a number of earth satellites. In fact, it is now within the means of any technologically advanced nation to embark upon practicable programs for exploring outer space. The early enactment of appropriate legislation will help assure that the United States takes full advantage of the knowledge of its scientists, the skill of its engineers and technicians, and the resourcefulness of its industry in meeting the challenges of the space age.

2

During the past several months my Special Assistant for Science and Technology and the President's Science Advisory Committee, of which he is the Chairman, have been conducting a study of the purposes to be served by a national space program, of the type of projects which will be involved, and of the problems of organizing for space science functions. In a statement which I released on March 26, 1958, the Science Advisory Committee has listed four factors which in its judgment give urgency and inevitability to advancement in space technology. These factors are: (1) the compelling urge of man to explore the unknown; (2) the need to assure that full advantage is taken of the military potential of space; (3) the effect on national prestige of accomplishment in space science and exploration; and (4) the opportunities for scientific observation and experimentation which will add to our knowledge of the earth, the solar system, and the universe.

These factors have such a direct bearing on the future progress as well as on the security of our Nation that an imaginative and well-conceived space program must be given high priority and a sound organization provided to carry it out. Such a program and the organization which I recommend should contribute to (1) the expansion of human knowledge of outer space and the use of space technology for scientific inquiry, (2) the improvement of the usefulness and efficiency of aircraft, (3) the development of vehicles capable of carrying instruments, equipment and living organisms into space, (4) the preservation of the role of the United States as a leader in aeronautical and space science and technology, (5) the making available of discoveries of military value to agencies directly concerned with national security, (6) the promotion of cooperation with other nations in space science and technology, and (7) assuring the most effective utilization of the scientific and engineering resources of the United States and the avoidance of duplication of facilities and equipment.

I recommend that aeronautical and space science activities sponsored by the United States be conducted under the direction of a civilian agency, except for those projects primarily associated with military requirements. I have reached this conclusion because space exploration holds promise of adding importantly to our knowledge of the earth, the solar system, and the universe, and because it is of great importance to have the fullest cooperation of the scientific community at home and abroad in moving forward in the fields of space science and technology. Moreover, a civilian setting for the administration of space function will emphasize the concern of our Nation that outer space be devoted to peaceful and scientific purposes.

2 James R. Killian, Jr.

Published in Introduction to Outer Space (Washington: U.S. Government Printing Office, 1958).

I am, therefore, recommending that the responsibility for administering the civilian space science and exploration program be lodged in a new National Aeronautics and Space Agency, into which the National Advisory Committee for Aeronautics would be absorbed. Hence, in addition to directing the Nation's civilian space program, the new Agency would continue to perform the important aeronautical research functions presently carried on by the National Advisory Committee for Aeronautics. The new Agency would be headed by a Director appointed by the President by and with the advice and consent of the Senate.

In order to assist the President and the Director of the National Aeronautics and Space Agency, I recommend that a National Aeronautics and Space Board, appointed by the President, be created. Several of the members of the Board should be from the Government agencies with the most direct interest in aeronautics, space science, and space technology. To assure that military factors are considered by the Board, at least one member should be appointed from the Department of Defense. Members appointed from outside the Government should be eminent in science, engineering, technology, education or public affairs and be selected solely because they have established records of distinguished achievement.

The National Aeronautics and Space Agency should be given that authority which it will need to administer successfully the new programs under conditions that cannot now be fully foreseen.

In order that the Agency may attract and retain the services of scientists and technicians which it must have to carry out its responsibilities with full effectiveness, it should have the authority, subject to regulations prescribed by the President, to fix the compensation of its employees at rates reasonably competitive with those paid by other employers for comparable work without regard to the provisions of existing classification laws.

The Agency should have the power to conduct research projects in its own facilities or by contract with other qualified organizations. It will thus be free to enlist the skills and resources required for the space program wherever they may be found, and to do so under the arrangements most satisfactory to all concerned. Provision should also be made for continuing and further enhancing the close and effective cooperation with the military departments which has characterized the work of the National Advisory Committee for Aeronautics. Under such cooperative arrangements it is expected that the National Aeronautics and Space Agency will perform research required in the furtherance of strictly military aeronautics and space objectives, just as the National Advisory Committee for Aeronautics now carries on important research work for the military services in aerodynamics, propulsion, materials and other fields important to the development of military aircraft and missiles.

The National Advisory Committee for Aeronautics is already engaged in research directly related to flight outside the earth's atmosphere and has research facilities adapted to work in space science. Upon the enactment of legislation carrying out my recommendations, all of the resources of the National Advisory Committee for Aeronautics would immediately come under the direction of the new Agency. The Department of Defense and its contractors, as well

as other agencies, have active programs which should be considered for administration by the National Aeronautics and Space Agency. I recommend that this fact be taken into account and provision made for the transfer to the Agency of such functions, activities and facilities of other departments and agencies as may be found to be appropriate for administration by the new Agency, subject to the concurrence of the heads of the affected agencies and with the approval of the President.

The Director of the Bureau of the Budget is transmitting to the Congress draft legislation to establish the National Aeronautics and Space Agency and to authorize research into the problems of flight within and outside the earth's atmosphere. I urge that the Congress give prompt consideration to the draft legislation and that it be enacted at the earliest possible date.

