Operation Menu was a covert United States
Strategic Air Command
Strategic Air Command (SAC) was a United States Department of Defense Specified Command and a United States Air Force (USAF) Major Command responsible for command and control of the strategic bomber and intercontinental ballistic missile compon ...
(SAC)
tactical bombing
Tactical bombing is aerial bombing aimed at targets of immediate military value, such as combatants, military installations, or military equipment. This is in contrast to strategic bombing, or attacking enemy cities and factories to cripple ...
campaign conducted in eastern
Cambodia
Cambodia, officially the Kingdom of Cambodia, is a country in Southeast Asia on the Mainland Southeast Asia, Indochinese Peninsula. It is bordered by Thailand to the northwest, Laos to the north, and Vietnam to the east, and has a coastline ...
from 18 March 1969 to 26 May 1970 as part of the
Vietnam War
The Vietnam War (1 November 1955 – 30 April 1975) was an armed conflict in Vietnam, Laos, and Cambodia fought between North Vietnam (Democratic Republic of Vietnam) and South Vietnam (Republic of Vietnam) and their allies. North Vietnam w ...
. The targets of these attacks were sanctuaries and base areas of the
People's Army of Vietnam
The People's Army of Vietnam (PAVN), officially the Vietnam People's Army (VPA; , , ), also recognized as the Vietnamese Army (), the People's Army () or colloquially the Troops ( ), is the national Military, military force of the Vietnam, S ...
(PAVN – commonly referred to during the war as the North Vietnamese Army (NVA)) and the
Viet Cong
The Viet Cong (VC) was an epithet and umbrella term to refer to the communist-driven armed movement and united front organization in South Vietnam. It was formally organized as and led by the National Liberation Front of South Vietnam, and ...
(VC), which used them for resupply, training, and resting between campaigns across the border in the
Republic of Vietnam
South Vietnam, officially the Republic of Vietnam (RVN; , VNCH), was a country in Southeast Asia that existed from 1955 to 1975. It first garnered international recognition in 1949 as the State of Vietnam within the French Union, with it ...
(South Vietnam). The impact of the bombing campaign on the
Khmer Rouge
The Khmer Rouge is the name that was popularly given to members of the Communist Party of Kampuchea (CPK), and by extension to Democratic Kampuchea, which ruled Cambodia between 1975 and 1979. The name was coined in the 1960s by Norodom Sihano ...
guerrillas, the PAVN, and Cambodian civilians in the bombed areas is disputed by historians.
An official
United States Air Force
The United States Air Force (USAF) is the Air force, air service branch of the United States Department of Defense. It is one of the six United States Armed Forces and one of the eight uniformed services of the United States. Tracing its ori ...
record of US bombing activity over
Indochina
Mainland Southeast Asia (historically known as Indochina and the Indochinese Peninsula) is the continental portion of Southeast Asia. It lies east of the Indian subcontinent and south of Mainland China and is bordered by the Indian Ocean to th ...
from 1964 to 1973 was declassified by US President
Bill Clinton
William Jefferson Clinton (né Blythe III; born August 19, 1946) is an American politician and lawyer who was the 42nd president of the United States from 1993 to 2001. A member of the Democratic Party (United States), Democratic Party, ...
in 2000. The report provides details of the extent of the bombing of Cambodia, as well as of
Laos
Laos, officially the Lao People's Democratic Republic (LPDR), is the only landlocked country in Southeast Asia. It is bordered by Myanmar and China to the northwest, Vietnam to the east, Cambodia to the southeast, and Thailand to the west and ...
and
Vietnam
Vietnam, officially the Socialist Republic of Vietnam (SRV), is a country at the eastern edge of mainland Southeast Asia, with an area of about and a population of over 100 million, making it the world's List of countries and depende ...
. According to the data, the air force began bombing the rural regions of Cambodia along its South Vietnam border in 1965 under the
Johnson administration; this was three and a half years earlier than previously believed. From 1965 to 1968, 214 tons of bombs were dropped over Cambodia. The Menu bombings were an escalation of what had previously been tactical air attacks. Newly inaugurated President
Richard Nixon
Richard Milhous Nixon (January 9, 1913April 22, 1994) was the 37th president of the United States, serving from 1969 until Resignation of Richard Nixon, his resignation in 1974. A member of the Republican Party (United States), Republican ...
authorized for the first time use of long-range
Boeing B-52 Stratofortress
The Boeing B-52 Stratofortress is an American long-range, subsonic aircraft, subsonic, jet-powered strategic bomber. The B-52 was designed and built by Boeing, which has continued to provide support and upgrades. It has been operated by the ...
heavy bombers to
carpet bomb Cambodia.
Operation Freedom Deal immediately followed Operation Menu. Under Freedom Deal, B-52 bombing was expanded to a much larger
area
Area is the measure of a region's size on a surface. The area of a plane region or ''plane area'' refers to the area of a shape or planar lamina, while '' surface area'' refers to the area of an open surface or the boundary of a three-di ...
of Cambodia and continued until August 1973.
