Foreign Relations of the United States, 1961–1963, Volume XI, Cuban Missile Crisis and Aftermath

155. Letter From President Kennedy to Chairman Khrushchev ⁰

Washington, November 6, 1962.

Dear Mr. Chairman: I am surprised that in your letter, which I received yesterday,¹ you suggest that in giving your representative in New York a list of the weapons we consider offensive there was any desire on our part to complicate the situation. Our intention was just the opposite: to stick to a well-known list, and not to introduce any new factors. But there is really only one major item on the list, beyond the missiles and their equipment, and that is the light bombers with their equipment. This item is indeed of great importance to us.

The solution of the Cuban affair was established by my letter to you of October twenty-seventh and your reply of October twenty-eighth.² You will recall that in my letter of October twenty-seventh, I referred to “all weapons systems in Cuba capable of offensive use.” You will also recall that in my broadcast address of October twenty-second,³ in addition to medium-range ballistic missiles, I mentioned specifically “jet bombers capable of carrying nuclear weapons,” as “an explicit threat to the peace and security of all the Americas.” Finally, my proclamation of October twenty-third entitled “Interdiction of the Delivery of Offensive Weapons to Cuba”⁴ specifically listed bomber aircraft. These facts were all known at the time of our exchange of letters on Cuba, and so it seems clear to me that our exchange of letters covers the IL-28s, since your undertaking was to remove the weapons we described as offensive.

Your letter says—and I agree—that we should not complicate the situation by minor things. But I assure you that this matter of IL-28s is not a minor matter for us at all. It is true, of course, that these bombers are not the most modern of weapons, but they are distinctly capable of offensive use against the United States and other Western Hemispheric countries, and I am sure your own military men would inform you that the continued existence of such bombers in Cuba would require substantial measures of military defense in response by the United States. Thus, in simple logic these are weapons capable of offensive use. But there is more in it than that, Mr. Chairman. These bombers could carry nuclear weapons for long distances, and they are clearly not needed, any more than missiles, for purely defensive purposes on the island of Cuba. Thus in the present context their continued presence would sustain the grave tension that has been created, and their removal, in my view, is necessary to a good start on ending the recent crisis.

I am not clear as to what items you object to on the list which Ambassador Stevenson handed to Mr. Kuznetsov. I can assure you I have no desire to cause you difficulties by any wide interpretation of the definitions of weapons which we consider offensive and I am instructing my representative in New York to confer promptly with Mr. Kuznetsov and to be as forthcoming as possible in order to meet any legitimate complaints you may have in order to reach a quick solution which would enable our agreement to be carried to completion. I entirely agree with your statement that we should wind up the immediate crisis promptly, and I assure you that on our side we are insisting only on what is immediately essential for progress in this matter. In order to make our position clear, I think I should go on to give you a full sense of the very strong feelings we have about this whole affair here in the United States.

These recent events have given a profound shock to relations between our two countries. It may be said, as Mr. Kuznetsov said the other day to Mr. McCloy, that the Soviet Union was under no obligation to inform us of any activities it was carrying on in a third country. I cannot accept this view; not only did this action threaten the whole safety of this hemisphere, but it was, in a broader sense, a dangerous attempt to change the world-wide status quo. Secret action of this kind seems to me both hazardous and unjustified. But however one may judge that argument, what actually happened in this case was not simply that the action of your side was secret. Your Government repeatedly gave us assurances of what it was not doing; these assurances were announced as coming from the highest levels, and they proved inaccurate.

I do not refer here only to the TASS article of September, but also to communications which were addressed to the highest levels of our Government through channels which heretofore had been used for confidential messages from the highest levels of your Government. Through these channels we were specifically informed that no missiles would be placed in Cuba which would have a range capable of reaching the United States. In reliance upon these assurances I attempted, as you know, to restrain those who were giving warnings in this country about the trend of events in Cuba. Thus undeniable photographic evidence that offensive weapons were being installed was a deep and dangerous shock, first to this Government and then to our whole people.

