AIR AMERICA - LPI NO. 96507 AIR ASIA - 96508 PACIFIC CORP. - 96509

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP76-00702R000200080001-8
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 21
• Document Creation Date: December 16, 2016
• Document Release Date: November 29, 2004
• Sequence Number: 1
• Publication Date: October 31, 1973
• Content Type: MF

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THE RENEGOTIATION BOARD
DATE
TO
FROM
SUBJECT:
October 31, 1973
W.S. Whitehead
Chairman
General Counsel
Air America - LPI No.
96507
Air Asia -
96508
Pacific Corp. -
96509
Subject companies have failed to file renegotiation
reports for fiscal years ended 1966 through 1973. In
prior years (1952 - 1966), Air America, Inc., and its
predecessor, Civil Air Transport, Inc. (CAT), were granted
an exemption under Section 106(d)(1) of the Renegotiation
Act of 1951, as amended, and RBR 1455.2(d). The five DOD
requests were exempted in whole or in part by the Board,
on an after-the-fact basis. See attachment 1. Pacific
Corp. has never filed a renegotiation report; nor has Air
Asia which is 99 percent owned by Air America, Inc., and
is incorporated in Formosa. We are advised that Air Asia
performs the major part of Air America's business as a
subcontractor.
Section 106(d)(1) of the Act on which these exemptions
were requested and granted provides:
(d) Permissive Exemptions.--The Board is
authorized, in its discretion, to exempt from
some or all of the provisions of this title--
(1) any contract or subcontract to be perform-
ed outside the territorial limits of the con-
tinental United States or Alaska. . . .
RBR 1455.2(d) on which DOD has relied and the exemption
was granted prior to 1966 provides:
(d) Specific exemption of prime contracts
RBF-37 INTEROFFICE MEMO
4-70 fl J
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and subcontracts.--The Board has exempted
and will in the future exempt individual
prime contracts or subcontracts, or the
prime contracts or subcontracts related to
a particular authorized procurement program,
when such prime contracts or subcontracts
are to be performed outside the territorial
limits of the continental United States or
in Alaska, and when the Department responsi-
ble for procurement establishes to the
satisfaction of the Board that (1) the prime
contracts or subcontracts .involved in the re-
quest are to be placed with foreign nationals
or foreign corporations whom it is not practi-
cable to subject to renegotiation; (2) the
provisions of the prime contracts or subcon-
tracts are otherwise sufficient to prevent
excessive profits; (3) the program is of
direct and immediate concern to the defense
of the United States and refusal to grant the
exemption would jeopardize the success of the
program; or (4) the contract or group of
contracts should be exempted from any combina-
tion of the foregoing reasons or for any other
reason. Prime contractors or subcontractors
who believe that their prime contracts or
subcontracts should be exempted under this pro-
vision should address their requests to the
Departments entering into the prime contracts
involved.
Air America, Inc., Air Asia, Inc. and Pacific Corpora-
tion have been formally notified to submit RB-1's for 1966
through 1973. Their time for filing has been extended
twice to October 16, 1973 based on the oral requests of Mr.
John S. Warner, Acting General Counsel, CIA.
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Mr. Warner has addressed a SECRET letter dated 12
September 1973 to the Chairman advising:
1. . . Air America, Inc. is wholly owned
by Pacific Corp. whose stock is entirely
owned by the Central Intelligence Agency.
2. . . the Central Intelligency Agency. . .
has decided to divest itself of Air
America and its subsidiary, Air Asia.
. . .It is anticipated that this sale
will be concluded by 31 December 1973.
3. With approximately $23 million in re-
tained earnings, these. . .cash assets
will be transferred to the holding
company, The Pacific Corporation, and
then refunded to the U.S. Government.
No money will accrue to the benefit of
any individual. The Appropriations
Committee of the Senate and House and
OMB are aware of the details of the pro-
posed disposition of those funds.
In the letter the CIA makes several arguments against
renegotiation stating:
1. Subjecting Air America contracts to rene-
gotiation procedures would be counter pro-
ductive and not in the best interests of
the United States.
2. A company which is wholly owned by an
agency of the United States cannot have
its excessive profits eliminated and re-
covered by the United States.
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3. There are no excessive profits within
the meaning and intent of the Renegotia-
tion Act.
4. The cost of performing the necessary re-
ports for the years 1966 through 1973
would require time-consuming and expensive
examination of records. . .with no possible
benefit to the Government.
5. Requesting renegotiation at this point
". .can only complicate the sale of Air
America and result in a net loss to the
Treasury."
