(b) Any funds appropriated for the construction of facilities may be used for emergency repairs of existing facilities when such existing facilities are made inoperative by major breakdown, accident, or other circumstances and such repairs are deemed by the Administrator to be of greater urgency than the construction of new facilities. (Sam Rayburn) Speaker of the House of Representatives (Richard Nixon) Vice President of the United States and Document II-18 Document title: National Security Council, NSC 5814, "U.S. Policy on Outer Space," June 20, 1958. Source: Presidential Papers, Dwight D. Eisenhower Library, Abilene, Kansas. Even before a new civilian space agency began operation, the Eisenhower administration developed an initial post-Sputnik statement of national space policy. This document was prepared under National Security Council auspices; the discussions included the National Advisory Committee for Aeronautics, which had been chosen by the White House as the core of a new civilian space agency. (The National Aeronautics and Space Council established by the 1958 Space Act had not yet begun to function.) As the document was sent to the National Security Council for discussion on June 20, 1958, disagreements remained on some aspects of the statement of U.S. objectives in space (paragraph 43) and of the policy guidance for U.S. space activities (paragraphs 50 and 56.f). This statement of U.S. Policy on Outer Space is designated Preliminary because man's understanding of the full implications of outer space is only in its preliminary stages. As man develops a fuller understanding of the new dimension of outer space, it is probable that the long-term results of exploration and exploitation will basically affect international and national political and social institutions. Perhaps the starkest facts which confront the United States in the immediate and foreseeable future are (1) the USSR has surpassed the United States and the Free World in scientific and technological accomplishments in outer space, which have captured the imagination and admiration of the world; (2) the USSR, if it maintains its present superiority in the exploitation of outer space, will be able to use that superiority as a means of undermining the prestige and leadership of the United States; and (3) the USSR, if it should be the first to achieve a significantly superior military capability in outer space, could create an imbalance of power in favor of the Sino-Soviet Bloc and pose a direct military threat to U.S. security. The security of the United States requires that we meet these challenges with resourcefulness and vigor. Significance of Outer Space to U.S. Security 1. More than by any other imaginative concept, the mind of man is aroused by the thought of exploring the mysteries of outer space. 2. Through such exploration, man hopes to broaden his horizons, add to his knowledge, improve his way of living on earth. Already, man is sure that through further exploration he can obtain certain scientific and military values. It is reasonable for man to believe that there must be, beyond these areas, different and great values still to be discovered. 3. The technical ability to explore outer space has deep psychological implications over and above the stimulation provided by the opportunity to explore the unknown. With its hint of the possibility of the discovery of fundamental truths concerning man, the earth, the solar system, and the universe, space exploration has an appeal to deep insights within man which transcend his earthbound concerns. The manner in which outer space is explored and the uses to which it is put thus take on an unusual and peculiar significance. 4. The beginning stages of man's conquest of space have been focused on technology and have been characterized by national competition. The result has been a tendency to equate achievement in outer space with leadership in science, military capability, industrial technology, and with leadership in general. 5. The initial and subsequent successes by the USSR in launching large earth satellites have profoundly affected the belief of peoples, both in the United States and abroad, in the superiority of U.S. leadership in science and military capability. This psychological reaction of sophisticated and unsophisticated peoples everywhere affects U.S. relations with its allies, with the Communist Bloc, and with neutral and uncommitted nations. [3] 6. In this situation of national competition and initial successes by the USSR, further demonstrations by the USSR of continuing leadership in outer space capabilities might, in the absence of comparable U.S. achievements in this field," dangerously impair the confidence of these peoples in U.S. over-all leadership. To be strong and bold in space technology will enhance the prestige of the United States among the peoples of the world and create added confidence in U.S. scientific, technological, industrial and military strength. 7. The novel nature of space exploitation offers opportunities for international cooperation in its peaceful aspects. It is likely that certain nations may be willing to enter into cooperative arrangements with the United States. The willingness of the Soviets to cooperate remains to be determined. The fact that the results of cooperation in certain fields, even though entered into for peaceful purposes, could have military application, may condition the extent of such cooperation is those fields. Problem of Defining Space 8. Many names for the various regions of the earth's atmosphere and the divisions of space have developed over the years. The boundaries of these regions and divisions cannot be precisely defined in physical terms, and authorities differ widely on terminology and meaning. 