Background
From the onset of hostilities in South Vietnam and the
Kingdom of Laos
The Kingdom of Laos was the form of government in Laos from 1947 to 1975. Located in Southeast Asia at the heart of the Indochinese Peninsula, it was bordered by Burma and China to the northwest, North Vietnam to the east, Cambodia to the sou ...
in the early 1960s, Cambodia's Prince
Norodom Sihanouk
Norodom Sihanouk (; 31 October 192215 October 2012) was a member of the House of Norodom, Cambodian royal house who led the country as Monarchy of Cambodia, King, List of heads of state of Cambodia, Chief of State and Prime Minister of Cambodi ...
had maintained a delicate domestic and foreign policy balancing act. Convinced of the inevitable victory of the communists in Southeast Asia and concerned for the future existence of his government, Sihanouk swung toward the
left
Left may refer to:
Music
* ''Left'' (Hope of the States album), 2006
* ''Left'' (Monkey House album), 2016
* ''Left'' (Helmet album), 2023
* "Left", a song by Nickelback from the album ''Curb'', 1996
Direction
* Left (direction), the relativ ...
in the mid-1960s.
In 1966, Sihanouk made an agreement with
Zhou Enlai
Zhou Enlai ( zh, s=周恩来, p=Zhōu Ēnlái, w=Chou1 Ên1-lai2; 5 March 1898 – 8 January 1976) was a Chinese statesman, diplomat, and revolutionary who served as the first Premier of the People's Republic of China from September 1954 unti ...
of the People's Republic of China that would allow PAVN and VC forces to establish base areas in Cambodia and to use the port of
Sihanoukville for the delivery of military material. The US, heavily involved in South Vietnam, was not eager to openly violate the asserted
neutrality of Cambodia, which had been guaranteed by the
Geneva Accord of 1954.
Beginning in 1967, President
Lyndon B. Johnson
Lyndon Baines Johnson (; August 27, 1908January 22, 1973), also known as LBJ, was the 36th president of the United States, serving from 1963 to 1969. He became president after the assassination of John F. Kennedy, under whom he had served a ...
authorized covert
reconnaissance
In military operations, military reconnaissance () or scouting is the exploration of an area by military forces to obtain information about enemy forces, the terrain, and civil activities in the area of operations. In military jargon, reconnai ...
operations by the
Military Assistance Command, Vietnam Studies and Observations Group (MACV-SOG). The mission of the
highly classified unit was to obtain intelligence on the PAVN/VC base areas (Project Vesuvius) that would be presented to Sihanouk in hopes of changing his position.

By late 1968, Sihanouk, under pressure from the political
right
Rights are law, legal, social, or ethics, ethical principles of freedom or Entitlement (fair division), entitlement; that is, rights are the fundamental normative rules about what is allowed of people or owed to people according to some legal sy ...
at home and from the US, agreed to more normalized relations with the Americans. In July 1968, he had agreed to reopen diplomatic relations and, in August, formed a Government of National Salvation under the pro-US General
Lon Nol. Newly inaugurated President
Richard M. Nixon, seeking any means by which to withdraw from Southeast Asia and obtain "peace with honor", saw an opening with which to give time for the US withdrawal, and time to implement the new policy of
Vietnamization
Vietnamization was a failed foreign policy of the Richard Nixon administration to end U.S. involvement in the Vietnam War through a program to "expand, equip, and train South Vietnamese forces and assign to them an ever-increasing combat role, a ...
.
[Karnow ''Vietnam'' pp. 588–589]
Nixon had promised during the election of 1968 if elected, to continue the peace talks which started in Paris in May 1968, thereby ruling out seeking a military solution to the war and to continue Johnson's approach of seeking a diplomatic solution.
Nixon's main opponent, Vice President
Hubert Humphrey, was also committed to a diplomatic solution, and Nixon had presented himself during the election as the man best capable of reaching a favorable peace deal in Paris. Only
George Wallace
George Corley Wallace Jr. (August 25, 1919 – September 13, 1998) was an American politician who was the 45th and longest-serving governor of Alabama (1963–1967; 1971–1979; 1983–1987), and the List of longest-serving governors of U.S. s ...
of the
American Independent Party
The American Independent Party (AIP) is an American political party that was established in 1967. The American Independent Party is best known for its nomination of Democratic then-former Governor George Wallace of Alabama, who carried five s ...
had committed himself during the election to fight on in Vietnam until a military victory, winning 13% of the vote.
The diplomatic settlement Nixon wanted was to be on American terms by preserving South Vietnam.
A key aspect of Nixon's approach was what he himself called the "
madman theory" under which he was to act like he was a dangerous leader capable of any act up to and including nuclear war to intimidate North Vietnam into a diplomatic settlement on American terms. Nixon believed that the Chinese had signed the
Korean Armistice Agreement
The Korean Armistice Agreement (; zh, t=韓國停戰協定 / 朝鮮停戰協定) is an armistice that brought about a cessation of hostilities of the Korean War. It was signed by United States Army Lieutenant General William Kelly Harrison Jr ...
in July 1953 because of the threats made by Eisenhower in the spring of 1953 to use nuclear weapons in Korea, and that strategic bombing or the mere threat of strategic bombing would force the North Vietnamese to sign an armistice similar to that agreement.
[Karnow ''Vietnam'' p. 582] Nixon conceded that his election promises ruled out a "military victory", but as he often said in private he did not want to be "the first president of the United States to lose a war".
Before the diplomatic amenities with Sihanouk were even concluded, Nixon had decided to deal with the situation of PAVN/VC troops and supply bases in Cambodia. He had already considered a naval blockade of the Cambodian coast, but was talked out of it by the
Joint Chiefs of Staff
The Joint Chiefs of Staff (JCS) is the body of the most senior uniformed leaders within the United States Department of Defense, which advises the president of the United States, the secretary of defense, the Homeland Security Council and ...
(JCS), who believed that Sihanouk could still be convinced to agree to ground attacks against the base areas.
