PROGRAM FOR SOVIET ORBIT ESCAPEES

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP80R01731R003200030003-5
• Release Decision: RIPPUB
• Original Classification: T
• Document Page Count: 16
• Document Creation Date: December 19, 2016
• Document Release Date: August 8, 2005
• Sequence Number: 3
• Publication Date: December 20, 1951
• Content Type: SUMMARY

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20 December 1951
ITEM 2
Program for Soviet Orbit Escapees
Sunnarz: This staff study is the product of PSB action of 25 October 1951,
which directed the formation of a panel to consider this problem.
This study represents the first of two papers to be prepared on this subject
and recommends the assignment of responnibility for assuring proper care and
disposal of escapees from the Soviet Orbit who cannot be utilized in existing
U. S. programs. This is urgent since IRO ceases existence at the end of Febru-
ary, 1952. After thorough consideration of all potential Governmental and pri-
vate organizations or agencies to administer and coordinate this activity, the
study recommends that the State Department be charged with the over-all adminis-
tering and coordinating responsibility, with certain supporting responsibilities
incumbent upon CIA, Department of Defense, and the A.
Paragraph 20, page 8 of the main report sets forth five possible
sources of financial support for this activity. At the PSB Alternates Meeting
on Monday, 17 December, the Department of State indicated it would prefer
assurance of its operating funds from one source and felt that the ESA should
provide the full 8 mdllion dollars, instead of the present 2i- million dollars
tentatively allocated against the Kirsten Amendment. The Depa;tment of State
feels further that it should have the freedom of decision with respect to how
the administering will be performed, i.e., with augmented personnel or by sub-
delegation to an appropriate non-governmental commission or committee. The
points raised by the Department of State appear valid and reasonable.
and approve
Recommendation: (a) That you noteAthe recommendations of the report (pages 12
and 13), with particular reference to paragraph e. page 13; (b)
That25xl
you propose the addition of the followinv clause in the recommendations per-
taining to
(c) That you concur in the recommendations and support the concepts with respect
to administration and financing advanced by the State member.
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.rilCORANDUK NFU TUE ;iWitTLOGICAI aAATLGY WAX)
SUBJECT: ESCILPEES PIRDM ZOVIIA ORBIT
? For reasons set fort ia the attachment, our Investigation of
the above subject has been divided into two separate studies. The
first having to do with the handling of those esoapees who are now
crossing into Western Europe, is attached.
This first atudy has been prepared by the Board's -staff with the
assistance of departmental and agency representatives. It ineorporates
most of their suggestions made individually and as members of an inter-
departmental panel which aas organized pursuant to the Board's direction
and which considered an earlier draft of the study.
All who have been concerned vith the general problem of escapees
agree that it is of great and immediate importance to improve the manner
of their treatment. Failure to take adequate care of them jeopardises
a critical segment of our peychological efforts against the satellites
and the Soviet Union. Conversely,. Adequate handling will directly
strengthen these present efforts and will make possible the launching of
new programs for the greater exploitation of esCapeee and of disaffected
persons who ranain behind the Iron Curtain.
For these reasons this first study has been developed tepidly. Be-
cause of this and the corplexity of the problem it maybe that some of
its parts have not been given as extensive interdepartaental emmaimation
as would have been possible in i more deliberate study. The staff is
aware of this but feels nevertheless that in general the host availOble
solutions are proposed to the many difficult problems which were encountered.
We, therefore, hope that in recognising the Importance of immediate attention
to the escapee problem the Board will overlook any imperfections in polish
and in refinement. ?
It is recommended that at its next meeting the Board consider the
attached study and adopt its reeomeendetien. ?
Attachment?
FSB.D.1.13
MR Tag DIEBOTOB3
agea.44.4eadaL
John Sherman
aaais tent Director
Office of Coordination
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? MORAN. Fati SO1112.
Statement of the ProbleM
WIN
-rk?
Ilr 1r1951
36
1.? To determine the beat means under sxleting policy to employs resettle,
and sere for current escapees from the Soviet orbit or its control,Y
_ ?
