Minutes of the 505th Meeting of the National Security Council
Washington, October 20, 1962, 2:30-5:10 p.m.
Robert F. Kennedy
John A. McCone, Director
Mr. Ray Cline
Mr. Arthur Lundahl
Robert S. McNamara, Secretary
Roswell Gilpatric, Deputy Secretary
Paul Nitze, Assistant Secretary (ISA)
General Maxwell D. Taylor, USA, Chairman
Edward A. McDermott, Director
Dean Rusk, Secretary
George Ball, Under Secretary
U. Alexis Johnson, Deputy Under Secretary for Political Affairs
Adlai Stevenson, U.S. Ambassador to the UN
Edwin Martin, Assistant Secretary, Inter-American Affairs
Llewellyn E. Thompson, Ambassador-at-Large
Douglas Dillon, Secretary
McGeorge Bundy, Special Assistant to the President for National Security Affairs
Theodore Sorensen, Special Counsel
Kenneth O'Donnell, Special Assistant to the President
Bromley Smith, Executive Secretary, National Security Council
The first twenty minutes were spent in the presentation and discussion of photographic intelligence establishing the presence in Cuba of Soviet intermediate-range and medium-range missiles, mobile missile launchers and missile sites.
Mr. Ray Cline of the Central Intelligence Agency summarized the report of the Guided Missile and Astronautics Intelligence Committee, the Joint Atomic Energy Intelligence Committee, and the National Photographic Interpretation Center, dated October 19, 1962 (SC 09538-62). Mr. Arthur Lundahl of CIA described the various missile sites and launching pads, displaying enlarged pictures identical to those in the Committee report.
In response to the President's question, Mr. Cline stated that there were no U-2 photographic reconnaissance missions over Cuba from August 29th to October 14th. The gap in photographic coverage was in part due to bad weather and in part to a desire to avoid activating the SAM Air Defense installations which the Russians were hurriedly installing in Cuba during this period. Since October 14th, nine high altitude missions have been flown. Information from these missions is not fully processed, but will be available for presentation by Monday.
In summary, the Council was informed that sixteen SS-4 missiles, with a range of 1020 nautical miles were now operational in Cuba and could be fired approximately eighteen hours after a decision to fire was taken. The bearing of these launchers was 315 degrees, i.e. toward the central area of the United States.
The President summarized the discussion of the intelligence material as follows. There is something to destroy in Cuba now and, if it is destroyed, a strategic missile capability would be difficult to restore. (Specific details of the briefing are contained in the attached Committee report.)
Secretary McNamara explained to the President that there were differences among his advisers which had resulted in the drafting of alternative courses of action. He added that the military planners are at work on measures to carry out all recommended courses of action in order that, following a Presidential decision, fast action could be taken.
Secretary McNamara described his view as the "blockade route." This route is aimed at preventing any addition to the strategic missiles already deployed to Cuba and eventually to eliminate these missiles. He said to do this we should institute a blockade of Cuba and be prepared to take armed action in specified instances.
(The President was handed a copy of Ted Sorensen's "blockade route" draft of a Presidential message, which he read.)
Secretary McNamara concluded by explaining that following the blockade, the United States would negotiate for the removal of the strategic missiles from Cuba. He said we would have to be prepared to accept the withdrawal of United States strategic missiles from Turkey and Italy and possibly agreement to limit our use of Guantanamo to a specified limited time. He added that we could obtain the removal of the missiles from Cuba only if we were prepared to offer something in return during negotiations. He opposed as too risky the suggestion that we should issue an ultimatum to the effect that we would order an air attack on Cuba if the missiles were not removed. He said he was prepared to tell Khrushchev we consider the missiles in Cuba as Soviet missiles and that if they were used against us, we would retaliate by launching missiles against the USSR.
