JFK Lancer - President John F. Kennedy News and Research

Introduction to National Security Action Memorandum Number 273
By Greg Burnham

Part One: “The DRAFT”

Perhaps the most powerful evidence indicating that select Senior Administration Officials and Senior Military personnel may have had foreknowledge of the plot to assassinate the 35th President of the United States, John Fitzgerald Kennedy, is found in the DRAFT of National Security Action Memorandum (NSAM) Number 273. There are several smoking guns, but the one that initially stands out as the most obvious is the date of the DRAFT, which was subsequently signed by McGeorge Bundy, Special Assistant to the President for National Security. The DRAFT was written and dated November 21st, 1963 less than 24 hours before the assassination. It was ostensibly the result of the meetings that took place the previous day at the Honolulu Conference. The text of the DRAFT of NSAM 273:

11/21/63
DRAFT

TOP SECRET

NATIONAL SECURITY ACTION MEMORANDUM NO. __________

The President has reviewed the discussions of South Vietnam which occurred in Honolulu, and has discussed the matter further with Ambassador Lodge. He directs that the following guidance be issued to all concerned:

            1.            It remains the central object of the United States in South Vietnam to assist the people and Government of that country to win their contest against the externally directed and supported Communist conspiracy. The test of all decisions and U.S. actions in this area should be the effectiveness of their contribution to this purpose.
            2.            The objectives of the United States with respect to the withdrawal of U.S. military personnel remain as stated in the White House statement of October 2, 1963.
            3.            It is a major interest of the United States Government that the present provisional government of South Vietnam should be assisted in consolidating itself and in holding and developing increased public support. All U.S. officers should conduct themselves with this objective in view.
            4.            It is of the highest importance that the United States Government avoid either the appearance or the reality of public recrimination from one part of it against another, and the President expects that all senior officers of the Government will take energetic steps to insure that they and their subordinates go out of their way to maintain and to defend the unity of the United States Government both here and in the field.
                        More specifically, the President approves the following lines of action developed in the discussions of the Honolulu meeting of November 20. The office or offices of the Government to which central responsibility is assigned is indicated in each case.
            5.            We should concentrate our own efforts, and insofar as possible we should persuade the Government of South Vietnam to concentrate its efforts, on the critical situation in the Mekong Delta. This concentration should include not only military but political, economic, social, educational and informational effort. We should seek to turn the tide not only of battle but of belief, and we should seek to increase not only our control of land, but the productivity of this area wherever the proceeds can be held for the advantage of anti-Communist forces.
(Action: The whole country team under the direct supervision of the Ambassador.)
            6.            Programs of military and economic assistance should be maintained at such levels that their magnitude and effectiveness in the eyes of the Vietnamese Government do not fall below the levels sustained by the United States in the time of the Diem Government. This does not exclude arrangements for economy on the MAP account with respect to accounting for ammunition and any other readjustments which are possible as between MAP and other U.S. defense resources. Special attention should be given to the expansion of the import distribution and effective use of fertilizer for the Delta.
(Action: AID and DOD as appropriate.)
            7.            With respect to action against North Vietnam, there should be a detailed plan for the development of additional Government of Vietnam resources, especially for sea-going activity, and such planning should indicate the time and investment necessary to achieve a wholly new level of effectiveness in the field of action.
(Action: DOD and CIA)
            8.            With respect to Laos, a plan should be developed for military operations up to a line up to 50 kilometers inside Laos, together with political plans for minimizing the international hazards of such an enterprise. Since it is agreed that operational responsibility for such undertakings should pass from CAS to MACV, this plan should provide an alternative method of political liaison for such operations, since their timing and character can have an intimate relation to the fluctuating situation in Laos.
(Action: State, DOD and CIA.)
            9.            It was agreed in Honolulu that the situation in Cambodia is of the first importance for South Vietnam, and it is therefore urgent that we should lose no opportunity to exercise a favorable influence upon that country. In particular, measures should be undertaken to satisfy ourselves completely that recent charges from Cambodia are groundless, and we should put ourselves in position to offer to the Cambodians a full opportunity to satisfy themselves on this same point.
(Action: State)
            10.            In connection with paragraphs 7 and 8 above, it is desired that we should develop as strong and persuasive a case as possible to demonstrate to the world the degree to which the Viet Cong is controlled, sustained and supplied from Hanoi, through Laos and other channels. In short, we need a more contemporary version of the Jordan Report, as powerful and complete as possible.
(Action: Department of State with other agencies as necessary.)