I "
Purpose of the Stidy
? At.its feurth-sesilsg the Psychologcal Strntegy Board took'the
sett* set fsrtkin Annex
?
'Pursuant to the Boardts direction? a Panel vex established on
? November 2, 'consisting- of rei%resenttativee of Department of State,
the Office of the 'Secretary of Defines, thc; WOO Standing Group,
the Joint Chiefs of Staff? Departmints of the Army, Nary and AJr
Force, CIA, the Mutual Security AgInry, arc the Bureau of the Budget,
The Assistant Director cf PS3qa Oft:toe of Condinatioa acted as
Steering merbee. .?
In the light ot:the initial Pane/ tha PSB ttaft determinded
that -the total'prohlemo which the ").1;:ard ha ;.1 n.--lisidared? must 110
'separatel. into two pater, enzb of 4b1?th re?ed separate.statty.
Theo* sePer=e'studios 8TIOF
4.orrobor?OPT,.. ..ei.omierans?
???41.14.?????
1( For the purpose-of thin paperv e3car423
or ,contxo). of the USSR', 13fAtic
Bulgaria? RIAAWAiS and ntahiss, wtm
Thr ke Suodni, East Germanss; Cnthene_
Turlos and Grocitv, are not inelydwit-
?ii3eoparatien in the prohIewau t:4,f10QA/ . ti fl.at ;47.1Elt
befnro the Wee! con'exOct-suzleees In;3tin lot 41or7'
Axpand,01 progzame,.decunel-tc jere.117-,, or iv, eu,11., support of pomIts
in Iran Curtain colptriesp it must b;) ab e '64 cim,notrato on the t14.6.,4 v4"
.Preaen.precticte that-the Went ley afher Tqlg A dtVII:Jrable,131Ze. to WW14
asap or uith whiehAe.cooperate. 'Many It to c10,a.?, at the adequate
?'Isimillar of all bolafide escapees hears lire.ttly rpm the nem and cotpxN,,,,,
Uee Df eUch lAdiTiduals who are qualifild me scurmla of intelligence, tatelli-
ftrilo apntoi recraite for mehological aiXt psva,mtIitary progrrns a then.
AaTs-hesa devellOPS4-Perseal4 to N50-10/2 10/51, 36/1 and I)4
?rort tOrt t9T
:Tht.; 1:7..11,333.1)Tide. RE.
?
'BM Wropsp rame,!4-7
drnolleoso suth
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VOMIT! INFORM=
a. Liege )3alk The Lodge Bill, pissed in 1950 and amended in 1951
authorizes the enlistaant in the United States iime of 11,500
unmarried aliens. le.ring 195te no escapee. were enlisted,.
During 1951, 13.3 hi e% been enli sted? 73 of whom are presently
training in the Unite:di States. Four thousand escapees have
applied for enlistment and of these 1500 are ie. the process of
security screening. Under the prograr as it is now being
administered her the imer, it le nelikely that a. significant
number of the 113,000 escapees will be enlisted in the United
States Army during 1.9t,2.
13. 1/te.hzekpabilitApeeeofeett.. .f.e Se...Neernesselle
Under th Mu Security Let in tee Kirsten Amendment, Congreas
ee4--
authorized ? ?? ? ? . ? (litensee
can be 'deem on for ateiezation in no prceleal
of eseapees. Coneress appe.rently inteneed that these feeds shcrhe" 1 lee imeed
privarily foe training and equeppirig *teepee foruces to be edded to !LTO,
rather than for the care of 011014)0C113 rowevlr, the authorization 13
sufficiently broad to permit the ertfitietion of a. portion of these funds
for the latter purpose in the inplement lion of the provem eontemelated In
this t3tudy. NSA and the Depeeitnent of 1.1efen3e ray feel that this sat'eoriete-
tion :Ls in fact a reeuirement for the ** of sone of thane funds foe the
first purpose and it will be :+emotrendee that programs or this character
be considered in the second PM setter.
niscussfeee gesietc2ncileesiene
14?? :It is eutimeted that some 134.5000
the Migrant Omni tteo aggreseively enact
mupnoet of voluntary eel:103e3. Sone 2e
indigenous ficilities of Eurele; ehe 1.0
programs, ablorb less than 300 hao a I*
escapees can be resettled through
waged bl the U.S. t.aui with ametimuet
*002,500 can be almorbed into the
tee Billr while le 14110 tteler preeent
it tb:.y larger erthorissation?
