Comprehensive Briefing Document: Jade 22 Case (REFNO/Exception Case 3002)

Prepared By:

John Bear
Chief of Research
Asymmetric MIA Accounting Group (AMAG)
https://www.amagonline.org 

Prepared For: 

Mike Henshaw, President & Founder - Asymmetric MIA Accounting Group (AMAG) mike@amagonline.org 

Anthony “Tony” Cordero, Primarily Next of Kin (PNOK)- Maj. William E. Cordero REFNO 3002 anthony.p.cordero@gmail.com 

Date: Updated January 28, 2026

Executive Summary

The Jade 22 case involves U.S. Air Force Majors William E. Cordero and Charles E. Lovelace, lost in a June 22, 1965, B-57 crash in Bolikhamxay Province, Laos. A 1969 partial recovery yielded insufficient remains for individual identifications, leading to a group burial. DPAA predecessors (CILHI/JTF-FA) assigned REFNO/Exception Case 3002 and recommended excavation in 1995 due to firsthand villager reports of an unexcavated isolated burial and “strong possibility” of individual IDs. Despite prior commitments (Reference: 2004 Winfield, 2010 Tom) and a (Reference: 2017 Air Force letter) noting the case “on [DPAA’s] radar,” DPAA closed it in 2023, advising private Lao engagement without facilitation—contradicting Title 10 U.S.C. §1513(3)(B) (“recovered to the extent practicable”) and §1501’s “fullest possible accounting” mandate. U.S. Embassy refusals violate 7 FAM 150 consular duties. Congressional letters from Reps. Rob Wittman and Young Kim urge Lao approval. This briefing recommends a §1509 board review for reclassification to “active pursuit,” facilitating recovery and acknowledging inconsistencies to support affected families.

Purpose

This briefing document provides a detailed, comprehensive overview of the Jade 22 case to ensure the reader has a full understanding of the incident, historical investigations, agency actions, family advocacy, and ongoing challenges. It is intended for submission to review boards (e.g., DoW internal boards under Title 10), legislative staff (e.g., House Armed Services Committee, House Foreign Affairs Subcommittee on East Asia and the Pacific), or government agencies (e.g., Defense POW/MIA Accounting Agency [DPAA], Department of the Air Force, U.S. Department of State). The document outlines the case background with in-depth explanations, a chronological timeline with event significance, key inconsistencies with Title 10 U.S.C. Chapter 76, and recommended actions. All references are drawn from attached referenced documents, emphasizing how events have unfolded over nearly six decades, leading to the current impasse.

Case Background

The Jade 22 case exemplifies the complexities of accounting for Vietnam-era losses in Laos, where U.S. operations along the Ho Chi Minh trail resulted in numerous unrecovered casualties. Majors William Edward Cordero (navigator, born July 20, 1935, in Santa Barbara, California) and Charles K. Lovelace (pilot) were assigned to the 8th Bomb Squadron, 34th Tactical Group, 13th Air Force, based in South Vietnam. On June 22, 1965, their B-57 Canberra bomber (tail number 53-53910, call sign “Jade 22”) departed on a night interdiction mission targeting supply routes on the North Vietnam and Laos border. The aircraft crashed in the Na Sao area of Bolikhamxay Province, likely due to enemy fire or mechanical failure. Both crew members were initially listed as Missing in Action (MIA), a status that persisted amid the challenges of wartime recovery in hostile territory.

The 1969 remains and artifact recovery by Special Forces (SF team stumbled onto the crash site on an unrelated mission) was limited to surface bone fragments and personal effects (e.g., Major Cordero’s ID card and weapons), yielding only a small mandible portion forensically linked to Cordero (Mortuary case TSN 0703-69) and presumed fragments for Lovelace (TSN 0936-69) without proper chain of custody. These remains were deemed insufficient for individual identifications under forensic standards at the time, resulting in a communal group burial (TSN GP Burial 1-69) at Arlington National Cemetery (Section 46, Site 1102). Local villagers (in 1995) later reported burying additional remains in an isolated grave at the crash site in 1968, a year prior to the SF team’s surface finds, a detail corroborated in later investigations but never pursued through excavation.

