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CDNTROl SYSTEM 

GAMBIT 

HEXAGON 

OSD Study of DOD Requirements 

for Satellite Photography 

December 21, 1967 

On December 21, 1967 the Director, BOB proposed a joint 

study of the planned GAMBIT-3 launch schedule by OSD, CIA and 

BOB working in cooperation with the NRO, DIA and the appropriate 

USIB committee staff. Suggested scope of the study was to include: 

1. the improvements in the capabilities of the GAMBIT-3 

system now under development and planned 

2. the planned introduction of the HEXAGON general search and 

surveillance system 

3. the improved target programming techniques proposed by the 

COMIREX 

On December 29, 1967 Dr. Flax commented in detail on the BOB 

proposal to the Deputy Secretary of Defense and suggested the specifics 

of a response to the BOB. 

On January 8, 1968 Dr. Hornig commented on the BOB proposal. 

While agreeing that the question raised by BOB ought to be resolved 

expeditiously, he did not favor the ad hoc OSD/CIA/BOB study group 

as the mechanism for achieving this end. 

On January 26, 1968 Dr. Foster and Dr. Enthoven jointly addressed 

the proposed BOB study by substantially concurring in Dr. Flax's recommendations. They proposed a joint study conducted under the auspices of the DOD, and suggested 

1. a response to BOB stating that the proposed study by OSD/CIA/ 

BOB not be initiated, but that, first, a review with DOD of requirements 

for satellite photography and the relative value of different levels of 

coverage be undertaken 

2. a memo internal to DOD establishing such a review 

GAMBIT 

HEXAGON 

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CDNTROl SYSmJ 

On January 26, 1968 the Deputy Secretary of Defense responded 

to BOB as suggested in 1., above and established within DOD a study 

to review DOD needs for satellite photography for the next five years. 

The study was to consider: 

1. the relative value of varying degrees of coverage of different 

classes of targets (where coverage includes frequency, timeliness, 

resolution, and quality) 

2. using this value analysis, the relative importance of different 

levels of photographic satellite reconnaissance 

3. methods whereby requirements can be evaluated and presented 

The study was to be conducted under the guidance of Gardiner 

Tucker, Deputy Director DDR&E (E&IS) and Ivan Selin, Deputy 

Assistant Secretary of Defense (Strategic Programs). The study team 

would consist of members from DDR&E, OASD(Admin), OASD(SA) and 

DIA and be directed by Herbert D. Benington. The Director of DIA 

would arrange, as necessary, for participation by the Military Departments. 

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EXECUTIVE OFFICE OF THE PRESIDENT 

BUREAU OF' THE BUDGE.T .' 

WASHINGTON,O.C. 20503 

Honorable Robert S. McNamara 

Secretary of Defense 

WAch1.nijtQn, D. C • . 

Dear Bob: 

DEC 2 11957 

Following up our discussion on December 14 concerning the Cfu~BIT-3 

launch schedule and the proposed AGENA-E upper stage development, I 

suggest funding both programs in the FY 1969 budget at the DOD-proposed 

levels and directing a joint OSD/CIA/BOB study of the GAMBIT-3 launch 

schedule reGuirement. 

During the course of the FY 1969 budget review, a number of questions 

arose concerning the planned ~UmIT-3 launch schedule of nine launches 

in fiscal year 1969 and seven a year thereafter. The Director of Central Intelligence has ~rdered a review by the .United States Intelligence Board of ,the target coverage requirements and the related number 

of successful launches of the GAJ1BIT-3 system ~'lhich is. needed. This 

review, nOH' in process, may well result in a reduction of the required 

number of successful launches per year based upon only the present 

GAMBIT~3 capability. In addition, planned introduction of the HEXAGON 

photographic satellite system (With the capability to cover some survei llance targets), and the possible addi tion of an improved and higher 

thrust upper stage (AGENA-E) should make possible additional reductions 

in the planned launch schedule in fiscal year 1971 and beyond. Contracts for the procurement of boosters and payloads to be used in this 

period are to be entered into early in fiscal year 1969 (November 1968). 

