April–October 1971: Change and Reassessment


72. National Security Study Memorandum 122

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 365, Subject Files, National Security Study Memoranda, Nos. 104–206. Secret. Copies were sent to the Secretary of Commerce, the Secretary of Agriculture, the Special Representative for Trade Negotiations, the Director of the U.S. Information Agency, the Chairman of the Joint Chiefs of Staff, and the Assistant to the President for International Economic Affairs. Kissinger rejected earlier drafts of this NSSM, arguing that economic issues should be placed at the end of the NSSM rather than near the front. (Kissinger marginalia on memorandum from Richard T. Kennedy to Kissinger, April 2; ibid., NSC Institutional Files (H-Files), Box H–182, National Security Study Memoranda, NSSM 122 [3 of 3]) The NSSM was also changed to include a member of Peterson’s staff on the Interdepartmental Group that prepared the requested study. (Memorandum from Richard Kennedy to Kissinger, April 12; ibid.) The Senior Review Group examined the issues raised by this memorandum on August 7, August 26, and September 7, while the CIEP Review Group considered economic aspects of these issues on August 10. The result of these meetings was the issuance of National Security Decision Memorandum 130, September 7, Document 94, which prepared the U.S. delegation before the eighth U.S.-Japan Joint Economic Committee Meeting, on September 9 and 10.


73. Memorandum of Conversation

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 554, Country Files, Far East, Okinawa, Vol. II, 1971 and 1972. Secret. The meeting was held in Kissinger’s office. Holdridge sent Kissinger talking points for this meeting in a memorandum of June 1. (Ibid., Box 536, Country Files, Far East, Japan, Vol. IV, 1 Jan–June 30, 1971)


74. Telegram From the Embassy in Japan to the Department of State

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 536, Country Files, Far East, Japan, Vol. IV, 1 Jan–30 June 1971. Secret; Exdis. Repeated to the Consulate at Hong Kong, Paris, Taipei, and USUN.


75. Memorandum From the Deputy Assistant Secretary of State for East Asian and Pacific Affairs (Brown) to the Under Secretary of State for Political Affairs (Johnson)

Source: National Archives, RG 59, Central Files 1970–73, POL 32–6 SENKAKU. Secret. Drafted by Mary E. McDonnell and Thomas P. Shoesmith in EA/ROC. A handwritten notation indicates that it was “LDXed to WH-Kissinger” on June 7. No record has been found of Ambassador Johnson’s original request for a chronology.


76. Airgram From the Embassy in Japan to the Department of State

Source: National Archives, RG 59, Central Files 1970–73, POL JAPAN–US. Confidential. Drafted by William C. Sherman, a political officer at the embassy on June 8. Deputy Chief of Mission Richard Sneider approved its contents, and Meyer cleared it in draft.


77. Memorandum From the Acting Executive Secretary of the Department of State (Brewster) to the President’s Assistant for National Security Affairs (Kissinger)

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 536, Country Files, Far East, Japan, Vol. V, 1 Jul–Sep 71. Limited Official Use. Sent to Kissinger under a July 26 covering memorandum from Holdridge, which Kissinger initialed.


78. Memorandum From the President’s Assistant for National Security Affairs (Kissinger) to President Nixon

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 536, Country Files, Far East, Japan, Vol. V, 1 Jul–Sep 71. Secret. Sent for information. A note on the first page reads: “Not sent—per Gen. Haig.” See Laird’s report on his trip to Japan, Document 80.


79. Letter From President Nixon to Japanese Prime Minister Sato

Source: National Archives, Nixon Presidential Materials, White House Central Files, Staff Member and Office Files, Box 1, Peter Peterson, Subject Files, Textile Negotiations, April–July 1971. Nixon signed this letter after receiving it from Kennedy during a meeting at the Western White House that started at 10:08 a.m. At the same time Nixon signed a similar letter designated for Korean President Chung Hee Park. (Ibid.) Kennedy also gave Nixon a memorandum describing the course of the textile negotiations in the Far East. He noted that the negotiations were at a “make-or-break point” and “the key is Japan.” (Ibid.) Richard Kennedy and Ernest Johnston of the NSC staff prepared a July 15 briefing memorandum for Kissinger in anticipation of this meeting. (Ibid., NSC Files, Box 400, Subject Files, Textiles, Vol. IV, Jan–Dec 1971) From 10:35 to 10:40 a.m., Kennedy remained behind to speak with the President, as others in the room departed. At this time, Nixon probably offered Kennedy the ambassadorship to Japan, a proposition that he made at some point on July 16. On July 19, Kennedy sent a memorandum to the President declining this post. (Ibid., Nixon Presidential Materials, White House Special Files, Staff Member and Office Files, Box 14, Peter Flanigan, Special Files, 1971)


80. Memorandum From Secretary of Defense Laird to President Nixon

Source: Washington National Records Center, RG 330, OSD Files: FRC 330–76–197, Box 67, Japan, 333 Laird. Top Secret; Sensitive; Eyes Only.


