NST INSTRUCTIONS AND THE QUESTION OF INF LINKAGE

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP88G01117R000200650008-0
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 7
• Document Creation Date: December 22, 2016
• Document Release Date: March 18, 2011
• Sequence Number: 8
• Publication Date: October 22, 1986
• Content Type: CABLE

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EYES ONLY
N 0 D I S CABLE
DO NOT MAKE FURTHER DISTRIBUTION.
PLEASE RETURN TO EXECUTIVE SECRETARIAT FOR DESTRUCTION,
EYES ONLY
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IC
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Department of State
S/s-o
INCOMIN(
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ACTION NODS-00
INFO LOG-00 ADS-00 /000 W
------------------ 106656 22191OZ /43 45
0 22185OZ OCT 86 ZFF4
FM USDEL NST GENEVA
TO SECSTATE WASHDC NIACT IMMEDIATE 5789
NST GENEVA 09586
NOD IS
FROM NST NEGOTIATORS KAMPELMAN, GLITMAN AND LEHMAN
STATE FOR NITZE, RIDGWAY, HOLMES, TIMBIE
DEPT PLEASE PASS NSC FOR LINHARD; ACDA FOR ADELMAN
OSD FOR PERLE; JCS FOR MOELLERING; CIA FOR
E.O. 12356: DECL: OADR
TAGS: PARM, NST
SUBJECT: NST INSTRUCTIONS AND THE QUESTION OF INF LINKAGE
REF.: (A) STATE 330271 (B) STATE 330272 (C) STATE 330273
1. (SECRET - ENTIRE TEXT)
2. WE NOTE FROM NST INSTRUCTIONS (REFTELS) THAT
WASHINGTON PLANS TO SEND ADDITIONAL GUIDANCE SHORTLY ON
THE CONCEPT OF ELIMINATING ALL OFFENSIVE BALLISTIC
MISSILES AND ITS LINK TO OBLIGATIONS WITH RESPECT TO THE
ABM TREATY. WE HAVE ALSO BEEN ASKED INFORMALLY BY
WASHINGTON FOR OUR THOUGHTS ON HOW TO IMPLEMENT THE
SECOND FIVE YEARS OF THE PRESIDENT'S PROGRAM MOST
EFFECTIVELY. IN THIS CABLE WE COMMENT ON THE QUESTION
OF INF-SDI LINKAGE AND START/SDI LINKAGE.
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3. THE THREE OF US BELIEVE STRONGLY THAT ANY ADDITIONAL
INSTRUCTIONS BEING WORKED IN WASHINGTON SHOULD MAINTAIN
THE LONGSTANDING U.S. POSITION THAT AN INF AGREEMENT AND
A START AGREEMENT CAN BE CONCLUDED AND IMPLEMENTED
SEPARATELY FROM DEFENSE AND SPACE ISSUES. WE UNDERSTAND
THAT THE PRESIDENT'S PROPOSAL WITH REGARD TO THE ABM
TREATY IS LINKED TO THE ELIMINATION OF "OFFENSIVE
BALLISTIC MISSILES" BUT WE BELIEVE THAT THIS CONCEPT CAN
BE IMPLEMENTED IN A WAY WHICH MINIMIZES THE ABILITY OF
THE SOVIET UNION TO ARGUE THAT WE HAVE THUS NOW AGREED
IN PRINCIPLE TO LINK INF AND START TO SDI AS PART OF A
"PACKAGE DEAL".
4. AS WASHINGTON IS AWARE, THE SOVIETS HAVE APPARENTLY
BACKTRACKED ON THEIR PREVIOUS AGREEMENT TO DEAL WITH INF
SEPARATE'LY FROM STRATEGIC AND DEFENSE/SPACE ISSUES.
THEY NOW ARGUE THAT THEIR INF OFFER IS AN INSEPARABLE
PART OF THE REYKJAVIK PACKAGE. THE U. S. NEEDS TO
MAINTAIN ITS STRONG POSITION THAT IT IS THE SOVIETS
ALONE WHO ARE HOLDING AN INF AGREEMENT HOSTAGE TO OTHER
ISSUES.
5. FOR THIS REASON WE BELIEVE THAT, ON INF THE U. S.
SHOULD AVOID FORMULATING ITS CONCEPT OF A PACKAGE DEAL
IN A MANNER WHICH WOULD INCLUDE AND THUS LINK THE
CURRENT INF NEGOTIATIONS AS PART OF THE PACKAGE. THE
INSTRUCTIONS JUST RECEIVED (REFTELS) ARE NOT TOTALLY
CONSISTENT ON THIS POINT. THE OVERALL INSTRUCTIONS
REJECT SOVIET ATTEMPTS TO HOLD PROGRESS IN ONE
NEGOTIATING FORUM HOSTAGE TO PROGRESS IN ANOTHER AND
PRESS FOR A SEPARATE INF AGREEMENT. PARAGRAPH 6 OF THE
DEFENSE/SPACE INSTRUCTIONS, HOWEVER, STATES THAT "THE
ADDITIONAL COMMITMENTS INCLUDED IN THE PROPOSALS TABLED
BY THE U. S. (I. E. INCLUDING A 10-YEAR ABM TREATY
COMMITMENT) WERE STRICTLY CONDITIONED ON THE TWO SIDES
UrPVT
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REACHING A MUTUALLY SATISFACTORY AGREEMENT NOW ON A
SCHEDULE OF REDUCTIONS RESULTING IN 50 PERCENT
REDUCTIONS IN THE STRATEGIC OFFENSIVE FORCES OF BOTH
SIDES TO EQUAL LEVELS BY 1991 AND TOTAL ELIMINATION OF
THE OFFENSIVE BALLISTIC MISSILES OF BOTH SIDES BY 1996."
