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• 

COVERING BRIEF 

TO: Director Defense Research & Engineering 

FROM: ,---I __ ~ __ ~ 

SUBJECT: Position Paper on the Impact an Earth Resources Program 

May Have on the National Reconnaissance Satellite Programs 

Attached is a draft of a proposed DOD position paper on the Earth 

Resources Satellite Programs. 

Dr. Flax has not seen this yet. 

I have several questions which should be answered before another 

draft is written: 

1. Is the problem clearly stated? 

2. Should more detailed appendices be generated to substantiate 

the plans proposed? 

3. Who should receive the paper {i. e. DepSecDef or SecDef}? 

4. What deadline should be set for completion of the paper? 

u= =r 

A related but separate decision should be considered regarding 

the continuing of the MSFPC /SACC screening mechanisms. 

Because the actions are predominately questions to be decided by 

the NRO, you may wish to abolish the MSFPC/SACC committees and 

inform the NASA Administrator to work all such problems directly 

with the Director NRO through General Smart's Office of DOD and 

Interagency Affairs. 

The principal benefit of the existing arrangement appears to have 

provided some degree of cover while NASA was being educated on how 

the system should work. I believe they now understand what they 

j-ST 

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should do and are expected to do on screening imaging programs or 

other programs of interest to the NRO. 

If you will please mark up this draft, I will get your comments to 

Dr. Flax. 

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DOD POSITION PAPER ON A NATIONAL EARTH 

RESOURCES SURVEY PROGRAM 

Problem: 

The NASA members have infe ed to the Manned Space Flight 

Policy Committee that strict c pliance with national policy on 

is inhibiting the development of a 

major earth resources sat lite program. 

The DOD members view the U. S. satellite reconnaissance 

program as a productive and irreplaceable source of intelligence 

information vital to National Security which should be protected 

by extraordinary security measures. 

Three questions arise from the above positions: 

1. Are present policies and directives adequate to protect 

the U. S. satellite reconnaissance program? 

2. Should a national policy be developed to support a large 

earth resources survey program? 

3. Is this problem of enough importance for Presidential 

review or can it be resolved between the Secretary of Defense 

and the Administrator of NASA? 

This position paper presents the rationale and considerations 

which support the following conclusions and recommendation. 

This paper outlines three alternatives for consideration in the 

resolution of thes e issues. 

Alternative I 

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Alternative I continues present DOD/NRO screening mechanisms of 

the Manned Space Flight Policy Committee and its subordinate working 

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group, the Survey Applications Coordinating Committee. This 

committee screens all NASA studies, proposals, programs~ 

imaging equipment designs and post-flight information for compliance with NSAM -156. 

Within the guidelines of NSAM-156, NASA may discuss an earth 

resources satellite program but every firm program proposal must 

conform strictly to the imaging resolution restrictions ..€.pecified 

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in NSAM-156. This imaging resolution must not be better than that 

/ 

obtaineabY""a:n angular resolution of O. 1 milliradians. Special 

cases such as the NASA astronomical programs and satellites at 

synchronous orbital altitudes are resolved by the Manned Space 

c/.., Flight Policy Committee. Meteorological satellites have been exempt 

~from the angular resolution restrictions. 

~ 

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NASA may conduct earth resources programs using aircraft to 

any resolution required by any of the user agencies. 

~ ~ 

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TK material may be extensively used where satellite coverage 

overlaps with aircraft coverage as long as the source of the data is 

protected by a sanitization process, The U. S. Geologic Survey 

Agency has a facility in Reston, Virginia, where they are using TK 

materials to produce unclassified charts and maps for general public 

use. 

NASA may elect to request TK coverage of areas they wish to 

investigate for earth resources by submitting their requt::st through 

the USIB channels. 

This alternative continues the existing policy which has not 

generated any major problems for the past several years. At the 

present time, there are no open actions requiring resolution by the 

Manned Space Flight Policy Committee. 