DPAA predecessors, including the Central Identification Laboratory-Hawaii (CILHI) and Joint Task Force-Full Accounting (JTF-FA), assigned the case REFNO/Exception Case 3002, recognizing it as an outlier where partial recovery did not preclude further efforts. The 1995 CILHI memorandum highlighted a “strong possibility” of recoverable remains leading to individual IDs, recommending immediate excavation. Prior commitments from high-ranking officials (e.g., Brig. Gen. Montague Winfield in 2004 and Maj. Gen. Stephen Tom in 2010) promised US/Lao-coordinated excavation of the isolated grave, reflecting the U.S. government’s “leave no one behind” ethos. In a 2017 letter from the Secretary of the Air Force’s office reaffirmed the case remained “on [DPAA’s] radar” as unaccounted-for, with site access challenges noted in a Lao federal reserve.

However, DPAA’s 2023 closure (Director Kelly K. McKeague’s letter) rejected further action, misguiding the family to private pursuits independently with the Lao government while the U.S. Embassy in Vientiane refused facilitation, citing the case as “resolved” and “outside mission area.” This has created an impasse, despite congressional advocacy tying the humanitarian effort to U.S.-Lao relations and annual aid. The Cordero family, now supported by AMAG, has pursued resolution since the 1990s, with recent private proposals to Laos (delivered unofficially in 2025) awaiting Laos’ official response. These events highlight systemic inconsistencies, including unfulfilled promises and violations of consular duties, denying closure after nearly 60 years.

Timeline of Key Events

This timeline details the sequence of events, providing context for each to illustrate the progression from incident to current advocacy. It highlights investigative breakthroughs, agency commitments, family involvement, and recent obstructions.

