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

240. Memorandum From the President’s Assistant for National Security Affairs (Kissinger) to President Nixon¹

Washington, September 14, 1970, 3:30 p.m.

SUBJECT

• Mid-Afternoon Report on the Hijacking Situation

There have been no major developments concerning the hijacked airline passengers held hostage by the fedayeen since my memorandum to you this morning.² We are still in a position of trying to consolidate an exact list of the hostages and a precise picture of fedayeen demands.

The Hostages

It now appears that the hostages—the number is now thought to be 55—are being held in several houses in Amman, although we have been unable so far to find out exactly where. They are apparently under the sole control of the PFLP.

The Negotiations

Negotiations for the release of the hostages are in a state of temporary suspension, although the Red Cross this afternoon seems to be easing back into a more active negotiating role. The main task, as the Red Cross sees it, is to establish the basis for a negotiation—principally, to find out exactly what the fedayeen want from Israel. For this purpose, the Red Cross is again picking up its contacts with the fedayeen leaders. The fedayeen, for their part, seem confused and disorganized at this stage and appear not to be absolutely sure and united on what they specifically want for the hostages. The Red Cross representative in Amman doubts that the PFLP yet knows which or how many fedayeen under arrest in Israel it wants released.

Meanwhile, there are continuing indications that the united front approach by the Western powers could soon break down. Our embassy in Bonn has evidence that both the Germans and the British may be moving toward a smaller European package settlement that would presumably exclude American and Israeli nationals among the hostages. However, for the moment the formal positions of both governments are holding.

The Israelis continue to hold the line on their “no deal” approach. There are even reports in the press, though not confirmed by our embassy, that three emissaries were sent by Israel to the PFLP over the weekend with threats against the lives of the 450 Arabs arrested over the weekend in Gaza and the West Bank. Our embassy in Amman reports that the stories about the Arab arrests in Israel may be further hardening the PFLP demands.

The Pope has sent a high Vatican official to Amman. He has reportedly had contacts with the PFLP, but the specific results of these talks are not yet available.

Situation in Amman

Our Defense Attaché in Amman reports that on the surface the city was beginning to return to normal this morning. The traffic flow, for instance, was at the normal level and almost all shops were open. Most of the fedayeen were also off the streets and some of their road blocks had been dismantled.

There are other indications, however, that the present lull in the fighting may only be temporary. Most fedayeen strongpoints in Amman have been reinforced and some army units are also digging in. The Defense Attaché reports that it appears to him that the army commander has partially lost control of some army units which are operating on their own initiative in fighting the fedayeen.

1. Source: National Archives, Nixon Presidential Materials, NSC Files, Box 331, Subject Files, Hijackings. Secret. Sent for information. The time is handwritten at the top of the first page.
2. Document 239.