DRAFT NUMBER TWO -(Sanitized)

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP80B01676R002500100013-2
• Release Decision: RIPPUB
• Original Classification: C
• Document Page Count: 22
• Document Creation Date: December 15, 2016
• Document Release Date: October 10, 2002
• Sequence Number: 13
• Publication Date: November 14, 1957
• Content Type: LETTER

ER-9- 9'/'
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DRAFT NUMBER TWO -
- 14 NOVEMBER. 1957
25X1
Dear Marshall Bulganin:
Since our exchange of letters a year ago, two highly significant
events have commanded the attention of the world, One is felicitous for
mankind -- the other, ominously foreboding.
The happy event is the successful launching of the Russian satellites0
I would be glad if, in my behalf, you would extend sincere congratulations
to those responsible for this important achievement0
The tragic event is the failure of the disarmament negotiations to
achieve any concrete success0 Though differences have been narrowed,
agreement still eludes us
II am sure the implications of a continued technological arms race are
clear and of heavy concern to you0 The future will be tragic for humankind
if technology remains harnessed to serve war, rather than peace and the
noble purpose of man and his Cod0
In this letter I would like to deal with specific actions pertaining to
both these events0 Some of these actions I am now taking, and others I
would like to suggest for your consideration.
With regard to satellites and space flight, it would seem important
that our scientists and engineers work together on specific projects
CCONADENTlAL
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wherever possible. Such measures will help achieve an end we both
prayerfully seek -- that space shall be used by men only for peaceful
pursuits.
To this end, II would like to suggest that Soviet scientists launch
some of the satellite instrumentations which our scientists have built for
the X, G. Y. I believe such a joint project might produce certain scientific
answers sooner than could either of our programs separately. It would
also start us in joint endeavors for the peaceful exploration of space.
There is a second step which we should take immediately. As you
know, during the recent disarmament negotiations, we suggested that an
international scientific group be convened immediately to study the technical
problems involved in controlling the use of space for peace. Could we not
take prompt action, and thus embark immediately on yet another joint
effort in space affairs ?
On the horizon lies the exploration of the moon and planets. We would
be pleased to examine with the Soviet Government the possibility of polling
our resources for interplanetary exploration.
By over-flying the United States with satellites, the Soviet Government
has raised the legal question of national sovereignty in the upward direction,
It has been pointed out that the situation is somewhat analogous to that which
led to the establishment of the three-mile sovereignty limit for international
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waters in relation to the range of coastal gun fire at the time. I note that
your two satellites are still passing over all the countries of the world. It
will surely be unusual in the future not to find one vehicle or another over
each nation's sovereign air spaces. The Soviet vehicles have established
that there are limits to national sovereignty vertically -- a position we
fully accept. Undoubtedly an international group should be convened shortly
to begin technical discussions on this subject.
Meanwhile, the United States Government will act on the only practical
basis possible -- namely, that national sovereignty extends as high into
the air spaces as defensive military aircraft can operate and thus control.
In this nuclear age, we cannot assume that higher overflights are
always for peaceful purposes. I therefore suggest that we immediately
work out an arrangement to provide for the prior registration and inspection
of all overflight vehicles above those air spaces which most nations can
today control themselves and which therefore can be considered sovereign --
namely, the practical operating height of military aircraft.
As you know from. my suggestions when we met in Geneva in July
1955, I deeply believe that mutual overflying of each others territory can
very beneficially serve the interests of peace. Thus, in no way does the
United States Government intend to protest noraggressive overflights by
the Soviet Government, regardless of whether your vehicles are used
COd~il I ~i il/ 0u
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primarily for scientific observations of space, or for observation of the
earth's surface as in aerial inspection. It has been intimated that observa-
tion of United States military activity is or will be accomplished by Soviet
satellites. If so, I welcome this initiative by the Soviet Government as. a
concrete step toward aerial inspection.
As a second step to facilitate aerial inspection, I have designated
(unnamed) Air Base in Alaska as the port of entry for Soviet aerial
inspection aircraft. From today, you may notify the commander of that
air base of the route from Siberia and estimated arrival times of your
inspection aircraft. He will arrange for refueling, maintenance, interim
landings of your inspection aircraft while over United States territory, for
their inspection and the boarding of a United States monitoring official, and
for the priority clearance of their flight plan through our air traffic control
system to fly where you may like over the United States.
