Foreign Relations of the United States, 1969–1976, Volume XL, Germany and Berlin, 1969–1972

42. Memorandum From the President’s Assistant for National Security Affairs (Kissinger) to President Nixon¹

Washington, November 17, 1969.

SUBJECT

• Secretary Rogers’ Memorandum on Berlin

The Secretary has sent you a status report on the preparations for another round of exchanges with the Soviet Union on Berlin (Tab B).² He states that since our position in Berlin is tenable, it would be a mistake to raise fundamental questions concerning the status of the city. He believes, however, that quite a number of improvements in the situation might be achieved if the USSR is favorably disposed. Accordingly, we plan to develop with the British and French, a list of topics to propose for discussion with the Soviet Union. The Secretary feels that this will serve as a test of Soviet intentions and establish the framework of discussion on our terms.

He believes that we should proceed now, lest the new German government take up Berlin matters in bilateral talks with the USSR. Moreover, Bonn is urging us to move ahead as a contribution to their own discussion with the USSR on such issues as renunciation of force.

I am somewhat concerned about this exercise, especially in light of the essentially negative Soviet reply to the substance of our first overture. If we cast doubt on the validity of present arrangements, we leave the door open for the Soviets to propose modifications of their own. Since any arrangements depend on Soviet good will—they can, after all, harass any new arrangements—access depends less on legal formulations than on Soviet fear of the consequences of upsetting access routes.

I believe you will want to review our position before we approach the USSR again. I have drafted a brief note to this effect to the Secretary.

Recommendation:

That you approve sending this note (Tab A).³

1. Source: National Archives, Nixon Presidential Materials, NSC Files, Box 682, Country Files, Europe, Germany, Vol. III. Secret. Sent for action. According to another copy of the memorandum, Hyland drafted it on November 14. (Library of Congress, Manuscript Division, Kissinger Papers, Box CL 287, Memoranda to the President, 1969–1974, Oct.–Dec. 1969)
2. Attached at Tab B is an October 31 memorandum from Rogers to Nixon. In an October 28 memorandum to Rogers, Hillenbrand explained: “I understand that this subject is of much interest in the White House and that a memorandum from you to the President summarizing where we stand and where we are going would be welcome.” (National Archives, RG 59, Central Files 1967–69, POL 28 GER B) Sonnenfeldt, however, thought that the resulting memorandum failed to outline the issues on Berlin for the President. “Thus—although the State memo was inspired mainly by my prodding, after they sent an uncleared instruction to Bonn [Document 32] for more specifics so that the President could get a better feel for what we may get into in a new round of negotiations on Berlin—we are no further ahead than before.” (Memorandum from Sonnenfeldt to Kissinger, November 5; National Archives, Nixon Presidential Materials, NSC Files, Box 682, Country Files, Europe, Germany, Vol. III)
3. The President approved the note from Kissinger to Rogers (Tab A) on November 19. The text reads as follows: “The President has read with interest your memorandum of October 31 outlining the background of our exchanges with the USSR over Berlin matters and the steps we now plan to take. He would like to have the opportunity to review our position when you have developed the list of topics for discussion you mentioned. He strongly concurs in your feeling that after examining the Soviet response to a list of topics we should then make a determination whether to proceed further.” The original is ibid., RG 59, Central Files 1967–69, POL 28 GER B.