McGeorge Bundy

Although it's true that there was a significant political change in South Vietnam as a result of the assassination of the Diem brothers, which took place about 3 weeks after the signing of NSAM 263, there remains no evidence that the coup altered Kennedy's withdrawal plan. The following CABLE was sent nearly 2 weeks AFTER the coup had occurred. It directs what the AGENDA of the Honolulu Conference would be, including discussions consistent with NSAM 263. Most notably, it says:

"(2) MILITARY, INCLUDING REPORT ON PROGRESS IN ACCOMPLISHMENT OF TASKS ASSIGNED AS A RESULT OF THE MCNAMARA, TAYLOR MISSION, AND OUTLINING PLANS FOR CONTROL OF INFILTRATION AND SPECIAL REQUIREMENTS OF THE DELTA CAMPAIGN."

Again note that the ONLY portion of the McNamara-Taylor (Mission) Report that was approved by JFK was the part recommending a complete withdrawal of the bulk of all US personnel by the end of 1965. There is no indication in this cable that he had changed his mind or that he was re-considering his earlier decision--not even in light of the changed political situation in South Vietnam. That the conference spawned the DRAFT of NSAM 273 while JFK was still the POTUS remains a disturbing and inadequately addressed chapter in American History.

In order to appreciate the actual content of the November 20th Honolulu Conference itself one might consult the official record. Unfortunately, the STATE Department's account also appears grossly lacking in relevant content.

After reviewing the The Foreign Relations of the United States 1961-63 Volume IV August - December 1963 documents referencing the memorandum from the Honolulu Conference of November 20th, 1963, I made the following observations:

Each and every instance where any mention is made of the then current US plan to withdraw from Vietnam by the end of 1965 (in other words, any reference to Kennedy's NSAM 263 and/or the relevant section from the McNamara-Taylor Report) a conspicuous lack of notation exists. Moreover, (by my count) the withdrawal plan is mentioned ONLY thrice in the entire memorandum of the Honolulu Conference! On those three occasions, the bulk of the content of what was discussed is NOT included in the FRUS Volume, only that "it" was, in fact, discussed. Save for a few very brief paragraphs, we learn nothing from this so-called official record. Yet, many apparently less urgent aspects of our presence in Vietnam were discussed in depth and are included in the memorandum--in great detail.

For instance, the first of the three times "withdrawal" is mentioned, appears on page 610:

[QUOTE]
Finally, as regards all U.S. programs--military, economic,
psychological--we should keep before us the goal of setting dates for phasing
out U.S. activities and turning them over to the Vietnamese; and these dates,
too, should be looked at again in the light of the new political situation. The
date mentioned in the McNamara-Taylor statement of October 2 on U.S. military
withdrawal had--and is still having--a tonic effect. We should set dates for
USOM and USIS programs, too. We can always grant last-minute extensions if we
think it wise to do so. [END]

Then on page 618:

[QUOTE]
Item B 2--Prospects and measures proposed by Country Team for improved
prosecution of the war under the new government (Military, including a report on
progress in accomplishment of tasks assigned as a result of the McNamara-Taylor
Mission, and outlining plans for control of infiltration and special
requirements for the Delta Campaign) [END]

The last paragraph of the entire memorandum reads thusly (page 624):

[QUOTE] Here follows discussions of Item C 1, "Revision of Military Comprehensive
Plan;" Item C 2, "Status Report of FY 64 MAP;" Item D, "Outline in terms of
forces, timing and numbers involved, the projected program for reduction U.S.
military forces by end FY 65;" and Item E, "Country Team suggestions for
revision of current reports to develop a consolidated country team reporting
system."[END]
...

Yet, there is nothing recorded about the "discussion that here follows..." at all in the FRUS Volumes! The next entry in the FRUS is for 8:00am on the morning of November 22nd 1963, where Bundy is presiding over the Daily White House Staff meeting.

