Kissinger Henry. White House Years

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withoutrisk,thaninpreparationforaconferencewheretherearealwayssome

agencieswithavestedinterestinsuccess.



Theseextraordinaryprocedureswereessentiallymadenecessarybya

PresidentwhoneithertrustedhisCabinet norwaswillingtogivethemdirect

orders.Nixonfearedleaksandshrankfromimposingdiscipline.Buthewas

determinedtoachievehispurposes;hethusencouragedproceduresunlikelyto

berecommendedintextbooksonpublicadministrationthat,crablike,worked

privilyaroundexistingstructures.Itwasdemoralizingforthebureaucrac y,which,

cutoutoftheprocess,reactedbyaccentuatingtheindependenceandself‐will

thathadcausedNixontobypassitinthefirstplace.Butitworked;itachieved

thatelusiveblendoflaboriousplanningandcrisparticulationonwhichsuccessful

policydepends.In1971and1972thesemethodsproducedtheSALT

breakthrough,theopeningtoChina,aBerlinagreement,thePekingandthe

Moscowsummitswithoutanysetback.Theresultsshouldbejudgedontheir

merits,thoughIrecognizeapricewaspaidinthemanneroftheirachievement

andthoughIdonotbelieveitshouldberepeated.



InthecaseofSALT,officialnegotiationsweregoing onthatrequired

periodicformalPresidentialinstructions.HenceIknewtheviewsoftheagencies

bothinabstractplanningandinrelationtotheactualnegotiations.Itwasclear

thatpressuresforanABM‐onlyagreementweregrowingwithinthegovernment. 

SeveralmembersoftheSALTdelegationexplicitly advocatedit.TheDefense

DepartmentrepresentativewouldhavesettledforanABM‐onlyagreementif

linkedwithafreezeonheavymissilesalone,leavingallothermissilestorunfree.

GerardSmithfavoredanABMbanorNCAinreturnforsomeunspecified

offensivelimitations,butthebargaining‐chipapproachmadeithardtosellany

ABMprogramtotheCongress, whichwasnoteagertospendmoneyforwhatwe

mighthavetodismantle.TheStateDepartmentleanedtowardanABM‐only

agreementbutwasreluctanttopressforit.Inshort,ifIsucceededinlinkingan

ABMtreatytoafreezeonallstrategicmissilesIwouldbeonsafebureaucratic 

groundbecauseIwouldhaveachievedmorethananyagencywasadvocating.



Berlinwasmorecomplicatedtomanage.Thelegalpositionshadgrownup

overthedecadesofBerlincrises;encrustedwithtraditionandahard‐won

consensus,theycouldnotsimplybechangedbyPresidentialdecision.Ourpolicy

hadtobeworkedoutwiththreeallies,anyoneofwhomwouldnotletprevious

chargesofUSfoot‐draggingstandinthewayofblamingusforexcessive

flexibility.



ItwasimpossibletoproceedwithoutBrandt’sfullbacking,andforthisI

neededtoseeBrandt’scloseadviser,EgonBahr. Butatsomepointthetalkswith

theSovietswouldendupinaFour‐Powerforum.SoIalsoneededthe

cooperationofourAmbassadortoBonn,KennethRush,whoexofficioconducted

theformalBerlinnegotiationsonourbehalf.



Rushhadcometo theambassadorshipbywayofprivateindustry;hislast

majorposthadbeenPresidentandDirectorofUnionCarbide.Nixonknewofhim

becausehehadtaughtatDukelawschool,thoughhehadnotmetNixonthen.He

wasaclosefriendof JohnMitchell,thenAttorneyGeneral.Itturnedouttobeone

ofNixon’sbestappointments. Calm,analytical,thoughtful,Rushperformedhis

complexroleinBonnwithsubtletyandskill.