Secretary McNamara pointed out that SNIE 11-19-62, dated October 20, 1962, estimates that the Russians will not use force to push their ships through our blockade. He cited Ambassador Bohlen's view that the USSR would not take military action, but would limit its reaction to political measures in the United Nations.
Secretary McNamara listed the disadvantages of the blockade route as follows:
1. It would take a long time to achieve the objective of eliminating strategic missiles from Cuba.
2. It would result in serious political trouble in the United States.
3. The world position of the United States might appear to be weakening.
The advantages which Secretary McNamara cited are:
1. It would cause us the least trouble with our allies.
2. It avoids any surprise air attack on Cuba, which is contrary to our tradition.
3. It is the only military course of action compatible with our position as a leader of the free world.
4. It avoids a sudden military move which might provoke a response from the USSR which could result in escalating actions leading to general war.
The President pointed out that during a blockade, more missiles would become operational, and upon the completion of sites and launching pads, the threat would increase. He asked General Taylor how many missiles we could destroy by air action on Monday.
General Taylor reported that the Joint Chiefs of Staff favor an air strike on Tuesday when United States forces could be in a state of readiness. He said he did not share Secretary McNamara's fear that if we used nuclear weapons in Cuba, nuclear weapons would be used against us.
Secretary Rusk asked General Taylor whether we dared to attack operational strategic missile sites in Cuba.
General Taylor responded that the risk of these missiles being used against us was less than if we permitted the missiles to remain there.
The President pointed out that on the basis of the intelligence estimate there would be some fifty strategic missiles operational in mid-December, if we went the blockade route and took no action to destroy the sites being developed.
General Taylor said that the principal argument he wished to make was that now was the time to act because this would be the last chance we would have to destroy these missiles. If we did not act now, the missiles would be camouflaged in such a way as to make it impossible for us to find them. Therefore, if they were not destroyed, we would have to live with them with all the consequent problems for the defense of the United States.
The President agreed that the missile threat became worse each day, adding that we might wish, looking back, that we had done earlier what we are now preparing to do.
Secretary Rusk said that a blockade would seriously affect the Cuban missile capability in that the Soviets would be unable to deploy to Cuba any missiles in addition to those now there.
Under Secretary Ball said that if an effective blockade was established, it was possible that our photographic intelligence would reveal that there were no nuclear warheads in Cuba; hence, none of the missiles now there could be made operational.
General Taylor indicated his doubt that it would be possible to prevent the Russians from deploying warheads to Cuba by means of a blockade because of the great difficulty of setting up an effective air blockade.
Secretary McNamara stated that if we knew that a plane was flying nuclear warheads to Cuba, we should immediately shoot it down. Parenthetically, he pointed out there are now 6000 to 8000 Soviet personnel in Cuba.
The President asked whether the institution of a blockade would appear to the free world as a strong response to the Soviet action. He is particularly concerned about whether the Latin American countries would think that the blockade was an appropriate response to the Soviet challenge.
The Attorney General returned to the point made by General Taylor, i.e. that now is the last chance we will have to destroy Castro and the Soviet missiles deployed in Cuba.
Mr. Sorensen said he did not agree with the Attorney General or with General Taylor that this was our last chance. He said a missile buildup would end if, as everyone seemed to agree, the Russians would not use force to penetrate the United States blockade.
Air Strike Route
Mr. Bundy handed to the President the "air strike alternative," which the President read. It was also referred to as the Bundy plan.
The Attorney General told the President that this plan was supported by Mr. Bundy, General Taylor, the Joint Chiefs of Staff, and with minor variations, by Secretary Dillon and Director McCone.
General Taylor emphasized the opportunity available now to take out not only all the missiles, but all the Soviet medium bombers (IL-28) which were neatly lined up in the open on airbases in Cuba.
Mr. McNamara cautioned that an air strike would not destroy all the missiles and launchers in Cuba, and, at best, we could knock out two-thirds of these missiles. Those missiles not destroyed could be fired from mobile launchers not destroyed. General Taylor said he was unable to explain why the IL-28 medium bombers had been left completely exposed on two airfields. The only way to explain this, he concluded, was on the ground that the Cubans and the Russians did not anticipate United States air strike.