On 30 January 1969, Chairman of the Joint Chiefs
Earle Wheeler suggested to the president that he authorize the bombing of the Cambodian sanctuaries. He was seconded on 9 February by the U.S. commander in Vietnam, General
Creighton W. Abrams, who also submitted his proposal to bomb the Central Office of South Vietnam (
COSVN), the elusive headquarters of PAVN/VC southern operations, located somewhere in the
Fishhook region of eastern Cambodia.
[Karnow ''Vietnam'' p. 591] Abrams claimed to Nixon that the regions of eastern Cambodia to be bombed were underpopulated and no civilian deaths would be caused, but documents showed that he and other generals were aware that eastern Cambodia was indeed populated and "some Cambodian casualties would be sustained in the operation".
The plans for the bombing was opposed by the Defense Secretary
Melvin Laird who doubted the bombings could be kept secret and feared the reaction of Congress and public opinion, Secretary of State
William P. Rogers who feared the bombings would derail the peace talks in Paris, and the National Security Adviser
Henry Kissinger
Henry Alfred Kissinger (May 27, 1923 – November 29, 2023) was an American diplomat and political scientist who served as the 56th United States secretary of state from 1973 to 1977 and the 7th National Security Advisor (United States), natio ...
who feared that Nixon was acting rashly. None of them raised moral objections to the bombings.
On 22 February, during the period just following the
Tết
Tết (, ), short for (; ), is the most important celebration in Vietnamese culture. Tết celebrates the arrival of spring based on the Vietnamese calendar and usually falls on January or February in the Gregorian calendar.
is not to be co ...
holidays, PAVN/VC forces
launched an offensive. Nixon became even more angered when the communists launched rocket and artillery attacks against Saigon, which he considered a violation of the "agreement" he believed had been made when the US halted the
bombing of North Vietnam in November 1968.
Nixon, who was en route to
Brussels
Brussels, officially the Brussels-Capital Region, (All text and all but one graphic show the English name as Brussels-Capital Region.) is a Communities, regions and language areas of Belgium#Regions, region of Belgium comprising #Municipalit ...
for a meeting with
North Atlantic Treaty Organization
The North Atlantic Treaty Organization (NATO ; , OTAN), also called the North Atlantic Alliance, is an intergovernmental transnational military alliance of 32 member states—30 European and 2 North American. Established in the aftermat ...
(NATO) leaders, ordered Kissinger to prepare for airstrikes against PAVN/VC base areas in Cambodia as a reprisal. The bombings were to serve three purposes: they would show Nixon's tenacity; they would disable the PAVN's offensive capability to disrupt the US withdrawal and Vietnamization; and they would demonstrate US determination, "that might pay dividends at the negotiating table in Paris." Nixon then cabled Colonel
Alexander Haig
Alexander Meigs Haig Jr. (; 2 December 192420 February 2010) was United States Secretary of State under President Ronald Reagan and White House chief of staff under Presidents Richard Nixon and Gerald Ford. Prior to and in between these cabine ...
, a National Security Council staff aide, to meet him in Brussels along with Colonel
Raymond Sitton, a former
Strategic Air Command
Strategic Air Command (SAC) was a United States Department of Defense Specified Command and a United States Air Force (USAF) Major Command responsible for command and control of the strategic bomber and intercontinental ballistic missile compon ...
(SAC) officer on the JCS staff, to formulate a plan of action.
Nixon would have liked to resume bombing North Vietnam, but he was informed by the State Department that would cause the collapse of the peace talks in Paris.
Public opinion polls in 1968–1969 showed the majority of the American people supported the strategy of seeking a diplomatic solution to the Vietnam War via the Paris peace talks. The bombing of Cambodia was part of Nixon's "madman theory" that was meant to intimidate North Vietnam by showing that he was a dangerous leader capable of anything.
By seeking advice from high administration officials, Nixon had delayed any quick response that could be explicitly linked to the provocation. He decided to respond to the next provocation and didn't have long to wait. On 14 March, communist forces once again attacked South Vietnam's urban areas and Nixon was ready. On 16 March, Nixon summoned Kissinger, Laird, Rogers, and Wheeler to a meeting at the White House to announce that he decided that bombing Cambodia was the "only way" to make North Vietnam compromise because he felt he had "to do something on the military front...something they will understand".
Nixon decided to keep the bombing a secret from the American people as to admit to bombing an officially neutral nation would damage his credibility and because bombing Cambodia would seem like he was escalating the war. Under the US constitution, the power to declare war rests with Congress, and several constitutional experts testified before Congress in 1973 that by launching a bombing offensive in 1969 without obtaining the approval of Congress or indeed even informing Congress, Nixon had committed an illegal act.
[Karnow ''Vietnam'' p. 592] In 1969, the mood of Congress was such that it was extremely unlikely that Congress would have granted approval had Nixon asked for it, hence his decision to circumvent Congress by launching the bombing offensive while keeping it secret.
''Breakfast'' to ''Dessert''
In his diary in March 1969, Nixon's chief of staff,
H. R. Haldeman
Harry Robbins "Bob" Haldeman (October 27, 1926 – November 12, 1993) was an American political aide and businessman, best known for his service as White House Chief of Staff to President Richard Nixon and his consequent involvement in the Water ...
