Foreign Relations of the United States, 1961–1963, Volume XXV, Organization of Foreign Policy; Information Policy; United Nations; Scientific Matters

392. Memorandum From the Under Secretary of State (Ball) to President Kennedy¹

Washington, July 5, 1962.

SUBJECT

• Bilateral Talks Concerning US–USSR Cooperation in Outer Space Activities

On May 15 the Secretary wrote to you describing the developments in this matter prior to the recent talks in Geneva between Dr. Dryden and Professor Blagonravov.² These talks commenced on May 29 and continued concurrently with meetings of the subcommittees of the UN Outer Space Committee. As a result, technical arrangements for three specific cooperative projects were agreed ad referendum to the US and Soviet Governments in a joint memorandum signed by Dr. Dryden and Professor Blagonravov on June 8. (See Enclosure 1.)³ On the same day, Dr. Dryden and Professor Blagonravov issued a joint Press Communique summarizing briefly the results of these discussions. (See Enclosure 2.)⁴

The three projects involve (1) exchange of weather data from satellites and the eventual coordinated launching of meteorological satellites, (2) a joint effort to map the magnetic field of the earth by means of coordinated launchings of geomagnetic satellites and related ground observations, and (3) cooperation in the experimental relay of communications via the Echo satellite. It was also agreed that there should be further discussion of the possibility of broader cooperation in experiments using active communications satellites to be launched in the future. These arrangements are quite limited in scope and have been drawn carefully to assure reciprocal benefit. They have been developed in the context of multilateral programs (e.g., the program of the World Meteorological Organization for the acquisition and world-wide distribution of weather data, and the program being planned by the International Union of Geodesy and Geophysics for a world geomagnetic survey). The Soviets appeared quite anxious to achieve these agreements.

The arrangements proposed in the joint Dryden-Blagonravov memorandum represent a sound way of proceeding so long as they are adhered to by the Soviet Government and are developed in such a way as not to foster an impression abroad that they represent a more significant step toward US–Soviet cooperation than they actually do or that US-USSR cooperation will in any way preempt the cooperation already being developed with other countries.

There remain three other specific projects which were suggested in your exchange of correspondence with Chairman Khrushchev last March, but on which no specific conclusions or proposals have been reached during the technical discussions so far, i.e.: (1) the acquisition of data obtained through tracking facilities located in each other’s countries but operated by the host governments, (2) joint observation of solar and interplanetary probes, and (3) space medicine. Although it seems clear that the Soviets are not interested in cooperating in tracking and it appears doubtful that they are really interested in joint observation of space probes, it would be well to afford them the opportunity to discuss all these projects further.

Upon Dr. Dryden’s return from Geneva, Under Secretary McGhee, who is coordinating this matter for the Department, convened a meeting of the interested agencies of government in which Dr. Dryden, Dr. Welsh, Dr. Reichelderfer and representatives of Dr. Wiesner, Mr. Bundy, the Defense Department, the Air Force and CIA participated. A review of the recent discussions in Geneva and of the specific proposals contained in the joint Dryden-Blagonravov memorandum resulted in agreement to proceed as follows:

1. After a reasonable interval and if no serious objections have been raised by any of the interested agencies, Dr. Dryden will inform Professor Blagonravov that we have no changes to suggest in their joint memorandum.⁵ (The memorandum provided for a two-month waiting period during which either party could propose changes.)

2. Upon notification from Professor Blagonravov that the Soviets do not desire changes which would be unacceptable to us (or at the conclusion of the two-month waiting period), we will, assuming the Soviets still wish to proceed, exchange notes with the Soviet Government to confirm government-level agreement to these proposals.

3. It was suggested that when that agreement has been obtained, you may wish to write to Chairman Khrushchev noting both the agreement to proceed with the specific arrangements at hand and the prospects of further technical discussions on additional topics. A draft of such a letter will be submitted for your approval.

4. Meanwhile, Under Secretary McGhee and Dr. Dryden will report these developments to members of Congress who have a specific interest and responsibility in this field, and the Department will prepare a report to be sent to the Secretary General of the United Nations when formal agreement has been reached with the Soviets.

5. Dr. Dryden will, in cooperation with the interested agencies, proceed now to arrange nominations for US membership in the joint US-Soviet working groups which are to develop the detailed implementation of the meteorological and geomagnetic proposals. These working groups will not, however, be activated until formal agreement has been reached with the Soviet Government.

6. The joint Dryden-Blagonravov memorandum will be treated as Confidential, pending government-level agreement by the Soviets or earlier Soviet public release.

7. After formal agreement has been obtained, Dr. Dryden will arrange directly with Professor Blagonravov for further technical discussions, possibly in Moscow this fall, concerning broader cooperation in communication via satellites and the possibility of cooperation in such of the remaining topics dealt with in your exchange of letters with Chairman Khrushchev as may seem worthwhile to pursue further.

It is our feeling that the present low key, step-by-step approach through informal talks by scientific representatives continues to be the preferable means of moving toward further cooperation and that we should plan to proceed on this basis after government-level agreement has been reached on the specific arrangements already proposed.

George W. Ball

1. Source: Kennedy Library, National Security Files, Meetings and Memoranda Series, NSAM No. 129, U.S.-USSR Space Cooperation, Box 334. Confidential. Also printed in Exploring the Unknown, Volume II: External Relationships, pp. 163–164. In a July 13 attached memorandum to the President, Bundy noted that the three projects described in this memorandum had been reviewed by the CIA, the Defense Department, and various members of Congress and were “quite safe.” “In essence they provide for the kind of cooperation in which we get as much as we give, and in which neither our advanced techniques nor our cognate reconnaissance capabilities will be compromised.”
2. Dryden and Blagonravov held their first meetings to discuss U.S.-Soviet space cooperation May 29–June 8 in Geneva, Switzerland.
3. For text of the Summary of Understandings, signed by Dryden and Blagonravov on June 8, see American Foreign Policy: Current Documents, 1962, pp. 1328–1332.
4. Not printed.
5. On July 9 Dryden sent a letter to Blagonravov, informing him that he had no changes to suggest in the text of the Summary, that Congressmen George P. Miller and James G. Fulton had been added to the list of U.S. advisers, and that a selection process for the U.S. members of the joint working groups was being devised. (NASA Historical Reference Collection, Folder 003296, US–USSR Peaceful Uses Outer Space, 1962)