INCOMING TELEGRAM 
•Department ofState• 
S'tf Action SS Info  FROM:  MOSCOW  ...SECRET  - Control: Rec'd:  1 0 44 JULY 1 , 7:33 PM  1964  
ACTI ON:  SE CSTATE  1O IMMEDIATE  
INFO:  BERLIN 2, PRIORITY BONN 2 PRIORITY LONDON 6 PRIORITY PARIS 6 PRIORITY  
DATE :  JULY  1 ,  1 l  PM  
SHAPE  FOR  BURNS  
BONN'S  4910  TO  DEPT  
LIMDIS  
I AGREE WITH AMB MCGHEE THAT WE SHOULD CONSIDER NEED FOR SUPPLEMENTARY CONTINGENCY PLANS TO DEAL WITH POSSIBLE ACTlON BY SOVIETS AGAINST INTERNATIONAL FLIGHTS TO BERLIN IN PURSUANCE THEIR NOTE OF JUNE 20 0 THERE IS SOME QUESTION IN MY MIND , HOWEVER, AS TO THE ADEQUACY OF PROCEDURES SUGGESTED REFTEL IN MEETING OUR RESPONSIBILITIES TOWARD PASSENGERS WITHOUT APPEARING TO SU~MIT TO SOV THREATS$  
I FEEL REASONABLY CERTAIN THAT CHANCES OF HOSTILE ACTION IN CORRIDORS AGAINST CIVILIAN AIRCRAFT WITH PASSENGERS A~OARD ARE VERY REMOTE. FIRING ON UNARMED PLANE-ESPECIALLY IN KNOWLEDGE THAT PASSENGERS ABOARD--WOULD MEAN AT VERY LEAST SOVS ARE PREPARED RI SK SHOWDO\v'N ON AIR ACCESS; \vH I LE RECENT sov DEMARCHES ON BERLIN CANNOT BE DISMISSED AS PURE BLUFF, I DO NOT~eELIEVE THEY REFLECT CONSCIOUS DECISION TO GENERATE CRISIS IN dERLIN AT THIS TIME.  
THUS IF SOVS SHOULD IN BASC APPLY "TRESPASSER" OR uVIOLAHOR", FORMYLA TO INTERNATIONAL FLIGHTS , I WOULD BE INCLINED TO ASSESS  
/SUCH REPRODUCTION FROM THIS COPY IS __-S-=-=E:....::C:..:_R:..=E:..-T_­_______pROHIBITED UNLESS "UNCLASSIFIED"  

-st:cREl ­
-2-10, JULY 1, 11 PM, FROM MOSCOW 

SUCH DEVELOPMENT AS INDICATION SOV INTENTION FORCE DOWN--NOT REPEAT NOT SHOOT DOWN--"VIOLATOR" AIRCRAFT • 
IT IS MY UNDERSTANDING THAT CIVILIAN Pl 1 ,0TS , AT LEAST , HAVE
~ 
STANDING INSTRUCTIONS TO OBEY INSTRUCTIONS TO LAND AND I UNDER NO CONDITIONS, TO RESORT TO EVASIVE ACTION. IF THIS ASSESSMENT CORRECT, THEN PASSENGERS WOULD BE INCONVENIENCED BUT THEIR SAFETY WOULD NOT BE JEOPARDIZED BY CONTINUING FLIGHT IN FACE OF SOY BASC WARNING 0 I WOULD DOUBT NEED, THEREFORE, TO OFFLOAD PASSENGERS IN FRG, AS SUGGESTED BY AMB MCGHEE. NOT ONLY IS SUCH A MOVE UNECESSARY f:JUT, IN MY VIEW, IT IS UNDESIRABLE SINCE IT WOULD BE REGARDED AS KNUCKLING UNDER TO SOV THREATS 0 
IF WE AGREE THAT THIS IS MOST LIKELY COURSE OF EVENTS, SUPPLE­MENTARY CONTINGENCY PLANNING REQUIRED WOULD BE SOMEWHAT DIFFERENT FROM THAT ENVISAGED BY BONN. PROBLEMS WE WOULD FACE WOULD BE: 
(1) RECOVERY OF PASSENGERS AND AIRCRAFT FROM GDR, AND (2) PROCEDURE FOR RESUMPTION OF FLIGHTS. 
RE LATTER, OBVIOUSLY WE MUST CONTINUE FLIGHTS FOR A WHILE, AT LEAST, IN ORDER GIVE POSITIVE CONTENT OUR POSITION THAT OUR RIGHTS IN CORRIDORS ARE UNRESTRICTED 0 ACTIVATION OF JACK PINE-­OR SOME MODIFICATION THEREOF, MIGHT WELL BE REQUIRED TO MINIMijZE CHANCES FURTHER INTERFERENCE. ONE SOLUTION TO THIS PHASE OF THE PROBLEM WOULD LIE IN CANCELLATION OF DIRECT NY-BERLIN SERVICE ON cOMMERICAL GROUNDS AFTER APPROPRIATE FACE-SAVING 
INTERVAL, PERHAPS AT TIME INTRODUCTION WINTER SCHEDULES. LOW PAY­LOADS ON INITIAL FLIGHTS AS REPORTED EJY BERLIN SEEM CLEAR INDICATION THAT SERVICE IS NOT PROFITABLE VENTURE EVEN IN SUMMER MONTHS. FROM STRICTLY LEGAL STANDPOINT, WE MIGHT BE IN STRONGER POSITION, AND PROVIDE SOVIETS WITH PRETEXT FOR LOOSE INTERPRETATION OF THEIR DEMANDS IF IT WERE ARRANGED THAT EXTERNAL COMMERCIAL FLIGHTS LANDED FIRST IN FRG BEFORE PROCEEDING WEST BERLIN INCLUDING PANAM 
FLIGHTS  IF  THEY  CONTINUE.  THIS  OF  COURSE  WOULD  NOT  RESOLVE  
BASIC  CONFLICT  BETWEEN  SOVIET  AND  WESTERN  POSITIONS  ON  QUESTION  
OF  UNRESTRICTED  USE  OF  CORRIDORS.  
GP-3  KOHLER  

AAL/22 ADVANCE COPY TO S/S-O, 7/1/64, 8:15 PM NOTE: PASSED WHITE HbUSE, 7/1/64, 8:40 PM 
• -SECRET­
•