Secretary Rusk said he hesitated to ask the question but he wondered whether these planes were decoys. He also wondered whether the Russians were trying to entice us into a trap. Secretary McNamara stated his strong doubt that these planes were decoys. Director McCone added that the Russians would not have sent one hundred shiploads of equipment to Cuba solely to play a "trick". General Taylor returned to the point he had made earlier, namely, that if we do not destroy the missiles and the bombers, we will have to change our entire military way of dealing with external threats.
The President raised the question of advance warning prior to military action--whether we should give a minimum of two hours notice of an air strike to permit Soviet personnel to leave the area to be attacked.
General Taylor said that the military would be prepared to live with a twenty-four hour advance notice or grace period if such advance notice was worthwhile politically. The President expressed his doubt that any notice beyond seven hours had any political value.
There was a brief discussion of the usefulness of sending a draft message to Castro, and a copy of such message was circulated.
The President stated flatly that the Soviet planes in Cuba did not concern him particularly. He said we must be prepared to live with the Soviet threat as represented by Soviet bombers. However, the existence of strategic missiles in Cuba had an entirely different impact throughout Latin America. In his view the existence of fifty planes in Cuba did not affect the balance of power, but the missiles already in Cuba were an entirely different matter.
The Attorney General said that in his opinion a combination of the blockade route and the air strike route was very attractive to him. He felt we should first institute the blockade. In the event that the Soviets continued to build up the missile capability in Cuba, then we should inform the Russians that we would destroy the missiles, the launchers, and the missile sites. He said he favored a short wait during which time the Russians could react to the blockade. If the Russians did not halt the development of the missile capability, then we would proceed to make an air strike. The advantage of proceeding in this way, he added, was that we would get away from the Pearl Harbor surprise attack aspect of the air strike route.
Mr. Bundy pointed out that there was a risk that we would act in such a way as to get Khrushchev to commit himself fully to the support of Castro.
Secretary Rusk doubted that a delay of twenty-four hours in initiating an air strike was of any value. He said he now favored proceeding on the blockade track.
Secretary Dillon mentioned seventy-two hours as the time between instituting the blockade and initiating an air strike in the event we receive no response to our initial action.
Director McCone stated his opposition to an air strike, but admitted that in his view a blockade was not enough. He argued that we should institute the blockade and tell the Russians that if the missiles were not dismantled within seventy-two hours, the United States would destroy the missiles by air attack. He called attention to the risk involved in a long drawn-out period during which the Cubans could, at will, launch the missiles against the United States. Secretary Dillon said that the existence of strategic missiles in Cuba was, in his opinion, not negotiable. He believed that any effort to negotiate the removal of the missiles would involve a price so high that the United States could not accept it. If the missiles are not removed or eliminated, he continued, the United States will lose all of its friends in Latin America, who will become convinced that our fear is such that we cannot act. He admitted that the limited use of force involved in a blockade would make the military task much harder and would involve the great danger of the launching of these missiles by the Cubans.
Deputy Secretary Gilpatric saw the choice as involving the use of limited force or of unlimited force. He was prepared to face the prospect of an air strike against Cuba later, but he opposed the initial use of all-out military force such as a surprise air attack. He defined a blockade as being the application of the limited use of force and doubted that such limited use could be combined with an air strike.
General Taylor argued that a blockade would not solve our problem or end the Cuban missile threat. He said that eventually we would have to use military force and, if we waited, the use of military force would be much more costly.
Secretary McNamara noted that the air strike planned by the Joint Chiefs involved 800 sorties. Such a strike would result in several thousand Russians being killed, chaos in Cuba, and efforts to overthrow the Castro government. In his view the probability was high that an air strike would lead inevitably to an invasion. He doubted that the Soviets would take an air strike on Cuba without resorting to a very major response. In such an event, the United States would lose control of the situation which could escalate to general war.