By letter dated 24 September 1973, Terence E. McClary,
Assistant Secretary of Defense Comptroller, requested the
Chairman to exempt the military departments contracts for
the years subsequent to June 30, 1966 under section 106(d)
(1) of the Act and section 1455.2(d) of the regulations,
stating the following:
1. The conditions under which the contracts
were performed remained the same as prior
years in which the exemption was granted.
2. The exemption was appropriate for the
same reasons on which it was previously
granted being performed outside the
territorial limits of the continental
United States.
3. The program is of direct and immediate
concern to the defense of the United
States, and
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4. . . Renegotiation would jeopardize sec-
recy required in the public interest.
Office of General Counsel comments:
There are several aspects of this problem which need
identification and consideration.
1. While the prior exemptions made on an after-the-fact
basis have created some precedence which the Board may con-
sider as controlling (the Board's records are silent on any
rationale for these past actions after-the-fact), this Board
is entitled to review the matter in whatever detail they
consider necessary to satisfy themselves of the propriety of
granting an exemption after-the-fact, or proceeding with the
requirement for filing the required reports.
It should be noted that in 1971 the Board under section
106(d)(1) of the Act and RBR 1455.2(d) permitted after-the-
fact exemptions to MSC in the case of the Norwegian ships
for prior years 1967 and 1968 even after the regional board
issued unilateral orders against the four companies.
2. Under the broad language in section 106(d)(1)
(cited above) the Board has sufficient authority to exempt
the contractors ". . from some or all of the provisions of
this title. . . ." Specifically ". . any contract or sub-
contract performed outside the territorial limits of the con-
tinental United States. . . ." (But, see paragraph 3
following.) Under the Board's regulation 1455.2(d) this
broad authority is detailed for the specific reasons now
relied on by CIA and DOD. The section further provides
that ". . .(4) the contract, or group of contracts should
be exempted for any combination of the foregoing reasons or
for any other reason." The above is the basic thrust of
SECRET
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CIA and DOD's legal argument and will be considered by the
Justice Department as carrying great weight if we requested
them to proceed criminally under section 105(e)(1) of the
Act and RBR 1470.2 and 1499.2-20. This presents a practical
problem which could affect the success of the Board's action
in proceeding against the contracts under those sections of
the Act and regulations.
3. We have been orally advised that the performance
of all of the contracts during the years in question was
outside the territorial limits of the continental United
States. Section 1455.2(c-1)(2) provides that the exemption
requested by DOD will apply only if the contract and subcon-
tracts are "wholly performed outside the United States by
any person who is not engaged in a trade or business in the
United States. . . ." Specifically this relates to ". .
air transportation or cargo carriage from any point in the
United States to a point outside the United States, or vice
versa."
In spite of the written assertions of DOD that all the
contracts were performed outside the territorial limits of
the United States, a review of the DOD contract tab runs
discloses that in GFY 1972, ten contracts were awarded in
Washington, D.C. for a total $52,000. If this is true,
certainly for the GFY in question (which may include two
company fiscal years), the exemption would not be permitted
by RBR 1455.2(c-1). This could be explored specifically
with DOD in our reply to their requested exemption. The
Board has in the past construed the requirement for operating
wholly. outside the United States as having some significance.
However, in the Norwegian shipping cases, decided by the
Board in 1971, even though there was actual contact with the
territorial United States, MSC was granted the exemption
SECRET
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under RBR 1455.2(d)3. At the time the contracts were be-
ing performed (1967 - 1968), the program was considered to
be of direct and immediate concern to the defense of the
United States and a refusal to grant the exemption alleged
by MSC to jeopardize the success of the program. It should
be noted that this Board decision was made on August 10,
1971.
Recommendations:
Considering the extreme sensitivity of the situation
and the practicability of obtaining Department of Justice
support to prosecute Air America as a recalcitrant, partic-
ularly when the sale of Air America is in process, another
approach is recommended.
1. The Board should enter into detailed discussions
with DOD and CIA to assure fully that the contractor is en-
titled to the exemption under RBR 1455.2(d).
2. The Board should hold the award of the requested
exemption until it has been fully satisfied that the sale
of Air America's assets was proper and that all the retained
earnings and moneys received from the sale were refunded to
the United States Government.
25X1
General Counsel
Attachment
As stated
SE ET
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AIR AMERICA INC.'s REQUESTS FOR EXEMPTION
Requested
Granted
Years covered by request
April 10, 1956
1952, '53, 154, 155 and '56
May 15, 1958
May 11, 1958
1957 and '58
October 20, 1959
October 23, 1959
1959 through June 30, 1962
March 22, 1963
April 3, 1963
June 31, 1962 through June
30, 1964
May 16, 1966
May 24, 1966
July 1, 1964 through June
30, 1966
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June 16, 1976
Acting General ounse
Central Intelligence Agency
Washington, D.C. 20505
This letter is with reference to your letter dated May
7, 1976, concerning the renegotiability of contracts
held by Air America, Inc.