• June 22, 1965: Jade 22 crashes in Laos during a night mission over the Ho Chi Minh trail. Crew listed as MIA. This marks the start of the case, with immediate challenges due to the remote, hostile location amid the Vietnam War. (Reference: JTF-FA Report 1994)
• 1968: Lao villagers located crash site during a hunting trip and conducted an isolated burial of remains. (Reference: CIL Recommendation to Excavate.pdf [1995 Memo]) 
• February 1969: Special Forces reconnaissance team stumbled on the crash site, recover minimal surface remains and personal effects from the site. Fragments are insufficient for individual IDs, leading to group burial authorization. Villagers later report an unexcavated 1968 burial, but no further action is taken at the time due to wartime priorities. (Reference: CIL Recommendation to Excavate.pdf [1995 Memo])
• 1994: JTF-FA IE surveys the site in Bolikhamxay Province, recovers additional pilot-related material in a 100x100m area (narrowed to 40x40m), and corroborates villager burial accounts. This investigation positively identifies the site but recommends further excavation, establishing the case’s unresolved nature. Tony Cordero begins family advocacy under FOIA. (Reference: JTF-FA Report 1994, attached to A. Cordero LPDR FM Request.pdf)
• February 22, 1995: CILHI Commander COL William H. Jordan memos JTF-FA recommending excavation “at the earliest opportunity” due to NOK inquiries and recovery potential. The memo discusses forensic limitations of 1969 remains and “strong possibility” of IDs from the burial. (Reference: CIL Recommendation to Excavate.pdf)
• October 20, 1995: CILHI email to JTF-FA requests scheduling for 96-2L (next Laos mission), citing time sensitivity from family involvement, scavenging risks, and proximity to Khammouan Province sites. This underscores the case’s priority as an exception. (Reference: CIL Recommendation to Excavate.pdf)
• 1997: JTF-FA negotiates with Lao government for REFNO 3002 excavation during 97-3L review. Discussions fail to materialize into action, representing an early missed opportunity amid U.S.-Lao diplomatic progress. (Reference: REFNO 3002 97-3L document, cited in AMAG correspondence)
• 2004: Brig. Gen. Montague Winfield commits to coordinated excavation with Laos, based on 1994/1995 findings. This formal promise reflects ongoing agency recognition of the case’s unresolved elements. (Reference: BG Winfield Letter.pdf)
• 2010: Maj. Gen. Stephen Tom reaffirms excavation commitment, building on prior findings. This further documents DPAA predecessors’ intent to pursue fullest accounting. (Reference: MG Tom Letter.pdf)
• January 19, 2017: Secretary of the Air Force’s office letter to Tony Cordero (signed by Lt. Gen. Stayce D. Harris on behalf of Secretary Deborah Lee James and Chief of Staff Gen. David Goldfein) expresses sympathy, affirms “every effort should be made” for unaccounted-for Airmen, and notes the case “still on [DPAA’s] radar” with Lao site access difficulties. This indicates the Air Force viewed it as active post-DPAA formation. (Reference: Secretary of the Air Force 2017 Letter.pdf)
• 2023: DPAA Director McKeague’s letter to Mrs. Cordero D’Ambrosi rejects further recovery, acknowledging no authority but allowing private pursuits. This shifts responsibility to the family, despite prior commitments. (Reference: DPAA Cordero DAmbrosi Rejection Letter.pdf)
• January 2025: Tony Cordero contacts Mike Henshaw of Asymmetric MIA Accounting Group (AMAG) to conduct private recovery of Jade 22 site following DPAA Director McKeague’s 2023 guidance. (Reference: DPAA Cordero DAmbrosi Rejection Letter.pdf)”Private Recovery Effort” 
• March 2025: Mike Henshaw traveled to Laos and requested a meeting with DPAA Detachment 3. He met with DPAA’s Joshua Maskovich in Vientiane, where he briefed Mr. Maskovich on Jade 22 and explained that his purpose in Laos was to reconnaissance the site. Mike then took a side trip to Na Vang, Laos, to investigate potential connections between remains and pilot artifacts that might relate to Jade 22. Upon returning to Vientiane, he submitted a report to Mr. Maskovich and received confirmation that the meeting details and report had been forwarded to DPAA headquarters in Virginia. (Emails and AMAG report available on request)
• May 9, 2025: During a meeting at DPAA headquarters in Arlington, Virginia, Mike Henshaw and DPAA representative Jennifer Nasarenko confirmed legal constraints prohibiting DPAA involvement in private recovery efforts. Nasarenko recommended that Henshaw, AMAG, and the Cordero family pursue direct engagement with Lao authorities. This guidance enables independent private initiatives but precludes support from DPAA.
• July 20, 2025: Tony Cordero requests Lao humanitarian access for private, Lao-led recovery mission (<2 weeks, compliant with laws). The letter emphasizes non-political intent and attaches supporting docs. (Reference: A. Cordero LPDR FM Request.pdf)
• August 4, 2025: U.S. Embassy Vientiane refuses to forward appeals, citing “resolved” status and “outside mission area”—inconsistent with 7 FAM 150. (Reference: AMAG Cordero DPAA US Embassy Denial.pdf) [January 6, 2026 Response]
• August 15, 2025: Rep. Young Kim’s letter to Lao FM supports private mission, noting “vast majority” of remains unrecovered and U.S.-Lao war legacy cooperation. (Reference: 2025-08-15 Rep. Young Kim Letter to Laotian FM.pdf)
• August 19, 2025: AMAG emails Lao Embassy in D.C. to forward letters; confirmed forwarded to MoFA on October 28, 2025. AMAG’s Lao team hand-delivers Wittman’s letter in Vientiane. This unofficial route bypasses Embassy deflection. (Reference: Lao FM Letter Emails.pdf) 
• August 2025: Rep. Rob Wittman’s letter to Lao FM supports AMAG, noting DPAA/Embassy advice for direct engagement and availability for Vientiane meetings. (Reference: Wittman Letter michael henshaw 9251.pdf)
• September 15-16, 2025: In email exchange between Mike Henshaw of AMAG and AMAG’s local team in Laos, the team reported contacting Laos’ Ministry of Foreign Affairs (MoFA) to inquire about submitted letters and forward a new one. The team later updated that MoFA, aware of the requests, MoFA unofficially rejected private missions, insisting they must go through government channels via DPAA under bilateral agreements due to MIA sensitivity. Reference: (Henshaw Lao Team Email Exchange.pdf)
• December 13, 2025: AMAG’s formal notice to DPAA/Embassy of non-compliance with 7 FAM, citing failures in coordination and family support. (Reference: Re: FW: [External] Formal Notice of Non-Compliance with 7 FAM Consular Obligations [email thread])
• January 6, 2026: Embassy dismisses notice as “outside mission area,” compounding misguidance. (Reference: AMAG Cordero DPAA US Embassy Denial.pdf)
• January 19, 2026: DPAA’s Jennifer Nasarenko email clarifies no authority under §§1501, 1509, 1513, no waivers, and neutrality on third parties. AMAG responds demanding §1509 review, highlighting inconsistencies. (Reference: AMAG Cordero DPAA US Embassy Denial.pdf) 
• January 20, 2026: AMAG follow-up to DPAA reiterates review demand by January 26, quoting CIL memo excerpts and statutory grounds. (Reference: AMAG Cordero DPAA US Embassy Denial.pdf)