2?x1
While it is react:piste that teeee pro'
if they are Italy coorclinatell Ildeeuete
tered? it is appe.rent thlt, erogreme
flow of eseaeses.
15. While it is possible that tho pay*
of these eseapeeo will incre3ee the elo
Communists will in crease the saveeity
that this uU reduce the rate of ?seep
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an can only satisfy these reeniremants
finent.ezp and neer eseivele itdmitLee
ere eapvtle of alaserbing tite expeeLed
Wlogicai). offset of adeeuatt handling
e it is eeually likely that the
W repreceive meaeures and
iloweeer,
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alialt rev ::WOR
or the private U. 3, risetkome organisations now carried Cm
b, the State Departo3Into Biwa: thi3 State Department is
carrently planning .aad programming for the Migrant Coned.ttee
ooeratiolt and for Via coardi nation of voluntary agencisit
tide transfer of ratailonnilill.ty would appear to be undeeir-
*oleo ?
A d .Wkirivate Rola.* Orviii.matlon At the present time, no mingle
jarate o ollirga has adlogaiwre Kin a to handle the job and no ono
private organisation is remonnetble tn. assisting Soviet orbit eacepeeso
The Intemsational Itsixtue Coaraittaet wmose Want is chaired by thaneral
Spasits, hope* to receive $2 milline for the paspose of assisting
eseapeee, The If has been the organisation moot active in this field
sad last year sport more than 1,/3 at wrle maw provided by private
organisation* tor the assistecce of escapee:so The present Nateestive
garotter or IltO Ine not been reliable in dealing with the U. $o g MOM*
meat and ia not rally sinOpertad ity irks State Departmentfigglagio
d. siiipa3?itt.. for Free iiaarm: Although NCh7E is not. now ooncerued
with escapee progrZili..Witirae possible to autablish a new office
in the dationel Co:mitt,* to handle tee escapee problem. An organi-
sation ander MIPS would have the advactage of being able to get Into
action rapidly since a staff ,and apace already exist both here sal
*broad. It is known that the labernational RIM 11.6 Committee would be
willing to work closely with Wino Obelbtseei4b4Get
!Ye'
of slash an Organisation are that it dimes not presently have 'a at=
skilled
is refugee mattert acd it is not like4 that some of the raivatil
reitagee organisations, particularly the religicnos ones* would be
1:13.1ing to tie their programa in mit) a recognised cold war orgaTdsa-
tics such as NFL Per the amp reason, it is ,unlikely that the Veld
Potedation would commit substactisa lends to IICPS sine, it is known
this members of the Board of the Four dation are opposed to the support
or aggressive *old war opinnticeso turthermorep it is known that NCFS
IS already heavily loaded down with its present functions and it might
*at be desirable to add toothaec,
0. I ow vat. *ni*aticrit In chides to utilise the existing funds
;rivets croanisations in this field, it sight
be desirable to create an larganisatinn along the line, of the Conanalit;y
Chests with an ?Executive Director am a Board of Director representing
all of the private U. Be organisatiora concerned with escapees from the
Soviet orbit. In order to tread* such an organisation it. would be
necessary to have a strong 14moutive Director eupported by the U. So
governments as well as by private orcanisationS, and it would be neoes.*
oars to rano a sobstanttia bum of money to eerie as a catalyst to
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Foeedetion has indioeted elete it is interested in eeploring the pos?
sibility of the creation of talch a new organization and might be
wllling We give its sponeeeohip. In additions according to preliminary
estimates, the Foundation -one be willing to place up to $l million at
the disposal of such an organization. A major disadvantage would be
the time roeuired to set up euph an organization and the resistance
of many private prganizat-ensigg being associated with an organization
apparently engaged in cold ear operateone, Another disadvantage
of creating such an orgunieetion would be the difficulty of insuring
a coordinated operation in the fields particularly since some of the
private organizations have very specialized activities. For examples
the American Fund for Czech Refugees concerns itself only with Czech ?
escapees.
