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This typed document—marked “confidential”—is a contemporaneous copy of a U.S. Navy proposal to send covert assistance to China’s struggling air forces, well before America formally entered World War II. This initiative from aviation pioneer and businessman William Pawley would soon lead to the American Volunteer Group (AVG)—popularly known as the Flying Tigers.

Historical Context

By early 1940, Japan had significantly intensified its invasion of China. Within the U.S. military and government, some officials began considering ways to slow or halt Japan’s expansion—without plunging the United States into open conflict. The Sino-Japanese War’s ferocity, coupled with American interests in safeguarding strategic positions in Asia, prompted William Pawley to explore discreet avenues of support.

Strategy and Content

• Suggested Air Fleet and Funding
  The memo proposes establishing a 210-plane force (100 bombers, 100 fighters, and 10 transports) to be staffed by both Chinese and Western-trained aviators. It estimates costs at $25 million for planes, equipment, training, and maintenance. Crucially, the plan envisions financing through private American banks, co-signed by the Chinese government.
• Volunteer American Pilots
  The text references U.S. Army and Navy reserve pilots who might relish a chance to fight in China—provided they received quiet approval from U.S. authorities. These “volunteers,” in theory, would operate outside of direct government oversight, masking official American involvement.
• Discreet Assistance Without Formal Commitment
  The copy underscores a strategic desire for covert participation. If successful, the approach would bolster Chinese resistance to Japanese advances without requiring overt declarations or congressional debate—an attractive option for officials wary of stoking isolationist opposition at home.

Language, Imagery, and Handwritten Notes

• Reserved, Official Tone
  The typed paragraphs read like a carefully worded, step-by-step proposal rather than a rousing call to arms. Phrases such as “maintaining friendly Chinese hands” reflect the circumspect approach of a nation still proclaiming neutrality.
• Marginalia and Edits
  Handwritten notations from trusted intermediary Bruce Leighton reflect notes and observations as this document was preserved for Pawley’s later reference, including for drafting his autobiography.

Efficacy and Long-Term Impact

While this memorandum did not, as far as is known, reach the president, its core ideas would later result in the establishment of the AVG in 1941. The “Flying Tigers” would famously defend Chinese skies against Japanese forces, demonstrating the practicality of American pilots and resources operating semi-covertly abroad. This document illustrates how, months before Pearl Harbor, some U.S. officials were already experimenting with ways to tilt the balance in Asia without openly entering the war.

While his patriotic spirit and initiative would have been elevated in other circumstances, William Pawley chose to set this up as a business venture and stood to profit substantially from this engagement. Accordingly, Pawley’s role in the Flying Tigers has been de-emphasized in the historical record in favor of the men who risked their lives to volunteer with the AVG.

Special thanks to the USC Digital Imaging Lab for their support in digitizing this item.