Eighteen-Nation Disarmament Commitee; Seabed Arms Control Treaty
63. Memorandum From the President’s Assistant for National Security Affairs (Kissinger) to President Nixon
Kissinger recommended holding an NSC meeting to discuss the issues on the agenda for the upcoming Eighteen-Nation Disarmament Conference (ENDC) meeting in Geneva. In addition to this conference, he also recommended that an ad hoc study group be established to prepare a paper on the issues likely to be discussed, including the comprehensive test ban, ending production of fissionable material, and seabed arms control.
Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–136, NSSM 20. Secret. Nixon initialed his approval of both of Kissinger’s recommendations.
64. National Security Study Memorandum 20
President Nixon directed that a study be prepared on the full range of issues and proposals involved in the ENDC meeting scheduled to resume on March 6, 1969.
Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–21, NSC Meeting, 3/15/69. Secret.
65. Memorandum From the Director of the Arms Control and Disarmament Agency (Smith) to the President’s Assistant for National Security Affairs (Kissinger)
Smith reviewed the issues on the agenda for the March ENDC meeting. The items included a comprehensive test ban (CTB), seabed arms control, chemical and biological warfare (CBW), prohibitions on nuclear weapons or fissionable material, nuclear free zones, conventional disarmament, general and complete disarmament, and ENDC enlargement.
Source: National Archives, Nixon Presidential Materials, NSC Files, Box 319, Subject Files, Eighteen-Nation Disarmament Conference (ENDC). Confidential.
66. Memorandum From the Director of the Arms Control and Disarmament Agency (Smith) to the President’s Assistant for National Security Affairs (Kissinger)
Smith forwarded the four issues paper that had been prepared in response to NSSM 20. These detailed papers provide extensive background information, multiple perspectives, and proposals for the possible upcoming topics—comprehensive test ban, cut-off fissionable material production for weapons purposes, and seabed arms control—at the ENDC meeting.
Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–34, Senior Review Group Meeting, 3/6/69. Top Secret; Restricted Data; Limdis. Copies were sent to Rogers, Laird, Wheeler, Helms, Seaborg, and Dubridge.
67. Memorandum From Spurgeon Keeny and Morton Halperin of the National Security Council Staff to the President’s Assistant for National Security Affairs (Kissinger)
The memorandum briefed Kissinger for the next day’s Review Group. It focused on the three key issues for the ENDC, the test ban, the halting of production of fissionable material, and arms control for the seabeds. He went on to outline the “substantial” disagreement between the AEC, the JCS, the ACDA, and the DOD on each item. On the second issue, the NPT, Keeny reiterated the U.S. position of not pressuring nations to sign the agreement. Also included was an Agenda for the following day’s ENDC meeting.
Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–34, Senior Review Group Meeting, 3/6/69. Top Secret. Sent for action.
68. Memorandum for the Record
The memorandum summarized the discussion at the March 6 NSC Review Group Meeting. The Review Group conducted a brief discussion of the accuracy of the paper “Positions of Key Countries on the Non Proliferation Treaty” and a more complete analysis of the preparations made for the upcoming ENDC.
Source: Central Intelligence Agency, Job 80–B01086A, Director of Central Intelligence, ER Subject File, Box 7, NSC Review Group. Secret. Prepared by R.J. Smith.
69. Issues Papers Prepared by the National Security Council Staff
The three issues papers on the U.S. positions for the ENDC were forwarded to NSC members prior to the March 15 NSC meeting. These papers addressed the three key issues on the agenda of the ENDC, the comprehensive test ban, the cutoff of fissionable material production, and the seabed arms control. The papers fully detail the problems, issues, and summaries of each item.
Source: National Security Council, Secretariat, Box 83, NSC Meeting 1/29–4/9/69, ENDC–3/15/69 Meeting. Top Secret. Jeanne Davis forwarded the papers to Agnew, Rogers, Laird, and George Lincoln under cover of a March 10 memorandum in which she stated that the papers would be discussed at an NSC meeting on March 12. The NSC meeting was held on March 15.
70. Memorandum of Conversation
Soviet Ambassador Dobrynin and Arms Control and Disarmament Agency Director Smith discussed the upcoming ENDC meeting and signing of the NPT.
Source: National Archives, RG 59, Central Files 1967–1969, DEF 18–3. Secret. Drafted on March 11 by Gleysteen. The meeting was held in Smith’s office at ACDA.
71. Briefing Paper Prepared for the President
Prepared in anticipation of the March 12 NSC meeting, the paper outlined the four key issues on which the President should be prepared to make decisions. Although the paper encouraged the President to support the comprehensive test ban, it cautioned him not to “press for an agreement.” It then recommended that the President support the cutoff and insist the inspections be the responsibility of the IAEA. It requested the issue of seabed arms control be tabled to allow for future discussions. While the meeting was scheduled for March 12, it was held, instead, on March 15.
Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–21, NSC Meeting, ENDC 3/15/69. Top Secret. The paper is not signed and bears no indication of who drafted it or whether it was forwarded to the President.
72. Talking Paper Prepared for Secretary of Defense Laird and the Chairman of the Joint Chiefs of Staff (Wheeler)
This paper was prepared in the Department of Defense for use by Laird and Wheeler at the March 15 NSC meeting on the ENDC. The OSD and JCS opposed the support of a test ban, but had conflicting views on whether to support the CTB. On the issue of the proposed cut-off of fissionable material, the JCS and the OSD differed considerably. The OSD argued a cut-off was in the interest of U.S. security and the JCS disagreed with the assessment. Finally, both the OSD and the JCS agreed that a seabed arms control agreement was not in the interests of the U.S. and should not be supported.
Source: Washington National Records Center, OSD Files, Box 7, FRC 330–75–103, 388.3 (August 1969). Top Secret. The approval lines on page 7 were signed by Vice Admiral Nels Johnson of the Joint Staff and Ralph Earle II, Principal Deputy Assistant Secretary of Defense for International Security Affairs. Earle forwarded the talking paper to Laird under cover of a March 14 memorandum. (Ibid.) Document 69 includes the issues papers at Tab A. NSSM 20 at Tab B is Document 64. The OSD/JCS paper at Tab C is not published.
73. Memorandum From the Director of the Arms Control and Disarmament Agency (Smith) to the President’s Assistant for National Security Affairs (Kissinger)
In this memorandum, Smith noted that the only “negotiable” issue concerned the seabed arms control agreement. He then asked for the authority to make a specific proposal at the ENDC.
Source: National Archives, Nixon Presidential Materials, NSC Files, Box 319, Subject Files, Eighteen-Nation Disarmament Conference (ENDC). Secret. The memorandum was forwarded to Kissinger by NSC staff member Keeny under cover of a March 14 memorandum. (Ibid.)
74. Journal Entry by the Chairman of the Atomic Energy Commission (Seaborg)
Seaborg kept detailed notes on the March 15 NSC meeting. At this discussion, participants examined the current U.S. position on the three key issues presented at the ENDC meeting—the comprehensive test ban, the cutoff of fissionable material production, and the seabed arms control proposal—and debated whether to modify the position. Ultimately, the participants agreed to maintain the U.S. position on all three issues.
Source: Department of Energy, Records of the U.S AEC, Job 65–42, Seaborg Diary, pp. 99100–99108. Confidential.
75. Letter From President Nixon to the U.S. Representative to the Eighteen-Nation Disarmament Conference (Smith)
In this letter, publicly released on March 18, Nixon issued instructions to Smith on the positions he should take at the conference in order to usher in “an era of negotiations”. Smith was to articulate the U.S. interest in working with other nations to address all issues on the agenda without making solid commitments to any one issue.
Source: National Archives, Nixon Presidential Materials, NSC Files, Box 319, Subject Files, Eighteen-Nation Disarmament Conference (ENDC). No classification marking.
76. Memorandum From the President’s Assistant for National Security Affairs (Kissinger) to President Nixon
Kissinger discussed Director of U.S. Arms Control and Disarmament Agency Smith’s formal instructions for the ENDC. He attached a cable with a proposed change to the U.S. position on the fissionable material cutoff for Nixon’s approval.
Source: National Archives, Nixon Presidential Materials, NSC Files, Box 319, Subject Files, Eighteen-Nation Disarmament Conference (ENDC). Confidential. Sent for action. Nixon initialed “Approve.” Attached are Documents 75 and 77.
77. Telegram 41598 From the Department of State to the Mission in Geneva
Secretary of State Rogers cabled detailed instructions to Arms Control and Disarmament Agency Director Smith during the ENDC conference. Rogers confirmed that the U.S. supported a CTB providing the on-site inspections were sufficiently verified and to restrict production of fissionable weapons materials. Moreover, the U.S. favored a seabed arms treaty, providing a list of four questions were satisfactorily discussed.
Source: National Archives, RG 59, Central Files 1967–1969, DEF 18–3. Confidential; Immediate. It was repeated to USNATO, USUN, all NATO capitals, Tokyo, and Moscow. Drafted by Kranich (ACDA/IR) and Scoville (ACDA/ST); cleared in ACDA, AEC, DOD, J/PM, and the White House; and approved by Rogers.