As you are aware, we are not dependent on USSR bases for our over-
flights. Therefore, I have ordered our aerial inspection of the USSR to
commence, but at altitudes greatly in excess of USSR sovereign air spaces
that is, at altitudes considerably greater than those normally defended by
Soviet aircraft. The special vehicles and balloons we have built for this
peaceful purpose are of course unarmed, and will fly so high that most will
probably not be seen. But if they should have unforeseen difficulties, I am
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CONADEN L
confident that the Soviet Government will provide for their safe return.
If you would prefer to put our aerial inspection of the USS
same basis as we have offered to you-.namely, from a Soviet port of
entry and lower altitude flights within Soviet sovereigns air spaces o_ we
will be pleased to operate under an ana$ogous arrangement. But the above
interim system will suffice until hopefully you may be able to designate a
port of entry and arrange other particulars for normal aerial inspection.
Additionally, the U.S, has under construction a satellite for aerial
inspection, to supplement aircraft used for this purpose. We intend to
commence test flights in 1959. Assuming that a U.N. armsss-control agency
is then in operation, we expect to make results from this inspection
satellite available to that agency. In this connection your Government might
wish to collaborate with us in making the beat possible satellite inspection
system available to the United Nations.
With further reference to the subject of disarrmamment, d would. like
to tell you of the other actions the U. S, Government is now taking in an
effort to break the deadlock and bridge the slim remaining gap that unfortunately
failed of negotiation in the recent parleys.
1, The U. S. Government has suspended all test of nuclear weapons,
provided that no other nation conducts such test, provided that internn.tional
inspection to control such a limitation is installed within one year, and
CCO UU~~ i' r " L
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provided that an agreement is reached and controls installed within two
years so that henceforth all nuclear materials are produced for peaceful
and not military purposes.
2. With regard to the question of inspection at ground control posts
which you urged upon me at Geneva, we are prepared to receive immediately
up to 500 Soviet inspectors in the U.S. for one year and arrange for their
posting to watch our military movements at airfields, ports, railway centers
and other such points of your choice. The arrangement can be extended if
within their period, we can install a similar number in the USSR, or hopefully
negotiate a more complete international agreement that would extend the
area and objects of such control, and would also provide for mobile ground
inspection operations.
3. Within six months the U.S. Government will reduce the number of
its military effectives to 2, 500, 000. If the Soviet Government takes similar
action, and if we can install a mutually satisfactory inspection system to verify
conventional force levels, then the U.S. is prepared to make an further
reduction.
4. With regard to renouncing the use of nuclear weapons, the U.S. has
already renounced to clarify in an international convention just what is meant
by their use in self-defense against both conventional and nigclear aggressions.
CONVOENTAL
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Further to advance disarmament action, I am today writing President
(unx amed) of the U.N. General Assembly to tell him of our plans to
construct an, inspection satellite and to offer its results to a 1.3.INT. arms control
agency. H will also tell him of an aerial inspection force which we are
organizing to place under the control of such an. agency, to cover areas of
the world not inspected under mza.tua' arrangements. I shall also point out
that all results froxr. U.S. inspection efforts will be rrnade available to a
U.N. agency, on request.
I feel sure you will regard sympathetically this action to break the
disarm.arrment deadlock and to move concretely to free technology better
to serve mankind in his peaceful pursuits. If our collaboration. to this end
can be advanced by meeting to discuss comments you may have regarding
the above, and our possible future actions, l will be delighted to meet under
U.N. auspices wi Wh you and with the heads of ouch other U, N. Governments
as sma-;,r be appropriate.
C?WDENU AL
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Draft
14 November 1957
Since our exchange of letters a year ago, two highly
significant events have commanded the attention. of the world.
One is felicitous for mankind--the other, ominously foreboding.
The happy event is the successful launching of the
Russian satellites. I would be glad it, in my behalf, you would
extend sincere congratulations to those responsible for this
important achievement. .
The tragic event is the failure of the disarmament
negotiations to achieve any concrete success. Though differences
have been narrowed, agreement still eludes us.