This will advise you that pursuant to Section 106(d)
(1) of the Renegotiation Act of 1951, as amended, and
? 1455.2(d) of the Board's regulations, the Board has
exempted from renegotiation all contracts between Air
America, Inc., and the Department of Defense and its
constituent Military Departments, for the period April
1, 1973 through June 30, 1975, inclusive.
A copy of a letter, dated June 16, 1976, from the Sec-
retary to the Board to Air America, Inc., notifying
the contractor of the Board's action is enclosed here-
with.
Sincerely yours,
'
R.C.
Holmquist
Chairman
Enclosure
As stated
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Air ik rica, Inc.
1725. Street, L.
~'ashin,tcnx, #L, 20006
E:ttent ion; Lr. Clyde S. garter
Senior Vice ?resid t
Cent semen :.
This will advise you that -)..irsuant to Section
1J6(-_1;(i.; of the negotiation i.ct of 1951, as
amended, and S 1455.20) of the . guard's re .iatians,
the hoard has exempted from renegotiation all con-
tracts between I it ,nter# ea, Inc. and the :. paartuient
of o eferise and its constit~..t+ent Military ,epsrtsrents
for the period Aril 1, 1973 through June 33, 1975,
inclusive.
Sincerely yours,
.e lvir. d. ickinson
Secretary to the t3oard
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CRAL INTELLIGENCE AGENCY
OGC 76-2395
7 May 1976
STAT
Honorable Richard C. Holmquist
Chairman, Renegotiation Board
2000 "M" Street, N.W.
Washington, D.C. 20446
Dear Mr. Holmquist:
The purpose of this letter is to advise you of our opinion that the
receipts and accruals from all contracts between Air America, Inc. and
the Department of Defense and its military departments are not subject
to the Renegotiation Board. These contracts have previously been
exempted by the Board for the period 1 July 1952 through 30 June.1974
pursuant to ? 106 (d) (1) of the Renegotiation Act of 1951, as amended,
and Part 1455.2(d) of the Regulation of the Board.
Air America, Inc. has been a wholly-owned subsidiary of the
Pacific Corporation whose shares of stock have been held in trust for
this Agency. Air America, Inc. filed for dissolution with the State of
Delaware on 1 April 1976. The Pacific Corporation filed for dissolution
with the State of Delaware on 15 April 1976. Retained earnings of the
corporations have been returned to the Treasury of the United States,
as miscellaneous receipts. All further receipts received from the sale
of assets and capital will be returned to the Treasury of the United
States. Air America, Inc. ceased its flying operations on 28 April 1975.
Please confirm that the receipts and accruals of these contracts
are not subject to renegotiation. Therefore, there will be no further
renegotiation filings required from Air America, Inc. since their last
exemption expired on 30 June 1974. This letter is considered an
advisory opinion between our two agencies and should be treated in
a confidential manner.
Sincerely,
.
cc: Air Advisor/DDA
Distribution:
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Acting General Counsel
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7 7~ Yt
OGC SUBJ: HB/ILKA case filed
Renegotation Board
April 28, 1975
John S. Warner
Acting General Counsel
Central Intelligence Agency
Washington, D. C. 20505
I am enclosing three (3) classified documents: (1) your
letter to the Board dated 12 September 1973 (Secret), (2) the
Board's reply to that letter dated October 9, 1973 (Secret), and
(3) Board General Counsel's memorandum to the Chairman
dated October 31, 1973 (Secret).
Because of the sensitive nature contained therein, these
Board documents are being placed in your custody with the under-
standing that should the Board in the future have need for any of
them, you will make them available to us through appropriate
channels. We are not retaining any internal documents on the
subject matter which we consider to fall within a sensitive category.
David M. F. Lambert
General Counsel
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October 9, 1973
Honorable 'illiam E. Colby
Director
Central Intelligence Agency
Nashington, D. C. 20505
Dear iyLr. Colby:
Receipt is acknowledged of letter of 12 September 1973,
fxo~r; :,fix. John S. Warner, your Acting General Counsel, and the
additional information he submitted in connection with the proceedings
to liquidate the assets of Air America, Inc. In response to Mr.
