Foreign Relations of the United States, 1955–1957, Central and Southeastern Europe, Volume XXVI

190. Paper Prepared by the Operations Coordinating Board¹

Washington, April 18, 1957.

OUTLINE PLAN OF OPERATIONS WITH RESPECT TO BERLIN

I. Introduction

A. References:

(1) U.S. Policy Toward Berlin (NSC 5404/1),² Approved by the President January 25, 1954.

(2) National Intelligence Estimate, NIE 11–3–56, dated 28 February, 1956, entitled “Probable Short-Term Communist Capabilities and Intentions Regarding Berlin”.³

B. Special Operating Guidance:

1. Berlin is legally an area under quadripartite military occupation by U.S., British, French and USSR troops. The U.S. maintains a broad range of responsibilities for the city, including the maintenance of West Berlin’s status as a part of the “free world” and the security of the West Berlin populace and the allied garrisons and dependents therein.

2. The U.S. (along with the U.K. and France) has declared:

“… .⁴ the security and welfare of Berlin and the maintenance of the position of the three powers there are regarded by the three powers as essential elements of the peace of the free world in the present international situation. Accordingly, they will maintain armed forces within the territory of Berlin as long as their responsibilities require it. They, therefore, reaffirm that they will treat any attack against Berlin from any quarter as an attack upon their forces and themselves”. (Annex to NSC 5404/1, page 14)

3. Berlin remains as it has been since 1945 a critical area where the U.S. and Soviets are in direct contact and in which a determined maintenance of U.S. power and prestige is necessary. Although Berlin’s position makes it vulnerable to Communist pressures both direct and subtle, it also provides the Western world with opportunities, non-existent elsewhere in the Soviet bloc, to maintain direct contacts with the captive population of a satellite state and to bolster popular resistance to Communist measures. The dual position of Berlin has been illustrated during recent months by the fact that Soviet–GDR harassment of Allied travel through the GDR to and from Berlin has taken place concurrently with our continued full and effective exploitation of the Western position in the city.

4. U.S. policy toward Berlin is inextricably related to policy toward the Federal Republic and toward East Germany. There is no ultimate solution to the complex problems posed by Berlin’s geographic position and special status other than reunification of Germany in freedom, with Berlin restored to its historic role of capital. Consequently, U.S. programs for Berlin must serve both the interim objective of maintaining the security and welfare of the City so long as Germany remains divided and the ultimate objective of achieving German reunification. The condition and morale of Berliners in the Western Sectors and the accessibility of the City, and all that it can offer, to refugees and visitors from East Germany have a direct bearing on progress toward achievement of these aims.

C. U.S. Commitments for Funds, Goods and Services:

1. Each year there is joint programming with the Federal Republic of the Mutual Security funds provided by Congress. Under this long-standing arrangement commitments of U.S. funds for FY 1957 to the extent of $3.5 million have been made to the comprehensive reconstruction program of the Berlin Government, which provides for low cost social and commercial housing and other public works. Supplemented by German funds the total program is equivalent to approximately $40 million. In addition, $2 million have been committed to the construction of a student housing project for the Free University of Rerun, according to plans now far advanced.

2. Further commitments for FY 1957 have been made to the extent of $5.5 million for projects involving assistance to the population of the Soviet Zone. (See also the Outline Plan for East Germany.)⁵

3. A technical assistance program primarily technical exchange for FY 1957 in the amount of $125,000 has been discussed with the Germans. This program is in the final stages of review in Washington.

II. Actions Agreed Upon

Individual action items when extracted from this Plan may be downgraded to the appropriate security classification.