Alternative 2 , 

NSAM-156 does not cover e earth resources satellite activities 

of all 0 encies It applies principally to the inter-relationships of DOD/NRO and NASA. This alternative is the same as Alter- --.-:;:~ 

native I with the additIon of an all agency NSAM which would require .z.=;--

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the screening of all U. S. earth resources programs which require 

imaging from satellites. 

Attachment 1 is a draft of a proposed NSAM which would require 

all U. S. government agencies to coordinate with the Administrator of 

NASA their agency requirements for space derived data and any proposal design studies for earth sensing spacecraft systems prior to 

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initiation of in-house or contractor activity. ~ ~ IYS/9-ll1 

The 

Alternative 

protection 

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of the National Reconnaissance 

C_~c~..ty ~~~ 

Program is 

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portant enough that it may be advantageous to set up an organization ~ I 

which is a part of the responsibility of the Presidential Science £:... ~, 11 /) 

Advisor to establish a carefully controlled, national earth resources -~ ,I 

satellite program. ~ 

Attachment 2 is an outline of a plan which might be developed to ~U ". ,1 .. _ 

provide such a national program. ~ • [ 

Conclusions: 

1. Since the initiation of a U. S. satellite reconnaissance program 

~r 

in 1960, national policy papers, including various JCS position papers, 

consistently state that satellite reconnaissance is the single most vital 

source of intelligence on the Sino-Soviet Bloc, and that no action should 

be taken which might in any way jeopardize this U. S. capability. 

2. National policy strongly implies there is need to protect the 

U. S. satellite reconnaissance programs by rigorous enforcement of 

the TALENT-KEYHOLE Security Control System. 

3. International confrontation on the issue of the legality of satellite 

reconnaissance combined with Sino-Soviet Bloc initiation of camouflage, 

film fogging and communications security measures could cut-off or 

drastically degrade the intelligence collection from satellite reconnaissance, both SIGINT and photographic. 

4. NASA r s earth resources satellite programs may raise international issues on satellite reconnaissance as well as permit a more 

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accurate assessment by the Sino-Soviet Bloc of the qualitative and 

quantita tive capabilities of the U. S. satellite reconnaissance programs. 

5. In the development of an earth resources satellite program, 

NASA must comply with existing guidelines set forth by National 

Security Council ActIOn 2454 and NSAM-156. Any relaxation of these 

policy guidelines is potentially dangerous to the U. S. satellite reconnaissance program. 

6. The Manned Space Flight Policy Committee and its subordinate working group, the Survey Applications Coordinating Committee. 

provide an adequate review mechanism to keep the Secretary of Defense 

and the Director of the National Reconnaissance Office apprised of 

NASA IS programs for earth resources and the compliance of these 

programs to established na tional policy. 

Recommendation: 

It is recommended that the conclus ions, above) be approved as 

specific guidelines to be used by DOD and NRO personnel in making 

decisions on the compliance of the NASA programs to national policies 

on U. S. satellite reconnaissance until such time as Alternative 2 can 

be implemented. 

Background: 

During this coming year (1969) the NASA, Department of Interior .. 

Department of Agriculture~ and the Marine Council will probably increase their activities toward establishing an earth resources survey 

program involving both manned and unmanned satellites. 

This increasing interestJ if not properly oriented and directed. 

could erode the satellite reconnaissance programs. The proposed 

earth resources survey program and the DOD intelligence collection 

satellites are planning to employ similar orbits and on-board sensors. 

Both would overfly sovereign states. friendly and hostile. Thus an 

unfavorable international reaction to the proposed earth resources 

survey programs may create serious problems for the NRP. Certainly 

the DOD must be prepared to state in depth its reliance on the NRP 

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intelligence collection" the impact the earth resources program 

could have on the NRP" and to sugges t alterna te approaches to 

more economically and effectively .achieving objectives proposed 

for any earth resources survey programs which may materialize 

(i.e. 1 ARGO study). 

