121. Telegram 46628 From the Department of State to the Mission in Geneva1
46628. Subject: CCD Spring 1975 Session—General Guidance for U.S. Delegation.
1. Summary: Spring 1975 session of the Conference of the Committee on Disarmament (CCD), opening Mar 4 in Geneva, will have fuller agenda than last year. Besides holdover items of chemical weapons limitations and comprehensive nuclear test ban, as result of 1974 UN General Assembly resolutions CCD will take up two new subjects—environmental modification and arms control implications of peaceful nuclear explosions—and will organize an experts’ study of the question of nuclear free zones. In addition, recent congressional legislation requires U.S. action at this CCD session to promote consideration of conventional weapons limitations. This message outlines our approach to main issues likely to arise during spring session. Detailed guidance will be provided on specific topics as needed.
2. Environmental Modification: U.S. and Soviet officials convened for second time February 24 to discuss restraints on military use of En Mod, pursuant to agreement at 1974 summit. U.S. has presented draft multilateral convention for Sovs’ consideration, without, however, taking decision that convention is necessarily best vehicle for international En Mod restraints. If that decision proves affirmative, and were Soviets ultimately to accept U.S. approach as basis for joint CCD initiative, the two countries conceivably could present an agreed draft to CCD as basis for negotiation pursuant to 1974 UNGA res. However, USSR En Mod del leader implied at bilaterals that regardless of outlook for eventual accommodation of approaches at CCD Sovs would table draft text they introduced at UNGA last fall. U.S. thus faces decision whether to submit its own draft in CCD.
[Page 407]3. Del will be given additional instructions, to extent needed, in light of U.S.–USSR bilaterals and any future U.S. policy decisions. Meanwhile Del should, as appropriate, reaffirm our intention to engage in serious examination of relevant issues, while noting that USG has not yet decided whether effective measures to limit En Mod should take form of international agreement. Del should, when appropriate, point out that U.S. has already unilaterally renounced hostile use of climate modification. While taking care not to promote interest in Soviet draft convention, in response to queries del should note that it contains elements we cannot accept. Pending further guidance, in any discussion of topic del should bear in mind U.S. position that consideration of possible measures on En Mod should focus on limiting military use of applications having widespread, long-lasting or severe effects.
4. Peaceful Nuclear Explosions (PNEs): U.S.–USSR bilateral talks on threshold test ban/PNE issues may not be concluded before end of spring CCD session; IAEA is actively engaged in consideration of PNE issues; and preparations are underway in USG for consideration of PNEs at NPT Review Conference. It is therefore likely that overall U.S. policy will not be resolved during CCD’s spring session. Overriding objective for del, accordingly, will be to ensure that CCD deliberations do not prejudge U.S. policy decisions. Depending on such decisions we may wish to set forth U.S. views on various PNE questions in formal statement during spring session; purpose would be to set stage for NPT conference. Del can also expect to be called on to defend U.S. position informally. A tactics paper on PNEs is being provided separately.
5. Nuclear Free Zone Study: Separate tactics paper provides guidance on organization of NFZ study project. Because study will involve highly-charged political issues not susceptible to solution by technical experts, we succeeded at UNGA in having study entrusted to CCD instead of UNSYG. As tactics paper indicates, we favor organizing study in manner that will permit adequate control of project by CCD while permitting participants opportunity to state views, including individual dissents. Objective is a study that will contribute to general understanding of complex NFZ issues while adequately reflecting US views and that will be a credit to CCD, which will bear responsibility for success or failure of project.
6. Comprehensive Test Ban: CTB is not expected to be major subject of discussion at CCD spring session in view of U.S.-Soviet agreement on Threshold Test Ban (TTB) and continuing bilateral negotiations on PNE agreement pursuant to TTB Article III. We do not intend to make statements that might promote interest in CTB. However, del should as appropriate (e.g. in response to queries) reaffirm U.S. commitment to adequately verified CTB, while indicating that our position that [Page 408] adequate verification requires some on-site inspection remains unchanged.
7. To avoid provoking queries about ongoing bilateral TTB/PNE negotiations, del should take no initiative to raise TTB with other dels. If others raise matter, however, del should avoid any appearance of defensiveness and should be prepared to counter criticisms, using PNE tactics paper guidance as well as questions and answers to be provided separately. (Qs and As are now in interagency clearance process and will be provided ASAP.)
8. Chemical Weapons (CW): Question of possible proposal to USSR for joint CW initiative in CCD, pursuant to 1974 summit statement, has not yet been decided. Pending USG policy decisions and corresponding instructions, del should be guided by CW policy instructions issued for use at last CCD session and at 1974 UNGA, copies of which are available to del.
9. Conventional Arms: Section 51(a) of Foreign Assistance Act of 1974 expresses sense of Congress that recent growth in conventional arms transfers to developing countries is cause for grave concern; urges President to propose that CCD consider as high priority agenda item limitations on conventional arms transfers and establishing mechanism for monitoring such limitations; and directs President to report to Congress within six months after enactment of act (i.e., by June 30, 1975) on steps taken to carry out this legislation.
10. Opening U.S. statement will reiterate our interest in promoting CCD discussion of conventional arms control problems and refer to intention to raise subject later in session. Statement on conventional arms (designed to meet congressional requirements) will be provided del at later date.
11. Openness on Military Expenditures: Del should informally renew our previous support for Swedish advocacy of greater openness in reporting military expenditures. Annex to UNSYG experts’ report on reduction of military budgets (ROB) (prepared by U.S. expert) made several useful points in this connection and may be drawn upon. We wish to consider further the possibility of a formal intervention on this subject later in session and would welcome del’s recommendations.
12. Additional CCD Enlargement: There may be pressure from one or more countries—notably Australia and possibly Ghana—for their early inclusion in Committee. If subject is raised, del should explain that in U.S. view Committee needs time to assimilate recent enlargement by five members. If others ask general attitude of USG toward question of additional enlargement, del should respond that we consider that CCD cannot remain effective multilateral negotiating forum unless it is limited in size. We would want to weigh carefully whether any [Page 409] further enlargement should be considered in interest of broader representation if this would mean loss in effectiveness.
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Summary: The Department transmitted general guidance for the U.S. delegation to the Conference of the Committee on Disarmament, scheduled to open in Geneva on March 4.
Source: National Archives, RG 59, Central Foreign Policy File, D750074–0123. Confidential. Drafted by Black; cleared by Flowerree, Robert Blake (IO), Humphrey (EUR/SOV), Norman Terrell (C), William Shinn (C), Louise McNutt (EA/RA), G. Harlow (OSD/ISA), S. Thompson (ERDA/IR), Shea, Lee Niemela (ACDA/MEA), Walker Givan (ACDA/IR), Gathright, Huberman, Elliott, and Jay Moffat (S/S); approved by David Klein (ACDA). Repeated for information to the Mission to NATO, USUN, the Mission to the IAEA in Vienna, Moscow, Canberra, and the U.S. delegation to the MBFR talks in Vienna. The 27th session of the CCD opened in Geneva on March 4 and concluded on April 10.
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