, noted that the final decision to carpet bomb Cambodia "was made at a meeting in the Oval Office Sunday afternoon, after the church service." In his diary on 17 March 1969, Haldeman wrote: "Historic day. K
ssingers "Operation Breakfast" finally came off at 2:00 pm our time. K really excited, as is P
esident" And the next day: "K's 'Operation Breakfast' a great success. He came beaming in with the report, very productive. A lot more secondaries than had been expected. Confirmed early intelligence. Probably no reaction for a few days, if ever."
The bombing began on the night of 18 March with a raid by 60
B-52 Stratofortress
The Boeing B-52 Stratofortress is an American long-range, subsonic aircraft, subsonic, jet-powered strategic bomber. The B-52 was designed and built by Boeing, which has continued to provide support and upgrades. It has been operated by the ...
bomber
A bomber is a military combat aircraft that utilizes
air-to-ground weaponry to drop bombs, launch aerial torpedo, torpedoes, or deploy air-launched cruise missiles.
There are two major classifications of bomber: strategic and tactical. Strateg ...
s, based at
Andersen Air Force Base,
Guam
Guam ( ; ) is an island that is an Territories of the United States, organized, unincorporated territory of the United States in the Micronesia subregion of the western Pacific Ocean. Guam's capital is Hagåtña, Guam, Hagåtña, and the most ...
. The target was Base Area 353, the supposed location of COSVN in the Fishhook. Although the aircrews were briefed that their mission was to take place in South Vietnam, 48 of the bombers were diverted across the Cambodian border and dropped 2,400 tons of bombs.
[John Morocco, ''Rain of Fire: Air War, 1969–1973''. Boston: Boston Publishing Company, 1985, p. 13.] The mission was designated "Breakfast", after the morning
Pentagon
In geometry, a pentagon () is any five-sided polygon or 5-gon. The sum of the internal angles in a simple polygon, simple pentagon is 540°.
A pentagon may be simple or list of self-intersecting polygons, self-intersecting. A self-intersecting ...
planning session at which it was devised. On 18 March a 13-man "Daniel Boone" team from MACV-SOG was landed by helicopter at the Base Area 353 impact site to capture survivors, but they were met by intense enemy fire and only two of the team were rescued.
"Breakfast" was so successful (in US terms) that Abrams provided a list of 15 more known base areas for targeting.
The five remaining missions and targets were: "Lunch" (Base Area 609); "Snack" (Base Area 351); "Dinner" (Base Area 352); "Supper" (Base Area 740); and "Dessert" (Base Area 350). SAC flew 3,800 B-52
sortie
A sortie (from the French word meaning ''exit'' or from Latin root ''surgere'' meaning to "rise up") is a deployment or dispatch of one military unit, be it an aircraft, ship, or troops, from a strongpoint. The term originated in siege warf ...
s against these targets, and dropped 108,823 tons of ordnance during the missions.
Due to the continued reference to meals in the codenames, the entire series of missions was referred to as Operation Menu. MACV-SOG provided 70% of the Menu bomb damage intelligence
Nixon and Kissinger went to great lengths to keep the missions secret. In order to prevent criticism of the bombing, an elaborate dual reporting system of the missions had been formulated during the Brussels meeting between Nixon, Haig, and Colonel Sitton.
System
The number of individuals who had complete knowledge of the operation was kept to a minimum. Neither the Secretary of the Air Force nor Air Force's chief of staff were aware of the bombing of Cambodia.
All communications concerning the missions was split along two paths – one route was overt, ordering typical B-52 missions that were to take place in South Vietnam near the Cambodian border – the second route was covert, using back-channel messages between commanders ordering the classified missions. For example: Abrams would request a Menu strike. His request went to Admiral
John S. McCain, Jr., the Commander-in-Chief, Pacific Command (
CINCPAC), in Honolulu.
[William C. Westmoreland, ''A Soldier Reports''. Garden City, New York: Doubleday & Company, 1976, p. 389.]
McCain forwarded it to the JCS in Washington DC, who, after reviewing it, passed it on to Defense Secretary Laird (who might consult with the president). The JCS then passed the command for the strike to General
Bruce K. Holloway, Commander of SAC, who then notified Lieutenant General Alvin C. Gillem, Commander of the
3rd Air Division on Guam.
During this time Air Force Major Hal Knight was supervising an
MSQ-77 Combat Skyspot radar site at
Bien Hoa Air Base
Bien Hoa Air Base (Vietnamese language, Vietnamese: ''Sân bay Biên Hòa'') is a Vietnam People's Air Force (VPAF) military airfield located in South-Central southern Vietnam about from Ho Chi Minh City, across the Dong Nai river in the norther ...
, South Vietnam. "Skyspot" was a
ground directed bombing system which directed B-52 strikes to targets in Vietnam.
Each day a courier plane would arrive from SAC's Advanced Echelon Office at
Tan Son Nhut Air Base near
Saigon
Ho Chi Minh City (HCMC) ('','' TP.HCM; ), commonly known as Saigon (; ), is the most populous city in Vietnam with a population of around 14 million in 2025.
The city's geography is defined by rivers and canals, of which the largest is Saigo ...
. Knight was given a revised list of target coordinates for the next day's missions. That evening, the coordinates were fed into
Olivetti
Olivetti S.p.A. is an Italian manufacturer of computers, tablets, smartphones, printers and other such business products as calculators and fax machines. Headquartered in Ivrea, in the Metropolitan City of Turin, the company has been owned b ...
Programma 101
The Olivetti Programma 101, also known as Perottina or P101, is one of the first "all in one" commercial desktop programmable calculators, although not the first.