6. WITH RESPECT TO INF, THE LATTER PART OF THE ABOVE
"IF ASKED" FORMULATION WOULD, AS STATED, INCLUDE INF
MISSILES, BOTH LRINF AND SRINF. IT WOULD THUS RESULT IN
THE US ITSELF FOR THE FIRST TIME ESTABLISHING A LINK
BETWEEN INF AND SDI BY REQUIRING THAT THE SOVIETS ACCEPT
ELIMINATION OF INF BALLISTIC MISSILES (ALONG WITH
STRATEGIC BALLISTIC MISSILES) AS PART OF A PACKAGE IN
WHICH WE OFFER THE 16-YEAR ABM TREATY COMMITMENT. SUCH
A STEP ON OUR PART WOULD GRAVELY UNDERMINE IF NOT
DESTROY OUR FUNDAMENTAL ARGUMENT THAT THERE IS NO LOGIC
TO THE SOVIET POSITION THAT AN INF AGREEMENT CANNOT BE
CONCLUDED AND IMPLEMENTED SEPARATELY FROM DEFENSE AND
SPACE AND START ISSUES BECAUSE WE OURSELVES WOULD NOW BE
MAKING SUCH A LINK.
7. THE PRESIDENT'S REPORT TO THE NATION OCTOBER 13
REFERRED TO THE U.S. PROPOSAL THAT DURING THE SECOND
FIVE YEARS BOTH SIDES WOULD ELIMINATE ALL REMAINING
OFFENSIVE BALLISTIC MISSILES "OF ALL RANGES." WE
BELIEVE THAT, WITH RESPECT TO INF BALLISTIC MISSILES,
THIS PART OF THE U.S. PROPOSAL CAN AND SHOULD BE PURSUED
I N THE INF FOLLOW-ON NEGOTIATIONS WHICH THE U. S. ALSO
PROPOSED IN REYKJAVIK. THUS THE GOAL OF ELIMINATING
SUCH MISSILES BY 1996 COULD REMAIN VERY MUCH A PART OF
THE U.S. POSITION EVEN IF IT IS HANDLED SEPARATELY IN
INF. THAT IS, THE CURRENT INF NEGOTIATION IS SEPARATE
AND TOTALLY DE-LINKED FROM DEFENSE AND SPACE ISSUES.
HOWEVER, AS REGARDS NEGOTIATING THE TOTAL ELIMINATION OF
BALLISTIC MISSILES, WE WILL AT SOME POINT HAVE TO
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PAGE 05 OF 07 NST GE 69586 00 OF 03 221908Z C13/21 003578 N00349
ADDRESS WHETHER THERE SHOULD BE ANY LINKAGE BETWEEN THE
INF ASPECT OF THE ELIMINATION OF BALLISTIC MISSILES
(WHICH IN ANY EVENT SHOULD BE NEGOTIATED SEPARATELY) AND
OUR PROPOSAL NOT TO WITHDRAW FROM THE ABM TREATY FOR AN
ADDITIONAL FIVE YEARS FOLLOWING THE INITIAL FIVE-YEAR
NON-WITHDRAWAL PERIOD.
8. IN SUM, TO LINK INF WITH OUR ABM TREATY OFFER, WOULD
NEGATE OUR EFFORTS TO HOLD THE SOVIETS ACCOUNTABLE BOTH
IN GENEVA AND PUBLICLY CONCERNING THEIR PREVIOUS
ASSURANCES RE A SEPARATE INF AGREEMENT, A POINT ON WHICH
THEY ARE NOW ON VERY WEAK GROUND. THE ULTIMATE RESULT
OF OUR LINKING THE CURRENT INF NEGOTIATIONS TO SDI COULD
BE TO GIVE THE SOVIETS AN ARGUMENT WITH WHICH TO
PERSUADE EUROPEAN AND ASIAN AUDIENCES THAT THE PROXIMATE
CAUSE OF OUR NOT GETTING A SEPARATE INF AGREEMENT WAS
NOT SOVIET WELCHING ON A COMMITMENT, BUT U. S. LINKAGE OF
SDI TO INF.