Bahr’sproblemwasidenticalwithmine.Hewouldhavetohandlea

negotiationwithouttheknowledgeofhisforeignOffice.WithGermany’slong

bureaucratictraditionthiswasmoredifficulttoaccomplishinBonnthanin

Washington.Nonormalchannelofcommunicationappearedtrustworthy

enough.NorcouldBahrcometoWashingtonundersomepretextorother

withoutreignitingthejurisdictionaldisputesofpreviousyears.TheState

DepartmentwouldinsistonparticipationinanyconversationsandtheGerman

foreignOfficewouldrequireareport.Togetaroundtheseproblems,Isenta

couriertoBonnonJanuary27withpersonalletterstoBahrandRush.ItoldBahr

thatwewerepreparedtoaccepttheChancellor’ssuggestionstospeedupthe

Berlinnegotiations;henceitwasurgentthatheandImeet.Iexpectedhimto

comewiththefullauthorityoftheChancellor.Astotheovertpurposeofhistrip,

IhadinstructedthemessengertoconveyaninvitationoftheVicePresident(as

headofthespaceCouncil)toattendthelaunchingoftheApollo14moonshoton

January31,1971.IfBahracceptedIwouldattendtheevent,andIwouldthen

arrangetoflyhimtoNewYorkandwecouldtalkontheplane.Bahraccepted

immediately,settingoutforWashingtonwithintwenty‐fourhours.Iavoidedhim

there,meetinghimontheflighttoCapeKennedyonJanuary30.



ThelettertoKenRushwasdeliveredbythesamemessenger.Tojustifya

visitbyRushtoWashingtonIarrangedaphonecallfromhisfriendJohnMitchell.

Heusedthepretextofwantingtodiscusspoliticalappointmentswiththe

Ambassador.TheStateDepartmentauthorizedRush’svisitfor“consultations”

andImethimontheeveningofFebruary3inMitchell’sWashingtonapartmentin

theWatergate,anasyetlittle‐knownapartmentcomplex.



IinformedDobryninthatIwasproceeding(hisgovernmentwassureto

learnthroughBahranyway);IaddedthatMoscowmightwishtoputsomething

forwardtogiveallparticipantsasenseofconfidence.TomysurpriseDobrynin

appearedwithintwenty‐fourhourswithanofferofsomethingtheSovietUnion

hadpreviouslyrefused.TheSovietshadinsistedthataccessprocedures

concernedonlythetwoGermanies;ourrecourseincaseoftroublewouldbeto

thenormalprocessesofinternationallawwithrespecttoEastGermany,which

wedidnotevenrecognize;hence,therewaslittlewecoulddotoenforceour

claims.HeretoforetheSovietshadsoughttoexploitBerlin’sprecarious

geographiclocationtoboosttheinternationalstatusofEastGermanywhile

disclaiming anyresponsibilityforharassmentofaccess.Nowtheyproposedthat

inanynewarrangementonBerlineachoftheFourPowerswouldhavetheright

tocallviolationstotheattentionoftheothers—atenuous,asyetunsatisfactory,

implicationofFour‐Powerresponsibility.Itwasonlyatentativesteptowardthe

essentialSovietguarantee.ButanyonefamiliarwithGromyko’stacticswould

knowthathewouldneverstartwithanexcessivelygenerousopeningposition.



ThesubterfugewithBahrworked,andonJanuary30heandIdulyarrived

atCapeKennedyforthelaunchofthemoonshot.Ihadalwaysconsidered

watchingspaceshotsassuitableprimarilyforchildren,butIwasdeeplymoved

thatnightwhenasmallgroupofusvisitedtheSaturnVrocketbymoon light.

Fromthevantageofspectatorsmilesawayduringlift‐off,therocketstanding

alonewithoutanyreferencepointdidnotlooksooverwhelming.Butupcloseat

nightitdwarfedusbyitssizeanditshamedusbyitsconception.



