Foreign Relations of the United States, 1955–1957, United Nations and General International Matters, Volume XI

326. Memorandum From the President’s Special Assistant for National Security Affairs (Cutler) to the National Security Council¹

Washington, April 26, 1957.

SUBJECT

• Interim Report on Antarctica

REFERENCES

• A. NSC 5424/1²
• B. NSC 5528³
• C. NSC Action No. 1500⁴

1. In accordance with the President’s directive of March 20, 1957, based on a recommendation from the Secretary of State, the Planning Board has been engaged in a review of U.S. policy on Antarctica. Admiral Dufek, who has been in charge of U.S. Antarctica expeditions, and representatives of Interior and the National Science Foundation have participated in Planning Board discussions. Because the Planning Board is not yet prepared to recommend a revision of existing Antarctica policy, I submit this interim report.

2. The existing U.S. policy on Antarctica, adopted in July, 1954, provided that the United States would not make a formal claim to any Antarctica territory, but would reserve and at an appropriate later time reassert all its rights therein. At that time, and in subsequent reconsideration of the policy by the National Security Council in 1956, the major emphasis of U.S. programs in Antarctica was placed upon scientific activities in support of the International Geophysical Year.

3. …

4. The Planning Board has been considering the following matters in relation to any change in U.S. policy on Antarctica which would authorize the present assertion of a formal claim by the United States to any part of that continent, whether or not such part is now unclaimed or claimed by other powers:

a. It is not possible now to determine that the United States has at this time, or will have at some future time, a strategic or economic interest in Antarctica. On the other hand, the possibility of such a future determination of a U.S. interest should not be prejudiced by U.S. action or inaction now.

b. A known value to the world is the scientific information as to world weather conditions which is being ascertained, in collaboration with other participating nations, during the International Geophysical Year. Such information may improve future long-range weather forecasting and contribute more precise knowledge as to the earth’s atmosphere. There has been excellent cooperation among the different countries, including the Soviet Union, participating in these scientific activities in Antarctica. It is possible, although not certain, that the assertion by the United States of a formal claim in Antarctica might cause lessened Soviet cooperation during the International Geophysical Year, in Antarctica and elsewhere.

c. Existing knowledge of the natural resources of any part of Antarctica is inadequate to provide informed guidance to the United States in asserting a formal claim to any particular area. However, the existing unclaimed area of Antarctica appears to be of less value than other areas which are already claimed by other friendly Free World nations but in which the United States also has inchoate rights.

d. The assertion by the United States of a formal claim might legally improve the Free World position in Antarctica by completing Free World claims to the entire Antarctic continent. However, such an assertion might stimulate the assertion of Soviet claims and an extension of Soviet propaganda. In any case, the assertion of a U.S. claim will not prevent, and at best will only render more difficult, the acquisition and strengthening by the Soviet Union of legal claims to any part of Antarctica. In the final analysis, the Soviets can be denied access to the Antarctic continent only by force.

5. If the United States were to assert a formal claim to the unclaimed sector of Antarctica, it might be desirable at the same time for the United States to join with Australia and New Zealand in a condominium for administrative purposes over the sectors now or in the future claimed by the three powers. At the same time, the United States would assert formal claims, or reserve its rights to assert formal claims, in parts of Antarctica other than the unclaimed sector.

6. It is possible that India (which considered such action last year) may place Antarctica on the agenda of the United Nations with a view to some type of U.N. control. The Planning Board has requested the State Department to study and report on whether there could be developed some type of U.N. trusteeship over Antarctica which would protect friendly Free World claims and rights in the area, and to set forth in such report the advantages and disadvantages of the Free World initiating such a proceeding.

7. Before the end of 1958, when the International Geophysical Year terminates, the United States should adopt a long-term policy toward Antarctica. Because logistic problems in Antarctica necessitate preparing now for any operations to be carried on in Antarctica in 1959, it is necessary to develop at least minimum policy guidance as soon as possible.

8. The JCS Planning Board Adviser believes that the United States should now determine to assert formal claims in Antarctica at the appropriate time, and expresses opposition to any proposal for U.N. control or trusteeship in Antarctica.

Robert Cutler

1. Source: Department of State, S/S–NSC Files: Lot 63 D 351, NSC 5424 Series Memoranda. Copies were sent to the Secretaries of the Treasury and of the Interior, to the Directors of the Bureau of the Budget, the National Science Foundation, and the Central Intelligence Agency, and to the Chairman of the Joint Chiefs of Staff.
2. See footnote 2, Document 297.
3. Document 311.
4. See footnote 7, Document 313.