In November 1962, NASA administrator James Webb wrote a letter to President John F. Kennedy after a contentious meeting about the Apollo program. In that meeting, they had litigated the overall goal of the US space program, and arrived at a sort of agreement in principle. They both wanted the United States to achieve “preeminence in space.” What exactly that meant, however, was still up in the air. But there was one aspect of “preeminence” that Webb was quite convinced of, and he reiterated it in his followup letter to the President:
“To be preeminent in space,” he wrote, “we must conduct scientific investigations on a broad front.”1
He told the president that while the US led the Soviet Union in some areas of science (geophysics, solar physics, interplanetary), there were other areas where the US was seriously behind (biosciences, lunar and planetary sciences).
In Webb’s rhetoric around science, he often discussed the idea of “basic research” in space. This terminology had gained serious traction in policy circles during the battle to create the National Science Foundation (NSF) a decade before. Despite a growing appetite for basic research in the United States, however, it remained unclear where space fit in this picture during the early 60s.
It turns out Webb had a fascinating and complex relationship with Vannevar Bush, the central figure of the NSF story and champion of basic research. They were at odds during the initial NSF battle, and had severe disagreements about space science.
But when Webb first got the administrator job at NASA, Vannevar Bush was one of the first people he reached out to for advice. Webb’s letters with Bush in these early years give us a direct look into the debate over science in space, Webb’s efforts to make space a domain for basic research, and Webb’s character as an advisor and administrator.2


Bush v Webb in the NSF Battle
Vannevar Bush had been a key science advisor to FDR during WWII, and played an important role in applying scientific research to wartime applications. This experience convinced him that “basic research” was key to national prosperity and defense. To him, this meant scientific research that was not aimed at any practical application, but was a simple, curiosity-driven investigation of nature.
The fruits of this research were always uncertain, but that was sort of the point–the unknown was where major opportunities existed. With the support of FDR, Bush got the ball rolling on the creation of a federal agency to fund just that sort of research. But when Truman came into office, plans changed.
Bush was still in the administration at the time, and a bill establishing a Bush-style NSF was making its way through Congress in 1947. Truman ended up vetoing it, partly on the advice of one of his close advisors: James E. Webb.3

