Nigerian Civil War

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23. Telegram 5133 From the Department of State to the Embassy in Nigeria

The Department provided its justification for the sale of eight C–97G aircraft to Joint Church Aid U.S.A., Inc. (JCA) and ICRC and included a statement that U.S. Government policy remained “one Nigeria” with relief supplied to both sides in the conflict.

Source: National Archives, RG 59, Central Files 1967–69, POL 27–9 Biafra-Nigeria. Secret; Immediate. Repeated to Addis Ababa, London, Paris, Geneva, and USUN. Drafted by Deputy Assistant Secretary Moore (AF), D. Smith (AF/W), and Country Director for West Africa Melbourne (AF/W); cleared by Under Secretary of State Katzenbach (U), Walker (S/S), William Lang (DOD/ISA), and North (AID); and approved by Assistant Secretary of State Palmer (AF).


24. Telegram 333 From the Embassy in Nigeria to the Department of State

The Embassy reported on Ambassador Elbert Mathewsʼ meeting with Major General Gowon, Chairman of the Supreme Military Council of Nigeria, regarding the C–97G aircraft, relief agencies, U.S. policy, and daylight flights. Gowon preferred to have the ICRC, rather than church groups, operating in rebel territories.

Source: National Archives, RG 59, Central Files 1967–69, POL 27–9, Biafra-Nigeria. Confidential; Immediate. Repeated priority to Addis Ababa. Also repeated to Geneva, London, Paris, and USUN.


25. Memorandum From the Presidentʼs Assistant for National Security Affairs (Kissinger) to President Nixon

Kissingerʼs memorandum, drafted by Roger Morris, sketched the background of the Biafra relief problem, the current situation, the interplay of relief and diplomacy, and where other nations stood, and recommended that the President sign a NSSM that would get the bureaucracy moving toward consideration of alternate Biafra relief programs. Tab C is Document 26.

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 741, Country Files, Africa, Nigeria, Vol. I. Secret. Nixon checked and initialed “Authorize NSSM.” An adjacent note reads: “NSSM 11 issued 1/28/69, distributed 1/29/69.”


26. National Security Study Memorandum 11

NSSM 11 directed the preparation of papers on 1) alternative approaches and programs for expanding relief and 2) alternate views of the U.S. interest in Nigeria and Biafra.

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–133, NSSM Files, NSSM 11. Secret. A copy was sent to the Chairman of the Joint Chiefs of Staff, General Earle G. Wheeler.


27. Intelligence Memorandum

The memorandum analyzed the Biafran relief problem, which was likely to worsen in the next few months. Nigerian authorities were expected to become increasingly suspicious of foreign involvement.

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 741, Country Files, Africa, 3/54. Secret; No Foreign Dissem. Prepared in the Office of Current Intelligence, Central Intelligence Agency.


28. Talking Paper

This paper, prepared in the Department of State, included background information and talking points regarding Nigeria and Biafra for the Presidentʼs meetings with European leaders during his upcoming trip to Europe.

Source: National Archives, Nixon Presidential Materials, NSC Files, Presidentʼs Trip Files-Europe, Feb–March 1969. Secret.


29. Telegram 16759 From the Department of State to the Embassy in Nigeria

The Department reported on Secretary William Rogersʼ and Assistant Secretary Joseph Palmerʼs meeting with Nigerian Ambassador Iyalla, during which they assured him that the United Statesʼs main interest in Biafra was feeding people. Palmer indicated that inspection procedures were not yet completed with Joint Church Aid U.S.A., Inc. (JCA) for the C–97 flights. There also was discussion of ICRC flights and visas for relief experts.

Source: National Archives, RG 59, Central Files 1967–69, POL 27–9 Biafra-Nigeria. Confidential; Priority. Repeated to Addis Ababa, Geneva, London, USUN, Lome, and Yaounde. Drafted by G.B. Sherry (AF/W), cleared in S/S and S; and approved by Palmer.


30. Study Prepared by the NSC Interdepartmental Group on Africa

Paper I considered relief needs in Nigeria and Biafra and alternative U.S. approaches and programs aimed at expediting and enlarging the flow of relief.

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–20, NSC Meeting, Biafra, Strategic Policy Issues 2/14/69. Secret.


31. Study Prepared by the NSC Interdepartmental Group on Africa

Paper II considered alternative views of U.S. interests in Nigeria and Biafra, the range of policy choices open to the United States, and the political consequences of the relief courses described in Paper I.

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–20, NSC Meeting, Biafra, Strategic Policy Issues 2/14/69. Secret.


32. Memorandum From Roger Morris of the National Security Council Staff to the Presidentʼs Assistant for National Security Affairs (Kissinger)

Morris indicated that the NSC papers on Biafran relief basically told the President that the United States could not expect to expand relief under the present low-involvement policy, and if relief were expanded it would mean becoming more involved in supporting Federal Nigeria. Attached at Tab A are Talking Points in anticipation of an NSC Review Group discussion of Nigeria that afternoon.

Source: Library of Congress, Manuscript Division, Kissinger Papers, Box TS 68, NSC Committees & Panels Review Group, Feb–April 1969. Secret.