78. Soviet Draft Treaty
The Soviets submitted a draft seabed arms control treaty at the opening session of the ENDC. This proposed treaty banned nuclear weapons and those of mass destruction from the seabed and the ocean floor outside of the twelve-mile territorial zone and opened those former ocean testing sites for inspection and verification.
Source: Documents on Disarmament, 1969, pp. 112–113. No classification marking.
79. Memorandum From the Military Assistant (Haig) to the President’s Assistant for National Security Affairs (Kissinger)
In this memorandum, Haig recounted the Chairman of the Joint Chiefs of Staff Wheeler’s objection to the ACDA’s proposal to transmit to Director of U.S. Arms Control and Disarmament Agency Smith additional instructions that, in Wheeler’s view, “clearly stepped beyond the bounds set earlier.”
Source: National Archives, Nixon Presidential Materials, NSC Files, Box 319, Subject Files, Eighteen-Nation Disarmament Conference (ENDC). Confidential. The March 25 memorandum at Tab A has four attachments; the attachments at Tabs 1 and 2 are Documents 75 and 77; [3/15 letter; tel 3/18] the draft telegram at Tab 4 was sent, as revised, to the U.S. Mission in Geneva on March 22. (Telegram 44780; National Archives, RG 59, Central Files 1967–1969, DEF 18–3)
80. Statement by the U.S. Representative to the Eighteen-Nation Disarmament Conference (Smith)
Following a number of general observations, Smith set forth the United States position on the comprehensive test ban proposal, restrictions on fissionable weapons material, and the seabed arms treaty to the ENDC.
Source: Documents on Disarmament, 1969, pp. 131–138. No classification marking.
81. Telegram 965 From the Mission in Geneva to the Department of State
The telegram reported on the March 25 Co-Chairmen meeting in which Smith and Roshchin of the Soviet Union discussed progress toward a seabed arms treaty.
Source: National Archives, Nixon Presidential Materials, NSC Files, Box 366, Subject Files, Non-Proliferation Treaty through March 1969. Secret; Limdis; Priority. It was repeated to Moscow, USUN, and USNATO. Sonnenfeldt forwarded the telegram to Kissinger under a covering note noting “that things seem to be moving quite fast on this” and “we may find ourselves in the midst of a real negotiation on a treaty on the basis, so far, of telegraphic instructions rather than an NSC decision.” (Ibid.)
82. Notes of Telephone Conversation Between the President’s Assistant for National Security Affairs (Kissinger) and the Director of the Arms Control and Disarmament Agency (Smith)
Kissinger and Smith discussed the situation at the ENDC meeting in Geneva. Smith told Kissinger that “if we wanted the Seabed Treaty we could probably get one.” Kissinger remarked that he thought the issue should go before the NSC.
Source: Library of Congress, Manuscript Division, Kissinger Papers, Telephone Conversations, Chronological File, Box 359, 14–31 March 1969. No classification marking.
83. Memorandum From the President’s Assistant for National Security Affairs (Kissinger) to President Nixon
Kissinger outlined the debate over the proposed Soviet treaty to ban all military use of seabeds and highlighted the ACDA counter proposal targeting nuclear weapons only. He then recommended that the NSC consider whether a treaty prohibiting nuclear arms on the seabeds would be in the overall U.S. interest and what time scale they should follow should the negotiations continue. He attached a draft NSSM requesting a study of the issue for Nixon’s consideration.
Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–146, NSSM 41. Confidential. Nixon initialed “Approve.” The attachment at Tab A is not published. The signed and dated NSSM is Document 202.
84. National Security Study Memorandum 41
The President directed that a report outlining both the positive and negative perspectives on the proposed plan to prohibit the use of nuclear and other weapons of mass destruction on the seabeds. Specifically, Nixon wanted an analysis of all alternate suggestions and their feasibility, possible influential factors, and whether seabed arms control was in the best interest of the U.S.
Source: National Archives, Nixon Presidential Materials, NSC Files, Box 365, Subject Files, NSSMs (1–42). Confidential. Haig initialed the memorandum.
85. Memorandum From Spurgeon Keeny and Morton Halperin of the National Security Council Staff to the President’s Assistant for National Security Affairs (Kissinger)
The memorandum briefed Kissinger on key issues and differing policy positions for the upcoming Review Group meeting on a seabed arms control treaty. The March 12 NSC meeting revealed conflicting opinions over what weapons to ban, the territorial zone restrictions, and the feasibility of hosting an inspection.
Source: National Archives, Nixon Presidential Materials, NSC Files, National Security Council Institutional Files (H-Files), Box H–35, Senior Review Group Meeting, Seabeds 4/25/69. Top Secret. Sent for action.
