1. Action Requested: We have been advised by Mr.
Linton that the Secretary of State intends to raise the status of the
expansion of the Soviet/East Europe Covert Action Program through a new
Finding with you on 15 July. Attached are Talking Points for your use
with the Secretary of State. (Attachment A).
3. We have commenced a number of new activities in the Soviet/East
European target area under the authority of the 1978 Finding.4 [1 line not declassified] we have reached the point now where
additional funding is necessary [less than 1 line not
declassified] if the momentum in this program is to be
maintained. Some contemplated new operations have not yet been
undertaken, since we would only be able to mount them with new authority
sought in the new Finding. In the attached Talking Points, three
possible courses of action are indicated:
Attachment A
Talking Points6
SUBJECT
- Talking Points Re Expanded Soviet/EE
CA Program
1. The Soviet/EE Covert Action
Program as it existed at the beginning of FY–83 consisted of [less than 1 line not declassified]
operational activities budgeted at 6.5 million dollars with an
additional [amount not declassified]
allocated for developmental activities. [number
not declassified] major new activities have been undertaken
to date in FY–83, which have obligated the [amount
not declassified] developmental funds. Advanced planning
has gone forward for additional operations, for which specific funds
have not yet been expended. [1½ lines not
declassified] will be needed during the remainder of FY–83
to keep up the momentum in the expansion of the existing operations
and the further development of those initiated during FY–83.
2. Assuming full-scale development of the expanded program under a
new Finding (which would include clandestine radio and political
action operations) [less than 1 line not
declassified] is anticipated. If expansion of the program
under the 1978 Finding only is approved, we
will need a Reserve Release in FY–84 of [amount
not declassified]. The major difference between these two
programs involves the drop-out of clandestine radio broadcasting
into the Soviet Union in the smaller program. A new initiative
package involving the full expanded program has been included in the
draft DDO FY–85 Budget in the
amount of [amount not declassified] (see
Attachment C).7
3. [3 lines not declassified]
4. New expanded operations already in process in FY–83:
—A new Ukrainian historical journal to appear early spring
1984;
—A subsidy to allow the continuation of the Russian edition [less than 1 line not declassified];
—A new Russian-language “newspaper” of moderate leftist viewpoint
which will appear next summer;
—A Soviet Central Asian newsletter which should appear next
year;
—A re-institution of support for a Hungarian newspaper and a few
books;
[Page 247]
—A new Czech-language “Readers Digest”-type publication;
—A new journal appealing to dissident West European
communists;
—A new journal in the three Baltic languages to appear in fall
1983.
All of these operations have policy approval in the
1978 Finding.
5. A number of other planned publishing projects authorized under the
1978 Finding are contemplated for early FY–84 if sufficient funding
is available. Two projects,
—Support from Western Europe of internal peace movement in the
Soviet Union and East European countries
—Establishment in exile of the [less than 1
line not declassified] and [less than
1 line not declassified] for support operations into
the USSR
could most effectively be carried out under the new
Finding but could be configured in a less effective form under the
existing Finding if “publicity” was redefined to include “political
action.”
6. If the new Finding includes clandestine radio broadcasting, we
could commence operations on a limited scale six to eight months
[less than 1 line not declassified]. At
that time we probably could go on the air with programming in Uzbek.
By the end of FY–84 we probably could also be broadcasting in the
Russian language, the Baltic languages, and Ukrainian.
Attachment B
Memorandum From the Chief of the International
Activities Division, Central Intelligence Agency, to Director of
Central Intelligence Casey8
Washington, April 20, 1983
SUBJECT
- Finding With Expanded Authority for Soviet/East Europe CA Program
1. ACTION REQUESTED: It is requested that you
approve the attached draft Finding and Scope Paper proposing an
expansion of the Agency’s Soviet/East Europe covert action program
for formal external coordination and subsequent consideration by the
National Security Planning Group. This draft Finding and Scope Paper
have received informal approval by the Department of State.
[Page 248]
2. INITIATIVE: At the time [less than 1 line not declassified] at the NSPG last fall and approved by the
President on 4 November 1982, a broader and more comprehensive
Soviet/East European covert action program was discussed. It was
decided to wait until the NSC
completed action on NSDD–75
concerning overall policy toward the Soviet Union. NSDD–75 was signed by the President
on 17 January 1983.9 This
proposed Finding specifies measures to be taken by CIA to support NSDD–75.
3. POLICY: Current U.S. policy toward the
Soviet Union as set forth in NSDD–75 is to involve “external resistance to Soviet
imperialism (and) internal pressure on the USSR to weaken the sources of Soviet imperialism. . . .
To promote . . . the process of change in the Soviet Union toward a
more pluralistic policy and economic system in which the power of
the privileged ruling elite is gradually reduced . . . . Expose at
all available fora the double standards employed by the Soviet Union
in dealing with difficulties within its own domain and the outside
world. . . . To loosen Moscow’s hold on (Eastern Europe) while
promoting the cause of human rights in individual East European
countries.”
Current U.S. policy toward Eastern Europe is set forth in NSDD–54, dated 2 September 1982,10 which states that “the primary long-term
U.S. goal in Eastern Europe is to loosen the Soviet hold on the
region and, thereby, facilitate its eventual integration into the
European community of nations.”