Iknewthattherewasadebateabouttheutilityofthespaceprogram.The

earlysenseofadventurewasbeginningtobesubmergedinbickeringabout

nationalpriorities.ButIreflectedthatwe neededthespaceprogram,scientific

argumentsaside,becauseasocietythatdoesnotstretchitshorizonswillsoon

shrinkthem.Theargumentthatwemustfirstsolveallourproblemsonearth

beforeventuringbeyondourplanetwillconfineusforeternity;theworldwill

neverbewithoutproblems;theywillbecomeanobsessionratherthana

challengeunlessmankindconstantlyexpandsitsvision.Columbuswouldnever

havediscoveredAmericaiffifteenth‐centuryEuropehadappliedthefacileslogan

thatitneededfirsttosolveitsownproblems;and,paradoxically,theseproblems

wouldtherebyhavebecomeinsolubleandEuropewouldhavesuffocatedinits

ownperplexities.Faithhasprovidedthemotiveforceformankind’scheckered

odyssey.Buthowdoesonedreamina technocraticage?Howdoapeopleregain

thefaiththatcausedsmallpeasantsocietiestobuildcathedralswithspires

reachingtowardtheheavens,edificesthatitwouldtakecenturiestocomplete,

enshrininginstoneatestimonialtotheperseveranceandsweepoftheir

aspirations?Noonecouldknowwhatwewouldfindinspace:Themoonwasonly

thefirstsmallstep.Irememberedanastronauttellingmethathiseeriest

momentcamewhenhefinallyenteredthecapsuleforlift‐off.Forthefirsttime

therewerenoworkmen.Allwassilenceashewouldsoonbelaunchedona

journeyfromwhichheknew hecouldnotreturnbyhimself.Andhenearly

panicked.



ItseemedtomethatasIstoodthereatCapeKennedywithmydaughter

Elizabeth,thenagedten,andmysonDavid,agedeight,thatwewereall

envelopedinourdifferentwaysinthisspecialkindofloneliness.Theywouldlive

inaworldsubjectivelyatvariancewithmine;theirperceptionofrealitywasofa

differentorder.Ihadknownonlynationalboundariesasachild.Spacewas

beyondmyimagination.Televisionwasinconceivable.Theywouldbebothless

constrainedandmoreliteral.Thehorizonwasnottheirlimitasithadbeenmine.

Paradoxically,theirphysicalre achwaslikelytobeaccompaniedbyan

impoverishmentoftheimagination.Mygenerationhadbeenbroughtupon

books,whichforcethereaderintoconjuringuphisownreality;mychildren’s

realitywasbeingpresentedtothemdaily ontelevisionscreens;theycouldabsorb

itpassively.Andyettheylivedinaworldinwhichjo urneysofhundredsof

millionsofmilesweredeterminedbyanimpetusgivenintenseconds,andwere

theninlargepartunchangeable—aconceptbeyondmyimaginationattheirage.



Forbetterorworse,IthoughtIwasnowoneofthosewhohadthepower

toprovideaninitialimpetus,makingfuturegenerationsintopassengerson

journeystheyhadnotselected.Ifouraimwaswrong,eventhemostskilled

navigatorwouldnotbeabletocorrectit.Ourswastheresponsibilit ytofinda

trajectorytowardaworldwherenoonehadeverbeen;butwealsowerein

dangerofhurtlingtowardavoid.Ourmostimportantdecisionswouldbewhether

tostartajourney,andthecrucialqualityweneededwasfaithinafuturecreated

inpartthroughtheactofcommitment.