I find this significant for several reasons. Again, in the joint State - Defense Department Cable of November 13, 1963 regarding the agenda for the Honolulu Conference, among other things: the attendees were directed to discuss certain military matters, namely, the implementation of the items from the McNamara-Taylor Report that were APPROVED by the President (JFK), i.e., withdrawal by the end of 1965.

Yet, according to the FRUS Volume IV, out of approximately 16 PAGES that were published by STATE to memorialize the memorandum from the Honolulu Conference, only 3 small paragraphs were dedicated to what should have constituted the MAIN military discussion, as withdrawal would have been a huge logistical challenge needing immediate attention.

That the FRUS Volume fails to provide the content of the discussions that ostensibly led to McGeorge Bundy writing a DRAFT of a document that was in clear opposition to JFK's policy is very troubling.

Honolulu Conference Cable:

EUW020

RR RUEPWW

DE RUEPCR 129 13/1958Z 1963 NOV 13

R 131957Z

FM DA

INFO WHITE HOUSE

PO 1707Z
FM OSD

TO CINCPAC

COMUSMACV

AMENB SAIGON

DEF 944589 FROM OSD

THIS IS A JOINT STATE-DEFENSE MESSAGE

1. SECRETARY RUSK AND SECREARY MCNAMARA PLAN ONE-DAY CONFERENCE PACOM HQ 20 NOV 1963. THEY INVITE COMMENTS AMB LODGE ADM FELT AND GENERAL HARKINS ON FOLLOWING PROPOSED AGENDA:

A. COUNTRY TEAM REVIEW OF SITUATION:

(1) POLITICAL

(2) MILITARY

(3) ECONOMIC

(4) PROVINCE SUMMARIES

PRESENTATION NOTE: A (1), (2) AND (3) SHOULD HIGHLIGHT OVERALL SITUATION.
A (2) SHOULD INCLUDE A REVIEW OF STATISTICAL INDICATORS WITH INTERPRETATION AND NOTE OF TRENDS. UNDER A (4) LIST NAMES OF PROVINCES NI WHICH SITUATION IS NOT CRITICAL AND ABOUT WHICH NO MORE NEED BE SAID. FOR REMAINING PROVINCES, BRIEFLY SUMMARIZE THE POLITICAL, ECONOMIC, AND MILITARY SITUATION IN EACH PROVINCE.

B. PROSPECTS AND MEASURES PROPOSED BY COUNTRY TEAM, FOR IMPROVED PROSECUTION OF THE WAR UNDER THE NEW GOVERNMENT:

(1) POLITICAL, INCLUDING POSSIBILITY OF IMPROVED RELATIONS WITH NEIGHORING STATES.

(2) MILITARY, INCLUDING REPORT ON PROGRESS IN ACCOMPLISHMENT OF TASKS ASSIGNED AS A RESULT OF THE MCNAMARA, TAYLOR MISSION, AND OUTLINING PLANS FOR CONTROL OF INFILTRATION AND SPECIAL REQUIREMENTS OF THE DELTA CAMPAIGN.

(3) ECONOMIC, INCLUDING ANALYSIS OF GVN ECONOMY. MILITARY AND TOTAL BUDGET EXPENDITURES. MEASURES PROPOSED TO SOLVE GVN BUDGETARY PROBLEMS AND PROBLEMS OF US AID IN FY64 AND 65.

(4) STRATEGIC HAMLET PROGRAM - ASSESSMENT OF AND FURTHER REQUIREMENTS FOR THE PROGRAM.

C. STATUS REPORT ON FY64 MAP AND REVISION OF THE MILITARY COMPREHENSIVE PLAN AND ASSOCIATED COUNTRY TEAM PLANS.

D. OUTLINE IN TERMS OF FORCES, TIMING, AND NUMBER INVOLVED, THE PROJECTED PROGRAM FOR REDUCTION OF US MILITARY FORCES BY END OF CY 1965.

