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February 5, 1969 

MEMORANDUM FOR THE RECORD 

SUBJECT: JCS Paper, "Air Reconnaissance" 

The attached JCS working paper was given to us by Major 

Stewart, AFXOP, who requested our comments to assist him in 

preparing an Air Staff position. The paper was to go to the Joint 

Chiefs of Staff for discussion on February 7. 

This morning, General Berg had an opportunity to discuss this 

paper briefly with General Ralph Steakley, JRC. It appears that 

President Nixon desires to demonstrate to,the Chinese Communists 

that the U.S. is deeply concerned over the Chinese interaction with 

North Vietnamese sources. One method of demonstrating this concern in practical form is to do some overflight of South China. 

Interestingly, the primary purpose of overflight would not be to 

acquire intelligence; rather, the primary purpose is to "show the 

flag" and make a psychological impression on the Chinese. GeneriJ:l 

Steakley pointed out that the information he was giving us was extremely sensitive and that he had been directed -- by the Chairman 

of the Joint Chiefs of Staff -- to prepare a paper for the Secretary 

of Defense commenting on the U.S. capability to carry out such an 

aerial demonstration. General Steakley assured General Berg that 

any overflights of denied area conducted as a result of this initiative would be handled in the approved manner, i.e., as NRO-managed 

activities. 

On the basis of these comments, we find only one serious 

problem in the paper. This occurs on page 5, paragraph 6, which 

reads: 

DM!DLE VIA 8 

CONTROL mm! 

The Joint Chiefs of Staff recommend that the immediate 

resumption of aerial reconnaissance over South China be 

approved and they be authorized. to employ any one or all 

three systems at their discretion. 

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b:~:C~~ ·::~.1 

I was relieved to learn from Major Stewart that at an action officers 1 

meeting this morning the sentence had been changed, by unanimous 

consent, to read as follows: 

The Joint Chiefs of Staff recommend the immediate resumption 

of aerial reconnaissance over South China, and that authority 

be obtained to employ any one or all three systems . 

.av. 

PAULE. WORTHMAN 

Colonel, USAF 

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APPENDED DOCill/iENT CONTAINS CODEWORD MATERIAL 

AIR RECONNAISSANCE (U) 

I 

APPENDED DOCUMENT CONTAINS CODE7RD ViATERIAL 

re? r3,;{;rJ f.,J ~ p iJ ~~/'-lei~~,! ~ 

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ENCLOSURE 

MEMORANDUM BY THE J-3 

for the 

JOINT CHIEFS OF STAFF 

on 

AIR RECONNAISSANCE OPERATIONS (U) 

1. Problem. To provide the Secretary of Defense with 

comments on the requirement for and capability to conduct 

aerial reconnaissance of South China. 

1 

·4 

.... i~ 

:6 

'7 

8 

9 

2. Information. Drone reconnaissance of South China was 10 

initiated in August 1964 and continued until 27 March ,1968 

when all overhead aerial reconnaissance of China was suspended 

at the request of the Secretary of State. 

.,, .. , 11 

12 

a. Photographic satellites_ have provided the only overhead .... ,,14 

coverage of China since 27 March 1968. 

b •. Reconnaissance vehicles considered for overflight .of 

China are, the SR-71, 147 H/T and TAGBOARD drones. Th_,.""_.einal\·::_.·• 

first two are operational and the TAGBOARD is in the 

i phase of developmental testing. It is estimated that the .. , \ 

TAGBOARD will be operational during the first quarter of .. 

FY 1970, 

16 

17 

18 

19 

20 

21 

3. Discussion. Reconnoitering targets such as lines of ..... -.' ... 22 1 

communication, transportation centers, airfields used by NVN - 1.,·••·-· 23 

aircraft and port facilities in the area of South China that .... ? 

is contiguous to Laos and North Vietnam would indicate US 

concern over CHICOM involvement in the Vietnam War. In 

24 

25 

26 

addition the intelligence data base would be increased .and/or .. : ....••. '2:2 

up dated. 

a. The survivability of the SR-71 and 147 drones has 

been demonstrated over NVN. SR-71 is near 100% survivable 

while the 147 drone .is approximately 70'/o. Over. South 

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2 Enclosure' 0 

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... 22. 