Statutory Analysis and Inconsistencies

Title 10 U.S.C. Chapter 76 establishes a uniform system for missing persons accounting, emphasizing family involvement and exhaustive efforts. §1501 requires the “fullest possible accounting,” mandating ongoing reviews and coordination. The case violates §1513(3)(B), as remains were not recovered “to the extent practicable”—the 1969 partials were minimal without chain of custody and the unexcavated isolated burial (with “strong possibility” of individual IDs per 1995 CIL) remains feasible. §1509 applies to Vietnam-era losses, treating unaccounted-for as “missing” and requiring boards on credible info (§1505 cross-referenced). DPAA’s closure ignores this, despite prior approvals (1995 CIL, 1997 JTF-FA) and commitments (2004/2010, 2017 Air Force letter). Embassy actions defy 7 FAM 150 (consular assistance, including local coordination). These inconsistencies—misguidance to private pursuits without support—erode trust and hinder closure for this and similar cases.

Current Status and Challenges

DPAA insists on “resolved” status, precluding action despite historical exceptions. Private Lao engagement (advised by DPAA) faces Embassy obstruction, creating a cycle of deflection. AMAG’s unofficial MoFA delivery awaits Laos’ official response. Challenges include diplomatic hurdles, agency bias against non-DPAA entities, and unfulfilled promises spanning decades. This has caused profound frustration for the families, as detailed in AMAG’s January 19/20, 2026, emails. Broader implications: Undermines U.S. credibility in POW/MIA accounting amid Lao aid, affecting dozens of similar partial-recovery cases.

Recommendations

1. Appoint a board under §§1504/1509 to review evidence for reclassification to “active pursuit,” enabling DPAA-Lao coordination.
2. Facilitate private or joint recovery, addressing Embassy non-compliance with 7 FAM.
3. Issue public acknowledgment from Director McKeague on inconsistencies to restore trust.
4. Conduct congressional oversight (e.g., HASC/HFAC) of DPAA Title 10 adherence for systemic reforms or Title 10 amendments for fullest possible accounting for such cases as Jade 22. 

References and Attachments

• CIL Recommendation to Excavate.pdf (1995 Memo)
• DPAA Cordero DAmbrosi Rejection Letter.pdf (McKeague’s 2023 Letter)
• 2025-08-15 Rep. Young Kim Letter to Laotian FM.pdf
• Wittman Letter michael henshaw 9251.pdf
• A. Cordero LPDR FM Request.pdf (Tony’s July 2025 Letter)
• Lao FM Letter Emails.pdf (Lao Embassy Correspondence)
• AMAG Cordero DPAA US Embassy Denial.pdf (December 13 - January 20, 2026 Email)
• Secretary of the Air Force 2017 Letter.pdf
• JTF-FA Report 1994 (attached to Tony’s Lao FM Request)
• Henshaw Lao Team Email Exchange.pdf (Internal Protected Email Exchanges) 
• 1996 JTF REFNO 3002 Excavation Negotiation.pdf 
• BG Winfield Letter of Agreement to Excavate.pdf 
• Major General Tom Letter of Agreement to Excavate.pdf 
• Pre 2023 Jade 22 Timeline All Documents and Photos.pdf  

For questions or briefings, contact: 

Mike Henshaw: mike@amagonline.org

Tony Cordero: anthony.p.cordero@gmail.com