;Tarnerls verbal request, the Board has extended to October 16, 1973,
the time for filing RB-1's for Air America, Inc. and Pacific Corpora-
tion, for the years subsequent to their fiscal year ending 1966, and
each contractor has been advised that, in all likelihood, there will be
no further extensions. In addition, we are in receipt of a letter,
dated 24 September 1973, from the Department of Defense, Comptroller,
requesting exemptions under Section IC 6 (d) (1) of the Renegotiation Act
and Section 1455.2 (d) of the Renegotiation Board Regulations. A copy
of our reply is enclosed herewith.
The Board has carefully reviewed your request for exemption
for Air.4mierica, Inc. from the formal renegotiation process, as well
as the request of the Department of Defense for an exemption under
Section 106 (d) (1) of the Renegotiation Act of 1951, as amended. We
are also aware of your offer to discuss informally any phase of
Air America, Inc. Is and Pacific Corporation's operations in order to
provide full assurance that the retained earnings of Air America, Inc.
and Pacific Corporation will revert to the United States Government.
With full awareness of the above assurances, the Board has a
strong reluctance to grant the requested relief for a number of reasons,
all of which appear to it to be sound and determinative. First, the
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practice of subject contractors obtaining one or two year exemptions
was discontinued in 1966. The present Board is unaware of any
appropriate reason for the subsequent lack of compliance with the
Renegotiation Act and its regulations. The Board's files are devoid
of any formal or informal communications justifying the absence of
compliance since the 1966 year with the filing requirements or the
rationale for not making an application for an exemption.
Secondly, the alleged administrative effort and costs required
to file annual RB-1'9 for the years involved, during the period when
the sale of Air America, Inc. is being implemented, does not justify
providing after-the-fact exemptions for seven years under Section
106 (d) (1) which is neither contemplated by the Act or by our regulations.
Thirdly, the covert character of your agency's operations as they
affected Air America, Inc. should not now be the basis for permitting
the granting of after-the-fact exemptions. If Air America, Inc. 's
operations were in fact conducted as a legitimate business enterprise,
then the records of their operations should properly reflect their
renegotiable business and permit the formal filing of the RB-1's for
the years concerned. The Board finds it difficult to comprehend that
the financial data required by the filing is considered of such a classified
nature that it cannot be revealed, since these renegotiable sales as
reflected by contract numbers, dollar amounts and other data have been
made public through the normal procurement information channels.
Fourthly, subject contractors have complied with the Internal
Revenue Service requirements and have filed returns for the years in
question, copies of which the Board has obtained. Obviously, your
argument against the contractors ("wholly owned by an agency of the
United States * * *") following renegotiation procedures is without
foundation in view of their compliance will-L the Internal Revenue Code.
Lastly, the filing with the Board of the required information by
the contractors will have no adverse effect on the contemplated sale of
their physical assets. Any renegotiation liability so determined by the
Boardfor any fiscal year, will not inure to a prospective buyer of such
assets. Hence, our requirements will have no effect on the proposed
liquidation of the contractors' plant, property and equipment.
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Since the United States has ceased hostilities in the Far East
and the issue of National Defense in that area is not now involved,
the Board firmly believes that at this time it would not be in the
public interest to provide after the fact exemptions to the contractors
for their fiscal years 1967 through 1973. On the contrary, the Board
believes that it is in the best interests of the Government and the public,
that subject contractors file the required RB-i's for their fiscal years
noted above. It is very much hoped that your Agency will assure that
subject contractors file the required reports with this Board. Your
cooperation will be very much appreciated.
Sincerely,
6y. S. Whitehead
Chairman
Enclosure
cc: John S. Warner, Esq.
CENTRAL INTELLIGENCE AGENCY NOTICE TO RECIPIENT COURIER REC. NO. DATE SENT
DOCUMENT RECEIPT Sign and Return as Shown on Reverse Side /Q Oc / 73
SE~gER OF DOCU ENT~S) ROOM BLDG. DATE DOCUMENT(S) SENT
I`ve 4 % r X332 G o'41/ Al . 'a voT. 13
DESCRIPTION OF DOCUMENT(S) SENT
CIA NO. DOCUMENT DATE COPIES DOCUMENT TITLE ATTACHMENTS CLASS
/ear
-A Uloweo-
;AftA PC
RECIPIEN
ADDRESS OF RECIPIENT ~" SIGI
GChGraC (.UU~r~ P
ICE DATE OF RECEIPT
LLL~~er ~e' kws D~
'/C'
FORMI 615 USE PREVIOUS EDITIONS (33)
12-6
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CENTRAL INTELLIGENCE AGENOY
WASHINGTON, ?.C. 20505
12 September 1973
The Honorable William S. OW iteheao
Chairman
Renegotiation Board
Washington, D. C. 20446
As you have been advised orally, this is to confirm that Air
America, Inc. is wholly owned by the Pacific Corporation whose
stock is entirely owned by the Central Intelligence Agency. While
there has been considerable press speculation about the relationship
between the Agency and Air America, there has never been official
public confirmation of the ownership, and this fact is classified
SECRET.