Produced by Italian manufacturer Olivetti, based in Ivrea, Piedmont, and invented b ...
computers. and then relayed to the aircraft as they came on station. Only the pilots and navigators of the aircraft (who had been briefed by Gillem and sworn to secrecy) knew of the true location of the targets.
The bombers then flew on to their targets and delivered their payloads. After the air strikes, Knight gathered the mission paperwork and computer tapes and destroyed them in an incinerator. He then called a phone number in Saigon and reported that "The ball game is over."
[Morocco, ''Rain of Fire'', p. 14.] The aircrews filled out routine reports of hours flown, fuel burned, and ordnance dropped. This dual system maintained secrecy and provided Air Force
logistics
Logistics is the part of supply chain management that deals with the efficient forward and reverse flow of goods, services, and related information from the point of origin to the Consumption (economics), point of consumption according to the ...
and
personnel
Employment is a relationship between two parties regulating the provision of paid labour services. Usually based on a contract, one party, the employer, which might be a corporation, a not-for-profit organization, a co-operative, or any othe ...
administrators with information that they needed to replace air crews or aircraft and replenish stocks of fuel and munitions.
Exposure
Although Sihanouk was not informed by the US about the operation, he may have had a desire to see PAVN/VC forces out of Cambodia, since he himself was precluded from pressing them too hard. After the event, it was claimed by Nixon and Kissinger that Sihanouk had given his tacit approval for the raids, but this is dubious. Sihanouk told US diplomat
Chester Bowles
Chester Bliss Bowles (April 5, 1901 – May 25, 1986) was an American diplomat and ambassador, List of governors of Connecticut, governor of Connecticut, congressman and co-founder of a major advertising agency, Benton & Bowles, now part of Publi ...
on 10 January 1968, that he would not oppose American "hot pursuit" of retreating North Vietnamese troops "in remote areas
f Cambodia, provided that Cambodians were unharmed.
Kenton Clymer notes that this statement "cannot reasonably be construed to mean that Sihanouk approved of the intensive, ongoing B-52 bombing raids ... In any event, no one asked him. ... Sihanouk was never asked to approve the B-52 bombings, and he never gave his approval."
During the course of the Menu bombings, Sihanouk's government formally protested "American violation
of Cambodian territory and airspace" at the
United Nations
The United Nations (UN) is the Earth, global intergovernmental organization established by the signing of the Charter of the United Nations, UN Charter on 26 June 1945 with the stated purpose of maintaining international peace and internationa ...
on over 100 occasions, although it "specifically protested the use of B-52s" only once, following an attack on Bu Chric in November 1969.
On 9 May 1969, an article by military reporter
William M. Beecher exposing the bombing was run in the ''
New York Times
''The New York Times'' (''NYT'') is an American daily newspaper based in New York City. ''The New York Times'' covers domestic, national, and international news, and publishes opinion pieces, investigative reports, and reviews. As one of ...
''. Beecher claimed that an unnamed source in the administration had provided the information. Nixon was furious when he heard the news and ordered Kissinger to obtain the assistance of
FBI
The Federal Bureau of Investigation (FBI) is the domestic Intelligence agency, intelligence and Security agency, security service of the United States and Federal law enforcement in the United States, its principal federal law enforcement ag ...
Director
J. Edgar Hoover
John Edgar Hoover (January 1, 1895 – May 2, 1972) was an American attorney and law enforcement administrator who served as the fifth and final director of the Bureau of Investigation (BOI) and the first director of the Federal Bureau o ...
to discover the source of the leak.
Hoover claimed that Kissinger had told him that "we will destroy whoever did this".
Hoover suspected Kissinger's own NSC aide,
Morton Halperin, of the deed and so informed Kissinger. Halperin's phone was then illegally tapped for 21 months.
This was the first in a series of illegal surveillance activities authorized by Nixon in the name of national security. The phones of 13 officials together with four journalists were illegally tapped by the FBI in search of finding the leak.
The administration was relieved when no other significant press reports concerning the operation appeared, and the revelation of the secret bombing of Cambodia did not cause any public outrage.
Journalist Stanley Karnow asserted that the illegal bugging in May 1969 marked "the first abuses of authority" under Nixon that ultimately led to the
Watergate
The Watergate scandal was a major political scandal in the United States involving the administration of President Richard Nixon. The scandal began in 1972 and ultimately led to Nixon's resignation in 1974, in August of that year. It revol ...
scandal.
Likewise, Congressman
John Conyers
John James Conyers Jr. (May 16, 1929October 27, 2019) was an American politician of the Democratic Party who served as a U.S. representative from Michigan from 1965 to 2017. Conyers was the sixth-longest serving member of Congress and the lo ...
wrote that the Operation Menu bombings led Nixon and his staff to become "enmeshed in the snare of lies and half-truths they themselves had created".
[Conyers "Why Nixon Should Have Been Impeached" p. 3] Conyers wrote that Nixon's belief that any action done by the president was justified in name of national security, first asserted with Operation Menu, created the mindset that led him directly to the Watergate scandal.
By the summer, five members of the
United States Congress
The United States Congress is the legislature, legislative branch of the federal government of the United States. It is a Bicameralism, bicameral legislature, including a Lower house, lower body, the United States House of Representatives, ...
had been informed of the operation. They were Senators
John C. Stennis (MS) and
Richard B. Russell, Jr. (GA), and Representatives
Lucius Mendel Rivers (SC),
Gerald R. Ford
Gerald Rudolph Ford Jr. (born Leslie Lynch King Jr.; July 14, 1913December 26, 2006) was the 38th president of the United States, serving from 1974 to 1977. A member of the Republican Party (United States), Republican Party, Ford assumed the p ...