I am sure the implications of a continued technological
arms race are clear and of heavy concern, to you. The future will
be tragic for humankind if technology remains harnessed to serve
War, rather than Peace and the noble purposes of man and his trod.
In this letter I would like to deal with specific .
actions pertaining to both these events. Some of these actions
I am now taking, and others I would like to suggest for your
consideration.
With regard to satellites and space flight, it would
seem important that our scientists and engineers work together
on specific projects wherever possible. Such measures will help
achieve an end we both prayerfully seek--that space shall be used
by men only for peaceful pursuits.
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-ill
Page 2.
To this end, I would like to offer Soviet scientists
some of the satellite instrumentations which our scientists
have built for the I.G.Y. I believe such collaboration might
produce certain scientific answers sooner than could either of
our programs separately. I would also start us in joint endeavors
for the peaceful exploration of space.
There is a second step which we should take immediately.
As you know, during the recent disarmament negotiations, we
suggested that an international scientific group be convened
mmediately to study the technical problems involved in controlling
the use of space for peace. Could we not take prompt action, and
thus embark immediately on yet another joint effort in space
affairs?
On the horizon lies the exploration of the moon and
planets. We would be pleased to examine with the Soviet government
the possibility of pooling our resources for interplanetary explo-
ration.
By over-flying the U.S. with satellites, the Soviet
government has raised the legal question of national sovereignty
in the upward direction. It has been pointed out that the
situation is somewhat analogous to that which led to the establish-
ment of the 3-mile off-shore sovereignty limit for national
waters in relation to the range of coastal gun fire at the time.
If there were any previous doubts the Soviet vehicles have now
established that there are also vertical limits to national
sovereignty. Undoubtedly an international group :should be convened
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Page 3.
shortly to begin technical discussions on this subject.
while, the U.S. Government will act on the only practical basis
possible--namely, that national sovereignty extends as high into
the air spaces as defensive military aircraft can operate and
thus control.
I note that your two satellites are still passing over
all the countries of the world. It will surely be unusual in
the future not to find one vehicle or another over national air
spaces. In this nuclear age, we cannot assume that higher over-
flights are always for peaceful purposes. I therefore suggest
that we immediately work out an arrangement to provide for the
prior registration and inspection of all overflight vehicles above
those air spaces which most nations can today control themselves
and which therefore can be considered sovereign--namely, the
practical operating height of military aircraft.
As you know from my suggestions when we met in Geneva
in July 1955, I deeply believe that mutal overflying of each
other's territory can very beneficially serve the interests of
Peace. Thus, in no way does the U.S. Government intend to protest
non-aggressive overflights by the Soviet government, regardless
of whether your vehicles are used primarily for scientific
observation of space, or for observation of the earth's surface
as In aerial inspection. It has been intimated that observation
of U.S. military activity is or will be accomplished by Soviet
satellites. If no, I welcome this Initiative by the Soviet govern-
as a concrete step toward "open skies" inspection.
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have designated Air Base in Alaska as the port of
entry for Soviet inspection aircraft. Whenever you may wish to
begin, if you will notify us of the route from Siberia and
estimated arrival times of your Inspection aircraft, we will
arrange for refueling, maintenance,, and interim landings of
your Inspection aircraft while over U.S. territory; for their
inspection and the boarding of a U.S. monitoring official; and
for the priority clearance of their flight plan through our
air traffic control system to fly where you may like over the
U.S.
As a second step to facilitate aerial inspection,
Page 4.
As you are aware, we are not dependent on U.S.S.R. bases
for our overflights. Our aerial Inspection of the U.S.S.R. can
commence from our existing bases and at altitudes greatly in
excess of U.S.S.R. sovereign air spaces--that is, at altitudes
considerably greater than those normally defended by Soviet air-
craft. The special vehicles and balloons we have built for this
peaceful purpose are of course unarmed, and will fly much higher
than your normal commercial or military air traffic. We do not
expect you will be caused any trouble whatsoever by these over-
confident that the Soviet Government will provide for their safe
conduct and return.
If you mould prefer to put our aerial inspection of
the U.S.S.R. on the same basis we have offered to you--namely,
lower flights within Soviet sovereign air space conducted from
a Soviet port of entry-.we will be pleased to operate in this
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flights. But if they should have unforeseen difficulties
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Page 5.
manner. But the above interim system will suffice until hope-
fully you may be able to designate a port of entry and arrange
other particulars for normal aerial inspection.