In the aftermath of this shock, to which we replied with a measured but necessary response, I believe it is vital that we should re-establish some degree of confidence in communication between the two of us. If the leaders of the two great nuclear powers cannot judge with some accuracy the intentions of each other, we shall find ourselves in a period of gravely increasing danger—not only for our two countries but for the whole world.

I therefore hope that you will promptly recognize that when we speak of the need to remove missiles and bombers, with their immediate supporting equipment, we are not trying to complicate the situation but simply stating what was clearly included in our understanding of October twenty-seventh and twenty-eighth. I shall continue to abide fully by the undertakings in my letter of October twenty-seventh, and specifically, under the conditions stated in that letter I will hold to my undertaking “to give assurances against an invasion of Cuba.” This undertaking has already come under attack here and is likely to become increasingly an object of criticism by a great many of my countrymen. And the very minimum that is necessary in regard to these assurances is, as we agreed, the verified removal of the missile and bomber systems, together with real safeguards against their reintroduction.

I should emphasize to you directly, Mr. Chairman, that in this respect there is another problem immediately ahead of us which could become very serious indeed, and that is the problem of continuing verification in Cuba. Your representatives have spoken as if this were entirely a problem for the Castro regime to settle, but the continuing verification of the absence of offensive weapons in Cuba is an essential safeguard for the United States and the other countries of this hemisphere, and is an explicit condition for the undertakings which we in our turn have agreed to. The need for this verification is, I regret to say, convincingly demonstrated by what happened in Cuba in the months of September and October.

For the present we are having to rely on our own methods of surveillance, and this surveillance will surely have to be continued unless, as we much prefer, a better and durable method can be found. We believe that it is a serious responsibility of your Government to insure that weapons which you have provided to Cuba are not employed to interfere with this surveillance which is so important to us all in obtaining reliable information on which improvements in the situation can be based. It was of great importance, for example, for me last week to be able to announce with confidence that dismantling of missiles has begun.

Finally, I would like to say a word about longer range matters. I think we must both recognize that it will be very difficult for any of us in this hemisphere to look forward to any real improvement in our relations with Cuba if it continues to be a military outpost of the Soviet Union. We have limited our action at present to the problem of offensive weapons, but I do think it may be important for you to consider whether a real normalization of the Cuba problem can be envisaged while there remains in Cuba large numbers of Soviet military technicians, and major weapons systems and communications complexes under Soviet control, all with the recurrent possibility that offensive weapons might be secretly and rapidly reintroduced. That is why I think there is much wisdom in the conclusion expressed in your letter of October 26th, that when our undertakings against invasion are effective the need for your military specialists in Cuba will disappear. That is the real path to progress in the Cuban problem. And in this connection in particular, I hope you will understand that we must attach the greatest importance to the personal assurances you have given that submarine bases will not be established in Cuba.

I believe that Cuba can never have normal relations with the other nations of this hemisphere unless it ceases to appear to be a foreign military base and adopts a peaceful course of non-interference in the affairs of its sister nations. These wider considerations may belong to a later phase of the problem, but I hope that you will give them careful thought.

In the immediate situation, however, I repeat that it is the withdrawal of the missiles and bombers, with their supporting equipment, under adequate verification, and with a proper system for continued safeguards in the future, that is essential. This is the first necessary step away from the crisis to open the door through which we can move to restore confidence and give attention to other problems which ought to be resolved in the interest of peace.

Sincerely,⁵

0. Source: Kennedy Library, National Security Files, Meetings and Memoranda Series, Executive Committee, Vol. II, Meetings, 17-24. No classification marking.
1. Document 145.
2. See Documents 95 and 102.
3. For text, see Public Papers of the Presidents of the United States:John F. Kennedy, 1962, pp. 806-809.
4. For text, see ibid., pp. 809-811.
5. Printed from an unsigned copy.