Since our diSCUSSion there has been additional co;:.:~.':, r.ication between 

our staffs, including Dr. Flax's letter to Mr. o~~~~ n of December 15. 

Th~se exc..'1anges indicate that additional analysis is needed and that, "'_. __ 

due to the time constraints of arriving at a final FY ~969 budget figure, the ffiO~~ appropriate action seeillS to be to provide che DOD-proposed 

funding for the G&'13IT program of $226.9 million ::'n the FY 1969 budget. 

This could be done with the understanding thac th~ fund& for procurements which ...,ould be affected by c:he study would be deferred from ob· 

ligatior. within the Department of Defense pending a c;.orough analysis 

of the :equire~ents, the planned capabilities, and the costs of alt eroative l .. ";':'. ch schedules. 

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Due to the uncerti.1inties surrounol.ng the planned G-3 program and its 

related funding requirements, I propose that there be a joint study 

of the planned GAl'Li3IT-3 launch schedule by staff of the Office of 

2 

the Secretary of D~fense, Director of Centrnl Intelligence, nnd the 

Bureau of the Budget, working in cooperation with the National Reconnaissance Office, the Defense Intelligence Agency, and the appropri- ' 

ate co~ittee staff of the United States Intelligence Board. I 9ugaQO~ 

that the scope of the study include: the improvements in the enpol" 

bilities of the GA}IDIT-3 system now under' development ana plAonQJ; 

th" p'l.anned in t roduct I.on of thQ' li~XACON 80100 r .... 1.eao .:och emu .:'Ill I:VO L u,,, rI(HA 

syster.1;' and the improved target prograliiTI1ing techniques proposed by the 

Coomittee on Imagery Requirements and Exploitation of the United StateS 

Intelligence Board. If you and Dick Helms concur in my proposal for chi. 

study, the terms of reference should be developed for our approval as 

soon as possible and the study completed by May 1, 1968, so that a determination on the need for future procurement can be developed prior 

to the negotiation of new procurement contracts in,November 1968. I 

have sent a copy' of· this letter to Mr. Helms. 

If you agree that the study should be conducted, you might designate 

someone from your staff to serve as your representative on the study 

group. 

!'he contact on this matter in the Bureau of the Budget is Mr. C. W. Fischer, 

Assistant Direct~r, International Programs Division. 

cc;., Mr. Helms 

Dr. Hornig 

GA.'1B IT /HEXAGON 

Sincerely, 

~. 

Charles L. Schultze 

Director 

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ColiUo" .u". . . .. ' ¢ NATIONAL REC:)Nt'J'~ '5~jANCE:OFFICE 

W:·.~I·' 'I'<GTUN, 0.(;. 

OFFICE OF THE DIRECTOR vVDRKING CDPY December 29, 1967 

MEMORANDUM FOR THE DEPUTY SECRETARY OF DEFENSE 

___ =~='!""-I SUBJECT: 

DISTRIBUTION 

A.FSS--;"-IBOB Proposal for Study of GAMBIT III 

Launch Schedule 

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The BOB proposal for a gAMBIT III launch schedule. 

study, which 1 discussed (on the basis of a draft) with 

you and Mr. Fisher of the Bureau of the Budget on 

Decem~er 19, 1967, and which was sent in final form ' to 

the Secretary. of Defense on December 21, 1967, prompts 

the following'. co~ents ,: 5;;~ ... \~. \ -

\ 1- 1) There is no need for addi tional study with 

SS·7 \' I;" respec t to any NRO func tion i. e., the number of launches 

~9 _ _ \r~quired to meet a given statement of intelligence 

SS~- \ 1 requirements, or the costs, schedules and capabilities --1-\' as. related to alternative statements of require·ments. 

SMRD~_\I_\_ I make this point because subsequent to our discussion of 

~Afl':.1).2 __ December 19 , Mr. Fisher is reported by both Mr. John Bross 

COMP I 13 of the CIA and Mr. Don Steininger of Dr. Hornig's office 

S.l\FSLI 1- to have quoted me as stating that I had neither,the time. 

