Foreign Relations of the United States, 1977–1980, Volume II, Human Rights and Humanitarian Affairs

276. Memorandum From the Special Representative for Economic Summits (Owen) to Secretary of State Muskie¹

Washington, August 4, 1980

SUBJECT

• US Initiative to Relieve African Famine

An extraordinary international effort is needed to avert extensive starvation in drought-afflicted parts of Africa and to continue aid to East African refugees. This memorandum proposes a US initiative to this end, which has been cleared in State, IDCA, AID, USDA, OMB and NSC. The announcement of this initiative could be made by the President or you; Jack Watson, Al McDonald and Phil Wise recommend that you should be the spokesman. If you agree, I hope that you will authorize State to issue the announcement at Tab A² and to take necessary follow-up action.

Background

Drought is threatening to ruin a second successive growing season in almost all of Eastern Africa and in parts of Western Africa. The prospect is for widespread famine among millions of Africans whose normal lot is malnutrition. This tragedy is likely to dominate the news from Africa this Fall and to induce popular concern by religious and charitable organizations and friends of Africa in the United States.

USDA now estimates that the East African countries face an abnormal cereal import need in the next 12 months of 800,000 to 1,400,000 tons—additional to their 1979–80 import levels. Our PL–480 program can cope with only part of this estimated need: about 150,000 tons from the FY 80 supplemental just received and 200,000–300,000 tons from the pending FY 81 appropriation, in addition to previously planned food aid to these countries. Other donors, including rich OPEC countries as well as Europe, Japan and Canada, must be enlisted to provide the balance.

We have explored with Director General Saouma of the UN Food and Agriculture Organization and other food aid donors the idea of Saouma’s calling an emergency conference to start organizing a coordinated aid program. Their responses encourage us to proceed. The emergency conference would also help to broaden international participation in relief for Eastern African refugees next year. International aid pledges have met their minimum food needs this calendar year, but continuing drought will strain both local and global resources for refugee feeding next year.

Your announcement that the US is asking Saouma to call this conference would serve to give it wide public notice and would foreclose possible domestic criticism of indifference to a serious humanitarian problem.³

Recommendation

That you announce that the US Government is asking the FAO to convene an emergency meeting of countries and international agencies interested in jointly providing food and other relief to millions of Africans facing famine in drought-afflicted countries, and authorize necessary follow-up action by the appropriate State Department staff. (State, Agriculture, IDCA, AID, OMB and NSC concur.)⁴

1. Source: National Archives, RG 59, Policy and Planning Staff—Office of the Director, Records of Anthony Lake, 1977–1981, Lot 82D298, Box 6, TL 8/1–15/80. Confidential. Sent for action. A notation on the memorandum indicates that it was received in S/S–I at 9:45 a.m. on August 6. Another handwritten notation on the memorandum reads: “Action changed at request of Ray Seitz to AF/SP.” Attached as Tab 2 to an August 7 briefing memorandum from Lake to Christopher outlining subjects for discussion at Christopher’s August 8 lunch with Owen and Ehrlich.
2. Attached but not printed is an undated announcement entitled “International Action to Relieve Famine in Africa.”
3. In his August 7 briefing memorandum to Christopher, Lake suggested that Christopher inform Owen that the regional bureaus, S/P, IDCA, and USDA “have recommended that the Secretary announce this US initiative in his speech to the UNGA Special Session, on August 25.” Lake added, “This initiative fits nicely with the general speech theme of mutual responsibility and the special emphasis on increasing food and energy production in the LDCs (which Tom [Ehrlich] strongly favors).”
4. Muskie did not approve or disapprove the recommendation. In his August 25 speech to the 11th Special Session of the UN General Assembly, he made the following announcement: “Our most urgent task is to confront the specter of imminent famine haunting Africa. This summer alone the United States has provided an additional 235,000 tons for emergency Africa food relief. We strongly urge that all nations able to contribute foodstuffs or funds join under the leadership of the Food and Agriculture Organization to coordinate relief to drought-afflicted regions. I am happy to note that the Director General will convene a meeting of concerned governments and international organizations in the coming weeks.” (Department of State Bulletin, October 1980, p. 77) At a meeting of donor countries and international organizations in Rome on September 20, Saouma announced that the United States, Denmark, Norway, the Netherlands, Australia, West Germany, Switzerland, France, and Algeria had made cash or food aid contributions. (Sari Gilbert, “U.S., 8 Others Pledge Emergency Food Aid to Africa, The Washington Post, September 20, 1980, p. A–16)