882.20/537
Memorandum by the Assistant Chief of the Division of Near Eastern Affairs (Villard)
The Protection of Liberia
Under an arrangement with the War Department, Pan American Airways in July 1941 began the construction of an airport in Liberia [Page 546] to provide an alternate landing point in the ferrying of bombing planes across the South Atlantic to the British forces in the Near East. This airport, planned along the most modern lines and equipped with high-speed refueling equipment, was designed to be used instead of present African terminals at Bathurst and Freetown in the event that weather conditions or wartime reverses should make the two latter bases untenable. Being already extensively engaged in rubber-growing operations in Liberia, the Firestone Company was commissioned by Pan American Airways to undertake the construction of the airport at Harbel (about 40 miles from Monrovia) and the work has been proceeding on an emergency basis ever since.
Although a tentative and secret approach was at first made to the President of Liberia in regard to the establishment of an American military or naval air base in that country, it was found that the purposes in mind could be served by negotiations then taking place for a commercial contract between Pan American Airways and the Liberian Government. The contract was signed on July 14, 1941, and while it has not yet been ratified by the Liberian Legislature, Pan American has already inaugurated a Clipper service linking Liberia with Brazil on the one hand and the Belgian Congo on the other. This service is carried on with seaplanes which land and take off at Fisherman Lake, some 55 miles from Monrovia. One of the uses to which it is being put today is to return to the United States the pilots and crews of the bombing planes being ferried across Africa to the Near East. After the new landing field at Harbel is completed, it is probable that the Clipper seaplanes will gradually be withdrawn from commercial use and stratosphere airliners introduced instead. These advanced stratosphere planes would land at the Harbel airport instead of on the water, in addition to which the bombing planes of the Ferry Command and a Pan American coastal shuttle service now operating between British possessions on the West Coast of Africa would make use of this important terminal. Owing to the interruption of communications via the Pacific, it is probable that all Pan American air traffic with the Far East will also shortly be routed through Liberia.
It is obvious that the development of airplane facilities in Liberia is becoming a major factor in connection with the war, and is thus exposing Liberia to the possibility of attack by hostile powers. Such an important link in air communications as provided both by the seaplane base at Fisherman Lake and the landing field at Harbel is not likely to be overlooked by the enemy. It is therefore logical to expect that an attempt may be made to destroy or damage both land and sea bases and their equipment, as well as to inflict injury on Liberia itself for assisting the Allied war effort in this manner.
Another consideration is the fact that Liberia is now producing 10,000 tons of rubber per annum, all of which comes to the United [Page 547] States and enters into our defense materials. The American firm producing the rubber has extensive buildings, a large American personnel and considerable rubber-growing equipment. It also maintains a powerful radio station affording direct communication with its headquarters in Akron, Ohio, which would be of the greatest service to this Government in the event that other communications were cut. The Company’s hydro-electric plant and its radio station are located close to the airport at present under construction and would be very vulnerable to air attack. As construction engineeers for Pan American Airways, the Company also has a great deal of valuable machinery engaged in operations connected with the planting and growing of the essential war material of rubber.
The question urgently arises, in view of the vital strategic position now occupied by Liberia in the war and the likelihood that it will develop into a leading center for air operations, how the installations in that country are to be protected. With the approval of President Roosevelt, President Barclay of Liberia was informed in November 1941 that if the Pan American Airport were used as an alternate landing field in the ferrying of aircraft to the Near East, precautions would undoubtedly be taken to ensure the security of Liberia. It was also intimated that it might be desirable to station defensive forces in Liberian territory for that purpose. President Barclay was further informed that the protection of the United States Government would automatically be extended to Liberia during the course of the present war if the developments described above should take place, and officials of the War Department at that time stated orally that in the event of an impending Axis attack appropriate measures would be taken to defend Liberian territory.