4. ISSUE FOR DECISION: The extent and
characteristics of an expansion of CIA’s covert action program toward the USSR and the Bloc.
5. ACTION PROPOSAL: The existing Soviet/EE
CA programs are authorized in a
series of Presidential Findings: the Soviet Union and Eastern
European Section of the omnibus Finding of 7 June 1978, a separate
Finding of 25 September 1980, an amplification of the 1978 Finding
on 7 March 1979,11 [1½ lines not declassified] these Findings
[Page 249]
limit Agency activities to
the publication and distribution of literature and related
publicity.
The new Finding will allow us to
—Initiate selected clandestine radio programming to the USSR and the Bloc, [2½ lines not declassified]
—Undertake a full range of propaganda and countermeasure
operations against the Soviets at home and abroad [1 line not declassified]
—Initiate political action activities which will have impact in
the USSR, [1½ lines not declassified]
We would continue and expand the existing program of literature
production and distribution presently authorized to wider audiences
in the USSR and the Bloc, [2 lines not declassified]. This program will
be augmented under the new Finding.
6. RISKS: New operations undertaken in
expansion of the existing program should not involve any particular
increased risk to the U.S. Government or to the individuals
concerned in the activities themselves. There has been a record of
tolerance of this type of activity by allied governments in Europe,
[5½ lines not declassified].
On the other hand, the Soviets will assume CIA or other Western intelligence services must be
behind the initiation of clandestine radio broadcasting and any
major hard-hitting program of propaganda and political action. The
Soviets can be expected to take vigorous diplomatic action to
influence foreign governments from whose territory clandestine
broadcasts, for example, might be undertaken to close down such
activity.
The Soviets may step up internal security measures and vigilance
campaigns directed at new political action activities we may
undertake. It is our understanding that the Department of State
recognizes these risk factors, and wishes such activities
undertaken, but with the understanding that as specific problems in
relations with the Soviet Union may be resolved, some of these
activities might be suspended in the future. [5
lines not declassified]
7. BACKGROUND: For more than the past 25
years, the Agency has engaged in a covert action program against the
Soviet Union and certain countries of Eastern Europe. The aim of
this program since its inception has been to provide support and
encouragement to reform-minded elements in those countries as a form
of political pressure on the regime. This new Finding provides a
response to current policy, which requests an expansion and
broadening of our current efforts. Although we will proceed as
rapidly as possible to implement the new Finding (as funds and
additional staff personnel are made available), time will be needed
to test and build up operational mechanisms and mount the new
operations in a secure and professional manner. A few of the
operations could be up to full strength action by early FY–84 if
[Page 250]
additional funding is made
available promptly, while most of the program would not be up to
full strength operation before the end of FY–84 or early in
FY–85.
Discussions with the NSC Staff and
the Department of State indicate that there should be two major
aspects to our Soviet/East Europe covert action program: the
carefully modulated soft-sell appeal for moderation of the Soviet
system over the long haul aimed at the Russian and East European
populations; and a harder hitting program aimed more at causing
basic problems for the Soviet regime, although also having an impact
on populations. We have advised State and the NSC that our covert action alone will
not make significant impact on Soviet leaders if not accompanied by
related overt policy and diplomatic actions. The present program of
print media production and distribution along with the widening of
this program to additional national, ethnic, and special interest
groups will accomplish State’s first objective. The institution of
operations involving clandestine radio broadcasting and the
operation of political actions in the Soviet Union would contribute
to State’s second objective.
8. COORDINATION: The basic thrust of the
Finding, the Scope Paper, and the general concept of the
developmental operational program have been discussed with Mr.
Walter Raymond of the
NSC Staff and with Deputy
Assistant Secretaries Palmer and Kux of the Department of State. Mr.
Palmer has advised that
the general aspects of the program have been discussed with Under
Secretary Eagleburger and
with the Secretary.
9. FINDING: The expanded program will require
a Presidential Finding and report to the Congress pursuant to
Section 662 of the Foreign Assistance Act of 1961, as amended. A
draft Finding and Scope Paper are attached.12
10. FUNDING: The total estimated FY 1983 cost
of the ongoing and proposed Soviet/East Europe covert action
programs is $10,557,000. [7 lines not
declassified]
The total estimated FY–1984 cost of the ongoing and proposed
Soviet/East Europe covert action programs is $17,361,000, [4½ lines not declassified].
The total estimated FY–1985 cost of the ongoing and proposed
Soviet/East Europe covert action programs is $18,750,000, [5½ lines not declassified].
[Page 251]
OPERATIONAL FUNDING SUMMARY
FOR
TOTAL SOVIET/EE
CA PROGRAM
| [4 rows and 4 columns of table
not declassified] |
| TOTAL |
10557K |
17361K |
18750K |
11. [14 lines not declassified]
12. STAFF POSITION: This memorandum and the
attached draft Finding and Scope Paper have been coordinated with
the EXDIR, OGC, the Comptroller, and the DDI. Comments from D/SOVA AND D/EURA provided by the
DDI are attached.13