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China it is estimated that the 147 drone would approach .. 

an 80% survivability figure. 

b. The TAGBOARD drone is a new vehicle that has not 

1 

2 

i3 

'been employed 'before, however its :performance characteristics 

are equal or superior_ to the SR-71.. Its survivability .... 

should be near 106%. 

c. Reconnoitering the area of South China contiguous 

to Laos and North Vietnam would indicate US concern over 

CHICOM involvement in the Vietnam War and in addition .would 

provide valuable intelligence data on CHICOM military 

capabilities in that area. 

' 

.. ., .... : ~ 

•6 

7 

... ,.., 10 

11 

d. Each of the vehicles considered have unique advantages , ,. , 12 

that could be exploited in South China. Unless political 

consideration dictate otherwise all three vehicles .should ..... 

be use.d. · __ ····--··· .... ~----------------

e. For further Discussion see Annex to the Appendix. 

4. Recommended Actions. It is recommended that: 

a. T'ne memorandum in the Appendix, . bE::forwarded to 

13 • ... ,.~,·-·-.-~ -

14 ·~--,•-,,w--i-,·-

15 

16 

17 

18 

.the Secretary of Defense. 19 

b. This paper NOT be forwarded to the. commanders of ....... '\·· .. ·~·.· .... ·.·.··.·.·~~~ ... ,· :~.1.· 

unified and specified commands. . .. 

c. This paper NOT be forwarded to US officers assigned,,\',.,. 

\ 

22 

23 to NATO activities. 

d. This paper NOT be forwarded to the Chairman, US 

Delegation, United Nations Military Staff Committee. 

,, ·'"-il',•1"'<--"~•t,--

24 

25 

5. Coordination. Time limitations precluded formal Service· ... ~ ... 26 

coordination. 

Action Officers: 

Joint Reconnaissance Center, J-3 

Ex~ension 50581 

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3 Enclosure 

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APPENDIX I 

DRAFT/ 

MEMORANDUM FOR THE SECRETARY OF DEFENSE 

Subject: Air ReconnaiJJ{ance ~f South China (TS) 

I 

1. _(TS/B) On 27 March 1968 all overhead aerial reconnaissance .. 

of China was suspended .he request of the Secretary of State •.. 

Since that time photog~hic satellites have provided the 

I only coverage of China. 

I 

l 

·2 

'J 

:5 

;6 

7 

8 

2. (TS/B) Recon!\o~tering targets such as lines of communications 9 / ; 

transportation centers, port facilities and airfields used by 10 

.11 

12 

North Vietnamese aircraft, in the area of South China contiguous 

to Laos and North Vietnam would serve to indicate United States •~.,.••'>Vconcern over Chinese involvement in the Vietnam war. In addition .,. U -· 

to indicating United States concern valuable intelligence on 

Chinese Communist military capabilities would be obtained. 

3. (TS/BT) The three vehicles considered for overflight of 

South China are, the SR-71, 147 H/T and TAGBOARD dr9nes. All ------

of these vehicles operate at high altitudes. The SR-71 and 

.... -.,, ... 14 

15 . ~~~-,·-..,-_ 

."_,~.,. .. 16 

, ·,. _ .·• 17 

18 

147 H/T drones are operational and the TAGBOARD is in the. final.".,__ 1 9 

phase of d.evelopmental testing. It is estimated that the 

TAGBOARD will be operational during the first quarter of 

FY.197O. 

4. (TS) Each vehicle has unique advantages that could be 

exploited in South China, unless political considerations dictate 

otherwise all three vehicles should be used in any program 

authorized over South China. 

GROUP 1 

··- .,,,:., .,_' .,.:,,,' \ 

EXCLUDED FROM AUTOMATIC 

DOWNGRADING AND DECLASSIFICATION. 

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4 Appendix 

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5. ( U) The Annex hereto contains an assessment of the__ · ... 

air defense environment, performance characteristics of the 

vehicles considered and an assessment of the advantages and 

Ai~~ov~nt~g~s gf @~oh. 

