Foreign Relations of the United States, 1947, Eastern Europe; The Soviet Union, Volume IV

874.00/12–3147: Telegram

The Minister in Bulgaria (Heath) to the Secretary of State

secret

Sofia, December 31, 1947—10 a. m.

1248. During past six weeks situation has deteriorated rapidly both in direction final and absolute subjection Bulgarian people—who are 90 percent anti-Communist in sentiment—to tyranny absolute police state by terrorism, and also in direction open hostility toward West and particularly US.

In direction Communication and following upon earliest provision opposition press, dissolution Agrarian Union, execution Petkov and continuing arrests, internments, trials and banishments, first step in this final phase was November FF declaration which reduced non-Communist FF parties to nonentity. Next step was passage by Sobranje of new constitution on Soviet model which (affords Communists legal cover for absolute control of state. With passage constitution, next step cabinet reshuffle which completed relegation non-Communist ministers to impotence and which placed economic ministries particularly in hands Moscow-trained Communist economists. Especially significant were appointment Petko Kunin and Krustyo Dobrev to Ministries Industry and Commerce respectively which posts previously held by lukewarm adherents. Nationalization of industry and banking is latest and most far reaching step in execution of its program of securing absolute economic and political power. Practically all that is left to make economic control absolute is transformation of entire farming system to collective basis on Soviet model and state seizure of urban realty. Tempo of latter measures will depend partly on speed with which government can digest industry and banking as well as on 1948 crop and Communist assessment of danger peasant resistance to expropriation. However, as of this date Communist controls and successes are so far advanced that failing international power to insure security and enforce peace treaty in full, remainder of task will be little more than mopping up operation.

Both part of project of Communist subjugation and also of undeclared belligerency against West have been increasing arrests, internments and banishment of persons not wholly surrendered to Communist regime, particularly those who have been friendly with Americans and British.

As previously reported, these measures been applied such persons as Petkov’s sister, former Agrarian leader Gitchev,¹ Mushanov,² Burov,³ Radka Stoyanov,⁴ former Regent Ganev,⁵ to enumerate but a few.

There might also be mentioned recently intensified efforts Bulgarian Government isolate, immobilize and impede Legation including creation forbidden zone around entire Bulgarian frontier and coastline,⁶ efforts force Legation remove its plane,⁷ efforts reduce Legation’s use automobiles, efforts deprive Legation personnel of housing facilities, and attempted banishment our native clerks from Sofia. Entire attitude of Foreign Office since Cabinet reshuffle, which placed it in Communist control, has become flagrantly more hostile indicated by such instances as Foreign Office’s unnecessarily rude acknowledgment Legation notification that US forces had withdrawn from Bulgaria and fact that when on morning December 241 requested urgent immediate interview with Foreign Minister to protest action against Petroleum Company,⁸ Legation was subjected to crude and rude stalling tactics and appointment not forthcoming until evening December 27. Although new Foreign Minister maintains superficially friendly and moderate attitude, manner of subordinate Foreign Office officials in control now approaching truculence and ostentatious uncooperativeness. Foregoing incidents are rather ominously indicative though trivial in detail. Conclusion mutual aid pacts with Yugoslavia and Albania were openly declared have been directed against “imperialist aggression”, and public speeches Prime Minister have been openly threatening and hostile to US specifically as “leader imperialist forces” with degree of violence that could hardly be much greater if they were engaged in declared war against US. In this connection, one of most violent speeches yet was that by Prime Minister Dimitrov December 22 to Congress of People’s Youth wherein after violent attack on American imperialism, he called on youth “to render its patronage frontier troops and armored part of people’s army”, and after bellicose reference to Athens and Ankara under American direction he said “We shall rely chiefly on our own forces which we shall daily increase” (sic, presumably in defiance of treaty). Latest specific anti-US developments have been seizure American managed Petrole Company under nationalization law, noisy press threats to expel foreign schools including US girls’ school at Lovetch from Bulgarian territory, and dissolution under direct militia pressure of English Speaking League.

International position Bulgaria plainly approaching critical point with formation new Greek Government and probable proximate Bulgarian recognition thereof. Support “Free Greece” has intensified and become open with canvassing for funds and formation committees assistance under Fatherland Front.

Exemplary of bellicose and truculent attitude local officials was large reception December 22 of new Yugoslav Military Attaché on Yugoslav Army Day which dissolved at end, as usual on such occasions, into small groups drinking bellicose toasts. Major General Trunski, Bulgarian partisan who ventured from hills when Russian Army safely within Bulgarian borders and now after several years’ training in Russia commanding division near Greek frontier, drank with his staff personal toast to US Naval Attaché but assured latter war with US inevitable—“today we drink with you but tomorrow we will shoot you.” Other toasts drunk to General Markos⁹ and to victory Communism. Incident neither uncommon nor important beyond illustrating state of mind of army command and government that war not only inevitable but near and desirable, a belief fanned continually by unrestrained vitriol of anti-US press campaign and official utterances.

I believe it soberly factual to state that except for detail of actual shooting, regime (which is merely local agency of Soviets) considers itself engaged in undeclared war with US. Even this is understatement since shooting provided by Markos guerrillas.