81. Memorandum for the Record

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 536, Country Files, Far East, Japan, Vol. V, 1 Jul–Sep 71. Secret; Limdis. Drafted July 20 by U. Alexis Johnson who sent it under cover of a letter to Kissinger on that date. In his letter, Johnson noted that his memorandum did not mention “the fact that Ushiba showed me a long letter that Prime Minister McMahon of Australia had sent to Prime Minister Sato about the necessity of Japan and Australia concerting with each other on the U.N. problem, in the light of the U.S. move to Peking that had caught them both off guard.” Holdridge forwarded Johnson’s letter to Kissinger under a July 22 memorandum, in which he observed: “The main thrust of Ushiba’s comments on the China announcement was that, since by giving only short notice to Tokyo we had pulled the rug out from under the traditional Japanese policy of close collaboration with the U.S. in foreign policy, it is now of the greatest importance that we consult closely on Chirep.” Kissinger initialed Holdridge’s memorandum. (Ibid.)


82. Memorandum From Secretary of State Rogers to President Nixon

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 757, Presidential Correspondence File, 1969–1974, Japan (Sato Corr) 1969–8 July 1972. Secret; Nodis. An August 2 note indicates that Rogers’ memorandum was incorporated into the President’s brief. (Ibid.)


83. Memorandum of Conversation

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 536, Country Files, Far East, Japan, Vol. V, 1 Jul–Sep 1971. Top Secret; Sensitive. The meeting took place in Kissinger’s office. Kissinger approved this memorandum, which Holdridge had sent him under an August 20 memorandum.


84. Summary Paper Prepared by the Interdepartmental Group for East Asia

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files) Box H–182, National Security Study Memoranda, NSSM 122 [2 of 3]. Secret. The Chairman of the NSC Interdepartmental Group for East Asia and the Pacific, Winthrop Brown, sent this study to Kissinger on August 2. (Washington National Records Center, RG 330, OSD Files: FRC 330–76–197, Box 67, Japan, 092, SRG Mtg. material) For NSSM 122, see Document 72.


85. Letter From President Nixon to Japanese Prime Minister Sato

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 757, Presidential Correspondence Files 1969–1974, Japan (Sato Corr) 1969–8 July 1972. Secret.


86. Memorandum From the President’s Assistant for International Economic Affairs (Peterson) to President Nixon

Source: National Archives, Nixon Presidential Materials, White House Special Files, Staff Member and Office Files, Box 1, Peter Peterson, Subject Files, Textile Negotiations, April–July 1971. Secret. Sent for information. The source text is a copy that indicates Peterson signed the original.


87. Minutes of Senior Review Group Meeting

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–112, SRG Minutes, Originals, 1971 [2 of 6] Folder 2. Secret. Holdridge sent Kissinger talking points for this meeting under an August 5 covering memorandum. (Ibid., Box H–058, SRG Meeting—Japan (NSSM 122) 8/6/71) The meeting took place in the White House Situation Room. Kissinger saw these minutes on September 7. Tresize and Brown sent a briefing memorandum concerning NSSM 122 to Irwin, presumably in anticipation of this meeting. (Department of State, S/S Files: Lot 80D212, NSSM 122) Doolin summarized the meeting by noting that “each department [took] substantially the positions” advocated at previous meetings, and “No decisions were made.” (Memorandum for the record, August 9; Washington National Records Center, RG 330, OSD Files: FRC 330–76–197, Box 67, Japan, 092)


88. Memorandum From John Holdridge and Robert Hormats of the National Security Council Staff to the Deputy Assistant to the President for National Security Affairs (Haig)

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 536, Country Files, Far East, Japan, Vol. V, 1 Jul–Sep 71. Secret. Sent for information. Haig’s initials on the memorandum indicate he saw it. An account of this meeting, drafted by Winthrop Brown, is ibid., RG 59, Central Files 1970–73, E 1 JAPAN–US.


89. Telegram From the Department of State to the Embassy in Japan

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 536, Country Files, Far East, Japan, Vol. V, 1 Jul–Sep 71. Confidential; Immediate; Exdis. Drafted by Johnson and approved by Johnson and Eliot. In telegram 8278 from Tokyo, August 24, Meyer summarized the effects of Nixon’s new economic program on Japan. He asserted: “Recent US actions, particularly new economic program, have had constructive effect in Japan, forcing Japan to face realities of 70’s.” (Ibid.) In response to Nixon’s new economic program, the Japanese Ministry of Finance announced on August 27 that it would let the yen float against the dollar.