Additionally, the '.* . has under construction a
satellite for space inspection, to supplement inspection aircraft.
We intend to commence test flights in 1959. Assuming that a U.N.
Arms Control Agency is then in operation, we.expect to make
results from this inspection satellite available to that agency.
In this connection your government might wish to collaborate with
the best possible satellite inspection system
available to the Ti .N.
tellite inspection, as you are well aware,
is inevitable. What I am proposing is that it be established in
such a way that its full potentialities are used to facilitate
international arms control agreements.
With further reference to the subject of disarrent,
the U.S. Government is now acting to break the deadlock and bridge
the slim remaining gap that unfortunately failed of negotiation
in the recent parleys. I believe you will find much in the
following which meets the Soviet position.
1. The ;,U.S. Government has temporarily suspended all
tests of nuclear weapons. We will continue this suspension
provided that no other nation conducts such tests, provided inter-
national agreement and inspection to control test limiations is
,invediately negotiated and installed, and provided that an agree-
ment is reached promptly and controls installed within two years
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so that all nuclear materials are thenceforth produced for
peaceful and -not military pur=poses.
2. With regard to the question of inspection at ground
control posts which you urged upon me at Geneva, we are prepared
to receive immediately up to >t + Soviet inspectors in the U.S.
for one year and arrange for their posting to watch our military
movements at airfields, ports, railway centers and other such
points of your choice. The arrangement can be extended if within
this period, we can install a similar number in the .S.S.., or
hopefully negotiate a more complete international agreement that
would extend the area and objects of such control, and would also
provide for mobile ground inspection operations.
3. WW .thin six rioriths the t .S. Government will reduce
the number of its military effectives to 2,500,000. If the Soviet
government takes similar action, and if we can install a mutually
satisfactory Inspection system to verify conventional force
levels, then the U.S. is prepared to make a further reduction.
4. With regard to renouncing the use of nuclear weapons,
the U.S. has already renounced their use except in self-defense.
However, we stand prepared to clarify in an international convention
what Is meant by their use in self-defense against both
conventional and nuclear aggressions.
Further to advance disarmament action, I aim today writing
the President of the J.N. General Assembly to tell him of our
plans to construct an inspection satellite and to offer its results
to a 11.1i, Axons Control Agency. I will also tell him of an aerial
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e 7.
inspection force which we are offering to place under the control
of such an agency, to cover areas of the world not inspected
under mutual arrangements. I shall also point out that all
results from U.S. inspection effort will be made available to
a U.N. agency on request.
I feel sure you will regard sympathetically these actions
to break the disarmament deadlock and to move concretely to free
technology better to serve mankind in his peaceful pursuits. If
our collaboration to this end can be advanced by meeting to
discuss comments and actions regarding the above, or other arms
control measures I will be delighted to meet under U.I.
auspices with you and with the heads of such other u.u.N. Governments
as may be appropriate.
Sincerely yours
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I
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SENDER WILL CHECK CLASSIFI( JON TOP AND BOTTOM
UNCLASSIFIED CONFIDENTIAL SECRET
CENTRAL INTELLIGENCE AGENCY
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INITIALS
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Remarks :
r
This is th-, paper 1 call.ed about this
morning. The original was delivered to
Ivir. Mattison (.~r. Stassen's Staff) who
will give it to Dr. Killian. (We received
this through 9;-ral center in Matomic
'Fsuilding. )
FOLD HERE TO RETURN TO SENDER
FROM: NAME. ADDRESS AND PHONE NO.
DATE
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Z I P
UNCLASSIFIED CONFIDENTIAL
SECRET
FORM NO. n 3 7 Replaces Form 30-4
I APR 55 2 / which may be used.
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2511
`25X1
25X1
 25X1.
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e ies '1:
Draft M=ber r -M - 24 NOVember IM
-~rr.~irr+~ ire
3 UrshaU Bulganins
s9~ nce our mbaw of letters a yoar ego, two bI&Wj ! s .
cant e s have comwnded the attent at the world. Ova is
felicitous for manUnd .? the other, cleincualy foreboding.