Astheastronautswhohadstimulatedreflectionheadedforthemoon,Bahr

andIheadedbacktoNewYorkandintheprivacyoftheJetstartalkedalltheway

aboutBerlin.Bahrfavoredspeedingupthenegotiationsandwasenthusiastic

aboutmywillingnesstobecomeinvolved.Buthow,onbehalfofourheadsof

government,couldweconductmajornegotiationsofwhichourownForeign

Ministerswereunaware—andhowcouldwestoptheSovietsfromplayingoffthe

fourWesternpower sagainsteachother?SinceIknewthatBahrwasinclose

contactwithSovietdiplomats,Iinsistedwekeepeachotherinformedabout

everycontactwiththeSovietsorEastGermansoverBerlin,andfortherestwe

agreedonanintricateprocessofconsultation.BahrandRushtogetherwould

formulatepropositionsinthreeareas—accessprocedures,guarantees,and

activitiesoftheFederalRepublicinBerlin—andsoundoutalliedreactions;I

wouldthenexplorethemwithDobrynin;andthenRushorBahrwouldputthem

backintoregularchannels.Againstallodds,thisthree‐dimensionalchessworked.

Weachievedwithinsevenmonthsanagreementthathasstoodthetestoftime.



ArrangementswithKenRushweresettledatourmeetingontheeveningof

February3inJohnMitchell’sapartment.Rushagreedthatprobablynootherplan

wouldworkinapracticaltimeframe.Ifthestalemateprovedtooprotracted,

Brandtmightseektobreakoutonhisown,blaming usforGermany’sunfulfilled

nationalaspirationsandperhapschartinganewandfarmoreindependent

nationalcourse.Rushquestionedwhetherwecouldhandlea Berlincrisisandits

accompanyingGermandomesticuproarwhilethewarinVietnamwasgoingon.



Itremainedtosetupacommunications channel.TheCIAwas,ofcourse,

available.RushfeltthatthestationChiefcouldnotavoidbringinginsomeofhis

subordinates;hewas,inaddition, veryclosetosomeoftheembassypersonnel.

Mostimportant,thestationChiefcouldnotcallfrequentlyonBahrtoreceiveor

transmitmessageswithoutarousingsuspicion.Mydeputy,AlHaig,founda

solution.HeworkedoutwithourJCSliaisonofficer,NavyCaptainRembrandt

Robinson,acomplicatedspecialcommunicationslinkinNavychannelstoaNavy

officerinFrankfurt.ItwasestablishedbyChiefofnavalOperationsAdmiralElmo

Zumwalt—lateravocalopponentofsuchdiplomacy.TheofficerinFrankfurtwas

describedtomeinamemorandumfromHaigas“completelyreliable”andfreeof

any“responsibilitytoourembassyoranyotherintelligenceordepartmental

interests.”WhathewasdoinginFrankfurtIcannotimagineanddidnotthinkto

ask,whichmayhavebeenjustaswell.Inanyevent,theNavyofficer,givenspecial

phonenumbersfromBahr andRushandoneofhisown,wasthecruciallink.

StateDepartmentcablesaboutBerlinfrequentlyleaked;theyhadtoowidea

distribution.TheNavychannelmessagesneverdid.Andweweregratefultobe

sparedthatcomplicationbecausebyearlyFebruarySALTaswellasBerlinwas

ripeforsecretnegotiation.



<<Contents>>



****



TheSALTnegotiationsandtheMay20Agreement



henIhadbegunexploringabreakthroughonSALTwithDobrynin,the

formaltalks,whichhadresumedinHelsinkiinearlyNovember,wereas

stalematedasourdomesticdebate.Therewasformalagreementinour

governmentthattheUnitedStatesshouldstandonitslastproposalofAugust4,

1970,whichwouldlimitbothsidestoan“agreednumber”ofmissilesand

bombersandlimitthenumberofSovietheavymissilesto250(anumberthatby

theendof1970theSovietshadalreadyexceeded).AsIhavepointedout,many

membersoftheSALTdelegationwereprivatelyweakeningintheircommitment

totheseproposals. 