25X1 II 1. 40 113
absolutely indispensible that any private organization established
for the handling of this peogram cooperate with the U.S. Government,
particUlarly in the reception centers and also in the disposal of escapees
who can not to absorbed on a fulletime basis by the U.S. Government
operations.
After considering the advanteees and disadvantages of each of these
Alternatives, it is concluded that the most feasible Alternative is
that undo which the State Department would assume the overall admits..
trative and coordinating resnonsibilities.
BURErpONLWIE
23. It is recommended that the PSB:
a, ReeOst the State Department
. (1) to accept the responsibility of administering the
-escapee program outlined in this study,
(2) to develop and put into effect as a matter of urgency an
operational plan under Which the functions set forth in
paragraph 18 will be carried out. Among other actions
this plan should provide for:
(a) The necessary administrative action, both in Washingto
and in the field.
0
A
0
C_ 00.-314 a-ti .2
(b) Ge-z-t with other U.S. Government departments and
aeencies eo insure that adequate facilities are provided
for the screening of all escapees for employment in
the several U.S. psychological" operational, or
intelligence programs. .
(c) Periodic reports to the PSB on the implementation of
this prograne
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a. Request the Department of Defense:
(1)
TO rec.uest the Department of the Army to liberalize the eon.
ditions und r which escapees may be recruited under the
authorization of the Lodge Bill and to take all feasible
steps to expand such recruiting.
P.coni Reif C
d. Resuest the4Mutua1
C'Security A4m4,44etra4en:
(1)
(2)
To cooperate with the Department of State in planning and
programming for the necessary use of an estimated $2 million
doll%rs of counterpart and Genoa funds.
To provide an estimated $2,5008000 of the funds authorized
by the Kirsten Amendment for utilization in effecting the
implementation of the escapee program.
e. Renueet the Director of the PSB:
To insure that arrangements be made under which the necessary
interdepartmental coordination of this program win be
effected.
TO undertake the continuing evaluation of the effectiveness
of this program as a matter of National poychelogical interest.
To continue with the innediate preparation of the additional
studies and recommendations authorized in the 4th meeting
of the PSB.
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Info
?.?
Action qf kayi eattip.c.T
Defeetc3Rcifas and:Potln CypexpP.Tp_y
frOTLItxd?.1?.A 'she Spvip,p_;iya,
At its fourth meeting, MB took the following action:
"Action; In view of the im?ortanoe to psychologioal strategic and ?
operational planning, and to obtaining intelligence mecessavy thmesto?
of-errAneng for the earn of escapees froa the Iron Curt&i.v coentriee
and of developing a prow m or programs therefor, and methods of
financing the game, with minimum confusion and wete-time, the Board
approved the followirg actiobe? proposed by
"(1) That the Psychological Stretegy Board call a joint meeting.
of all agent:dee concerned with the problem of defectore, refugees, and
potential gmerrillas now resident in theIron Curtain countries for the
purpose of oonsidering what, if any, conorete projects and programs
might be undertaken by the United States Government with respect to such
defooters? refugee end potential guerrillas if funds therefor ware .
available.
"(2) That the Psychological Strategy Board provide a steering
member to a panel which is directed (a) to consider what, if euy projects
and programs of the foregoing character might further national strategic
objectives; (b) to monitor the development ot specific projects and
programs that mast thio requirement; (c) to coordinate any sech project
or program with national strategic objectives; and (d) to consider all
possible sources for the Rivera/Jag thereof.