NSC Citations	OCB Courses of Action
Para. 8–a: “Continue to make clear, as appropriate, to the USSR that the Western powers will maintain their position in Berlin and that Soviet measures challenging that position will be forcefully and promptly resisted and will have the gravest consequences.”	1. Encourage visits to Berlin of high level U.S. and Allied officials with opportunity for restating Allied commitment to defend Berlin against attack from any quarter.
	Assigned to: State
	Supporting: USIA
	Target date: Continuing
	2. Maintain U.S. troops in Berlin in state of combat readiness, equipped with demonstratively effective weapons appropriate to their mission. Avoid measures affecting troops, dependents and the American community which might be interpreted by the local population as an indication of a weakening of the significance of the United States position in Berlin.
	Assigned to: Defense
	Target date: Continuing
	3. Disseminate to the USSR and throughout the Soviet bloc statements by Western leaders and reports of actions by the U.S. and its Allies which serve as evidence of the determination of the Allied powers to remain in Berlin and to safeguard the status of Berlin until Germany is reunified.
	Assigned to:USIA
	Target date: Continuing
Para. 8–b: “Vigorously react to any local or minor Soviet harassments by lodging prompt Allied protests and undertaking any feasible reprisals.”	4. Cooperate and consult with British, French, Federal Republic and Berlin governments with a view to maintaining best possible posture to react promptly and in most appropriate manner to harassments of Berlin or of access to the City from the West.
	Assigned to: State, Defense
	Target date: Continuing
	5. Continue to impress upon the Soviets that the Ambassadors and Commanding Generals have the right to determine the personnel and supplies required to be moved to Berlin in connection with our occupation responsibilities.
	Assigned to: State, Defense
	Target date: Continuing
	6. Maintain that any restrictions imposed by the Soviets on Berlin access which go beyond those existing on March 1, 1948 are a violation of Four-Power Agreements.
	Assigned to: State, Defense
	Target date: Continuing
	7. Maintain current measures for guidance of Allied officials traveling to Berlin as to how to react in event they should encounter difficulties from Soviet or GDR officials along their route.
	Assigned to: State, Defense
	Target date: Continuing
	8. Review and bring up to date, in cooperation with British, French, and German governments, plans for implementation of countermeasures designed to meet a variety of Communist harassment to access to Berlin.
	Assigned to: State, Defense
	Target date: Continuing
Para. 8–c: “Support all feasible meaures, including limited economic aid, to bolster the morale and economy of the city and reduce unemployment.”	9. Despite improved economic conditions in West Berlin, assist in the implementation by the use of $5.5 million from FY 1957 Mutual Security funds of current programs for general reconstruction, including low cost housing ($3.5 million), and student housing ($2 million).
	Assigned to: State, ICA
	Target date: June 30, 1957
	10. Keep informed of trends among Berlin youth to be able to assess their opportunities, morale, and their willingness to remain in Berlin as a reflection of their confidence in the future strength of the City. Direct attention to the desirability of improving conditions for students and increasing facilities of Berlin educational institutions. Support where possible efforts to stimulate the development of research.
	Assigned to: State, ICA, USIA
	Target date: Continuing.
	11. Develop and support legislative measures in West Berlin which would enable the conduct of peaceful atomic research in West Berlin and facilitate the adaptation to Berlin for such purposes of the Agreement for Cooperation with the Federal Republic. Encourage West Berlin in the development of appropriate nuclear research and training program.
	Assigned to: State, AEC, Defense
	Supporting:USIA, ICA
	Target date: Continuing
	12. Follow closely the role of Berlin as the primary initial place of reception for East German refugees and cooperate where appropriate in the measures to assure the “open door” policy and the maintenance of morale of refugees.
	Assigned to: State, USIA
	Supporting:ICA
	Target date: Continuing
	13. Encourage U.S. official MAP/OSP and other procurement and private investment in Berlin.
	Assigned to: Defense, State,ICA
	Supporting: Commerce
	Target date: Continuing
	14. FOSTER interest of U.S. participants in official and private international organizations to encourage the holding of conferences and increased tourism in Berlin. In view of West Berlin’s proximity to the extensive Soviet efforts to develop cultural centers in East Berlin, pay particular attention to the possibilities of exploiting West Berlin exhibits and fairs to create maximum impact on Eastern residents.
	Assigned to: State, USIA
	Supporting: Commerce
	Target date: Continuing
	15. Continue to publicize, through radio broadcasts, press articles, pamphlets, films and exhibits, the extent, nature and effect of U.S. economic assistance to Berlin.
	Assigned to:USIA
	Target date: Continuing