The top w event is the s essful launching of the R ian
satellites. I would be SW It, in xW beWf, you would exted sin.
cere congratulations to those responsible for this 1a ortant achieve-
The tragic W is the fail=* of U* waft"tions
to sob"" a owe success? differences have been nor-
rowed, eg want still, .laAeea me.
2 sure V w ~iaesm oT '`a e o ti3med teehu]ogieal area
rocs are clew and of head scuem to Du. The future will be tragic
for by maahind if t r ine barne"ed to serve wear, rather
than Pefte atmd the neble pt of need and his god.
In this letter I would like to deal w th specific actions per.
to to both these weMs, Sew at theme actions I on now taking,
a o I would like to suggat far ion.
With rqW to satellites &ad space flit, it would sew
Suportent that our scientists and eqgtnem v to then on specific
x,43ects, wherever possible. Such measur" will help achieve an end we
cc
IAL
Ir cti"i''~ Tv
2 27/
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both ft y sett , that space shall be us" by cal y. for
ceful
TO this ando I Voum like to xv=wt that soviet saimmete
Isumb soca of the satellite iastriaLentatioas which our scientists
have built for the I. 0. Y. I believe such a point erect might
eartais scientific ass sooner than could either of cur
PMW"s separately. It vould, also start us is joint mdftvws for
the pmeeftl euglaarstion of she.
There to a seeorld step which we should We I eQistely. As
you mar Owsm the vacant than ie s, We s steel that
an 3sttee act~i - s ific be ven ed i~ssledistely to study the
tee ul bl involved in lUag the us* of s - for Pea0e.
CGUM w net takes action,, and thus abaft ~t+ee r an Yet
snothev jo to man" affairs?
ft the boKs" Use the a on of the immon am planets.
We would be pleased teo examd with the Soviet Goves t the po"l-
bility at JOWN OW dowees for nt r t'rion.
my fl3e$e the thtited states with satellites, the Soviet
t eve ftued the loot questim of eater soverelsitty in the
vpwut moo. It has been pointed e tbal the sit ion is soma-
What eons to that led to the esteb ttt of the 'wee-mils
*ovem 11"s for wool Vabers in relation to the range of
coastal an fSse at t time. I note that your t satellites are still.
Ming Ovw all the codes of the world. It will surely be wwmml
p i t
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COWFUENT AL
in the 3utvre not to tIM + v*bl&U or ms's
save reriip air sprees, The Soviet aable h erte itebed Out tyre
enre Units to sal sovereignty Ves id r -?? a position we lblly
an 11 MOW ohm" bt ecurwed smartly
to boon technical Astor ors this s*Je t.
*mumblu, the united Q rat sot an the only
practical basis possible . ameW, that sovereign y r
as into the air soot as dexteftirre military aix+eratt can operate
acrd tha i ocubvU
In this =4 so, we that hi lr ovearfli is
are 133. a ys r w peaceful des. Z therefore nest that we iaa i?
attely work eat an
aae~r to pa; ,t - the prior ar m
and i at all overflight Vddel+es above those sir opa6ft Va"
snort U&M i t-s~r atad t t1 a ber
eonaireed sov ...- umar, the froott"t oprron best of
rdll"m aramno
As ym know from aW Y a`tIm* I bum we Not in Geneva in July
I , I deer2y beUcvee that actual oVaaa'flying at nut others territory
MR very b ~la1 y nwft the rote nts of gas". mss, in no vW
dam VIM T ted ftates G to Srot"t aon-a rsiwr Over.
flights by the Soviet Gavtn"sa nt, 'Errs of Vbobbw yaw Vehicles
we used pak` Wily for scientific -1- - r t of opmep or for chee .
lion of is Ch's owfum as in awMA ion. It been
intimated that abaervftUm of United Statim aaa tea) a ivity is or viii.
CONFIDENTIAL
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CC)
be: Mud by Soviet satellites. If so, I VOIMM this initiative
by the Soviet 0overnaoaet U a OWIAI ins * t pa.