"(3) In the event that the studies contemplated under (2) above
should indicate that certain specific programs and projects having merit
cannot be financed without recourse to section 201(a) of the Mutual
Security Act of 1951, that the Psychological Strategy Board or such of
its constituent agomioc as may be prlaarily involved submit sech
projects and program for the consideration of the Director of Mutual
Security".
1W ,s410.
.1ccitarity. Infomatlea
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FACTORS DIFLUE:ICD4C FLOW
OF IRI CURTALI ESCAPEES
I. General Factors
1.. The demonstration of satisfactory reception, care, and positive
use or resettlement may encourage a sizable number of potential
escapees to take action. Soviet counter measures maybe expected
to minimize this additional flaw,
2. The probable flaw of escapees will vary in proportion to any decline.
in the Soviet power status vis-a-vis Western dominance in inter-
national affairs, particularly in the peripheral, areas such as
GerRany. Conversely, lacking a significant power shift, a progres-
sively numerical decline over a two-year period cannot be ruled out
should Soviet counter measures prove increasingly effective in Om-
batting defection.
11. Action by other Non-Communist Governments
3. Inducement operations by other nations o irtz
restricted
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S. Intelligence and Psychological Programs
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25
7. Mass defection is a pheaomenon receiving attention but there is no
Mria?Ere?ir-secedent for assessing prospects for it under a cold war
situation. The cited large scale desertions of Russians to the
Nazis duringWorldWar II were primarily induced by the nearness of.
an army able to do combat with regime forces. NSC-36/1 directs
acceptance of the risk of MAOS defection in programs aimed at USSR
nationals but indicates little hope of such a result.
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? -
eT.TA('
ABSORPTIN OF ESC! TL:; T7EO1JGH 7TaTV,TION
IN -IIITELLIdT1Tff-J,M5?ffia-Tifofffinif TIETM
NSC-86/1
1. ;he United States policy concerning Soviet and Satellite defectors
is enunciated by NSC-86/1, approved by the President on 19 April
1951. The interest of Government in such persons is stated to
include: (a) benefits to intelligence and related activities;
(b) propaganda use and value; (c) denial of valuable personnel;
(d) increasing disaffection and confusion within the communist
regimes; (e) obtaining persons important to the national interest
because of background and knowledge. All Soviet and Satellite
nationals who escape from control of the ussa or countries in the
Soviet orlAt are viewed as deZettors for purooses of NSC46/1
objectives; and it is specifically stated that the proper recep-
tion and handling oi l. Iri.en persons rIust b a matt.er of coneern
to the U.S. if MSC-i161 (-,jeetiver eot te be odied Hwe
ever, the NS0-56/1 poicy unierIine8 Lat mcourar;ement and induce-
ment of defections anent Satellite nationals should be restricted to
key personnel.
25i1
25X1
25X1
25X1 II.
Responsibility for assuring proper handling and care of defectors
Inas not been assigned to any United States agency except
as the Department of Sthte is directed in NS0-86/1 to encourage
granting of asylum and proper treatment :or escapees by countries
bordering the Soviet bloc The public seAtement concerning asylum
issued by BICOG on 29 April 1951 and rep:'eseetations by the Depart-
ment of State to the Government of Yugos:.avil regarding handling of
escapees are notdd in this regard,
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119.L.TEILI
IV. Additional Programs
8i The buildup of emigre groupsj through absorption of present escapees
and selective inducement of defection on a large scale, has been
proposed to achieve such objectives as the formulation of military
units to be incorporated into national forces or into an European
Army and the development of political organizations for a variety
of purposes. As indicated by the Kirsten amendment to the Hutu.
Security Act of 1951, Congress now favors action along one or more
of these lines. However, as indicated in the main paper, the objec-
tives of cold war strategy involved in such action are not yet fully
formulated and the strategy, itself, is therefore in embryo form.
Therefore, the question of the purposes for which emigre groups
should be developed and the character and scale of such build-up
must be reserved for later study.
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