(MI), and
Leslie C. Arends (IL). Arends and Ford were leaders of the Republican minority and the other three were Democrats on either the Armed Services or Appropriations committees.
For those in Washington who knew of the Menu raids, the silence of one party came as a surprise. The
Hanoi
Hanoi ( ; ; ) is the Capital city, capital and List of cities in Vietnam, second-most populous city of Vietnam. The name "Hanoi" translates to "inside the river" (Hanoi is bordered by the Red River (Asia), Red and Black River (Asia), Black Riv ...
government made no protest concerning the bombings. It neither denounced the raids for propaganda purposes, nor, according to Kissinger, did its negotiators "raise the matter during formal or secret negotiations." North Vietnam had no wish to advertise the presence of their forces in Cambodia, allowed by Sihanouk in return for the Vietnamese agreeing not to foment rebellion in Cambodia.
Revelations

For four years Menu remained unknown to the US Congress as a whole. That changed in December 1972, when Major Knight wrote a letter to Senator
William Proxmire
Edward William Proxmire (November 11, 1915 – December 15, 2005) was an American politician. A member of the Democratic Party (United States), Democratic Party, he served as a United States Senate, United States Senator from Wisconsin from 1957 ...
(D, WI), asking for "clarification" of U.S. policy on the bombing of Cambodia. Knight, who had become concerned over the legality of his actions, had complained to his superior officer, Colonel David Patterson. He later received several bad efficiency reports, which ruined his career, and he was discharged from the Air Force.
[Shawcross, p. 287.]
Proxmire's questioning led to hearings of the
Senate Armed Services Committee
The Committee on Armed Services, sometimes abbreviated SASC for Senate Armed Services Committee, is a committee of the United States Senate empowered with legislative oversight of the nation's military, including the Department of Defen ...
, which eventually demanded that the
Department of Defense
The United States Department of Defense (DoD, USDOD, or DOD) is an executive department of the U.S. federal government charged with coordinating and supervising the six U.S. armed services: the Army, Navy, Marines, Air Force, Space Force, ...
turn over all records of US air operations in Cambodia. When they arrived, the records did not even mention the Menu strikes. The committee was not convinced and the investigation continued. Less than two weeks later, it opened hearings on the nomination of General
George S. Brown for the position of chief of staff of the Air Force. As commander of the
Seventh Air Force
The Seventh Air Force (Air Forces Korea) (7 AF) is a Numbered Air Force of the United States Pacific Air Forces (PACAF). It is headquartered at Osan Air Base, South Korea.
The command's mission is to plan and direct air component operations in ...
in South Vietnam, Brown had been privy to Menu and disclosed as much to the committee.
For the next eight days the committee listened to the testimony of administration officials and the JCS, who tried to justify their actions. The committee uncovered excuses and deceptions that were perhaps more alarming than those occurring simultaneously in the Watergate hearings. The Menu revelations raised "fundamental questions as to military discipline and honesty, of civilian control over the military and of Congressional effectiveness."
It was basically agreed, both by Congress and concerned military officers, that the deception employed during Menu went beyond covertness.
[Earl H. Tilford, ''Setup: What the Air Force did in Vietnam and Why''. Maxwell Air Force Base AL: Air University Press, 1991, p. 196.]
According to Air Force historian Captain Earl H. Tilford: "Deception to fool the enemy was one thing, but lying to Congress and key members of the government, including the chief of staff of the Air Force and the secretary of the Air Force, was something else."
Congressman Conyers wrote that the bombing of Cambodia without congressional authorization was an illegal act which Nixon should have been impeached for.
[Conyers "Why Nixon Should Have Been Impeached" p. 5] Conyers introduced a motion of impeachment against Nixon regarding the bombing of Cambodia on the floor of the House on 30 July 1974, which was not taken up as the House was fully engaged in the Watergate scandal at the time.
Civilian casualties
There are no confirmed estimates of Cambodians killed, wounded, or rendered homeless by Operation Menu. The Department of Defense estimated that the six areas bombed in Operation Menu (Breakfast, Lunch, Dinner, Snack, Dessert, and Supper) had a non-combatant population of 4,247. DOD planners stated that the effect of attacks could tend to increase casualties, as could the probable lack of protective shelters around Cambodian homes.
Each of the target areas was small. Area 353 (Breakfast), was in size and had an estimated population of 1,640 people. B-52s flew 228 sorties into this single area to bomb. Each B-52 carried up to 108 bombs weighing and spread them equally over a "box" about 1.5 kilometers long by one-half kilometer wide (1 mile by 0.3 miles); thus, nearly 25,000 bombs may have been dropped in Area 353 alone. The other target areas had similar saturation rates of bombs.
Following Operation Menu,
Operation Freedom Deal continued the bombing of Cambodia for an additional three years and extended the bombing to at least one-half of the country.
Aftermath
The constitutional issues raised at the hearings became less important when the
House Judiciary Committee
The U.S. House Committee on the Judiciary, also called the House Judiciary Committee, is a standing committee of the United States House of Representatives. It is charged with overseeing the administration of justice within the federal courts, f ...
voted (21–12) against including the administration's falsification of records concerning Menu in the articles of impeachment leveled against Nixon. One of the key issues that prevented congressional inclusion was the embarrassing fact that five key members of both political parties had been privy to the information and none had said or done anything about it.