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Many proponents of the earth resources program have made a 

basic as sumption that satellite borne sensors are the preferred approach to meeting program objectives. NASA has configured large 

manned satellites and experiments (AAP) to determine how earth 

resource surveys may benefit mankind. 4... more direct approach J,AJ,.,f I 

which sb..Q.]Jld be recornm.e.nded by the DOD would be to determllle'1he l_. _ ,I 

lei'St costly means of meeting earth resources program obLective~. ~ 

Ground based or aircraft borne s,ensors should be caref~l1y considered~ ; .•. I 

as alternate approaches to satellIte sensors. DOD studIes to date ' JJ ~~:' i 

show the use of special satellites for earth resources surveys would ~:; ,I 

not be the most economical method for collecting resources data. i 

It is probable that the strictest enforcement of NSAM 156 will ! 

still permit sensors and pointing systems to be flown which wouldh 

produce intelligence data on such items t~ 

t~or missile site con ruction~ etc. - r 

It does not see prob Ie hat the Sec Def and NASA Administra- I 

tor could arrive at a bilateral agreement which would control the I 

NASA effort on the earth resources programs which use satellites or L 

manned space stations. Since funds will be. tight in FY 69 and FY 701 1 

it is a good time to consider re -stating of a National Policy which 

would direct NASA toward an earth resources survey program" primarily 

aircraft oriented" which would make maximum use of NRP collected 

data and continue to protect the NRP as vital to National security, 

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DRAFT 

NATIONAL SECURITY ACTION MEMORANDUM 

SUBJECT: Coordination of Civilian Programs Using Earth Sensing 

Satellites and Clearance of Public Statements Related 

Thereto 

In view of NASA r s responsibility for the development of civilian 

space systems and to avoid a proliferation of uncoordinated or unnecessary work by potential user agencies in connection with proposed earth sensing programs, the President has directed that 

agency heads coordinate with the Administrator of NASA their agency 

requirements for space derived data and any proposed design studies 

for earth sensing spacecraft systems prior to initiation of in-house 

or contractor activity, 

Furthermore, in order to present a coordinated picture of the 

objectives and the programs that the Government might pursue with 

regard to civilian earth sensing satellites, and to assure appropriate 

review, the President has directed that agency heads clear public 

statements concerning such satellites and their possible use with the 

Secretary of State, the Administrator of NASA and the White House 

Press Secretary prior to release. 

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OUTLINE OF PLAN FOR A VIABLE EARTH RESOURCES PROGRAM 

FOR THE U. S. 

For an earth resources program to be viable the following factors 

should be studied in depth and specifically satisfied: 

1. The program should not degrade the national intelligence 

program in any way. 

2. The program must "pay its way" by providing more economic 

return on the investment than is now experienced by the current 

programs now underway to exploit natural resources. 

a. Do what we now do better; or 

b. Do new things not possible with the present way we 

exploit resources. 

3. Satisfy user needs. Users are scientists .. general public. 

and governmental agencies. Private enterprise has to a large 

degree been born through exploitation of lands~ minerals~ and 

oceans. 

One wayan earth resources could be established which would satisfy 

the preceding criteria is the following: 

Us ing the information now being generated in Argo I and II. define 

the specific user data requirements which should be satisfied in order 

to provide an in -depth assessment of the economic benefits which are 

predicted for any particular program within the U. S. 

Assuming that such a requirement would require photographic 

coverage of areas of the U. S ... examine the available TK data to see 

how much raw photographic data is available. If additional sate llite 

photography is desired. submit a request for the coverage to the USIB 

along with a request that the NRO be asked to provide the cost of pro -

viding the cove rage if done by satellite or if done by high altitude aircraft. 

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ceptually what an earth resources evaluation program should 

be. 

2. Interior, Agriculture, etc. draft detailed plan of resource 

information needed and how it would be used to improve the 

U. S. economically. 

3. NASA identify existing data and produce a plan to collect 

the data which is missing. 

