passengers of TWA Flight 840 had been exhausted. In the Department’s estimation, Syria would not agree to release the passengers without a face-saving quid-pro-quo. Raviv said the Israelis could not agree to any trade-off.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret. Repeated to Beirut, Rome, and USUN. Drafted by Thomas J. Scotes (NEA/ARN) on September 9 and cleared by Sisco, Seelye, Loy, and in substance with Johnson.
22. Memorandum From the Executive Secretary of the Department of State (Eliot) to the President’s Assistant for National Security Affairs (Kissinger)
The Department of State updated on-going efforts to resolve the TWA Flight 840 hijacking and noted that the Syrians had imprisoned the PFLP hijackers. The memorandum discussed the Syrian position on the Tokyo Convention, as relayed through IATA. Efforts also continued through Italy, the USSR, and the ICAO.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret. Drafted by Seelye. Gleysteen signed for Eliot.
23. Telegram 3119 From the U.S. Mission to the United Nations to the Department of State
UN Ambassador Yost noted that he had urged the Syrians to take early action to resolve the TWA Flight 840 situation. Syrian Ambassador to the UN Tomeh urged the U.S. to continue “quiet diplomacy” and suggested that Israel release the captured Syrian pilots a few weeks after the release of the Israeli passengers.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Confidential; Limdis. Repeated to Tel Aviv, Beirut, and Rome.
24. Telegram 160323 From the Department of State to the Embassy in Israel
While sharing Embassy Tel Aviv’s concern that the Israelis might be losing patience over TWA Flight 840, the Department of State emphasized that it had little leverage to use with the Syrians. The Department rejected suggestions to be more aggressive with Syria by attempting to prevent its election to the UN Security Council, concluding that the prisoner/hostage swap would be the best way to end the crisis.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret; Exdis. Drafted by Seelye and April Glaspie (NEA/ARN) on September 19; cleared by Jones, Wahl, Loy, Davies and Lloyd; and approved by Sisco.
25. Memorandum From the President’s Assistant for National Security Affairs (Kissinger) to President Nixon
Kissinger summarized Embassy Tel Aviv’s assessment of the TWA Flight 840 hijacking in telegram 35088 and attached to the memorandum a retyped copy of the telegram.
Source: National Archives, Nixon Presidential Materials, NSC Files, Subject Files, Box 331, Hijackings II. Secret. Nixon wrote “I agree” in the margin next to the last two recommendations and instructed Kissinger to “follow through.”
26. Memorandum of Conversation Between Secretary of State Rogers and Israeli Foreign Minister Eban
On September 20 Rogers and Eban discussed the Israeli passengers on TWA Flight 840 still held by Syrian hijackers. Eban said that the idea of linking the release of the passengers to the release of captured Syrian pilots was “intolerable.” Rogers agreed that the two cases could not be equated. Eban commended Italy’s efforts and said there was little more UN Secretary-General U Thant could do.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret; Limdis. Drafted by Atherton on September 23, and approved by Brown on September 27.
27. Action Memorandum From the Deputy Assistant Secretary of State for Near Eastern and South Asian Affairs (Davies) to Secretary of State Rogers
Davies recommended that Rogers send an oral message to Syrian President Nur al-Din al-Atasi on the TWA Flight 840 hostage situation. Attached was a telegram containing Rogers’ message to al-Atasi urging the Syrian Government to release the two remaining passengers.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret. Drafted by Baas and Davies and cleared by Seelye. A notation on the memorandum indicates that the attached draft telegram was drafted by Baas and Davies on September 24, cleared by Seelye, Wahl, Beaudry, and Loy, and approved by Rogers, and was sent to the Embassy in Rome.
28. Memorandum From the Executive Secretary of the Department of State (Eliot) to the President’s Assistant for National Security Affairs (Kissinger)
Eliot updated Kissinger on the status of TWA Flight 840. He noted that the Syrians were no longer afraid of Israeli reprisals, explained that the Italian Ambassador was highly critical of Israeli Government maneuvering, and informed Kissinger that the Department of State had sent Rogers’ message to Syrian President al-Atasi. See Document 27.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret;Exdis. Drafted by Baas on September 26, and cleared by Seelye and Davies. Gleysteen signed for Eliot.
29. Telegram 662 From the Consulate in Jerusalem to the Department of State
Consulate staff reported on a U.S. dimarche to Israel on the proposed pilot-hostage exchange in the matter of TWA Flight 840. Rafael said that Israel would reject an out-right swap, but suggested a way in which the United States could be seen to pressure Israel and bring about a conclusion without an advance deal.
Source: National Archives, RG 59, Central Files 1967-69, AV 12 US. Secret; Priority; Exdis. Repeated to Tel Aviv.
30. Memorandum From the Acting Secretary of State (Richardson) to President Nixon
Richardson updated the President on diplomatic attempts to resolve the TWA Flight 840 incident.
Source: National Archives, Nixon Presidential Materials, NSC Files, Subject Files, Box 331, Hijackings II. Confidential. Kissinger sent the memorandum to Nixon on October 15 under a covering note summarizing the memorandum.