'--I-I-ytlOr the staff to perform the necessary NRO stud~es related .• 

AFBon __ -1i to GAMBIT launch vehic le schedule s. You will recall tha t 

RF __ I __ my statements' related entirely to the analytical r~view of. 

ftW I . requirements for which I do not have the responsibility, 

1 ... 1: nor c

2

o)rrespondingl Y the time and staff. . 

Tht vu~idation of requiremen~s i3 currently a 

USIB respo ... sibility. Under the charter of; the :\iRO, we 

are bound ~o honor (within the limitations/imposed by 

budget anci. EXCOM direction) USIB statements of requirements. 

However, we can and do exchange data with COMIREX and 

USIB on the NRO collection cost implications of alternative 

requirement statements. 

LOPY 

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3) Since the GAMBIT III study proposed by the BOB, 

as I understood it, related primarily to the statement of 

requirements for high resolution satellite coverage, I 

'pointed out that this is primarily a matter for theUSln 

and not for the NRO per see 1 understand from John Bross 

that tho BOB mGmorandum to thQ SGcretary of Dofen.o wad not 

properly coordinated with Hr. Helm's office prior to its ' 

transmittal, although the copy sent to Mr. Helms by 

Mr. Schultze indicates the latter's belief that it was so 

coordinated. 

4) The proposed study appears to be a one shot random 

effort to resplve the problem of requirements formulation.' 

The question 6f GAMBIT launch schedules arose in the first 

place because Mr .. Fisher was under the erroneous impression 

that in calculating launch schedules, the NRO did not take 

into account the GAMBIT vehicle improvements beyond'vehicle 

No. 23, in spi te of repeated explanations to the contrary. 

in the month preceding the EXCOM budget meeting. 

5) The recognition that there was a requirements 

definition probl~m with respect to high resolution 

satellite photography came over a year ago. The principal 

adversaries are CIA and DIA, with DIA heavily on the side 

of more coverage. The present schedule was arrived at 

as a compromise schedule by the USIB chairman, Mr. Helms, 

about a year'ago. Subsequent studies have been under way 

to attempt to better define and validate these requirements. 

The latest results of these COMIREX and USIB deliberations 

were expected in December. However, this US:," action has 

now been delayed into mid-January. 

, 

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6) 1 doubt very,nuch that the proposeid BOB study is a 

practical solution to ~he overall problem of requirements 

definition and validation. The target lists for intelligence 

collection, the degree of urgency attached to certain 

coverage, and such collection program factors as the degree 

Of confidence in the HEXAGON first launch date will vary with 

time. It is impractical to expect that a one-time study 

of the kir.:" proposed by the BOB will resolve the continuing .. 

problem. 

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7) If there is a general feeling that more adequate 

analysis gf ~9qui~9m9nt8 Rh~~ld b~ ~fid~~G~k~rl, ic APP~A~~ 

to me that there are two levels at which this could be 

done and probably the problem should be attacked at both 

levels. Wi thin the DOD, intelligence collec tic:m requiremQ1'\ttJ 

are processed through the DIA to the USlE. tl1e DOD could 

inject at this stage somG method o~ assi~ning noi ~n~Y ~ 

priority but 4 value co each major requ~~emerit. Second, 

at th~, USIB level a collation and integration of the 

requirements and' related values submitted by the participating 

agencies could be undertaken. 

8) At t;he present time, there is no group other than 

the EXCOM at which the senior managements'of the DOD and 

the CtA (the principal USIB participants in both generation 

of requirements and intelligence collection) 'formally meet 

to review resource requirements resulting from intelligence 

collection requirements. This leads the BOB:~to inj ect 

requirements issues into the EXCOMwhich are not primarily 

the concern of the NRO; for whose management the EXCOM 

presumably exists. ' . 