6. (TS/B) The Joint Chiefs of Staff recommendlihat:' the _.. 

immed te res tion of aeriJ-1 reconnaissance over South Chin:, 

1 

2 

3 

..e:.:f c,_,,.;:t, ,.,,. - /4 ~/4:/ . E approved they be authoriz~ to _ employ any_ one or all three .. 

5 

6 

7 

8 

9 

systems{Ji,t their discretion~ 

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5 Appendlx · 

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-'fOP £ECBET(.HANDLE VIA 

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BYEVJ):N CONTROL SYSTEM ONLY/TAGBOARD 

I ANNEX 

OTBER CONSIDERATIONS 

I 

INTELLIGENCE REQ,UIREMENTS 

l. (TS) The United States Intelligence Board (USIB) approved 

of3:[ECTlvE-S 

intelligence ~quireme@ for high resolution photography in 

JI'! 

South China is [Qentified by reference is}the DIA Imagery 

Reconnaissance Objectives List (IROL). This objectives list 

1 

3 

5 

6 

,7 

is brought up-to-date each week, ~nd is shown under the DOD 8 

column of the IROLJ 9 

2. (TS) The USIE approved objectives list includes those 10 

targets which are most likely to provide evidence of increased 11 

capability of the Chinese Communist combat forces to enter the 12 

war in Southeast Asia. These targets include key airfields, naval 

facilities, military installations, supply depots, complexes, 

and other objectives which can provide indication of buildup 

or movement of forces toward Vietnam, Of particular interest 

are those objectives located along the main rail lines from 

Kunming to Lao Cai, and from Nanning to Dong Dang. 

EXPECTED REACTIONS 

3. (TS/C) Previous overflights of China have resulted in 

aggressive reactions by both radar monitoring and by weapons 

systems. Past experience with drone overflights has resulted 

in some drone losses. Experience with manned overflights is 

limited, however there have been instances in which aircraft 

have been shot down. The recent reports of Chinese Communist 

attempts to use the "zoom climb" technique in intercepting 

aircraft serve to reinforce the possibility that even those 

vehicles.operating at very high altitude and at high speed 

will be subject to attempted intercept. In summary, it 

is expected that high altitude reconnaissance overflights will 

be observed by the Chinese and that they will probably gener~te 

SAM and fighter hostile reactions. 

~ANDLE VIA BYEViAN CONTROL SYSTEM ONLY/TAGBOARD 

- 1 Annex 

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4. iTS) Based on our experience over North Vietnam the threat 

to the SR-71 and TAGBOARD is virtually nil. Itfestimated that\ 

\ the 147 H/T drones penetrating the Chinese defenses at 70,000 \ 

feet or above will have an 80% probability of s~rvival. 

PERFORMANCE FIGURES 

5. ( TS/B) 

147 H/T 

SPEED 430K 

ALTITUDE 70-72* 

RANGE ,1200 

RESOLUTION 2,5 1 feet 

SWATH WIDTH 20 NM 

SR-71 

1830K 

79-83 

3050 

2,5 1 

30 1'IM 

feet. 

TAGBOARD. · 

1860K 

80-95 . 

,. 3600 

..2 feet 

28 

1 

2 

'3 

'4 

,5 

'6 

7 

8 

9 

10 

NAV ACC 8 NM/nr. .6 NM/hr 1.5 NM/hr •· 13 

TURN RADIUS 10 NM . 90 1'IM 92 NM. 

MANil."ED No Yes (2) No 

PROBABILITY OF 80% Near 100% Near 100% · 

SURVIVING A MISSION 

. COST/SORTIE $70,000 /., ,;r:io u( c, · '. c< I I. • , . 

. ~"' o ae t, !, - 7 211· ;:::c,1,: Fvu /i'/iNC:-& t1P .2 2 co ,.,,,'ll, * Altitude12,;s based on a mission length of 1000-1200 ii.fl 

14 7 H/T DRONE 

14 

15 

16 

17 

18 

19 

20 

6. (TS) Overflight of South China by the 147 drones would.. 21 

, b-e conducted from the present operating locations in South 

Vietnam. Tb.efc-130 launch aircraft operating from Bein Hoa 

Air Bas~ South Vietnam would larch drones from over Laos, Gulf' 

of Tonkin and South China Sea./ The drones would be recovered in · 

I 

the Danang area. A typical }47 drone route is at Tab 1. 

