Foreign Relations of the United States, 1952–1954, East Asia and the Pacific, Volume XII, Part 1

S/S–NSC files, lot 63 D 351, NSC 5405

Memorandum for the Operations Coordinating Board Prepared in the Department of Defense¹

top secret

[Washington,] July 7, 1954.

Subject:

• An International Volunteer Air Group

1. In compliance with decisions made at the Operations Coordinating Board meeting of 28 April 1954, the attached plan which was developed by the Joint Chiefs of Staff is submitted for the consideration of the Board.

2. In the light of the Joint Chiefs’ comments² and of the current situation in Southeast Asia, it is considered inadvisable to proceed with the formation of an International Volunteer Air Group until such time as an over-all national policy for Southeast Asia is formulated for the United States along the lines indicated in the State Department special report on NSC 5405.

3. It is considered that recent discussions with the British and recent changes in the French Government have so altered the situation in this area that previous recommendations to form the International Volunteer Air Group without delay should be reconsidered.

4. It is therefore recommended that the Operations Coordinating Board respond to the NSC requirement formulated in this connection at its 195th meeting on 6 May 1954 by submitting the enclosed plan and recommending action as follows:

a. That the plan be held for possible future use not only in Southeast Asia, but in any part of the world where required.

b. That the National Security Council consider the formation of an International Volunteer Air Group for utilization in Southeast Asia in light of the requirements therefor which might emerge from the context of the over-all policy requirements in the area when formulated.

Appendix

Detailed Organization and Cost Estimate of an IVAG

section i—mission

1. The IVAG would have as its mission:

a. Establish and maintain air superiority in its area of operations.

b. Attack upon hostile air installations, LOCs and supply concentrations.

c. Tactical support of friendly ground troops.

section ii—composition

2. The IVAG, in order to have a minimum balanced capability to carry out the above mission, should be composed of:

a. Three fighter squadrons (75 F–86F a/c).

b. One light bombardment squadron (25 B–26 a/c).

c. Two transport squadrons (32 C–119 a/c).

d. One composite photo reconnaissance squadron (12 RF–80 and 6 RB–26 a/c).

e. One AC&W squadron.

3. The internal support echelon should consist of the Group Headquarters including the following:

a. Command and Administration Section.

b. Air Base Support Section.

c. Medical Section.

d. Supply and Maintenance Section.

e. Communications Section (less radar).

f. Motor Transport Section (less chauffeurs).

g. Meteorological Section.

h. Air Control Parties.

section iii—cost estimate

4. A broad estimate of the cost, in millions, of organizing, equipping, and operating the proposed IVAG is $161.1 for the initial outlay of material, equipment and construction, plus $59.4 per year for peacetime operations, or $124.7 per year for wartime operations. This estimate was developed for planning purposes only and should not be used for budgetary purposes since phasing, build-up, lead-time, and other factors influencing budget estimates were not considered in the computations. For a detailed breakdown pertaining to above cost see the attached table.³ The cost estimates were developed on the information and assumptons contained in the subsequent paragraphs.

[Here follows a detailed cost breakdown.]

1. This document is an attachment at tab III to a memorandum dated July 15 from Elmer B. Staats, Executive Officer of the OCB, to Lay of NSC. Staats’ memorandum and its attachments are in turn attached to a covering memorandum dated July 19 from Gleason to the NSC.

   The portion of Staats’ memorandum which concerns the paper printed here follows:

   “9. The attention of the NSC is also invited to the problem of an International Volunteer Air Group, which is somewhat separate from, but related to the questions raised above. In response to the NSC requirement formulated in connection with IVAG at its 195th Meeting on May 6, 1954 (NSC Action No. 1106e), the OCB submits the plan attached as Tab 3 and recommends:

   • “a. That the plan be held for possible future use not only in Southeast Asia but in any part of the world where required.
   • “b. That the National Security Council consider the formation of an international Volunteer Air Group for utilization in Southeast Asia in light of the requirements therefor which might emerge from the context of the overall policy requirements in the area when formulated.”

   For pertinent extracts from the memorandum of discussion at the NSC meeting held May 6, see p. 452.

2. At the request of the Secretary of Defense, the JCS had outlined a possible organization for an IVAG in the appendix to a memorandum to the Secretary dated June 16. In that memorandum, however, they specified a number of geographical, logistical, and operational difficulties which would affect any such program in Southeast Asia. They concluded:

   “After consideration of all aspects concerning the establishment and utilization of an IVAG, the Joint Chiefs of Staff reiterate their previous position that the development of a volunteer air unit to operate in threatened areas of the world is impracticable and undesirable. Accordingly, detailed plans should not be developed at this time.”

   The JCS then distinguished the idea of an IVAG from a proposal, which they had supported, for the international recruitment of volunteers as maintenance personnel and aircrew to augment the French Air Force in Indochina. (JCS records, CCS 092 Asia (6–25–48))

3. Not printed.