Pending enactment of legislation, it is essential that necessary work relating to space programs be continued without loss of momentum. For this reason, I have approved, as part of an interim program of space technology and exploration, the launching of a number of unmanned space vehicles under the direction of the Advance Research Projects Agency of the Department of Defense. The projects which I have approved include both scientific earth satellites and programs to explore space. In taking this interim action, I directed the Department of Defense to coordinate these projects with the National Advisory Committee for Aeronautics, the National Science Foundation, and the National Academy of Sciences. I also indicated that when a civilian space agency is created, these projects would be reviewed to determine which should continue under the direction of the Department of Defense and which should be placed under the new Agency. It is also important that measures be taken to assure the prompt and orderly implementation of the proposed aeronautics and space legislation when enacted.

I am requesting the Department of Defense and the National Advisory Committee for Aeronautics to review pertinent programs of the Department and to recommend to me those which should be placed under the direction of the new Agency. I have also asked that they prepare an operating plan to assure support of the new Agency by organizations, facilities, and other resources of the Department of Defense, either by cooperative arrangements or by transfer to the new Agency.

It is contemplated that the Department of Defense will continue to be responsible for space activities peculiar to or primarily associated with military weapons systems or military operations. Responsibility for other programs is to be assumed by the new Agency. In this connection, I commend to the attention of the Congress the comments of my Science Advisory Committee, in its statement of March 26, 1958, on the military applications of space technology.

I am also asking the National Advisory Committee for Aeronautics to begin immediate preparation of such detailed plans as may be required to prepare for the assumption by the National Aeronautics and Space Agency of the responsibilities contemplated for it. Those plans are to set forth the specific new space programs to be initiated and are to describe the internal organization, management structure, staff, facilities, and funds which will be required. The National Ad

visory Committee for Aeronautics is to discuss with the National Science Foundation and the National Academy of Sciences the matter of participation by the scientific community in determining the scientific objectives of our space programs. The best scientific judgment available should be utilized. Matters related to dissemination of the data collected should also be considered.

I have also instructed the National Advisory Committee for Aeronautics to assume the responsibility for preparing and presenting to the appropriate committees of the Congress a full explanation of the proposed legislation and its objectives.

The vigorous program contemplated will depend not only on adequate legislative authority but also on adequate financial support. I shall shortly submit to the Congress an amendment to the fiscal year 1959 Budget to provide funds that will be needed by the new Agency in its first year of operation.

Letter From the Soviet Premier (Khrushchev) to President Eisenhower, April 22, 1958 1

[Extract]

Furthermore, I should like to touch upon the matter of the use of outer space for peaceful purposes.

In the course of the exchange of views in connection with the preparations for convening a summit conference, you proposed that the question of the prohibition of the use of outer space for military purposes be discussed at that meeting. We seriously considered this proposal of yours, and we stated that we were prepared to consider at a summit meeting the question of the prohibition of the use of outer space for military purposes and the liquidation of military bases in foreign territories. In this connection we proceed from the premise that any solution of this problem must take into account the security of the Soviet Union, the United States of America, and other countries. The proposal of the Soviet government for the prohibition of the use of outer space for military purposes, the liquidation of bases in foreign territories, and international cooperation in the field of the study of outer space meets this objective. We are prepared to conclude an agreement which would provide for the prohibition of the use of outer space for military purposes and would permit the launching of rockets into outer space only in accordance with an agreed international program of scientific research. At the same time, we cannot ignore the fact that atomic and hydrogen weapons can be delivered to the target not only by means of intercontinental rockets but also by means of intermediate and short-range rockets, as well as by means of conventional bombers stationed at the numerous American military bases located in areas adjacent to the Soviet Union.

Your proposal for the use of outer space for peaceful purposes provides, in fact, for the prohibition of intercontinental ballistic missiles alone, leaving aside the other important aspects of this problem. It

1 Department of State Bulletin, May 19, 1958, p. 814.

is easy to see that you propose such a solution of the question as would correspond to the interests of the security of the United States alone, but would not provide any measures that would remove the threat to the security of the Soviet Union or to that of many other states created by the existence of numerous American military bases in foreign territories. The essence of your proposal is to prevent, through the prohibition of intercontinental ballistic missiles, a nuclear counterblow through outer space from being delivered against yourselves. Of course, it is impossible to agree to such an inequitable solution, which would put one side in a privileged position with regard to the other. Therefore we stated that an agreement on the prohibition of the use of outer space for military purposes must also provide for the liquidation of military bases located in foreign territories, and primarily in Europe, in the Near East and Middle East, and in North Africa.

Letter From President Eisenhower to the Soviet Premier (Khrushchev), April 28, 19581

[Extracts]

The United States is determined that we will ultimately reach an agreement on disarmament. In my letter of April eighth,2 I again proposed an internationally supervised cutoff of the use of new fissionable materials for weapons purposes and the reduction of existing weapons stocks by transfer to peaceful purposes; an agreed limitation or suspension of testing; "open skies", and the international use of outer space for peaceful purposes.

As an effective means of moving toward ultimate agreement on these matters and other matters, I proposed that we start our technical people to work immediately upon the practical problems involved. These studies were called for by the United Nations General Assembly. They would include the practical problems of supervision and control which, you and I agree, are in any event indispensable to dependable disarmament agreements.

The solution of these practical problems will take time. I am unhappy that valuable time is now being wasted.

You say that we must first reach a final political agreement before it is worthwhile even to initiate the technical studies. But such studies would, in fact, facilitate the reaching of the final agreement you state you desire.

Studies of this kind are the necessary preliminaries to putting political decisions actually into effect. The completion of such technical studies in advance of a political agreement would obviate a considerable period of delay and uncertainty. In other words, with the practicalities already worked out, the political agreement could begin to operate very shortly after it was signed and ratified.

1 Documents on Disarmament, 1945-1959, vol. II, pp. 1006-1007. Printed in Department of State Bulletin, Apr. 28, 1958, pp. 679-680.