Foreign Relations of the United States, 1969–1976, Volume XV, Soviet Union, June 1972–August 1974

103. National Security Decision Memorandum 215¹

Washington, May 3, 1973.

TO

• The Secretary of State
• The Acting Secretary of Defense
• The Secretary of Commerce
• The Secretary of Agriculture
• The Secretary of Transportation
• The Secretary of Housing and Urban Development
• The Director, National Science Foundation

SUBJECT

• US-Soviet Bilateral Issues

The President has reviewed the response to NSSM 176² together with subsequent agency submissions³ relating to the desirability and possibility of new bilateral agreements between the United States and the Soviet Union.

The President has directed that the following guidance shall be followed in discussions and negotiations between U.S. and Soviet representatives on the subjects of agriculture, transportation, oceanography, urban and community development, exchanges and cultural relations and civil aviation. The President emphasizes that such negotiations should be conducted on their merits, and that the United States should avoid proposing concessions solely in order to expedite agreement.

—Agriculture. The President has directed that the United States explore with the Soviet Union the possibility of a U.S.-Soviet agreement on cooperation in the field of agriculture. Bearing in mind the work already accomplished in this area, the President directs the Secretary of Agriculture, in coordination with the Department of State, to arrange for bilateral talks with the appropriate Soviet Ministries as soon as mutually convenient. These negotiations should have as their objective the development of a draft bilateral agreement for further consideration by the U.S. and Soviet governments. The Secretary of Agriculture is directed to submit a report on the status of these negotiations no later than June 4, 1973, for review by the President.

—Transportation. Taking into account the growing U.S.-Soviet interest in the development of organizational arrangements for mutually beneficial cooperation in the field of transportation, the President directs the Secretary of Transportation, in coordination with the Department of State, to arrange for U.S.-Soviet bilateral talks as soon as mutually convenient to explore the possibility of a government-to-government agreement in this area. These negotiations should have as their objective the development of a draft bilateral agreement for further consideration by the U.S. and Soviet governments. The Secretary of Transportation is directed to submit a report on the status of these negotiations no later than June 4, 1973, for consideration by the President.

—Oceanography. The President has directed that the United States explore with the Soviet Union the possibility of a U.S.-Soviet agreement on cooperation in the field of oceanography. Accordingly, he directs the Secretary of Commerce, in coordination with the Department of State, the National Science Foundation and other appropriate U.S. agencies, to arrange for U.S.-Soviet talks on this subject as soon as mutually convenient. These negotiations should have as their objective the development of a draft U.S.-Soviet bilateral agreement for further consideration by the U.S. and Soviet governments. The Secretary of Commerce is directed to submit a report on the status of these negotiations no later than June 4, 1973, for consideration by the President.

—Urban and Community Development. Taking into account the initial discussions of the Joint U.S.-Soviet Working Group on the Enhancement of the Urban Environment,⁴ the President directs the Secretary of Housing and Urban Development to arrange for discussions on community development with the appropriate Soviet Ministries as soon as mutually convenient. These discussions should have as their objective a thorough assessment of the desirability of and the potential for government-to-government cooperation in this area. The Secretary of Housing and Urban Development is directed to submit a report on the results of these discussions no later than June 4, 1973, for consideration by the President.

—Exchanges and Cultural Relations. The President has directed that the United States explore with the Soviet Union the possibility of augmenting the U.S.-Soviet Agreement on Exchanges and Cooperation in Scientific, Technical, Educational, Cultural and Other Fields.⁵ The President directs the Secretary of State to arrange for U.S.-Soviet talks on this subject as soon as mutually convenient. These negotiations should have as their objective the development of a draft augmented agreement, extending the duration and expanding the scope of the present agreement, for further consideration by the U.S. and Soviet governments. The Secretary of State is directed to submit a report on the results of these negotiations no later than June 4, 1973, for consideration by the President.

—Civil Aviation. The President has directed that the United States explore with the Soviet Union the possibility of augmenting the U.S.-Soviet Agreement on Civil Air Transport.⁶ The President directs the Secretary of State to arrange for U.S.-Soviet talks on this subject as soon as mutually convenient. These negotiations should have as their objective the development of a draft, augmented bilateral agreement for further consideration by the U.S. and Soviet governments. The Secretary of State is directed to submit a report on the status of these negotiations no later than June 4, 1973, for consideration by the President.

The President has directed that no agreements with the Soviet Union be signed, initialled or otherwise concluded without his approval.

Henry A. Kissinger

1. Source: National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–208, NSDM 151–NSDM 200, Originals. Secret. Copies were sent to the Director of Central Intelligence and the Chairman of the JCS. Sonnenfeldt forwarded the draft NSDM to Kissinger on April 30 for his signature. (Ibid., Box H–239, Policy Papers, NSDM 215 [2 of 2])
2. Document 93.
3. On April 30, along with the draft NSDM, Sonnenfeldt forwarded additional responses to NSSM 176 to Kissinger from the Departments of State, Agriculture, Transportation, and Housing and Urban Development; and the National Science Foundation. (National Archives, Nixon Presidential Materials, NSC Files, NSC Institutional Files (H-Files), Box H–239, Policy Papers, NSDM 215 [2 of 2])
4. On April 25, Lynn informed Kissinger that the first meeting of the working group was “in progress.” (Ibid.)
5. See footnote 2, Document 83.
6. See footnote 7, Document 93.