WithrespecttoABM,ournegotiatingpositionwasinturmoil.TheSoviets

hadacceptedourproposalofasystemlimitedtoNationalCommandAuthorities

(NCA),forwhichwehadneitherrequestednorobtainedfundsfromCongress.We

hadaskedtheCongressforfundsforthreesites,which,however,didnotinclude

thenationalcapital.Thegapbetweenournegotiatingpositionandouractual

programwaswidening.SenatorJohnStennistoldGerardSmithinOctoberthat

theABMissuewas“souring”theentiredefenseappropriationdebate.



ToclearthebureaucraticrecordIaskedSmithbybackchannelwhetherhe

stillagreedthatdefensiveandoffensivelimitationsshouldremainlinked.Smith’s

answerwasnotfreeofambiguity;infact,itleftopenallthepossibilitiesforaban

onABMinthenegotiationsandhenceacutoffofABMbytheCongress.His

personalobjectionstillstoodtoaseparateABMagreement,whichtheSoviets

offeredagaininDecember.Heneverthelessinsistedthatan“instant”rejection

wouldbeunnecessarilyturbulent.ThePresidentmightwantto“review”hispolicy

ofopposingaseparateABMagreement.TheupshotwasthattheentireABM

issuewasreopenedagainwithintheAdministration.



Indeed,thedebateovertheSALTpositionwasbeginningtomergewiththe

almostreligiousannualoppositiontoABM. Publicpressuresoncemorebeganto

build.OnJanuary17,1971,theNewYorkTimesacceptedtheSovietABMofferfor

us,condemningthePresident’sinsistenceonlinkingoffensiveanddefensive

weapons.OnJanuary26thefront‐runnerfortheDemocraticPresidential

nomination,SenatorEdmund Muskie,announcedhiscontributiontothe

encouragementofSovietflexibility.OnhisrecentvisittoMoscowhehadtold

PremierKosygin,theSenatoraverred,that“therewasabodyofopinioninthe

UnitedStatesthatwantedtoreduceUSweaponsspending.” TheSenatordidnot

consideritharmfulforourforeignpolicy foraPresidentialcandidatetotellthe

SovietPremierthatinfluentialmembersoftheCongress wereseekingtoreduce

ourdefenses:“SinceIcansayithereontheSenatefloor,Idon’tseeanydamn

reasonwhyIcan’tsayittoKosygin.”



Theanti‐ABMcampaignwasgiveninadvertentimpetuswhenSecretaryof

DefenseLairddisclosedthattheSovietsseemedtohavesloweddownthe

constructionofnewICBMs.Thiswastakenbymanyasoneoftheubiquitous

Soviet“signals”bywhichthosediffidentfellowsintheKremlinhintedattheir

intentions.Thiswasapuzzlingconcept,consideringtherepetitiveabandonwith

whichthosesameSovietleaderswerebludgeoningusonallissuesofrealconcern

tothem.TheallegedSovietsignalsparkedaletterfromGerardSmithtothe

PresidentsuggestingthatwedeclareahalttofurtherABMdeploymentsasasign

ofourgoodfaith.ShouldSovietmissileconstructionresumewewouldbeina

strongpositiontogoalloutinourownmissiledefenseprogram.Thistheme,with

variations,wasrepeatedinCongressionalandmediacomment. OnFebruary1,

SenatorHubertHumphreyurgedtheSenatetofree zeAmericanABMandMIRV

programs.“Atnocosttoourselves,”Humphreydeclared,“andwithabsolute

guaranteeofourownsecurity—wecanstopourpartofthenucleararmsracein

responsetoactionsalreadytakenbytheSovietUnion.”

ByMarchtheSoviet

“signal”hadevaporated.ItturnedoutthattheSovietshadmerelyhaltedSS‐9

constructioninordertobeginconstructionofanewgenerationofICBMs,theSS‐

18,whilecontinuingtobuildsilosfortheSS‐11.Indeed,thereweremoreSoviet

missilestartsin1971thaninallbutoneyearofthepreviousdecade.Thisfactdid

noteasepressuresforacutindefensespendingintheslightest.Noneofthose

whohadaskedustorespondtotheSoviet“signal”ofrestraintsuggestedthatwe

reacttotheSovietbuildup.