9. The term "air space" has been used to denote the layer of atmosphere surrounding the earth in which military and civilian air vehicles operate. Although national policies and international agreements have dealt extensively with air space and expressly assert the sovereignty of each nation over its air space, the upper limit of air space has not been defined. 554. Communist China has announced, furthermore, an intention of proceeding to launch its own earth satellite in the near future. Such a development, which could only result from USSR assistance, would tend to enhance the prestige of the Chinese Communist regime throughout Asia and among the less-developed countries, and could further undermine the reputation of the West for technological leadership unless the accomplishment were matched by a Free World ally. [4] [Entire page omitted due to classification] [5] 12. Because the question of rights in "outer space" will undoubtedly arise at the UN General Assembly in September 1958, perhaps in international discussions on postIGY activities, and perhaps in other international negotiations, it would appear desirable for the United States to develop a common understanding of the term "outer space" as related to particular objects and activities therein. 13. For the purposes of this policy statement, space is divided into to two regions: “air space" and "outer space." "Outer space" is considered as contiguous to "air space", with the lower limit of "outer space" being the upper limit of "air space." General 14. Outer space can be used: Use of Outer Space a. By vehicles or other objects that achieve their primary purpose in outer space; such as (1) Vehicles or objects that remain in an area directly over a nation's own territory, such as sounding rockets; (2) Vehicles or objects that orbit the earth; (3) Vehicles that traverse outer space enroute to the moon, other planets or the sun; b. For the transmission of electromagnetic energy for such purposes as communications, radar measurement and electronic countermeasures; c. By [phrase omitted during declassification review] vehicles which traverse outer space, but which achieve their primary purpose upon their return to air space or earth. 15. There are many uses of outer space for peaceful purposes, such as exploration, pure adventure, increase of scientific knowledge, and development and applications of technology. Any use of outer space, however, whatever the purpose it is intended to serve, may have some degree of military or other non-peaceful application. Therefore, U.S. policies relating to international arrangements on uses of outer space for peaceful purposes will have to take into account possible non-peaceful applications in determining the net advantage to U.S. security. Science and Technology 16. Outer space technology affords new and unique opportunities for scientific observations and experiments which will add greatly to our knowledge and understanding of the earth, the solar system and the universe. These opportunities exist in many fields, including among others: field. a. Geophysics: Three-dimensional mapping of the earth's gravity and magnetic b. Physics: Cosmic ray measurements above the earth's dense atmosphere and experiments in the theory of relativity. c. Meteorology: World-wide cloud-cover mapping for improved forecasting of weather and measurements of incoming and outgoing heat energy which will allow a better understanding of weather. d. Biology: Possible living organisms in space and the effects on man of prolonged exposure to radiation and weightlessness. e. Psychological response of man to a space environment. f. Astronomy: The universe as seen from beyond the earth's atmosphere and measurement of stellar radiation. g. Lunar investigations including the moon's gravity, mass, magnetic field, atmosphere, surface, core, and original state. h. Nature of the Planets. The foregoing studies would be conducted by means of sounding rockets, earth satellites, lunar vehicles, and interplanetary vehicles. 17. Outer space activity and scientific research would have both military and nonmilitary applications. Examples are satellites as navigational aids; and satellites as relay stations to receive and relay television or radio signals and improve world-wide communications. 18. It is not possible to foresee all applications of outer space activity which may be developed, but our ability to achieve and maintain leadership in such applications will largely depend on the breadth of the scientific research which is undertaken and supported. [7] Military 19. The effective use of outer space by the United States and the Free World will enhance their military capability. Military uses of outer space (some of which may have peaceful applications) may be divided into the following three general categories: a. Now Planned or in Immediate Prospect (1) Ballistic Missiles. A family of IRBM's and ICBM's is now in the latter stages of development. Components of these missiles can be used to develop other space vehicles, for both military and scientific use. 20-23) (2) Anti-ICBM's which are now being developed. (3) Military Reconnaissance. (See "Reconnaissance Satellites" section, paragraphs b. Feasible in the Near Future (1) Satellites of Weather Observation. (2) Military Communications Satellites. (3) Satellites for Electronic Countermeasures (Jamming). (4) Satellites as Aids for Navigation, tracked from the earth's surface visually or by radio. c. Future Possibilities (1) Manned Maintenance and Resupply Outer Space Vehicles. (2) Manned Defensive Outer Space Vehicles, which might capture, destroy or neutralize an enemy outer space vehicle. (3) Bombardment Satellites (Manned or Unmanned). It is conceivable that, in the future, satellites carrying weapons ready for firing on signal might be used for attacking targets on the earth. (4) Manned Lunar Stations, such as military communications relay sites or reconnaissance stations. Conceivably, launching of missiles to the earth from lunar sites would be possible. [8] Reconnaissance Satellites 20. Reconnaissance satellites are of critical importance to U.S. national security. Those now planned are designed: (a) [major section omitted during declassification review] Reconnaissance satellites would also have a high potential use as a means of implementing the "open skies" proposal or policing a system of international armaments control. 