In light of the above factors, I recommend that you 

(after consultation with Mr. Helms) reply to the BOB 

memorandum by indicating t!::~en~dies_.£.~£h, 

as~ the one propos_ed _ar~yr_()pi=!:f~~he~~'Q.9t:h9n_~t:.!:e USI! 

as the senior coordinating and validating agency for 

inte1r:tge:nc-e col1ecti-On-requl.rements-;-alYd--t1f<ft-th-ememier 

agenctes of uSrn-(fiictu'din-g' th'e-'-D-Ob} ,Ii-ive a simiYar-;-~­

unrral:e'r-a1.resp-ons~biYi:tY--f~:r-rcqur-r-~~~l1.:~s=,~s-ubmffte-d'·by . , 

them for USTf3--re-view and vali(1<l t1.(m. As indicated--fri----, 

Nr:-SchultzeTs-Te-t-te~', a--r~ivi(,\-:"-'of the GA1'1BIT III launch 

requirement is currently in pr'llce!,s by the; USIB and 

certainly no action spec if i(;alJ.;; \,;i Lh respect to GAMBIT 

requirements ought to be ~2kcn ~rJor to completion of 

that review. l10re genc;r.'d ~~r, ::: e POD plans to tak_e _ac_tion , 

to establish improve~.;,,:.,d~ \.); cV::-'fuatlng-r't:s--intellig~ncc: 

collection requfu-~n-~eJ..at:Cng them to-th_~--p-£Qbab.1EL 

,value. A~~_§a~e_ time the DO_:Q._wi lLwo_r_ls_:wiXh_the,.J)_GJ 

toestablish the :lec~ssary_nlechanism~ for in.:t:r_~j.]}g~ 

such-facto-rs into· -CQ~REX_~_gJld-.-lISIlLr_e_'l-iJ~ents reviews: 

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X:\.l'l:~hol:'. thoro has bQon :in P':OCHH10 betwoon Dl:'. ~lax Anc1 

. Hr. Helms, for several months now, planning for 

coordinating the schedules of USIB requirements reviews' 

\vi tl1 NRO budget subm:i. tea.l and contract ac tion dates 60 

that timely information may be made available to all 

n\o.\10t;Q\TlQ\.e ltavala Qonc"u:nQ(\. 'thQ moehAn:Lam ~O'i: uh;f.,. 

coordination has now been agreed on and will be in 

operation sho~tly. 

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jfS' NATIONAL RECONNAISSANCE OFFICE' 

WASHINGTON, D.C. 

" , OFFICE'OF THE DIRECTOR WaRK~NGCOPY 

, , 

JanuarY' 8, 1968 

MEMORANDUM FOR THE DEPUTY SECRETARY OF DEFENS~ 

SUBJECT: BOB proposal for St:udy of tho GIIM13IT ... ,3 Launch 

Schedule 

Dr. Hornig, in his letter to you of January 8, 1968, 

has addressed the subject of the BOB proposal fora joint 

OSD/CIA/BOB study of the GAMBIT-3 launch'schedule require- , ment. 

The main thrust of Dr. Hornig's letter is that, while 

he agrees that the questions raised by the BOB with regard 

to GAMBIT-3 flight schedules ought to be resolved expeditiously, he does not favor the ad hoc OSD/CIA/nOB study 

group as a mechanism for achieving this end. Rather, since 

.. 

" ' "he sees that there is a continuing need for dealing with 

intelligence requirements and related collection system 

'resource allocations, he favors strengthening ,the capabilities of the USIB and the NRO to handle such problems 

effectively_ 

In general, I believe that Dr. Hornig's views are 

consistent with those expressed in the letter to Mr. Schultze, 

prepared for your signature and forwarded to your office on 

' .. ' January 5, 1968. However, the latter document is less 

final in tone, sinca it suggests that the question of the 

ad hoc study could be re-examined after completion of the' 

current USIB ::"e'!;~ew later this month. I believe that such· 

an approach i~ still the most reasonable oni to take at the 

present t:,. c» since if the USIB cannot satisfactorily resolve 

(or propo~~ a reasonably expeditious plan for resolving) 

current .: .. :quirements questions, an ad hoc study group may 

still be necessary. 

COpy 

Alexander H. 

TOP SECRET 

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.January, 8. 1968 

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Dear Paul: , ' 

. , 

, ' ' In Hr. Schultze s recent letter to Nr •. NcNamara, he lists Gomel 

, questions concerning GANB'IT-.3 flight schedules which, I agrea, 

must be studi~d and ansuered expeditiously. However, I disagree 

with the mechanism that he suggests to attack the'prob1em and I 

want to let you know the basis for my objection. 