The consequences of U.S. bombing of Cambodia, positive and negative, are still widely debated by participants and scholars. As for preventing further PAVN/VC offensives, they failed. In May 1969, PAVN/VC launched an offensive similar in size to that of the
May Offensive
Phase Two of the Tet Offensive of 1968 (also known as the May Offensive, Little Tet, and Mini-Tet) was launched by the People's Army of Vietnam (PAVN) and Viet Cong (VC) against targets throughout South Vietnam, including Saigon from 29 April ...
of the previous year. It certainly cost North Vietnam the effort and manpower to disperse and camouflage their Cambodian sanctuaries to prevent losses to further air attack. Nixon claimed the raids were a success, since air power alone had to provide a shield for withdrawal and Vietnamization. They certainly emboldened Nixon to launch the
Cambodian Campaign of 1970.
While out of the country on 18 March 1970, the Sihanouk was removed from power by the national assembly and replaced by Lon Nol. The Nixon administration, although thoroughly aware of the weakness of Lon Nol's forces and loath to commit US military force to the new conflict in any form other than air power, announced support for the newly proclaimed
Khmer Republic
The Khmer Republic (, ; ) was a Cambodian state under the United States-backed military dictatorship of Marshal Lon Nol from 1970 to 1975. Its establishment was formally declared on 9 October 1970, following the 18 March 1970 coup d'état w ...
. In response, Sihanouk quickly aligned himself with the
Khmer Rouge
The Khmer Rouge is the name that was popularly given to members of the Communist Party of Kampuchea (CPK), and by extension to Democratic Kampuchea, which ruled Cambodia between 1975 and 1979. The name was coined in the 1960s by Norodom Sihano ...
. This was a boon to the communist insurgents, whose movement "started growing as on yeast."
On 29 March 1970, the PAVN launched an offensive against the
Khmer National Armed Forces, with documents uncovered after 1991 from the Soviet archives revealing that the invasion was launched at the explicit request of the Khmer Rouge following negotiations with
Nuon Chea
Nuon Chea (; born Lao Kim Lorn; 7 July 1926 – 4 August 2019), also known as Long Bunruot () or Rungloet Laodi ( ), was a Cambodian communism, communist politician and revolutionary who was the chief ideologist of the Khmer Rouge. He also briefl ...
.
[Dmitry Mosyakov, "The Khmer Rouge and the Vietnamese Communists: A History of Their Relations as Told in the Soviet Archives", in Susan E. Cook, ed., ''Genocide in Cambodia and Rwanda'' (Yale Genocide Studies Program Monograph Series No. 1, 2004), pp. 54ff. Available online at: www.yale.edu/gsp/publications/Mosyakov.doc "In April–May 1970, many North Vietnamese forces entered Cambodia in response to the call for help addressed to Vietnam not by Pol Pot, but by his deputy Nuon Chea. Nguyen Co Thach recalls: 'Nuon Chea has asked for help and we have liberated five provinces of Cambodia in ten days.'"] Historian
Jussi Hanhimäki
Jussi M. Hanhimäki (born February 3, 1965, in Espoo) is a Finnish historian, specializing in the history of the Cold War, American foreign policy, transatlantic relations, international organizations and refugees.
Background
Hanhimäki is curr ...
writes that "the MENU operations pushed the North Vietnamese forces...in east Cambodia westward. American bombers followed suit."
Author
William Shawcross and other observers asserted that the "Khmer Rouge were born out of the inferno that American policy did much to create" and that Sihanouk's "collaboration with both powers
he United States and North Vietnamnbsp;... was intended to save his people by confining the conflict to the border regions. It was American policy that engulfed the nation in war."
Shawcross was challenged by former Kissinger aide
Peter Rodman as follows:
When Congress, in the summer of 1973, legislated an end to U.S. military action in, over, or off the shores of Indochina, the only U.S. military activity then going on was air support of a friendly Cambodian government and army desperately defending their country against a North Vietnamese and Khmer Rouge onslaught ... What destabilized Cambodia was North Vietnam's occupation of chunks of Cambodian territory from 1965 onwards for use as military bases from which to launch attacks on U.S. and South Vietnamese forces in South Vietnam.
Kissinger in an interview with
Theo Sommer defended the bombing, saying:
People usually refer to the bombing of Cambodia as if it had been unprovoked, secretive U.S. action. The fact is that we were bombing North Vietnamese troops that had invaded Cambodia, that were killing many Americans from these sanctuaries, and we were doing it with the acquiescence of the Cambodian government, which never once protested against it, and which, indeed, encouraged us to do it. I may have a lack of imagination, but I fail to see the moral issue...
The simultaneous rise of the Khmer Rouge and the increase in area and intensity of U.S. bombing between 1969 and 1973 has incited speculation as to the relationship between the two events.
Ben Kiernan
Benedict F. "Ben" Kiernan (born 29 January 1953) is an Australian-born American historian who is the Whitney Griswold Professor Emeritus of History, Professor of International and Area Studies and Director of the Genocide Studies Program at Yale ...
, Director of the Genocide Studies Program at
Yale University
Yale University is a Private university, private Ivy League research university in New Haven, Connecticut, United States. Founded in 1701, Yale is the List of Colonial Colleges, third-oldest institution of higher education in the United Stat ...
, said the following:
Apart from the large human toll, perhaps the most powerful and direct impact of the bombing was the political backlash it caused ... The CIA
The Central Intelligence Agency (CIA; ) is a civilian foreign intelligence service of the federal government of the United States tasked with advancing national security through collecting and analyzing intelligence from around the world and ...