In 1950 the Central Intelligence Agency was directed to acquire
the assets of Civil Air Transport, a partnership doing business on
the China mainland. It had been determined that it would be in the
interest of the United States to deprive the Chinese Communists of
these assets. Subsequent to their acquisition, a Delaware corpora-
tion was formed called Civil Air Transport, Inc. (CAT), which was
a predecessor to Air America, Inc. CAT performed many operational
assignments during the Korean War and subsequently in Southeast Asia,
both in Vietnam and Laos.
In view of the cease fire in South Vietnam and the pending
negotiations in Laos, the Central Intelligence Agency no longer re-
quires ownership of these air assets to meet its operational require-
ments and, therefore, has decided to divest itself of Air America and
its subsidiary, Air Asia. In order to proceed with this divestiture,
Dixon-Speas Aviation Consultants was hired to assess the value of
Air America as a going concern. Upon completion of its assess-
ment, a bidders' conference was conducted with those corporations
13Y
FED
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SCHEDULE 0
Ctr_ ,LIr rc S(1).(()) (:) ( is ; or wore) E
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interested in purchasing Air America at which time the interested
purchasers were invited to participate in an inspection tour of the
Air America facilities in the Far East. It is anticipated that this
sale will be concluded by 31 December 1973.
At the present time there is approximately $23, 000, 000 in
retained earnings listed as an asset of Air America. Upon sale of
the corporation, its cash assets will be transferred to the holding
company, the Pacific Corporation, and then returned to the U. S.
Government. No money will accrue to the benefit of any individual.
The Central Intelligence Agency has discussed this disposition of
these funds with the Appropriations Committees of the Senate and
House and with the Office of Management and Budget.
We believe that subjecting Air America contracts to renego-
tiation procedures would be counter-productive and not in the best
interests of the United States. Renegotiation of contracts with a
company wholly owned by an agency of the United States can in no
way help to carry out the declared policy of Congress in enacting
the Renegotiation Act, that excessive profits in defense contracts
be eliminated and recovered by the United States. Any profits
resulting from defense contracts performed by Air America accrue,
in any case, to the benefit of the United States. Accordingly, there
are no excess profits within the meaning and intent of the Renego-
tiation Act.
To require Air America to make the normal filings for
review and renegotiation of profits on its defense contracts would
require time-consuming and expensive examination of records by
both the Board and Air America with no possible benefit to the
Government. There may prove to be no excess profits. Even if
there should be, the amount recovered would only reduce the cash
assets to be returned to the Treasury upon liquidation. However,
in either case, the cost to Air America of preparing the renego-
tiation filings would further reduce the amount to be returned upon
liquidation. It seems to us that to require renegotiation can only
complicate the sale of Air America and result in a net loss to the
Treasury.
HUUE (
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As you know, CAT and its successor, Air America, have
previously been exempted from the requirement of renegotiation
upon successive requests of the Department of Defense. Air
America has continued to perform contractual agreements with
the military departments under the same conditions as before,
and we suggest that a waiver similar to those of the past be granted
upon a request by the Department of Defense, which it is anticipated,
you will receive at an early date.
In view of the circumstances described above, it is requested
that Air America contracts not be subject to renegotiation. We would
appreciate the Board's approving an exemption from filing for Air
America as authorized by statute and implementing regulations.
Very truly yours,
John S. Warner
Ac ing General Counsel
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BEST COPY
Available
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 CENTRAL INTELLIGENCE AGENCY
NOTICE TO RECIPIENT
COURIER REC. NO. DATE SENT
DOCUMENT RECEIPT Sig
n and Return as Shown on Reverse Side
SENDER OF DOCUMENT(S)
12 Sept 73
DATE DOCUMENT(S) SENT
Acting General Counsel
12 September 1 73
DESCRIPTION OF D
OCUMENT(S) SEN
T
CIA NO.
DOCUMENT DATE
COPIES
DOCUMENT TITLE
ATTACHMENTS,
CLASS
9/12/73
Orig.
73-1713
None
S
RECIPI
ENT
ADDRESS OF RECIPIENT
SIGNATURE (ACKNOWLEDGING RECEIPT OF ABOVE DOCUMENT(S))
Renegotiation Board
2000 "M" Street, N. W .
Washington, D. C. 20446
OFFICE
DATE OF RECEIPT
FORM
USE PREVIOUS
EDITIONS
615
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