And yet impudent tone of press accompanied by some visible concern to preserve slight façade of peace and color of legality obviously under Kremlin instructions. Undoubtedly also local Communist leaders in spite their intoxication over easy success to date realize 90 per cent of people hate them and their system and are only waiting some indication effective US action on their behalf. There is yet no organized resistance in Bulgaria, but once let some hope eventual real support from abroad appear and present despair will lift and stirrings of organization will begin. If in near future that light does not appear, then great majority will resign themselves to being soldiers and slaves of militant Communists in this jutting base for aggression.

Something short of war can be achieved in this basically vulnerable and strategically important Soviet province, Bulgaria, and must be done within immediate future. If we accept present bluff we are undercutting our own safety.

Following recommendations are made with realization they are very probably more active than British Government is prepared without persuasion to accept at present moment (I gather this from talks with British Minister). [It is?] realized they comport some risk but one not to be weighted against what we here regard as certain dangers if Soviet policy in Bulgaria is unchecked and unopposed. Recommendations also reject possibility that somewhat more moderate element Bulgarian Communists will be able exert any influence over Dimitrov and other relentless militants—certainly not before bold policy on our part begins discredit latter.

First step recommended is highly publicized broadside démarche on treaty enforcement. So far our efforts in this direction have been piecemeal and ineffective. I recommend we deliver note listing every known and suspected violation of peace treaty. Principal attack would be on many and basic violations Article 2 but would include as well violations all other articles (see messages following on enforcement military and naval clauses), first it proposed we state in clear and precise terms US interpretation “human rights and fundamental freedoms” guaranteed Article 2. Such definition would give unparalleled opportunity for clear expression US aims and ideals. Following this note proposedly would call for specific remedial measures including repeal objectionable laws and passage new laws guaranteeing “human rights and fundamental freedoms,” abolition concentration camps, cessation terroristic militia practices, restoration independence judiciary, new elections, etc. Note should be so phrased as to require Bulgarian Government’s acknowledge or reject this interpretation without delay and US should be prepared invoke Article 36 which provides for arbitration unsettled disputes on interpretation of treaty and for eventual reference to UN. Legation now working on draft such note and hopes submit it within next two weeks. Department may wish consider in fact simultaneous delivery such note in Rumania and Hungary as well.

Prime aim such note would be focussing publicity on local situation. Publicity at present is of the essence. It is our most powerful weapon presently available, one without which all other critically weakened. Publicity would have clarifying effect on American, western and Bulgarian public opinion and would enable US take ideological offensive. Maximum publicity should be given note proposed above but also it equally important that arrangements be made for sustained on spot reportage (undercover if necessary) of what Soviet Communism doing here. In this connection I refer recommendations my letter December 12 to Hickerson¹⁰ for assignment here of press correspondents. Departmental releases not sufficient for this purpose. In connection this publicity, of course, our VOUSA attack vital. Already enjoying great success it should be intensified and pointed since it our only channel for getting information to Bulgarians and is one our most powerful weapons (although it must be borne in mind that local radios may soon be seized or sealed and VOA hindered or cutoff in Bulgaria).

Thirdly, since situation here so closely related Greek situation real clean up in northern Greece as result direct US assistance would have direct and immediate effect calling of Bulgarians (read Soviet) bluff and should it be deemed possible and wise use US combat troops local reaction would be instantaneous and vitally effective.

Purely as an observation and not as suggestion it may be said that if Bulgarian Government goes ahead with recognition Markos government it will be playing dangerous game which two can play. There are numerous Bulgarian ex-deputies in Istanbul, and should Greece decide give them refuge, and should they decide set up Bulgarian Government in exile, and should sufficient funds (not large in total amount) be found, an effective underground railway would most probably soon be working both ways with hundreds of expelled Bulgarian officers and others pouring out and lifeline of resistance leading in. Mere intimation such event would probably have frightening and curbing effect on Bulgarian Government.

Way is still briefly open to us now to take effective action short of war to stop and reserve Communist advance on this front at least. If we fail act very soon we here do not see how way will again be open short of resort military force.

Sent Department 1248, repeated Moscow 121, London 137, Athens 44, Ankara 35, Budapest 50, Bucharest 72, Belgrade 89, Berlin 18.

Department please pass BalCom.

Heath

1. Dimiter Gichev, a leader in the Agrarian Union, arrested in October 1947.
2. Nikola Mushanov, a former Bulgarian Prime Minister and leader of the Bulgarian Democratic Party, arrested in October 1947.
3. Atanas Burov, a former Bulgarian Foreign Minister and leader in the National Party, arrested in October 1947.
4. The reference here may be to Dimiter Stoyanov, organizational secretary of the Agrarian Union, sentenced to five years imprisonment in October 1947.
5. Professor Venelin Ganev, Bulgarian Senior Regent, September 1944–September 1946, who was banished to a provincial town in October 1947.
6. Regarding the American protest against the establishment of prohibited zones along the entirety of Bulgaria’s frontiers, see the memorandum by the Chief of the Division of Southern European Affairs, Barbour, November 10, and telegram 501, November 14, to Sofia, pp. 44 and 46, respectively.
7. Telegram 1089, November 22, from Sofia, not printed, reported the receipt of a note from the Bulgarian Foreign Ministry withdrawing permission for the Legation’s aircraft (874.7961/11–2247).
8. With respect to protests of the United States against the Bulgarian seizure of the American-owned Petrole Company, see the editorial note supra.
9. Markos Vafiades, Commander in Chief of the Greek Communist guerrilla army; President and Minister of War of the so-called “Provisional Democratic Government” established by the guerrillas in the Macedonian mountains on December 24, 1947.
10. Not printed.