The enclosed memorandum from the Secretaries of State and Defense, and
the attached study on the subject,2 prepared by the
Departments of State and Defense and the Joint Chiefs of Staff, with
appropriate participation of the Central Intelligence Agency, pursuant
to the plan concurred in by NSC Action
No. 1881, are transmitted herewith for consideration by the National
Security Council at its meeting on Thursday, June 26, 1958.
cc: The Secretary of the Treasury
The Director, Bureau of the Budget
The Chairman, Atomic Energy Commission
The Chairman, Joint Chiefs of Staff
The Director of Central Intelligence
Attachment
Memorandum for the National Security Council From McElroy and John Foster Dulles
Washington,
June 17,
1958
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SUBJECT
- Study relative to the Capabilities of Forces for Limited
Military Operations in Response to NSC Action No. 1881
1. There is submitted herewith a coordinated study of United States
and allied capabilities for limited military operations to July
1961, prepared by the Department of State, the Department of Defense
and the Joint Chiefs of Staff, with appropriate participation of the
Central Intelligence Agency.
2. We wish at the outset to stress the limitations of this study.
a. It does not examine capabilities for
limited military operations against Soviet armed forces. The study
was undertaken within the framework of our current strategic concept
which holds that a war in which the armed forces of the USSR and the United States are
overtly engaged is a general war.
b. It does not examine capabilities for
limited military operations against an enemy using nuclear weapons.
The study assumes that enemy use of nuclear weapons to 1 July 1961
would be construed as overt employment of Soviet armed forces.
c. It does not examine capabilities for covert
limited military operations.
d. The study’s approach to limited military
operations in the Far East is based upon an assumption—i.e., “that
the United States could engage in effective military action against
mainland China without undue risk of initiating general war”—which
the NSC observed in
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Action No. 1881–c was
“to be regarded only as a working assumption for the purposes of
this study.”
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e. The study is not a complete and final
analysis of limited military operations upon which the size and
nature of United States forces required for limited military
operations can be determined for future years. Estimates of enemy
action were, of necessity, hypothetical and thus are not a basis for
military planning. None of the situations studied have been
war-gamed. The conclusions and recommendations, based as they are on
hypothetical but possible situations, should not be considered as
definitive.
3. We consider the significant findings of the study to be as
follows:
a. U.S. Capabilities
(1) Within the limitations set forth in paragraph 2 and if the use of
nuclear weapons as required to achieve military objectives is
authorized, United States capabilities for limited military
operations are adequate to undertake and carry out limited
operations of the nature examined.
(2) In many such limited military operations, the use of nuclear
weapons would be required only as an unlikely last resort.
(3) In the Far East, however, the United States does not now have a
ready non-nuclear capability which alone could cope satisfactorily
with limited military operations against overtly engaged substantial
Communist forces. The selective use of nuclear weapons against such
forces and the facilities supporting them would be necessary.
(4) The withholding of authorization to use nuclear weapons for
limited military operations against overtly engaged substantial
Communist forces in the Far East would be likely to entail
requirements for additional overseas deployment of United States
forces, the construction of bases and other facilities overseas,
augmentation of sea/airlift in being and expanded logistic support
capabilities and “pipelines” both overseas and in the United
States.
(5) The burden of the initial military response will fall on the U.S.
forces deployed in or near the area involved, regardless of Service.
Prompt and vigorous response by these forces may obviate a
requirement for major reinforcements.
(6) The effectiveness of United States limited military operations
will be affected by the timely availability of sea/airlift for the
provision of logistic support to our own and friendly forces and
particularly for the movement from the United States of ground
forces committed to action. To the extent that the limited military
operations examined in this study are expected to affect adversely
our posture for general war, the temporary diversion of transport
from general war tasks is usually cited as the principal adverse
factor.
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(7) Only small numbers of “clean” nuclear weapons, which will be in
the high yield category, will be available to United States forces
to 1 July 1961.
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b. Allied Capabilities
(1) The indigenous forces which we might find it necessary to support
in limited military operations will have widely varying
capabilities. Some, such as the GRC and ROK forces, have significant
capabilities on the ground. Practically all have marked deficiencies
in air and naval capabilities.
(2) Very few of our allies could or would provide significant forces
for limited military operations outside their national territory.
Most lack capability. Some, e.g. Pakistan facing a real or assumed
threat from India, would be loath to send substantial forces abroad.
The provision of forces by others, e.g. France in the Middle East,
would be politically disadvantageous.
(3) Our allies can provide base and other facilities that will ease
and lend flexibility to the application of United States power in
limited military operations.
c. Political Considerations
(1) Failure by the United States to undertake effective limited
military operations in support of other free nations in situations
such as those examined would have seriously adverse consequences
throughout the free world, particularly among our allies, and would
encourage the Communists to adopt a more aggressive posture.
(2) Anticipation of the need for United States limited military
operations in developing situations and the earliest possible
decisions (i) to intervene if necessary and (ii) on the nature and
objectives of the intervention are essential.
(3) We need the political support of our allies for United States
limited military operations. We should also ensure that appropriate
regional collective security organizations and their members have
some military role, no matter how minor, in such operations in order
to maintain the solidarity and raison d’etre of these
organizations.
(4) Emotional aversion to nuclear weapons is widespread in the free
world, particularly among Asians, and our use of these weapons in
limited military operations would incur seriously adverse political
consequences.
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4. We make the following additional observations.
a. The study understandably devotes relatively
little attention to the deterrent aspects of United States
capabilities for limited military operations. Deterrence of local
aggression undertaken or inspired by, or serving the interests of,
the Communists is a major aim. As the study suggests, timely
political action supported by capabilities for limited operations
can frequently avert the need for the commitment of United States
forces in combat.
b. The determinative factors in decisions as
to the initiation and conduct of United States limited military
operations are political rather than military. In practically all
likely situations, it is the political
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consequences for our general
position in the world of inaction or action, and the nature of our
action, that will govern United States decisions.
c. Selective nuclear strikes deep into
Communist China, as contemplated in the Quemoy and Matsu, Taiwan and
Korea hypothetical situations, could elicit a Sino-Soviet nuclear
response. Serious consideration would, therefore, have to be given
to the proclamation of at least a limited national emergency if the
United States were to undertake limited military operations of this
nature.
d. The increased possibility of general war
inherent in most limited military operations requires precautionary
and alerting steps. Even one limited military operation requiring
heavy logistic support and deployment of major forces from the
United States might necessitate partial mobilization.
e. Additional comments which should be taken
into consideration in any possible further use of this study are
contained in the Annex immediately hereunder.
5. We make the following recommendations.
a. The Director of Central Intelligence should
be asked to initiate the preparation of National Intelligence
Estimates on (i) world reactions and (ii) Sino-Soviet military
reactions to United States use of nuclear weapons in limited
military operations against Communist (non-Soviet) forces in the Far
East.
b. The findings of the present study with
respect to the availability of allied forces for employment outside
their national territory should be taken into account among other
factors in the review of 1962 force goals for nations receiving
United States military assistance directed by NSC Action No. 1908.
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c. Greater efforts should be made to clarify
to the free world United States intentions with respect to the use
of nuclear weapons and to inform the free world of the radiation
effects of low yield weapons and their relative efficiency in
certain limited military operations.
- /s/
Neil McElroy
- /s/
John Foster Dulles