While no actual threat to Liberia has yet arisen, several instances may be cited to show that the possibility of hostile action may not be remote. On October 21, 1941 the American Minister at Monrovia pointed out the need of affording Liberia protection from possible invasion from Vichy-French territory along the southern Liberian border, where troop movements are rumored to have occurred. A short time previously, word had been received of the improvement and development of Vichy-French airports in French Guinea, not far from the Liberian border. Moreover, a German national has within the last two weeks returned to Cape Mount, near the seaplane base at Fisherman Lake, where he had been engaged in trade for many years; this individual has no known reason to be in Liberia at this time and he is in an excellent position to report upon or sabotage the Pan American Clipper base at Fisherman Lake.
Owing to the extreme difficulty of landing supplies through the surf along the Liberian Coast, much time is consumed in such operations. Because of the danger they might incur in such an interval, [Page 548] two vessels chartered by Pan American Airways, at present unloading gasoline and other necessary materials, have been afforded temporary protection by a British naval vessel stationed at Freetown, Sierra Leone. The British Chargé d’Affaires at Monrovia, as well as members of the Liberian Cabinet, has expressed serious concern over the possibility of a surprise attack by the Germans in the near future against the Pan American development and the rubber plantations, and the problem of protecting ships engaged in delivering supplies will require serious attention in the immediate future.
It is understood that the United States War Department does not consider itself in a position to take military action in the matter of protecting American interests in Liberia, and has suggested to the Senior Member of the British military mission in Washington, that the matter should be handled by the British Government. While it is true that the British in July 1939 gave an oral commitment to the Liberian Minister in London22 that Great Britain could not remain indifferent if Liberia were the victim of unwarranted aggression, the terms of that agreement are not believed adequate to cover the situation today. Moreover, any action by the British to take over or even to participate in the land defenses of Liberia would be certain to arouse the deepest resentment on the part of Liberians. Owing to the past British record in Liberia, no confidence is placed in Great Britain by Liberia, and it is even believed that many Liberians might prefer German protection if there were no other alternative.
The Navy Department has not yet been consulted in this matter, but for obvious reasons it is considered that the naval protection of Liberia is fully as important as that which could be offered by the War Department.
In view of the fact that the stake in Liberia is predominantly American, and since the airport and its attendant operations are wholly an American enterprise, it would seem highly desirable that the protection of Liberia, or at least the land protection, should be undertaken wholly by American forces. It may be recalled in this connection that when the idea first arose of using Liberia as a landing point in the ferrying of bombers across Africa, President Roosevelt had in mind the sending of a force of approximately 500 Marines to prepare the way for the construction of an American air base in Liberia. It has recently been suggested that suitable protection might be afforded by stationing a number of American Navy bombing planes at Fisherman Lake for the purpose of patrolling the Liberian Coast. In addition, it would seem desirable to supply anti-aircraft guns, machine guns, reconnaissance planes and fighting aircraft for the [Page 549] defense of the airport at Harbel. The question of recruiting and arming a Liberian defense force might also have to be taken into consideration.
These questions are given urgent importance by the reply delivered by President Barclay (paraphrase of which is attached) under date of December 22, 194123 to a proposal made by the War Department to assist Liberia in the construction of an arterial road system in return for the land lease of the airport. President Barclay has stressed the view of the Liberian Government that should the air bases be put to military or belligerent uses by the Government of the United States, the Liberian Government should be entitled to substantial assistance to protect its territory and its inhabitants against retaliatory action by the enemies of the United States. It is pointed out by President Barclay that while the United States might naturally defend its own bases in Liberia, it would rest under no obligation to protect the whole of Liberian territory unless a formal undertaking had been made to do so. Related questions such as the increase of communication facilities and the laying out of strategic roads, are also emphasized in this connection, and an answer on this subject is obviously due to President Barclay before he can be expected to cooperate in the plans of the Government.
In view of its vital importance to the defense of the United States, it is believed that the entire question of protecting Liberia from possible enemy attack calls for the fullest and most careful consideration at the earliest possible moment.
- See telegram No. 956, July 8, 1939, 6 p.m., from the Ambassador in the United Kingdom, Foreign Relations, 1939, vol. iv, p. 601.↩
- See telegram No. 131, December 22, 2 p.m., from the Minister in Liberia, p. 544.↩