The President agreed that a United States air strike would lead to a major Soviet response, such as blockading Berlin. He agreed that at an appropriate time we would have to acknowledge that we were willing to take strategic missiles out of Turkey and Italy if this issue was raised by the Russians. He felt that implementation of a blockade would also result in Soviet reprisals, possibly the blockade of Berlin. If we instituted a blockade on Sunday, then by Monday or Tuesday we would know whether the missile development had ceased or whether it was continuing. Thus, we would be in a better position to know what move to make next.
Secretary Dillon called attention to the fact that even if the Russians agreed to dismantle the missiles now in Cuba, continuing inspection would be required to ensure that the missiles were not again made ready.
The President said that if it was decided to go the Bundy route, he would favor an air strike which would destroy only missiles. He repeated this view that we would have to live with the threat arising out of the stationing in Cuba of Soviet bombers.
Secretary Rusk referred to an air strike as chapter two. He did not think we should initiate such a strike because of the risk of escalating actions leading to general war. He doubted that we should act without consultation of our allies. He said a sudden air strike had no support in the law or morality, and, therefore, must be ruled out. Reading from notes, he urged that we start the blockade and only go on to an air attack when we knew the reaction of the Russians and of our allies.
At this point Director McCone acknowledged that we did not know positively that nuclear warheads for the missiles deployed had actually arrived in Cuba. Although we had evidence of the construction of storage places for nuclear weapons, such weapons may not yet have been sent to Cuba.
The President asked what we would say to those whose reaction to our instituting a blockade now would be to ask why we had not blockaded last July.
Both Mr. Sorensen and Mr. Ball made the point that we did not institute a blockade in July because we did not then know of the existence of the strategic missiles in Cuba.
Secretary Rusk suggested that our objective was an immediate freeze of the strategic missile capability in Cuba to be inspected by United Nations observation teams stationed at the missile sites. He referred to our bases in Turkey, Spain and Greece as being involved in any negotiation covering foreign bases. He said a United Nations group might be sent to Cuba to reassure those who might fear that the United States was planning an invasion.
Ambassador Stevenson stated his flat opposition to a surprise air strike, which he felt would ultimately lead to a United States invasion of Cuba. He supported the institution of the blockade and predicted that such action would reduce the chance of Soviet retaliation of a nature which would inevitably escalate. In his view our aim is to end the existing missile threat in Cuba without casualties and without escalation. He urged that we offer the Russians a settlement involving the withdrawal of our missiles from Turkey and our evacuation of Guantanamo base.
The President sharply rejected the thought of surrendering our base at Guantanamo in the present situation. He felt that such action would convey to the world that we had been frightened into abandoning our position. He was not opposed to discussing withdrawal of our missiles from Turkey and Greece, but he was firm in saying we should only make such a proposal in the future.
The Attorney General thought we should convey our firm intentions to the Russians clearly and suggested that we might tell the Russians that we were turning over nuclear weapons and missiles to the West Germans.
Ambassador Thompson stated his view that our first action should be the institution of a blockade. Following this, he thought we should launch an air strike to destroy the missiles and sites, after giving sufficient warning so that Russian nationals could leave the area to be attacked.
The President said he was ready to go ahead with the blockade and to take actions necessary to put us in a position to undertake an air strike on the missiles and missile sites by Monday or Tuesday.
General Taylor summarized the military actions already under way, including the quiet reinforcement of Guantanamo by infiltrating marines and the positioning of ships to take out United States depend-ents from Guantanamo on extremely short notice.
The Attorney General said we could implement a blockade very quickly and prepare for an air strike to be launched later if we so decided.