90. Memorandum of Conversation

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 536, Country Files, Far East, Japan, Vol. V, 1 Jul–Sep 71. Secret; Sensitive. The meeting took place in Kissinger’s San Clemente office. Lord transmitted the memorandum to Kissinger on September 8, under a memorandum indicating that another Kissinger-Ushiba meeting would take place that day and noting: “I have given a sanitized account of this meeting to Holdridge’s shop to help them prepare your basic talking paper.” (The sanitized version is ibid.) Kissinger’s talking points for the August 21 meeting with Ushiba were contained in an August 19 memorandum from Holdridge and Hormats in which they noted, “Your conversation with Ambassador Ushiba on July 23 was extremely valuable, I am told, in dampening down elements within the Japanese leadership who, as a result of the President’s China initiative, argued for a more independent Japanese foreign policy. However, there are now new complications in US-Japanese relations resulting from the President’s recently-announced economic measures.” For a memorandum of conversation of the July 23 meeting, see Document 83.


91. Minutes of a Senior Review Group Meeting

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–112, SRG Minutes, Originals, 1971, [2 of 6]. Secret; Sensitive. The NSC staff sent Kissinger a briefing memorandum for this meeting, which took place at the Western White House. (Memorandum from Holdridge and Hormats to Kissinger, August 25; ibid., Box H–059, Senior Review Group Meetings, SRG Meeting—Japan 8/27/71) Kissinger noted the minutes of this meeting. (Memorandum from Davis to Kissinger, September 2; ibid., Box H–112, SRG Minutes, Originals, 1971, [2 of 6]) The Department of Defense also prepared a record of this meeting. (Rear Admiral Flanigan memorandum for the record, undated; Washington National Records Center, RG 330, OSD Files: FRC 330–76–197, Box 67, Japan, 123, Tab D2 from briefing material for CIEP meeting of September 7, 1971) U. Alexis Johnson also prepared an account of this meeting and sent it to Rogers as an information memorandum. Johnson wrote, “Discussion on economic issues was brief and inconclusive.” (Memorandum from Johnson to Rogers, August 31; National Archives, RG 59, Lot Files, General Files on NSC Matters, Box 4, NSCSRG Memos, 1971) The Department submitted to the SRG a paper on political issues in response to an oral request from Holdridge for answers to four questions posed by Kissinger at the August 6 Senior Review Group meeting: “1. Where is Japan Going? 2. What Kind of a Japan Do We Want? 3. How Do We Get It To Go There? 4. What are the Costs?” (Memorandum from Eliot to Kissinger, August 24; ibid., Nixon Presidential Materials, White House Special Files, White House Central Files, Subject Files, Confidential Files, CF, CO 75, Japan 1/1/71–9/30/71) The CIEP submitted a paper addressing “next steps” for approaching U.S.-Japan economic relations. (Memorandum from Peterson to CIEP Review, August 24; ibid.) On August 26, Davis distributed a paper entitled “The Possibility of a Looser Relationship with Japan and its Consequences,” for consideration at the meeting. The NSC Inter-Departmental Group for East Asia apparently drafted it. (Ibid.)


92. Memorandum From Secretary of State Rogers to President Nixon

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–227, National Security Decision Memoranda, NSDM 130. Secret. On September 2, Eliot sent a memorandum to Kissinger confirming that this memorandum from Rogers constituted the Department’s response to Kissinger’s September 1 memorandum requesting a paper on non-economic issues to be raised in the ECONCOM meeting. (Memoranda from Eliot to Kissinger, September 2, and from Kissinger to Irwin and Peterson, September 1; both ibid., Box H–059, Senior Review Group Meetings, SRG Meeting—Japan 8/27/71) Kissinger and Peterson sent Rogers’ September 1 memorandum under a September 5 action memorandum to Nixon who approved it. The memorandum subsequently became NSDM 130. (Ibid.) For NSDM 130, see Document 94.


93. Minutes of a Senior Review Group Meeting

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–112, SRG Minutes, Originals, 1971, [2 of 6]. Secret; Sensitive. The meeting took place in the White House Situation Room. Members of the NSC staff provided Kissinger with talking points for this meeting. (Memorandum from Holdridge and Hormats to Kissinger, September 6; ibid., Box H–059, Senior Review Group Meetings, SRG Meeting—Japan 9/7/71) Kissinger initialed these minutes on September 9. All brackets are in the source text.