21. As envisaged in U.S. plans, the instrumentation of reconnaissance satellites would consist primarily of [remainder of page omitted during declassification review] ... [9] 23. Some political implications of the use of reconnaissance satellites may be adverse. Therefore, studies must be urgently undertaken in order to determine the most favorable political framework in which such satellites would operate. Manned Exploration of Outer Space 24. In addition to satisfying man's urge to explore new regions, manned exploration of outer space is of importance to our national security because: (a) Although present studies in outer space can be carried on satisfactorily by using only unmanned vehicles, the time will undoubtedly come when man's judgment and resourcefulness will be required fully to exploit the potentialities of outer space. (b) To the layman, manned exploration will represent the true conquest of outer space. No unmanned experiment can substitute for manned exploration in its psychological effect on the peoples of the world. (c) Discovery and exploration may be required to establish a foundation for the rejection of USSR claims to exclusive sovereignty of other planets which may be visited by nationals of the USSR. 25. The first step in manned outer space travel could be undertaken using rockets and components now under study and development. Travel by man to the moon and beyond will probably require the development of new basic vehicles and equipment. [10] General Other Implications of Outer Space Activities 26. International cooperation in certain outer space activities appears highly desirable from a scientific, political and psychological standpoint and may appear desirable in selected instances with U.S. allies from the military standpoint. International cooperation agreements in which the United States participates could have the effect of (a) enhancing the position of the United States as a leader in advocating the uses of outer space for peaceful purposes and international cooperation in science, (b) conserving U.S. resources, (c) speeding up outer space achievements by the pooling of talents, (d) "opening up" the Soviet Bloc, and (e) introducing a degree of order and authority in the necessary international regulations governing certain outer space activities. 27. Various types of international cooperation may be possible through existing international scientific organizations, the United Nations, multilateral and bilateral arrangements with the Free World nations and NATO, and U.S.-Soviet bilateral arrangements. International cooperation by the United States in outer space activities might, as consistent with U.S. security interests, include (a) the collection and exchange of information on outer space; (b) the exchange of scientific instrumentation; (c) contacts among scientists; (d) participation of foreign scientists in U.S. space projects; (e) planning and coordination of certain programs or specific projects to be carried out on a fully international basis (some of which might be: a large instrumented scientific satellite, communication satellites, and meteorological satellites); (f) establishment of regulations governing certain outer space activities; (g) provision and launching of scientific satellites in support of international planning of a program of satellite observations. 28. Under present conditions, the extent of international cooperation, particularly in fields having important military applications such as propulsion and guidance mechanisms, will have to take into account security considerations (see paragraphs 7 and 15). [11] U.S. Position 29. In January 1957 the United States initiated international discussion of the control of outer space by proposing in the UN General Assembly that the testing of outer space vehicles should be carried out and inspected under international auspices. This proposal was based on a policy decision 555 to seek to assure that the sending of objects into outer space should be exclusively for peaceful and scientific purposes and that, under effective control, the production of such objects designed for military purposes should be 555. With reference to the relation of the use of outer space to an armaments control system, the Annex to NSC Action No. 1553 (November 21, 1956), which remains in effect, provides: “5. It is the purpose of the United States, as part of an armaments control system, to seek to assure that the sending of objects into outer space shall be exclusively for peaceful and scientific purposes and that under effective control the production of objects designed for travel in or projection through outer space for military purposes shall be prohibited. Therefore, the United States to propose that, contingent upon the establishment of effective inspection to verify the fulfillment of the commitment, all states agree to provide for international inspection of and participation in tests of outer space objects." |