E. COUNTRY TEAM SUGGESTIONS FOR REVISION OF CURRENT REPORTS TO DEVELOP A CONSOLIDATED COUNTRY TEAM REPORTING SYSTEM AS A SUPPLEMENT TO THE ESSENTIUAL INDIVIDUAL POLITICAL, MILITARY, AND ECONOMIC REPORTS. REPORTING SHOULD BE DESIGNED SPECIFICALLY TO IDENTIFY THE OVER-ALL COUNTERINSURGENCY OBJECTIVES AND TO MEASURE PROGRESS TOWARD THEIR ATTAINMENT.

F. CAS-MACV RELATIONSHIPS:

(1) PLANS FOR REDUCTION IN NUMBER AND COMPLEXITY OF IRREGULAR FORCES, AND FOR THE ABSORPTION OF THEIR FUNCTIONS INTO THE REGULAR MILITARY STRUCTURE.

(2) RESPONSIBILITY FOR COMBAT INTELLIGENCE TEAMS AND FOR CONDUCT OPERATIONS IN NORTH VIETNAM AND LAOS.

(3) CURRENT STATUS OF TRANSFER BORDER SURVEILLANCE TEAMS.

(4) REVIEW OF FUNDING REQUIREMENTS AND ARRANGEMENTS.

2. TENTATIVE TRAVEL ARRANGEMENT AND LIST OF PARTY. WASHINGTON PARTY WILL DEPART ANDREWS AFB IN TWO PLANES. FIRST PLANE DEPARTS 1630 WASHINGTON TIME, 19 NOV. ARRIVES HICKAM 2200 WITH FOLLOWING PASSENGERS: SECRETARY MCNAMARA, GENERAL TAYLOR, ASD (PA) A. SYLVESTER, DASD (ISA) W. BUNDY, AID ASST. S. JANOW, VADM RILEY, MGEN V. KRULAK, DIR SEA AFFAIRS H. KOREN, COL J. KENT AND LCOL S BERRY CWO PROCTOR.

SECOND PLANE PARTS 0030 WASHINGTON TIME, 20 NOV, ARRIVES HICKAM 0600 WITH FOLLOWING PASSENGERS: SECRETARY RUSK, AID ADMINISTRATOR D. BELL, SPEC ASST MCGEORGE BUNDY, PRESS SECRETARY P. SALINGER, ASST SECR. HILSMAN, ASST SECR. MANNING, MR M. FORRESTAL, SPEC ASST E. LITTLE, OIC VN AFFAIRS P. KATTENBURG, MRS ROTHE AND A STATE SECURITY OFFICER.

DIRECTOR OF CIA J. MCCONE WILL ARRIVE COMMERCIAL AIRCRAFT.

THOSE RETURNING TO WASHINGTON WILL DEPART HONOLULU IMMEDIATELY FOLLOWING CONCLUSION CONFERENCE. SECRETARY RUSH AND NSC PARTY WILL DEPART HONOLULU AT 0820, 22 NOVEMBER FOR ONWARD FLIGHT TO JAPAN.

3. VIP KIT EQUIPPED C-135 WILL BE MADE AVAILABLE FOR AMB LODGE AND GEN HARKINS. PLANE SEATS 12 WITH BERTHS FOR 11. WHEN SHOULD IT BE IN PLACE? INDICATE ETA HAWAII. FLIGHT TIME SAIGON-HONOLULU IS 12 HOURS.

4. SECRETARY RUSK, SECRETARY MCNAMARA AND GENERAL TAYLOR DESIRE 30-MINUTE CONFERENCE WITH AMB LODGE, ADM FELT, AND GEN HARKINS PRIOR TO FORMAL SESSION.

GRP4

[HANDWRITTEN CORRECTIONS ON COPY OF ACTUAL CABLE: NOTE SECOND PLANE DEPARTURE FROM WASHINGTON AT 0200 INSTEAD OF 0030, AND ARRIVAL AT HICKAM 0730 INSTEAD OF 0600.]

SOURCE: JFK Library JFK National Security Files 1961-1963, Box 202 Country Files: Vietnam, Vol XXIV, 6-15 November, 1963 Defense Cables] [emphasis added]

This work was presented by Gregory at the 2010 COPA Conference in Dallas. The presentation is in two parts.
Video links:

Part one: http://vimeo.com/17699759 Part two: http://vimeo.com/17700009

Important Links:

See Gregory Burnham's Introduction to NSAM 263