As a 6000MA step to facilitate aerial inspecti , I b i1,4-
sated ( ) Mr use 1a AU*U as the port of entry for meet dal
inspection aircraft. From t"W* you may notify the eel of th
air base of the mate f ave Siberia and estimated arrival times of your
inspects oa aircraft. He Will exrowe for refueling, a a, Interim
laaO of your a Lion aircraft while over Lit . States territory,
for their i spection ant the beading of a taped Staten m
off total, ant f aar the pvieerity oluxmwe of their flight plsm
otw air traffic eoutml sya to fly vhwe you lite ever the United
Stems.
As you are sua e, we are dependent on USSR ba - for our
overflights .i T refoe, I have ewdex*d our aerial insp 1 or the
USSR to eamwee$ but at ' altitudes g in ems at USSR l
air spaces ..< that is, at altitudes i bly r than *bow
normally defended by Soviet airy raft. The spews v+ehic]as an baUMw
we have belt -far this + 9. a are of e umnod, and will
fly ac high that meet will. pvbWAy f be "em. But if ft a ohm"
be" se - difficult s, I an confident that the filovult Goverment
will, provide fur their"fe .
Co ~1DLNTlAL
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If you would prefer to put our aerial inspection of the U.S.S.R.
on the same basis as we have offered to you.-nsme]3r, from a Soviet Port
of entry and lower altitude flights within Soviet sovereign air se-
we will be pleased to operate under an analogous arranent. But the
above interim system will suffice until hopefully you m Ay be able to
designate a port of entry and arrange other particulars for normal aerial
inspection.
Additionally, the U.S. has under construction a satellite for aerial
inspection, to supplement aircraft used for this purpose. We intend to
comenas test flights in 1959. Asowdag that a U.U. arms-control agency
is then in operation, we expect to make results from this inspection
satellite available to that agency. In this connection your Government
might wish to collaborate with us in making the beat possible satellite
inspection system available to the U.U.
With further reference to the subject of dint, I would like
to tell you of the other actions the U.S. Government is now taking in
an effort to break the deadlock and bridge the slim remaining gap that
unfortunately failed of negotiation in the recent parleys.
1. The U.B. Govermwnt has suspended all test of nuclear veaponsp
provided that no other nation conducts such test, provided that inter-
national inspection to control such a limitation is installed within
one year, and provided that an agreement is reached and controls installed
within two years so that henceforth all nuclear material's are produced
for peaceful and not military purposes.
1AL
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2. With regard to the stion of inspection at ground control
posts which you urged upon me at Gem, we are prepared to receive
tely sto 500 Soviet inspectors in the U.S. for one year and
arrange for their posting to watch our military movements at airfields,
ports, railway centers and other such points of your choice. The arrange-
ment can be extended if within this period, we can install a similar number
in the U.S.S.R., or hopefully negotiate a more complots international
agreement that would extend the area and objects of such control, and
would also provide for mobile ground inspection operations.
3. Within six myths the U.S. Government will reduce the number
of its military effectives to 2,500,000. If the Soviet Government takes
similar' action, and if we can install a tual.ly satisfactory inspection
system to verify conventional fords levels, than the U.B. is prepare ed
to make a further reduction.
It, With regard to renouncing the use of nuclear weapons, the U.B.
has-l early renounced to clarify in an international convention just
what is ant by their use in selff-defense against both conventional
and nuclear agpessions.
Further Yto advance dtsarmement action, L '_today writing President
(unnamed) of the U.N. General Assembly to tell, him of our plans to
construct an inspection satellite and to offer its results Tro a U.W.
arms control agency. I will also tell him of an aerial Inspection force
which we are organising to plane under the control of suci an agency,
to cover areas of the world not inspected under mutual. ar as
CONRRDENTIAL
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I 0833 also point out that ail. its U. S. i ioa effoe
VIU be Made a Itble to a U. Na a@emyv on request,
I feel sine you vi repri s theti this action to break
t e diseaac t deadlock and to move meekly to free teehno3a ,r better
to serve mad is his peaceful omits. It Our a ollaboration to this
and be wed by SWAT eM to disou ss aaesmmts YOU OBY have re rding
the abovi, sad o possible future actions, I wilt be delighted to meet
under V. N. wavlaes with You and with the heads as such ether U. N.
C i td as be VV,V4-W&W&A%4M .
CC)N ` DENTIAt
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