I think We must recognize that we are facing here the typ i cal and 

inherently difficult problem of establishing requirement priorities 

. and then compromising what We t.Tou1d like to have to acconunodate 

limitations imposed by technical capability and financial resources. 

We .shou1d not be surprised that conclusions are not easily arrived 

at -- there is necessarily a great deal of qualitative judgment 

involved in listing priorities and the task of defining system 

capabilities and effectiveness is complex and time-consuming. I~ 

many of our activities these problems are compounded by the fact 

that we are not ahlays able to identify a homogeneous and manageable group representing the user nor an integrated analysis group 

to define system alternatives. Fortunately, in the reconnaissance 

programs, it seems clear that CONOREX, for the USIB, and the NRO 

have these ' functions. 

It seems to me then that the problems ra ised by Hr. Schultze should 

be addressed by existing organizations and the creation of an ad hoc 

study group seems unnecessary. Furthermore, since there is a continu-

' ing requirement for program studies of this kind, I think it is in • 

~ur best interest over the long run to make a conscious effort to 

strengthen the NRO and Cm,{oREX capability and sharpen! their mission 

responsibility. I am c~~cerned that the establishment of an ad hoc 

st,udy group will have the opposite effect and for a sometvhat narroW' 

analysis objective will dilute their ability to deal with other, 

perhaps more important, prqblems of the' future. 

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At its lasl ~ecting EXCOH agreed that the issues raised by the BOB 

should be addressed expeditiously and I think we should now rely 

on the responsible organizations to carry this out. 

.. i .... ..' ..• 

Honorable Paul H. Nitze 

Deputy Secretary of Defense 

Was~ington, D. C. . 

cc ; Mr •. Helms 

Mr. Schultze 

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.DonAld F. ~o~n£G . 'Special Assistant 'to the President 

for .Science and Technology 

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SU-.LJECl': Photo Reconnaissance (U) 

::. 2 6 JAN 1968 

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On December 21, Charlie Schultze 'r~ote Bob McNamara nnd proposed 

a tripartite BoB, DoD, DCI study of requirements for satellite photography. This study would provide a bazis for revie",ing the IT 1969 . 

program for the GAl.rnIT-3 and improved AGENA-E upper stage. Although 

these programs are the specific issues motivating the proposed study, 

I' 

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IIII! the scope as proposed by Charlie would also include 'uti1ization rates 

and potential improvementz for all systems currently under development· 

(including the HEXAGON and l40L). 

~ A review of this type is definitely needed. The question is who 

should do it, andwhnt should be studied. Don Hornig, in his comments 

cOpy N:J., 

on the Shultze proposal (January 8, 1968), docsn It believe that a. '., 

:r: tripartite, high-level, ad hoc review is necessary. He favors un expe- . ditious review to be uccomplished by the established organizations and 

procedures, Le., the NRO and the COMlRE)( subcommittee pf USIB. On the 

ts not so sanguine. He is against a "one shot random effort" but pOints 

::>ut that the requirements analysis must be addressed at two levels: (1) 

Nithin the DoD; and (2) through the DIA to USIB. He recommends that we 

avoid the tripartite study and attempt to strengthen (1) review within 

JoD; (2) mechanisms for improving COMIREX': review; nnd (3) USIa requireuent review of the NRO budget. 

We substantially concur with Al Flax and believe that we must start 

~o get our ovm house in order. This problem has been discussed "lith. 

\dministrntion, DIA and the Joint Staff. As a result, we propose that a 

joint study be conduct-ed under our ausp:':'<.:eS. This study ",ould prepo.re 

1 document resembling a. Druft Presidential Me~randum or Development Con-

~ept PaI,er covering satellite photography durinz the next five years as 

.t affects DoD. (Admit-tcdly, there is g.!"eat overlap betvleen DoD a.nd Del 

~eeds but ~ in fact, DoD positions o.re developed fer pl4esentation to USIa 

md EXCOM). He propose to get an initiaJ. dro.ft by 1 June. This effort 

rould have several objectives: 

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To get the :problem o.nnlyzed using the o.pproach of DP.4's· 

nnd DCF's. ...: ... ', 

(2) To review DoD requirements for targot coverage, and to i" ., •. ,., 

evaluate the extent to which different ~rtO progrnms would 

satisfy these requirements. 