33. Policy Options Paper

Prepared for the February 14 NSC meeting, this paper distilled Paper I and Paper II on Biafra into categories of relief, policy, basic choices, and options with the conclusion that there was little maneuverability in attempting to expand relief without antagonizing Federal Nigeria.

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–20, NSC Meeting, Biafra, Strategic Policy Issues 2/14/69. Secret.


34. Telegram 20875 From the Department of State to the Embassy in Nigeria

The Department reported on the meetings of Godfrey Amachree, personal representative of Major General Gowon, Chairman of the Supreme Military Council of Nigeria, and Commissioner Arikpo, Nigerian Federal Commissioner for External Affairs, with Assistant Secretary Joseph Palmer and with several Congressmen and their staffs. Amachreeʼs goal was to sound out U.S. policy at the beginning of a new administration.

Source: National Archives, RG 59, Central Files 1967–69, POL 27 Biafra-Nigeria. Confidential. Repeated to London. Drafted by Palmer and R. Wach (AF/W); approved by Palmer.


35. Paper Prepared by the NSC Interdepartmental Group for Africa

This background paper discussed the Biafran War, the minority problem, genocide, relief, involvement of other powers, and the U.S. role. A two-page appendix covers the congressional aspects of Nigeria/Biafra relief.

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–20, NSC Meeting, Biafra, Strategic Policy Issues 2/14/69. Secret.


36. Memorandum of Telephone Conversation

Under Secretary of State Elliot Richardson and Assistant to the President Henry Kissinger discussed Biafra and the upcoming NSC meeting. Richardson said his position was somewhere between Options 1 and 2. He supported naming a Relief Coordinator without political involvement. Kissinger agreed.

Source: Library of Congress, Manuscript Division, Kissinger Papers, Box 359, Telephone Conversations, Chronological File. No classification marking.


37. Telegram 22400 From the Department of State to the Embassy in Nigeria

The Department reported on Godfrey Amachreeʼs (the personal representative of Major General Gowon, Chairman of the Supreme Military Council of Nigeria) meeting with Secretary of State William Rogers on February 11. Rogers stated that with the change of administrations the previous policies would continue unless or until a decision was taken to change them. The administration was reviewing relief policy, regarding which there was great public pressure.

Source: National Archives, RG 59, Central Files 1967–69, POL 7-Nigeria. Secret. Repeated to London. Drafted by Palmer, cleared in S, and approved in S/S.


38. Memorandum From Roger Morris of the National Security Council Staff to the Presidentʼs Assistant for National Security Affairs (Kissinger)

Morris presented his personal views on Biafran relief options, recommending a limited approach. The United States should make a credible effort to get in more food without greater political involvement or risk to American lives, property, and long-range political interests.

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 741, Country Files, Nigeria. Secret.


39. Memorandum From Richard V. Allen of the National Security Council Staff to the Presidentʼs Assistant for National Security Affairs (Kissinger)

Allen commented that the three Biafra situation papers had given insufficient attention to the roles of Western Europe and the United Nations. Anticipating that when a policy decision was made, Nixonʼs two statements on the Nigerian Civil War made during his Presidential campaign might be recalled, he attached a composite of Nixonʼs statements from July 17 and September 10, 1968.

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 741, Country Files, Nigeria, Vol. I. Secret; Exdis. A copy was sent to Morris.


40. Memorandum From Roger Morris of the National Security Council Staff to the Presidentʼs Assistant for National Security Affairs (Kissinger)

In anticipation of the NSC meeting later that day, Morris outlined the latest developments regarding relief flights, prospects for a neutral relief airstrip, the war, and French policy on Biafra.

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–20, NSC Meeting, Biafra, Strategic Policy Issues 2/14/69. Secret.


41. Issues Paper

This paper, prepared for President Nixon, outlined issues for decision at the NSC meeting on February 14. Attached was a letter to Nixon from Major-General Gowon, Chairman of the Supreme Military Council of Nigeria, to President Nixon, January 16, 1969.

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–20, NSC Meeting, Biafra, Strategic Policy Issues 2/14/69. Secret.


42. Issues Paper Prepared for President Nixon

The paper outlined issues for decision at the NSC meeting on February 14 and recommended courses of action.

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–20, NSC Meeting, Biafra, Strategic Policy Issues 2/14/69. Secret; also, Library of Congress, Manuscript Division, Kissinger Papers, Box CL 312, NSC Meetings Feb–Mar 1969. Secret.


43. Memorandum of Telephone Conversation Between the Under Secretary of State for Public Affairs (Richardson) and the Presidentʼs Assistant for National Security Affairs (Kissinger)

Kissinger told Richardson that the President wanted the Relief Coordinator to come from outside the Department of State.

Source: Library of Congress, Manuscript Division, Kissinger Papers, Box 359, Telephone Conversations, Chronological File. No classification marking.


44. Memorandum From the Presidentʼs Assistant for National Security Affairs (Kissinger) to President Nixon

As recommended by Kissinger, the President authorized a press statement announcing the appointment of C. Clyde Ferguson, Jr., as the Biafran Relief Coordinator.