•7, (TS/B) The 147 drone ;s the least survivable of the 

three vehicles consideref (80% proqability of surviving a 

r,,ission); however, it /ould be noted tbat drones of' this type 

were lost over South ~hina during the 1964-1968 operations 

I without creating significant political/diplomatic incidents. 

. I 

~OP £EGRE~/HANDLE VIA BYEYi.AN CONTROL SYSTEM ONLY/TAGBOARD 

2 Annex 

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8. (TS) The major advantages of the 147 drone is the unmanned 

feature and the flexibility of the system. Ivs slower speed and 

sma::...ler turning radius permits operations within a· cor.fined area. 

9, (S) The cost per sortie (approximately $86,000) compares 

favorable with the SR-71, 

SR-71 

10. (TS/B) Overflight of China by the SR-71 would be conducted 

from the present operating location at Kadena Air Base, Okinawa. 

Penetrations of China would be accomplished from Laos, North 

1 

'2 

•3 

4 

!5 

6 

7 

8 

9 

,,,-

Vietnam, Gulf of Tonkin and South China Sea. ~ typical SR-71 10 

1>])./" 

route~ i--s at Tab 2. 

11. (TS/B) The probability of an SR-71 being lost to the 

11 

12 

present Chinese Air Defense system is minimal. However, the 13 

I 

political implications of the two/ crew members falling into Chinese· 1-'.!. 

I 

hands should be considered. / 

12. (TS) The super-sonic sp0 and sophistication of the 

SR-71 limits its flexibility/ The high speed results in a I 90 

15 '""'· ., ' .. ~ 

16 

NM. - - 17 

18 turning- radius which rest;· 

1

ts the SR-71 from operating within 

a confined area. ____ . _____ . 19 

/ 13. (TS) Based on a )'°0% prob.ability of surviving a mission.,. 

the SR-71 is the least costly vehicle at $70,000 per sortie.·-. 

/ TAGBOARD 

14. (TS/B) overflight of South China by the TAGBOARD drone 

would be conducted from Beale Air Force Base, California. -.'Ihe 

. 

20 

21 

23 

24 

25 B-52 launch aircraft operating on a round robin basis from . .... ,,.,.,.. ... ,, .. _-,.,,-.,-

Beale will launch the TAGBOARD drone well outside of all 

radar nets. The "package" will be recovered by JC-130 

aircraft operating from Kadena Air Base, Okinawa. A typical 

TAGBOARD route is .at Tab 3. 

15. (TS/B) The probability of the TAGBOARD drone being downed 

by the present Chinese Air Defense system is minimal. 

~T/HANDLE VIA BYEMAN CONTROL SYSTEM ONLY/TAGBOARD· --... 3 Annex 

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'l 16. (TS/B) The sophistication of the TAGBOARD requires launching __ r,E:f f',:,1,;;,,-1.,/< :.":7.:i, 

rrom its home base which limits its 1f":lexibili ty"':;i' ---- -~- 17. (TS/B) Based on a 100% probability of surviving a 

mission the TAGBOARD is the most expensive vehiole, At tho 

termination of a mission, in a predetermined recovery area, the 

camera, magazine, inertial navigation system and computer, 

stabilization system and other high-value components are 

jettisoned from the drone and are recovered by JC-13O aircraft. 

Pyrotechr.ic devices installed aboard the drone are used to 

destroy the vehicle automatically at the completion of the 

mission after the sensor package has been ejected or if the 

drone descends through a pre-set altitude at any time during 

the operational portion of the mission. This feature precludes 

recovery of the vehicle after it is launched •.... 

:2 

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nnex 

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-,-~ 

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3J. 
Handle via BYEMAN~ 

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System 

BUMPY ACTIO 

DRONE PHDTO 

Ml S SI ON NUMSER ,Q-654 

DRONE ALTITUDE :HIGH ·-=:i=="'··~·~-.;.-~--...,... 

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