's Directorate of Operations, after investigations south of Phnom Penh
Phnom Penh is the Capital city, capital and List of cities and towns in Cambodia, most populous city of Cambodia. It has been the national capital since 1865 and has grown to become the nation's primate city and its political, economic, industr ...
, reported in May 1973 that the communists there were successfully 'using damage caused by B-52 strikes as the main theme of their propaganda' ... The U.S. carpet bombing
Carpet bombing, also known as saturation bombing, is a large area bombardment done in a progressive manner to inflict damage in every part of a selected area of land. The phrase evokes the image of explosions completely covering an area, in t ...
of Cambodia was partly responsible for the rise of what had been a small-scale Khmer Rouge insurgency, which now grew capable of overthrowing the Lon Nol government ...
Shawcross's and Kiernan's views were echoed in a 2011 statistical study of US bombing in Vietnam which concluded that the air war "was counterproductive ... hampered the pacification campaign and more of it would likely have hastened the communist victory."
Kang Kek Iew
Kang Kek Iew, also spelled Kaing Guek Eav ( ; 17 November 1942 – 2 September 2020), '' alias'' Comrade Duch ( ) or Hang Pin, was a Cambodian convicted war criminal and member of the Khmer Rouge movement, which ruled Democratic Kampuchea from ...
, a Cambodian
war criminal
A war crime is a violation of the laws of war that gives rise to individual criminal responsibility for actions by combatants in action, such as intentionally killing civilians or intentionally killing prisoners of war, torture, taking hostage ...
and leader in the Khmer Rouge movement, said during his
war crimes tribunal in 2009 that "Mr Richard Nixon and
enryKissinger allowed the Khmer Rouge to grasp golden opportunities".
When Phnom Penh was under siege by the Khmer Rouge in 1973, the US Air Force again launched a bombing campaign against them, claiming that it had saved Cambodia from an otherwise inevitable communist take-over and that the capital might have fallen in a matter of weeks. By 1975, President Ford was predicting "new horrors" if the Khmer Rouge took power, and calling on Congress to provide additional economic, humanitarian, and military aid for Cambodia and Vietnam.
"Transcript of President’s News Conference on Foreign and Domestic Matters"
, ''The New York Times,'' 7 March 1975.
See also
* Operation Rolling Thunder
Operation Rolling Thunder was a gradual and sustained aerial bombardment campaign conducted by the United States (U.S.) 2nd Air Division (later Seventh Air Force), U.S. Navy, and Republic of Vietnam Air Force (RVNAF) against North Vietnam from 2 ...
References
Notes
Sources
Unpublished government documents
* Military Assistance Command, Vietnam, ''Command History 1967'', Annex F, Saigon, 1968.
* Military Assistance Command, Vietnam, ''Command History 1968'', Annex F, Saigon, 1969.
Published government documents
* Head, William H. ''War from Above the Clouds: B-52 Operations during the Second Indochina War and the Effects of the Air War on Theory and Doctrine''. Maxwell Air Force Base AL: Air University Press, 2002.
* Nalty, Bernard C.,
Air War over South Vietnam, 1968–1975
'. Washington DC: Air Force Museums and History Program, 2000.
* Tilford, Earl H. ''Setup: What the Air force did in Vietnam and Why''. Maxwell Air Force Base AL: Air University Press, 1991.
Memoirs
* Westmoreland, William C. ''A Soldier Reports''. New York: Doubleday, 1976.
Secondary accounts
* Conyers, John "Why Nixon Should Have Been Impeached" pp. 2–8 from ''The Black Scholar'', Volume, Issue 2, October 1974.
* Isaacs, Arnold, Gordon Hardy, MacAlister Brown, et al., ''Pawns of War: Cambodia and Laos''. Boston: Boston Publishing Company, 1987.
* Karnow, Stanley ''Vietnam: A History'', New York: Viking, 1983.
* Morocco, John, ''Operation Menu'' in ''War in the Shadows''. Boston: Boston Publishing Company, 1988.
* Morocco, John, ''Rain of Fire: Air War, 1969–1975''. Boston: Boston Publishing Company, 1985.
* Rotter, Andrew J. ed., ''Light at the end of the tunnel : a Vietnam War anthology''; New York: St. Martin's Press, 1991 ; pp. 276ff., Shawcross: Bombing Cambodia – A critique.
* Shaw, John M. ''The Cambodian Campaign: The 1970 Offensive and America's Vietnam War''. Lawrence KS: University of Kansas Press, 2005.
* Shawcross, William, ''Sideshow: Kissinger, Nixon, and the Destruction of Cambodia''. New York: Washington Square Books, 1979.
* Sorley, Lewis, ''A Better War: The Unexamined Victories and Final Tragedy of America's Last Years in Vietnam''. New York: Harvest Books, 1999.
{{Authority control
Menu
In a restaurant, the menu is a list of food and beverages offered to the customer. A menu may be à la carte – which presents a list of options from which customers choose, often with prices shown – or table d'hôte, in which case a pre-est ...
Battles and operations of the Vietnam War in 1969
Battles and operations of the Vietnam War in 1970
Menu
In a restaurant, the menu is a list of food and beverages offered to the customer. A menu may be à la carte – which presents a list of options from which customers choose, often with prices shown – or table d'hôte, in which case a pre-est ...
Cambodia–United States relations
Strategic bombing operations and battles
Nixon administration controversies
Henry Kissinger
Controversies in Cambodia
Norodom Sihanouk
Battles and operations of the Cambodian Civil War