94. National Security Decision Memorandum 130

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 364, Subject Files, National Security Decision Memoranda, Nos. 97–144. Secret. On September 5, Kissinger and Peterson sent this memorandum to Nixon who initialed his approval. (Ibid., NSC Institutional Files (H-Files), Box H–227, National Security Decision Memoranda, NSDM 130) on September 6, Hormats sent a memorandum to Kissinger, recommending that he send the draft of NSDM 130 to the President. Hormats stated: “On balance I believe this scenario deals fairly with State, Treasury, and CIEP’s positions, it minimizes the possibilities of creating political friction with Japan over economic issues, but makes a strong case for measures which we believe highest priority—i.e., yen revaluation and trade liberalization. And we would not give the Japanese so much in the technology field that it would jeopardize the China trip.” (Ibid., Box H–059, Senior Review Group Meetings, SRG Meeting—Japan 9/7/71) Copied to 16 relevant officials including the Secretaries of the Treasury, Defense, Agriculture, Commerce, Labor, Interior, and Transportation.


95. Memorandum From the President’s Assistant for National Security Affairs (Kissinger) to President Nixon

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 536, Country Files, Far East, Japan, Vol. V, 1 Jul–Sep 71. Secret. Sent for information. A notation on the memorandum indicates Nixon saw it. Kissinger forwarded this memorandum to the President as Hormats and Froebe recommended in their September 3 memorandum. (Ibid.) Kissinger edited the Hormats/Froebe draft by eliminating a paragraph that read: “In retrospect, the effect of our China and economic initiatives was probably to accelerate Prime Minister Sato’s departure from the Japanese political scene—his opponents added their heavy criticism of his handling of U.S.-Japan relations and China policy to their earlier mounting criticism of him on several other scores. On China policy, they claimed that Japan had to develop an independent policy to keep the U.S. from getting out in front in normalizing relations with Peking.” (Ibid.)


96. Memorandum From the President’s Assistant for National Security Affairs (Kissinger) to President Nixon

Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–059, Senior Review Group Meetings, SRG Meeting—Japan 8/27/71). Confidential. Sent for information. A stamped notation on the memorandum indicates the President saw it.


97. Memorandum of Conversation

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 1025, Presidential/HAK Memcons, Memcon—The President, PM Takeo Fukuda, et al., Sept. 10, 1971 re: China/Japan. Secret; Nodis. On September 9, Rogers submitted a memorandum and talking points to Nixon for this meeting. (Ibid., RG 59, Central Files 1970–73, POL 7 JAPAN) Fukuda had asked Ushiba to meet with Kissinger, prior to Fukuda’s meeting with Nixon, in order to brief Kissinger about Japan’s domestic problems. This meeting took place on September 8 at 2 p.m. in Kissinger’s office. (Memorandum of conversation; ibid., Nixon Presidential Materials, NSC Files, Box 536, Country Files, Far East, Japan, Vol. V, 1 Jul–Sept 1971) As preparation for Nixon’s September 10 conversations with Fukuda, Hormats sent Kissinger a memorandum on September 10, which provided advice on issues to raise, including yen revaluation, import liberalization, and the textile controversy. (Ibid., Box 402, Subject Files, Trade, Vol. IV, Jul–Dec 1971) On September 9, Rogers also sent the President a memorandum with attached talking points for his meeting with Fukuda. (Ibid., Box 285, Agency Files, Department of State, Vol. 13, 1 Sept–31 Dec 1971)


98. Memorandum of Conversation

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 1025, Presidential/HAK Memcons, Memcon—The President, PM Takeo Fukuda, et al., Sept. 10, 1971 re: China/Japan. Secret; Nodis. The President’s Daily Diary indicates that the President hosted a dinner in honor of the Joint U.S.-Japanese Committee on Trade and Economic Affairs from 8:16 to 10:20 p.m. (Ibid., White House Central Files) In another memorandum of conversation from the same dinner, Fukuda described to Nixon the Japanese Government’s Cabinet reshuffle that had taken place in July. (Ibid., NSC Files, Box 1025, Presidential/HAK Memcons, Memcon—The President, PM Takeo Fukuda, et al, Sept. 10, 1971 re: China/Japan)


99. Paper Prepared by the Interdepartmental Group for East Asia

Source: Washington National Records Center, RG 330, OSD Files: FRC 330–76–197, Box 67, Japan, 092. Secret. During its August 27 meeting, SRG attendees had requested this paper, see Document 91. Brown sent this study to Kissinger on October 1. (National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–182, National Security Study Memoranda, NSSM 122 [3 of 3]). Davis sent it to members of the review group on October 5, and noted: “It will be considered by the Senior Review Group at an early meeting.” (Washington National Records Center, RG 330, OSD Files: FRC 330–76–197, Box 67, Japan, 092) There is no indication that the Senior Review Group discussed this document.


101. Memorandum of Conversation

Source: National Archives, Nixon Presidential Materials, NSC Files, Box 537, Country Files, Far East, Japan, Vol. VI, October–31 December 1971. The meeting took place in Kissinger’s office. According to an October 21 covering memorandum from Froebe to Haig, Kissinger approved the October 15 memorandum and requested that no further distribution be made. (Ibid.)