ThedrumbeattostopABMandto slowdownotherprogramscontinued

throughoutthespring.OnFebruary3,inaclosed‐doorhearingoftheSenate

ForeignRelationsCommittee,SenatorFrankChurchcalledonthePresidentto

accept“anABM‐onlyagreementasafirststep.”OnFebruary26Williamfoster,

headoftheArmsControlandDisarmamentAgencyunderPresidentJohnson,

calledfor“acompletebanonABMdeployment,productionandtesting.”

Bythe

endofMarchSenatorsHumphrey,HaroldHughes,andGeorgeMcGovernhad

joinedthecallforanABM‐onlyagreement.SenatorStuartSymingtonproposeda

mutualABMfreezeandclaimedthatthiswouldrenderMIRVunnecessary.

SenatorMuskiepromisedtoconductclosed‐doorhearingsinApril.



OnApril5theNewYorkTimesendorsedSenatorMuskie’searlier

suggestionthattheUnitedStatesabandonPoseidonandMinutemanIIIandagree

toamutualhaltofABMdeploy ment—strippingusinonefellswoopofevery

strategicprogram.OnApril6SenatorMuskiejoinedhiscolleaguesinadvocating

anagreementlimitingorbanningABMasafirststep.ByearlyMaycriticismfrom

thesequartersintensified,withaccusationsthattheAdministrationwas

deliberatelydraggingitsfeetonSALTinordertocontinuethearmsrace.Senator

SymingtonwentsofarastoaccusetheAdministrationof“planningdeliberately

nottohaveanyarmscontrolagreementatall.”



TheAdministration’scontentionthatABMwasauseful“bargainingchip”

cameundersharpattack.SenatorFulbright,ChairmanoftheSenateForeign

RelationsCommittee,claimedthat“bargaining‐chipreasoning”wasfallaciousand

servedonlytoescalatethearmsrace.TheChristianScienceMonitorofMay12

accusedtheAdministrationoftriplingUSnuclearstrikingpowerwhiletheSoviets

weredeployingnothing—anextraordinaryconclusioninthefaceofaSoviet

buildupproceedingattherateof200missilesayearovernearlyadecade.The

WashingtonStarreportedonApril13thatanewcoalitionagainstmilitary

spendingwasbeingformedwiththeaimofcutting$6to$8billionfromthe

defensebudget.SenatorWilliamProxmirelaunchedthisdrivebyopposingtheB‐

1strategicbombing,newaircraftcarriers,andsubmarines,aswellastheF‐14and

F‐15aircraftandCheyennehelicopter.



TherewasnonewAmericanweaponssystem,inshort,thatwasnotunder

fiercemediaandCongressionalattack.AtthesametimeSenatorMikeMansfield

submittedhisannualresolutiontowithdraw halfoftheAmericanforcesin

Europe.Itwasnarrowlydefeatedafteradesperatebattle(describedinChapter

XXII).



TheCongresseventuallycut$3billionfromtheAdministration’srequest.

Onpaper,wehadaskedforaslightlyhigherarmsappropriationthanthatofthe

previousyear,or$73.5billioncomparedwith$68.7billion.Butthismeant

considerablylesstobespentonweapons,since$4.6billionmorewasneeded

solelytomeetpayincreasesmadenecessarybyashifttowardavolunteerarmy

andtherestwasabsorbedbyinflation.In1971,asintheyearbefore,the

Administrationwasfortunatetopreservethebaseforlaterexpansionby

maintainingaslowbutsteadyprogramfortheB‐1bom ber,Tridentsubmarine

andmissile,andmoderntacticalaircraft.Thuswebarelymaintaine dour

negotiatingpositioninSALT.Butthedangerwasrealthatsoonerorlate roneor

theotheroftheseprogramswouldfalltotherelentlessCongressionalassault.