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 741, Country Files, Africa, Nigeria, Vol. I. No classification marking. The President initialed the “Approve” option. Tab A, a press release, and Tab B, Fergusonʼs biographic information, were attached but not published.


45. Memorandum From the Presidentʼs Assistant for National Security Affairs (Kissinger) to President Nixon

Kissinger recommended that Nixon sign an attached letter to Major General Gowon, Chairman of the Supreme Military Council of Nigeria, which stressed U.S. humanitarian interest in Nigeria and U.S. desire to avoid political involvement as much as possible. The letter also informed Gowon that a Relief Coordinator was being appointed to emphasize U.S. humanitarian concern. Tab B, a letter from Gowon to Nixon, is published as the attachment to Document 41.

Source: Library of Congress, Manuscript Division, Kissinger Papers, Box 1, HAK Memoranda to the President, February 1969. Secret. Sent for action. The memorandum is an unsigned copy. Morris drafted both the memorandum and the attached letter to Gowon. The latter is a copy marked with an indication that the President signed the original.


46. Memorandum From the Presidentʼs Assistant for National Security Affairs (Kissinger) to President Nixon

Nixon approved decisions made at the February 14 NSC meeting, including designation of a Relief Coordinator not closely associated with the U.S. Government, and continuing to regard an ultimate Nigerian victory as best suited to U.S. interests.

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–20, NSC Meeting, Biafra, Strategic Policy Issues 2/14/69. Top Secret; Sensitive. Sent for action.


47. Letter from the Secretary-Treasurer of Joint Church Aid-U.S.A., Inc. (Kinney) to the Special Coordinator on Relief (Ferguson)

Kinney expressed hope that one of Fergusonʼs first acts would be to ask the Nigerian Government to cease attacking relief planes making night flights into Uli airstrip.

Source: National Archives, RG 59, Records of the Special Coordinator on Relief to Civilian Victims of the Nigerian Civil War, February 1969 -June 1970, Lot 70 D 336, Box 517, D-13 Voluntary Agencies Joint Church AID. No classification marking. Copies were sent to Bishop Edward E. Swanstrom, James MacCracken, and Rabbi Marc Tanenbaum.


48. Memorandum of Conversation

According to this draft memorandum, French Foreign Minister Michel Debri emphasized Franceʼs support for Biafra on moral and political grounds while Secretary of State William Rogers stressed the necessity for humanitarian relief on both sides.

Source: National Archives, RG 59, Conference Files 1969–1972, Box 484, Presidentʼs Trip to Europe 2/23–3/2/69, Chronology, Memcons—Vol. I of VIII. Secret. The conversation took place in the Grand Trianon.


49. Telegram 2010 from the Embassy in Nigeria to the Department of State

Mathews reported that he told Commissioner for External Affairs Arikpo he had been instructed to discuss Nigerian Air Force bombing of civilians in rebel territory. Arikpo said it was not policy or intent of the federal military government to harm civilians and that the government was tightening controls over the Nigerian Air Force to minimize casualties.

Source: National Archives, RG 59, Central Files 1967–69, POL 27 Biafra-Nigeria. Secret; Priority. Repeated to Addis Ababa, Cotonou, London, Ottawa, Paris, Yaounde, USUN, and Geneva.


50. Telegram 36410 From the Department of State to the Embassy in Nigeria

The Department reported on Assistant Secretary of State Joseph Palmerʼs meeting with Nigerian Information Commissioner Anthony Enahoro. They discussed U.S. humanitarian policy, bombing of civilians and relief aircraft, assistance to Relief Coordinator Clyde Ferguson, protection of Ibos, Soviet influence in Nigeria, and delays in Nigerian visa issuances.

Source: National Archives, RG 59, Central Files 1967–69, POL 7 Nigeria. Confidential. Repeated to London, Geneva, Paris, and Cotonou. Drafted by R.J. Wach (AF/W), cleared by Palmer, and approved by Melbourne.


51. Memorandum From the Presidentʼs Assistant for National Security Affairs (Kissinger) to President Nixon

[4 pages not declassified in time for publication.]

Source: National Archives, Nixon Presidential Materials, NSC Files, Presidential Correspondence-1969–1974, Box 763, United Kingdom: Prime Minister Wilson Correspondence #9. Secret. Sent for action.


52. Telegram 2674 From the Embassy in Nigeria to the Department of State

The Embassy reported on Special Coordinator Clyde Fergusonʼs mission, including his meetings with Lieutenant Colonel Ojukwu, Military Governor of the Eastern Region of Nigeria, and Major General Gowon, Chairman of the Supreme Military Council of Nigeria. Ojukwu objected to daylight relief flights but supported a new airstrip, which Ferguson would not support. Gowon noted that Ojukwuʼs position blocked relief efforts. Ferguson told Gowon that civilian bombing had unified Ibo resistance.

Source: National Archives, RG 59, Central Files 1967–69, POL 27–9 Biafra-Nigeria. Confidential; Immediate. Repeated immediate to Addis Ababa. Also repeated to Geneva and USUN.