In Truman’s administration, Bush had found himself with far less influence than he had enjoyed under FDR. Webb was director of the Bureau of the Budget at the time, and became a sort of intermediary between Bush and Truman on the subject of the NSF. They exchanged lengthy letters and held meetings on the subject, trying to bring Bush’s vision in line with Truman’s.4
Bush and Webb didn’t disagree about the need for basic scientific research. Their disagreement was fundamentally over the governance of the agency. Bush hoped for a committee of scientists that would guide the agency’s priorities, while Webb and Truman favored a single administrator. Webb argued in letters to Bush that “responsibility for the disbursement of public funds should not be actively associated with the beneficiaries of such funds,” and that the person making those decisions needed to be directly responsible to the president. Bush argued in return that an individual was much more prone to such conflicts, unless they were disconnected from science, in which case they would not be qualified to run the agency.5
Members of Congress read copies of the letters between Webb and Bush as they crafted their legislation. Eventually in 1950, the final NSF bill made it through Congress, and a compromise version of the NSF came into existence with a presidential appointment as director.
11 years later, JFK appointed Webb administrator of NASA. Not long after, Webb reached out to Vannevar Bush once again for advice. They would continue to correspond for the next several years.
Bush v Webb on Space Exploration
Bush’s attitude towards space exploration was not encouraging. He was publicly critical of the space program, and reiterated some of his issues to Webb in more detail. One of these was general distaste for the Space Race, and what it revealed about his fellow Americans. “The thing that disturbs me personally is the attitude of the American people,” Bush wrote, lamenting that the reaction to Alan Shepard’s flight “took on somewhat the form of a sporting event.”
As for space science, Bush was skeptical:
…as a nation we are putting too much emphasis on this kind of research compared with other aspects of science which are equally important or more so. We are a nation that pursues fads and which becomes overexcited at times about things that are really trivial in comparison with our truly great problems.
Vannevar Bush, Essential Writings, p 286
He also had doubts that the President was capable of receiving sound advice, given the incentive structure that was developing. Due to the “vast size of the project,” he wrote, “[n]early every man who could speak with authority on the subject has a conflict of interest.” He continued (emphasis mine):
Now do not misinterpret this to mean that the scientists of the country are all feeding at the trough, and so selfish that they would subordinate their judgement as to what is true to what is advantageous to them…The scientist or engineer in a university or a company is in a difficult quandary. He may honestly believe the program as a whole is highly fallacious. But it has been decided upon at the top level of government. It is supported by his colleagues, many of whom have enthusiasm. His organization has been urged to participate. Who is he to stand out against this powerful trend?
Bush, 289-290
He felt this doubly about the man-in-space program. To Bush, it was basically useless as far as science went, and was more the “result of blind mass enthusiasm rather than the result of calm deliberation and comparison.” Partly, this meant that if the Apollo program failed–and perhaps even if it succeeded–it could backfire terribly for the President. “The American public often fails for a long time to utterly grasp a situation,” he points out, “and, when it finally does, its reversal of attitude can be sobering or terrifying.”6
Bush also believed that the prestige game required more finesse than something based around spectacle. To explain this, he seems to make a reference to USAID, which had been established a couple years before the second letter was written (emphasis mine).
…national prestige is a far more subtle thing than this. The courageous and well-conceived way the President handled the threat of missiles in Cuba advanced our national prestige far more than a dozen trips to the moon. Having a large number of devoted Americans working unselfishly in undeveloped countries is far more impressive than mere technical excellence. We advance our prestige in many ways, but [the space program] was immature in its concept.
Bush, 288-289
Webb, for his part, developed a hybrid stance. He believed in the power of basic research in space, but shared Bush’s understanding that the prestige game would require something more than a space program wholly subordinated to Apollo. In conveying this to the President, Webb would have to walk a tightrope.
Giving Advice to the President
Bush may have realized that his attitudes toward space exploration weren’t particularly useful to the administrator of NASA. So he spends time in the letters discussing a mutual experience and interest: being an advisor to a president. Apparently he had discussed this with Webb before, and had found a kindred spirit.
Bush believed that a presidential advisor had two important responsibilities. First was to provide the most accurate and sincere counsel possible, regardless of how the president may feel about the information they were provided. Second, to dutifully support and carry out whatever decision the President made with that information.7
Webb certainly seems to have applied this philosophy in his first years as administrator. While JFK firmly believed that Apollo was the only real path to “preeminence in space,” Webb believed that basic research in space was essential to achieving preeminence. This was likely based in part on the information he was receiving from the scientific community itself.
In private, he told JFK this very bluntly. In the 1962 meeting, their discussion gets noticeably tense when JFK insists on calling Apollo the “top priority” of the agency, and accelerating Apollo’s schedule at the cost of science.8 Webb is very clear that basic science should not be hamstringed for the sake of Apollo. His argument seems to combine some of Vannevar Bush’s rhetoric regarding basic research and the attitudes of scientists–like those he had just assembled in the 1962 Iowa Summer Study.
In his follow-up letter, Webb is very clear about the consequences of relegating science to a secondary priority. He was thinking long-term, planning for the world beyond a hypothetical Apollo victory (emphasis mine).
It is clear that a pre-eminence in space in the future is dependent upon an advanced research and technology program which harnesses the nation’s intellectual and inventive genius and directs it along selective paths…Research and technology must precede and pace these established goals or a stagnation of progress in space will inevitably result.
Webb, 7-8
Webb signed the letter: “With much respect, believe me…sincerely yours, James E. Webb”

In the end, Apollo did not get put on the heavily accelerated “crash” program. Existing scientific programs proceeded, though some were modified to support Apollo. In public addresses, Webb dutifully supported the priority of Apollo in the spacecraft. But both during and post-Apollo, basic research would remain a staple of NASA activity.
During this crucial period in NASA’s early history, however, it is clear that the question of “should we do science in space?” was very unsettled. It was actively debated in letters like these, in conferences, in the public square, and in the Oval Office.
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Footnotes
- In “Letter from James Webb to President Kennedy, 30 November 1962,” found at https://www.nasa.gov/history/JFK-Webbconv/pages/support-d.html Full transcript of the November 21st meeting, see : https://www.nasa.gov/wp-content/uploads/static/history/jfk-webbconv/pages/transcript.pdf ↩︎
- Vannevar Bush, ed. G. Pascal Zachary, The Essential Writings of Vannevar Bush (Columbia University Press, 2022), pp 285-291, https://www.jstor.org/stable/10.7312/bush11642.53 ↩︎
- I wrote a long-form account of the political battle surrounding the NSF for JSTOR Daily, which you can read here, and which includes free links to papers on the topic. You can read Truman’s Memorandum of Disapproval, which largely echoes Webb’s advice, at the Truman Library. ↩︎
- J. Merton England, A Patron for Pure Science: The National Science Foundation’s Formative Years, 1945-1957 (NSF, 1982), pp 61-82 https://files.eric.ed.gov/fulltext/ED230414.pdf ↩︎
- Ibid, 71-73 ↩︎
- Bush, 288 ↩︎
- Bush, p 290 ↩︎
- You can listen to a recording of the meeting here: https://youtu.be/JTPcF095lJk?si=wzTj92svB9v812Ff ↩︎
























































































































