NST INSTRUCTIONS AND THE QUESTION OF INF LINKAGE

Document Type: 
Collection: 
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
Case Number: 
Publication Date: 
October 22, 1986
Content Type: 
CABLE
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PDF icon CIA-RDP88G01117R000200650008-0.pdf267.71 KB
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Declassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88G01117R000200650008-0 EYES ONLY N 0 D I S CABLE DO NOT MAKE FURTHER DISTRIBUTION. PLEASE RETURN TO EXECUTIVE SECRETARIAT FOR DESTRUCTION, EYES ONLY Declassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88G01117R000200650008-0 Declassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88G01117R000200650008-0 IC F v~un~ Department of State S/s-o INCOMIN( PAGE 02 OF 07 NST GE 09586 00 OF 03 221908Z C13/21 003578 NOD349 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. eclassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88G01117R000200650008-0 Declassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88G01117R000200650008-0 SECRET S/S-0 ? Department of State INCOMING PAGE 03 OF 07 NST GE 09586 00 OF 03 221908Z C13/21 003578 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 Declassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88G01117R000200650008-0 Declassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88G01117R000200650008-0 ,SECRET S/S-0 Department of State I NCOMI NG f NTts Of PAGE 04 OF 07 NST GE 69586 00 OF 03 221908Z C13/21 003578 N00349 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 CGt'GGT Declassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88G01117R000200650008-0 Declassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88GO1117R000200650008-0 SECRET S/S-0 Department of State INCOMIN( ,RRW '" ~ T'4't'!f 0f 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 Declassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88GO1117R000200650008-0 Declassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88G01117R000200650008-0 "I 4w -1T" of SECRET Department of State S/S-0 INCOMIN( PAGE 06 OF 07 NST GE 09586 00 OF 03 221908Z C13/21 003578 NOD349 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 Declassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88G01117R000200650008-0 Declassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88GO1117R000200650008-0 ,SECRET Department of State PAGE 07 OF 07 NST GE 09586 00 OF 03 221908Z C13/21 003578 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 0-4-r" of S/.5--0 INCOMING SFr.RFT Declassified in Part - Sanitized Copy Approved for Release 2011/11/17: CIA-RDP88GO1117R000200650008-0