9. ACTION RECOMMENDED: THE GUIDANCE IN PARAGRAPH 6 OF
THE DEFENSE AND SPACE INSTRUCTIONS, SHOULD CLEARLY
DISASSOCIATE INF FROM ANY LINKAGE TO THE SDI/ABM TREATY
ISSUE. FURTHERMORE, IN DEVELOPING ADDITIONAL GUIDANCE
ON THE SECOND FIVE YEARS OF THE PRESIDENT'S PROGRAM FOR
NUCLEAR REDUCTION, WE SUGGEST THAT THE US FORMULATION
MAKE CLEAR THAT INF MISSILES ARE COVERED IN THE
COMMITMENT TO REDUCE AND ELIMINATE ALL BALLISTIC
MISSILES IN 10 YEARS, BUT THAT NEGOTIATION OF INF
AGREEMENTS TO THAT END WOULD PROCEED SEPARATELY WITHOUT
ANY LINKAGE TO THE RESOLUTION OF DEFENSE AND SPACE
10. FOR START, A SIMILAR PROBLEM EXISTS ALTHOUGH HERE
THE SOVIETS HAVE NOT AGREED TO DELINKAGE AND THE
INTERRELATIONSHIP IS MORE OBVIOUS. THE PREVIOUS
FORMULATION, THAT THE PRESIDENT'S D&S OFFER "WOULD MAKE
S F C R F T
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NO SENSE EXCEPT IN THE CONTEXT OF DEEP REDUCTIONS" WAS
HELPFUL, BUT IS NOW OVERTAKEN BY EVENTS. OBVIOUSLY,
WHILE WE DO NOT WANT TO SAY THAT START IS CONTINGENT ON
D&S, WE WANT TO SAY THAT THE D&S OFFER IS CONTINGENT ON
50 PERCENT REDUCTIONS TREATY AND ALSO CONTINGENT UPON
AGREEMENT WITHIN FIVE YEARS TO ANOTHER TREATY OR OTHER
TREATIES WHICH WOULD PROVIDE FOR THE ELIMINATION OF
REMAINING OFFENSIVE BALLISTIC MISSILES. THE KEY TO
HAVING OUR WAY IS TO PROVIDE START INSTRUCTIONS WHICH
PLACE PRIMARY EMPHASIS ON A FIFTY PERCENT REDUCTION
PROPOSAL WHICH CAN BE AGREED TO SEPARATELY FROM D&S AND
ALSO EVENTUALLY A STRAIGHTFORWARD START PROPOSAL FOR THE
ELIMINATION OF ICBMS AND SLBMS, WHICH ALSO COULD BE
AGREED TO INDEPENDENTLY OF ANY RESULTION OF D&S. THIS
WOULD BE ACCOMPANIED BY INSTRUCTIONS NOT ONLY TO MAKE
CLEAR THAT THESE PROPOSALS COULD BE AGREED TO
INDEPENDENTLY OF D&S BUT ALSO THAT THE DELEGATION SHOULD
STRESS THAT THE INTERRELATIONSHIP IS SUCH THAT START
SHOULD NOT, REPEAT NOT, BE CONTINGENT ON D&S, ALTHOUGH
ONE PARTICULAR D&S OFFER OBVIOUSLY REQUIRES REDUCTIONS
AND ELIMINATION OF ICBMS AND SLBMS.
11. START SHOULD BE INSTRUCTED THAT OUR FIFTY PERCENT
REDUCTION PROPOSAL AND OUR PROPOSAL FOR THE ELIMINATION
OF ICBMS AND SLBMS COULD BE AGREED TO NOW TOGETHER AS A
PACKAGE OR WE WOULD AGREE TO A TREATY ON FIFTY PERCENT
REDUCTIONS FIRST AND LATER A TREATY PROVIDING FOR THE
ELIMINATION OF ICBMS AND SLBMS. OUR PROPOSAL SHOULD
PROVIDE FOR THE ELIMINATION OF ICBMS AND SLBMS BY 1996,
BUT SHOULD NOT BE LINKED TO THE D&S OFFER. RATHER, THE
US SHOULD CONTINUE TO REFUTE VIGOROUSLY ANY NOTION THAT
EITHER OF THESE PROPOSALS SHOULD BE MADE CONTINGENT ON
AN AGREEMENT ON D&S.
12. D&S SHOULD BE INSTRUCTED, WITH RESPECT TO START, TO
PRESENT THE PRESIDENT'S OFFER AND STATE THAT THE US
UrPFT
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WOULD BE WILLING TO CONCLUDE A D&S TREATY, BASED UPON
THE US PROPOSAL, BUT THAT RATIFICATION COULD NOT TAKE
PLACE UNTIL A START TREATY PROVIDING FOR 50 PERCENT
REDUCTIONS WAS ALSO AGREED TO AND IMPLEMENTED AND COULD
NOT CONTINUE AFTER 1991 UNLESS THERE HAD BEEN THE
ACHIEVEMENT OF 50 PERCENT REDUCTIONS BY 1991 AND ALSO
AGREEMENT BY 1991 EITHER IN THE ORIGINAL START TREATY OR
IN A NEW, RATIFIED START TREATY TO A SCHEDULE FOR THE
ELIMINATION OF ICBMS AND SLBMS.
KAMPELMAN
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