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4. When data is missing the collection methods used to complete 

the data requirements should be all source, i. e., airplanes, 

ground, and satellites. 

5. Where satellite data is needed a task Should be submitted by 

NASA to USIB to determine if existing programs can be used to collect 

the data. 

6. If new sensors are to be used in satellites, USIB should be 

aSked to screen the requests for piggyback rides on existing programs to see if the additional equipment could be phased into 

existing programs. 

7. If it is not in the best national interest for USIB to accept the 

requirement, consideration might be given to providing a special 

satellite to collect the earth resources data. 

The data from all sources could be processed through the Geologic 

Survey facility at Reston. This would permit sanitization of the source 

of the data while at the same time provide actual cost information which 

could be used in evaluating the overall benefit! cost ratio in the future. 

Such a procedure would provide future users with accurate information on support capability and cost which could be used by not only the 

user agencies but by NASA, DOD, and the Bureau of the Budget in 

s coping future pro grams. 

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National Earth Resources Program 

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'ARGO I 

ARGO II 

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"'-E-a-r-t-h-R-e'sources I Coord, Interior I 

Task . < State I t· Agriculture ----.:...------j CIA 1 

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rOD ocone: 

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SOME EXAMPLES OF THE VALUE OF THE NRP 

DATA TO DOD 

The use of satellites as intelligence collection pl atforms was 

recognized early in the U. S. and USSR space programs. This use 

is probably also recognized by the CPR but their lack of adequate 

boosters had undoubtedly forced them to develop offensive missiles 

before they can move forward to capitalize on the advantages of 

satellite reconnaissance. 

Both the U. S. and USSR have developed search and high resolution photographic satellites. At this time J in 1968, there is a tacit 

acceptance of orbital overflight by both the U. S. and USSR for space 

systems. A treaty has been signed that "weapons of mass destruction" will not be orbited. The treaty does not preclude the use of 

reconnaissance satellites nor the development of all the subsystems 

which would provide the capability of orbital bombardment systems. 

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In the first six months of 1968, the USSR maintained almost continuous 

photographic reconnaissance coverage of the CPR and U. S. by use 

of their reconnaissance satellites. 

The U. S. photographic reconnaissance satellite program is 

directed toward coverage of selected targets at periodic intervals 

and at the present time, pl ans to orbit four search cameras per year 

and six high resolution cameras per year. 

The following specific examples are presented to indicate the use 

which has been made of satellite photography in FY 1966 and FY 1967. 

These examples clearly show that satellite photography is vital to 

the Defense Department activities in research, development and deployment of advanced weapons systems. The examples also show 

the advantages the U. S. can have in making force deployment decisions 

on SIGINT and photographic confirmation of the enemy order of battle 

against which U. S. and allied forces are aligned. 

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~ CONTROL NO. ~ ~ ~ :~ REFOEFRFRICE~ TO RECEIVED RELEASED SEEN BY~ ~~AI SIGNATURE D_~_ TIM~~~r_ NAME & OFF ICE SYMBOL DATE ~ 

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WARNING 

those persons 

This document contains informati on affecting t h e national sec~rity of the United St ates wit h in the meaning of 

the espionage laws U. S. Code Title 18 , Sections 793, 794 and 798. The law prohibits its t ransmission or the 

revelat ion of its contents in any manner to an unauthorized person, as well as its use in any manner prejudic ial 

to the safety or interest of the United States or for the benefit of any foreign government to the detriment of 

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DEPARTMENT OF THE AIR FORCE 

OFFICE OF THE ASSISTANT SECRETARY 

MEMORANDUM /j 

December 30-;::- T9"68 

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MEMORANDUM 

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OFFICE OF THE ASSISTANT SECRETARY 

MEMORANDUM 

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DEPARTMENT OF THE AIR FORCE 

OFFICE OF THE ASSISTANT SECRETARY 

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