The President said he was prepared to authorize the military to take those preparatory actions which they would have to take in anticipation of the military invasion of Cuba. He suggested that we inform the Turks and the Italians that they should not fire the strategic missiles they have even if attacked. The warheads for missiles in Turkey and Italy could be dismantled. He agreed that we should move to institute a blockade as quickly as we possibly can.
In response to a question about further photographic surveillance of Cuba, Secretary McNamara recommended, and the President agreed, that no low level photographic reconnaissance should be undertaken now because we have decided to institute a blockade.
Secretary Rusk recommended that a blockade not be instituted before Monday in order to provide time required to consult our allies.
Mr. Bundy said the pressure from the press was becoming intense and suggested that one way of dealing with it was to announce shortly that we had obtained photographic evidence of the existence of strategic missiles in Cuba. This announcement would hold the press until the President made his television speech.
The President acknowledged that the domestic political heat following his television appearance would be terrific. He said he had opposed an invasion of Cuba but that now we were confronted with the possibility that by December there would be fifty strategic missiles deployed there. In explanation as to why we have not acted sooner to deal with the threat from Cuba, he pointed out that only now do we have the kind of evidence which we can make available to our allies in order to convince them of the necessity of acting. Only now do we have a way of avoiding a split with our allies.
It is possible that we may have to make an early strike with or without warning next week. He stressed again the difference between the conventional military buildup in Cuba and the psychological impact throughout the world of the Russian deployment of strategic missiles to Cuba. General Taylor repeated his recommendation that any air strike in Cuba included attacks on the MIGs and medium bombers.
The President repeated his view that our world position would be much better if we attack only the missiles. He directed that air strike plans include only missiles and missile sites, preparations to be ready three days from now.
Under Secretary Ball expressed his view that a blockade should include all shipments of POL to Cuba. Secretary Rusk thought that POL should not now be included because such a decision would break down the distinction which we want to make between elimination of strategic missiles and the downfall of the Castro government. Secretary Rusk repeated his view that our objective is to destroy the offensive capability of the missiles in Cuba, not, at this time, seeking to overthrow Castro!
The President acknowledged that the issue was whether POL should be included from the beginning or added at a later time. He preferred to delay possibly as long as a week.
Secretary Rusk called attention to the problem involved in referring to our action as a blockade. He preferred the use of the word "quarantine".
Parenthetically, the President asked Secretary Rusk to reconsider present policy of refusing to give nuclear weapons assistance to France. He expressed the view that in light of present circumstances a refusal to help the French was not worthwhile. He thought that in the days ahead we might be able to gain the needed support of France if we stopped refusing to help them with their nuclear weapons project.
There followed a discussion of several sentences in the "blockade route" draft of the President's speech. It was agreed that the President should define our objective in terms of halting "offensive missile preparations in Cuba". Reference to economic pressures on Cuba would not be made in this context.
The President made clear that in the United Nations we should emphasize the subterranean nature of the missile buildup in Cuba. Only if we were asked would we respond that we were prepared to talk about the withdrawal of missiles from Italy and Turkey. In such an eventuality, the President pointed out that we would have to make clear to the Italians and the Turks that withdrawing strategic missiles was not a retreat and that we would be prepared to replace these missiles by providing a more effective deterrent, such as the assignment of Polaris submarines. The President asked Mr. Nitze to study the problems arising out of the withdrawal of missiles from Italy and Turkey, with particular reference to complications which would arise in NATO. The President made clear that our emphasis should be on the missile threat from Cuba.
Ambassador Stevenson reiterated his belief that we must be more forthcoming about giving up our missile bases in Turkey and Italy. He stated again his belief that the present situation required that we offer to give up such bases in order to induce the Russians to remove the strategic missiles from Cuba.
Mr. Nitze flatly opposed making any such offer, but said he would not object to discussing this question in the event that negotiations developed from our institution of a blockade.
The President concluded the meeting by stating that we should be ready to meet criticism of our deployment of missiles abroad but we should not initiate negotiations with a base withdrawal proposal.