(3) To ;P1.40vido Q. basis for nddl'l'H'icina the Cl\.1Qstiong raiacaQ 0:1 

BoB. 

(4) To provide a basis ,for your reviewing requirements presentod 

by DIA to USIB. 

(5) To provide a basis for strengthening the DoD input to EXCOM 

review ~f the NRO program. ,. 

In discussing this with joe Carroll, he feels that our approach is 

better than the BOB approach and that more proeress is needed on the 

objectives listed'o.bove. He concurs in the need for formulating and 

applYing better methods for evaluating va.rious levels of satellite 

coverage and he concurs in the establishment of a study group for this 

purpose. He emphasizes hOvlever, that he considers it inappropriate for 

0. study group of the proposed composition to undertake to develop intelligence requirements per see This is un intelligence and 0. USIB responsibility 

which is currently being addressed. He suggests that prior to the establistment of the pro-posed DoD study group and the proposed response to Mr. 

Schultze, you discuss this approach vnth Dick Helms in view of DCI's overall intelligence reslonsibilities and the fact that he received an identical 

letter from the BoB. 

Two proposed actions are attached. One is a letter to Charlie 

Schultze that indicates we have started a stud;,/ and proposes that we reconsider his questions in june. Bill Fischer of DoBfeels that our 

approach is responsive to Charlie's and Fred Hoffman's concern. The 

second is a proposed merr~rand~~ internal to DoD (with an information copy 

to liRO) that establishes the review. If you concur with this approach, 

we recommend tha.t you inform Dick Helms before i::;suing the letter o.nd 

memorandum. 

The followi~;'0 cO~1Cur in this approach: NRO, Al -;:'~ax; OASD(Admin), 

, Doc Cooke; Joint S'Ca;.:Y. Lt. General George Brown. 

Alain Entnoven john S. Foster, Jr. 

Enclosures 

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2 G JM' 1969 

.. Dcar Charlie, 

This is in rc:ply to your letter of December 21, 1967 to Bob 

McljoJ:lura conc~rnin~ the GAHBIT-3 lo.unch !lchcdul¢ cnd tho ACrZ,:iA-E u::;rpOX' 

stage dev~lop~cnt. I eGree th~t we should provide $226.9 ~illion in 

the FY 1969 budget for th~ GN·liIT P".rogram but that these funds ,dll 

not be ooligated within the Depart~ent of Defense until the requirements issues·are resolved.' 

At the present ti~e, h~~ever,. I believe that we should not initiate 

the proposed joint OSD/CIA/BoB study of the GAHBIT-3 le~nch schedule. 

First, I believe that we need a revic\·, within the' Depart~~nt of Defense 

of our o~ requirements for satellite photogrephy and of the relative 

value of different levsls of satellite coverage. I have initiated such 

a review. Secqnd, I believe it would be highly desirable for me to wor~ 

with Dick Helm3 to detoroine hmv th~ requir~m~nts process can be ~proved 

both in the USIE and by the DoD. If both those efforts are successful, 

I believe th~y;would have more far reaching and lasting benefits than a 

one-t~e special review of the GM1BIT-3 requirements.' 

The DoD re~uirements study that I have initiated will pr3sent an 

initial report by Jlli!e 1968. The director of the study will disCUSG its 

objectives and progress with Hr. Finch8r. Also, as you pointed' out in 

your letter, the United States Intelligence Board (USI:a) is reviei-Tins 

coverage require::lznts and the related GAH3IT-3 launCh schedule. I believe 

that the results of both of these reviews should be considered before any. 

ne,f study is initiated. Therefore) I suSg~st that vIe review after June . 

1 the necessity for further study of GN·ffiIT-3. 

Honorable Charles L. Schultze 

Director 

Bureau of the Budget 

ODDR&E:HDBenington:mas:22Jan68 

BIn 3E1082:57936 

to?Y No"--' "'":"2 a. o~ :r COPIES 

G~;;;:;? 1 

Sincerely, 

PAU L .f.:,. I 

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