Inthisatmospheretheinternaldebateofthepreviousyearwasrepeated.

AtanNSCmeetingonJanuary27,1971,oneschoolofthought,representedby

theStateDepartmentandtheArmsControlandDisarmamentAgency,argued

thatSALTwouldbegivenimpetusbyaslowdowninourABMprogram.Others

(likeme)maintainedexactlytheopposite,thatanAmericanABMprogramwas

essentialtoanyhopesforSovietacceptanceofoffensivelimitations.MelLaird

andtheJointChiefswantedtoproceedwitha“safeguard”ABMprogramoffour

sites,thoughonlytwowereactuallybeingbuiltandconstructionhadnotyet

startedonthethirdauthorizedsiteatWhitemanAirforceBaseinMissouri.

Discussioncontinuedinconclusivelyforanothermonthoverwhetherweshould

bringourSALTpositionintolinewithouractualABMprogram.



NixonfinallyputadamperonthediscussioninMarch.Hewasconvinced,

correctly,thattheCongresswouldkilltheNCAideaasameanstobanallABMs.

TheupshotwasaPresidentialdecisiononMarch11togoforwardwiththefour‐

site“safeguard”systemandtobringourSALTpositionintolinewithit.So

powerfulwastheresistanceofthosefavoringanABMbanorNCAthatthis

decisionwasnotpresentedtotheSovietsbyourSALTdelegationuntilafter

constantharassmentfrommyofficeandanewformalinstructionissue donApril

22.



MynegotiationswithDobryninmustbeviewedagainstthisbackground.

TheSovietsmusthavebeensorelytemptedtowaitusout,toreaptheresultsof

ourdomesticdebatewhichmightrelievethemofanyneedforreciprocity.On

February4DobryninconfirmedthatthePolitburowasagreeableinprincipleto

discusscoupling anABMagreementwithafreezeondeploymentsofoffensive

missiles.Buttheseemingconcessionturnedouttobeonlyanadmissionticket

intoanegotiationconductedwithMoscow’scharacteristicroller‐coastertacticsof

alternatingadvancesandretreats,ofgrudgingconcessionssoldoverandover

again.AndthenegotiationswerefurthercomplicatedbecauseGromyko’s

strategywasthereverseofmine.WhereasIheldoutonBerlintospeedprogress

onSALT,GromykoslowedupSALTtoacceleratethediscussionsonBerlin.



OnFebruary10,Dobryninconfirmedtheunderstandingtolinkoffensive

anddefensivelimitations.Ifthetwoagreementscouldnotbenegotiated

simultaneously,theSovietswouldconsiderafreezeonoffensivedeployments

pendingthecompletionofnegotiatio ns.WithrespecttoABM,Dobrynin

expressedapreferencefortheNCAoption.



Withnormalnegotiationsthiswouldhaveendedmatters.Onewouldgo

fromanagreementinprincipletodraftingtherelativelysimpledocument

expressingthedecisiontonegotiateoffensive anddefensivelimitations

simultaneously.Technicalteamswouldthentakeoveruntilsomedeadlock

requiredaresolution atthepoliticallevel.Butnothingworkssosimplywiththe

Kremlin.WenowwereexposedtotheSoviettacticoffirstsellingtheprinciple

andthenseekingtosellthesamemerchandiseagainintheformofsubstance.

Perhapstoflextheirmuscles—morelikely,tofulfillsomebureaucraticschedule

establishedmonthsearlier—theSovietssentanothersubmarinetenderto

Cienfuegos,withpredictablereactions.OnFebruary22IcalledinDobryninand

demandeditsimmediateremoval.Nonegotiationswouldbeconductedwhilethe

tenderwasinCuba(itleftshortlyafterward).Atthesametime,Ihanded

DobryninadraftexchangeoflettersbetweenNixonandKosyginembodyingthe

understandingthatoffensiveanddefensivelimitationsbenegotiated