86. Study Prepared by Ad Hoc National Security Council Steering Committee
The study was prepared in response to NSSM 41 and addressed whether the agreement proposed by the U.S. was in its national interests; the feasibility of the alternative solutions introduced; whether the agreement should create a blanket ban or target only certain weapons; would apply to a specific zone; and if there should be provisions for inspection. The study continued with a discussion of possible difficulties and prospective successes on an issue by issue basis. It was then circulated, with revisions, on April 26 for discussion at the April 30 NSC meeting.
Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–22, NSC Meeting 4/30/69. Top Secret; Controlled Dissem; Limdis. Under cover of an April 26 memorandum, Jeanne Davis forwarded copies of the paper, for discussion at the NSC meeting on April 30, to Agnew, Rogers, Laird, Lincoln, Richardson, Wheeler, and Helms. She noted that the study had been revised to take into account comments received on the version distributed April 25. (Ibid.) The telegram at Tab C was repeated for information to USUN and USNATO.
87. Memorandum From the Principal Deputy Assistant Secretary of Defense for International Security Affairs (Ware) to Secretary of Defense Laird
Ware transmitted a Talking Paper which discussed the projected seabeds treaty for Laird’s use at the NSC meeting on April 30. The more detailed Talking Paper unpacked the nuanced disagreement between the OSD and JCS over security interests, factors, and prospective success of the proposed seabed treaty.
Source: Washington National Records Center, OSD Files: FRC 330–75–103, 801.2, Jan–Mar. Top Secret. A stamped notation on Ware’s memorandum indicated the Secretary of Defense saw it on April 30. The attached Talking Paper is signed by G. Warren Nutter and Vice Admiral Nels Johnson of the Joint Staff. Attached to the Talking Paper at Tabs A and B are Documents 86 and 84.
88. Briefing Paper Prepared for the President
Prepared in anticipation of the April 30 NSC meeting, the paper outlined the issues for decision. It recommended four things. First, that the President investigate the degree of opposition to the DOD position that the treaty is not in the overall interest of the United States before making any substantial decisions. Second, is to focus on a ban of fixed systems on the seabeds instead of all military activities. Third, that there should be no provision for a formal inspection to gauge compliance. Finally, that the zone be restricted to twelve miles.
Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–22, NSC Meeting 4/30/69. Secret. The paper is not signed and bears no indication of who drafted it or whether it was forwarded to the President. The attached intelligence report, SNIE 11–12–68, Emplacement of Weapons of Mass Destruction on the Seabed, is not published. It is printed in part in Foreign Relations, 1964–1968, volume XI, Arms Control and Disarmament, Document 271.
89. Draft Minutes of National Security Council Meeting
The discussion at the NSC meeting focused on the recent ENDC meeting in Geneva, Switzerland and whether to go ahead with a seabed arms control treaty. They introduced a detailed list of pros and cons concerning each facet of the proposed Soviet draft and the U.S. counterproposal and debated the provisions at length. The President concluded that negotiations should proceed.
Source: Library of Congress, Manuscript Division, Kissinger Papers, TS 82, NSC Meetings, April 1969. No classification marking. On page 9 of the minutes is written, “Could not understand the tape. There was an echo.” The minutes were drafted on June 9, 1969. No final minutes have been found.
90. Notes of Telephone Conversation Between the President’s Assistant for National Security Affairs (Kissinger) and Secretary of Defense Laird
Laird indicated that he had suggestions for the wording of a draft treaty which he did not want to discuss at the April 30 NSC meeting. He wanted to get his changes to the President before the final draft was determined and he asked to send them over to Kissinger. Kissinger agreed.
Source: Library of Congress, Manuscript Division, Kissinger Papers, Box 359, Telephone Conversations, Chronological File, 23–30 April 1969. No classification marking.
91. Notes of Telephone Conversation Between the President’s Assistant for National Security Affairs (Kissinger) and the Director of the Arms Control and Disarmament Agency (Smith)
Kissinger and Smith discussed the proposed treaty and the NSC meeting earlier that day. Smith inquired into a comment made by President Nixon at the meeting and Kissinger responded with an outline of Nixon’s general philosophy concerning international responsibility vis ‘a vis the seabeds treaty.
Source: Library of Congress, Manuscript Division, Kissinger Papers, Box 359, Telephone Conversations, Chronological File, 23–30 April 1969. No classification marking.
92. Memorandum From the Assistant Secretary of Defense for International Security Affairs (Nutter) to Secretary of Defense Laird
Nutter forwarded a proposed memorandum to the President from Laird articulating the preferred DOD wording for the proposed seabed arms control treaty and discussed its purpose.
Source: Washington National Records Center, OASD/ISA Files: FRC 330–72–6309, 388.3 May–July 1969. Secret. The attachment is not published. The signed memorandum is Document 93.