Foreign Relations of the United States, 1961–1963, Volume VII, Arms Control and Disarmament

230. Memorandum From Secretary of State Rusk to President Kennedy⁰

Washington, September 21, 1962.

SUBJECT

• Agreement on Non-Diffusion of Nuclear Weapons

You are aware of the conversations which I have been having with the Soviet Foreign Minister and with the Soviet Ambassador in Washington on the question of restricting the spread of independent national nuclear weapons capabilities.

At the last meeting, August 23,¹ a potentially important shift occurred in the Soviet position. The Soviet Union now appears willing to consider reaching an agreement on non-diffusion couched in more general terms than its previous position which had specified that a prior agreement had to be reached separately concerning the specific problem of the Federal Republic of Germany and of the East German regime. In addition, although the language is ambiguous, the Soviets have not apparently precluded considering an understanding which would not rule out international nuclear weapons arrangements of a truly multilateral nature of the type which might be developed within the NATO framework.²

1. I propose that within the next few days I discuss the substance and tactics of negotiating a non-transfer agreement with the British Foreign Minister and British Ambassador. The points I would make are attached as Tab A.³ I would also show them a draft Declaration, attached as Tab B,⁴ and a draft Minute, further clarifying our proposal, which is attached as Tab C.⁵

2. Assuming a generally favorable response I propose that we then could approach President De Gaulle and Chancellor Adenauer regarding our interest in securing a non-transfer declaration. We would seek the active participation and support of France in further negotiations with the Soviet Union, and we would seek the support and approval in this effort of the Federal Republic of Germany. The United States will be in a better position to urge the Soviet Union to place pressure on Communist China to sign a non-diffusion declaration if the U.K. and France join with the U.S. in being willing to sign such a declaration, and the Federal Republic of Germany is prepared to undertake an obligation not to manufacture or acquire nuclear weapons.

3. Assuming that agreement can be worked out with the heads of the governments of the United Kingdom, France, and the Federal Republic of Germany, we would again take the matter up with the U.S.S.R. In the event that one or more of the other three Western governments refused to participate in this endeavor or attached conditions to their acceptance, I would then propose reviewing with you further steps that could be taken.

4. The above course of action has not been discussed by the Committee of Principals. It is supported by the Arms Control and Disarmament Agency. I am advised that the Joint Chiefs of Staff oppose the course of action and the measure on the grounds that it contains no provisions for inspection; that it may have a very bad effect on our defensive alliance within NATO; and that the measure prohibits transfers which the U.S. itself may wish to make. I am advised that the Department of Defense does not oppose the measure but does question the timing involved in the course of action proposed.⁶

5. I have outlined a course of action to give you a picture of my thinking. At this time, however, I am only asking for approval of the action discussed in point 1. above, the discussion of the measure and the course of action with the U.K. on an exploratory basis. I will ask your further approval of the next step in this negotiation after consulting with the U.K.

0. Source: Kennedy Library, National Security Files, Departments and Agencies Series, ACDA, Disarmament, Non-Diffusion of Nuclear Weapons, 8/62-7/63. Confidential. An undated memorandum from Foster to the President, attached to the source text, states, “The attached documents while not actually seen by Secretary Rusk, have been discussed with him by me and he has expressed his present intention to discuss this matter with Lord Home in New York, probably on Sunday.” A copy of the source text identifies ACDA officers Adrian Fisher, James Goodby, and Betty Goetz as the drafters. (Washington National Records Center, RG 383, ACDA/DD Files: FRC 77 A 17, Chron File, July-Sep 1962)
1. See Document 222.
2. In the margin next to this sentence, the President wrote, “Get an understanding.” In view of these potential shifts in the Soviet position, I now propose for your approval an immediate program of action looking toward the formal submission to the Soviet Union by the United States and its principal Western allies of a declaration regarding the non-transfer of nuclear weapons. In doing so it would be made clear that we did not propose to give up our right to work out a truly multinational NATO nuclear force, with appropriate safeguards to assure that nuclear weapons assigned to that force could not be used on the basis of a national decision alone.
3. Talking Points for Discussions with U.K. on Non-Dissemination, not printed.
4. Draft Non-Transfer Declaration, not printed.
5. Minute for Use in Discussion with Draft Non-Transfer Declaration, not printed.
6. In a September 21 memorandum to the President on non-diffusion, Carl Kaysen wrote that he had “talked to the Secretary again on the telephone this afternoon and indicated your desire to talk with him on the subject.” He added, among other things, that “Ros Gilpatric has indicated that the Defense Department would go along with this proposal, but the Chiefs object to it strenuously. If possible, Bob [McNamara] and Ros would rather fight with them another time than now.” (Ibid.) See the Supplement.