Para. 8–d: “Continue to provide funds for special projects designed to influence the people of the Soviet Zone and Sector, such as the food program in the summer of 1953.”	16. See also Outline Plan for East Germany (OCB Courses of Action 8, 9 and 19).
	a. Develop programs to facilitate and encourage visits of East Germans to Berlin, and to impart understanding of superiorities of free world system;
	b. Utilize such U.S. programs to the best advantage in support of programs of West German public and private organizations and seek to employ leverage gained from past U.S. financial support to induce new German projects which specifically support U.S. aims; and
	c. Support measures to increase hospitality to Eastern visitors to Berlin, and encourage discreet publicity regarding the facilities available.
	Assigned to: State, ICA
	Supporting:USIA
	Target date: Continuing
	17. Lend encouragement to German plans to centralize and improve existing German facilities for meeting the needs of Eastern residents (legal advice, currency exchange, library and film facilities, etc.). If desirable and feasible, provide such financial contributions within agreed overall program levels ($5.5 million for FY 1957) as may be necessary.
	Assigned to: State, ICA, USIA
	Target date: Continuing
Para. 8–e: “Review the present stockpile program in the light of the likelihood that, in the event of a new blockade, the Allies would resort to an airlift only as a supplement to other more positive measures.”	18. Continue active study of adequacy of Berlin stockpile to meet emergency requirements. Special attention should be paid to changing patterns of Berlin consumption.
	Assigned to: State, ICA, Defense
	Target date: Continuing
	19. Continue on an ad hoc basis to consider German requests for changes in the composition of the stockpile, with a full awareness of both the strategic and morale factors in maintaining the stockpile at approximately present levels.
	Assigned to: State, ICA, Defense
	Target date: Continuing
Para. 8–f: “Continue to exploit the unrivaled propaganda advantages.”	20. In cooperation with the Federal Republic of Germany continue to lend support as necessary in order to maintain operation of the news sign at Potsdamer Platz.
	Assigned to:USIA
	Target date: Continuing
	21. Continue to make informational materials, e.g., Der Monat (anti-Communist intellectual monthly published in West Berlin), available to persons from East Berlin and the Soviet Zone.
	Assigned to:USIA
	Target date: Continuing
	22. Participate in the 1957 Berlin International Building exposition with an exhibit on the U.S. building trade, exhibits on the “U.S. City of Tomorrow”, and other appropriate exhibits at the Amerika Haus and Congress Hall.
	Assigned to:USIA
	Target date: September, 1957
	23. Continue to keep the facts of any unrest in the Communist orbit, e.g., Hungarian revolt, before the peoples of East and West Berlin and the Soviet Zone.
	Assigned to:USIA
	Target date: Continuing
[Numbered paragraph 8–g (2 lines of source text) not declassified]	[Numbered paragraph 24 and 2 subparagraphs (9-1/2 lines of source text) not declassified]
Para. 8–h: “Seek to persuade the UK and France to adopt the U.S. policy on Berlin and seek to widen the areas of agreement with regard to future plans and emergency measures.”	25. Continue efforts to secure British and French participation in tripartite planning (as follow-up to completed tripartite military study on feasibility of using limited force to regain access to Berlin) with regard to specific measures which could be taken to use limited force in connection with possible future obstruction of access to Berlin.
	Assigned to: State, Defense
	Target date: Continuing.
Para. 8–i: “Perfect plans and practicable preparatory measures for future contingencies. Some of this can be done unilaterally, some requires the cooperation of our Allies or the German authorities or both. Keep under review:
“(1) Possible retaliatory measures and the means of quickly concerting action against specific local harassments.	26. (See Courses of Action 4 and 8 above)
“(2) Conditions affecting security and necessary remedial measures.	27. (See Courses of Action 2, 4, 24 and 25 above)
“(3) German Federal Republic financial and other support for Berlin.	28. Explore steps to induce the Federal Republic to render more assistance to Berlin in light of reduced amount of direct new U.S. aid for Berlin and increased capacity of West Germany to supply such aid.
	Assigned to: State, ICA
	Target date: December 31, 1957
“(4) Condition of the stockpile and equipment held in reserve for emergencies.	29. (See Courses of Action 18 and 19 above)
“(5) Plans for increased use of air transport in case of partial blockade.	30. (Self-explanatory)
	Assigned to: Defense
	Target date: Continuing
“(6) Improvement of relations with the local authorities, in keeping with the new relationship to the Federal Government which the Allies will have under the Bonn Conventions subject to essential Allied security requirements.”	31. Continue measures to impress upon all Americans in Berlin the unique character of their mission; urge friendly relations with local population and participation in local activities, charities, cultural and sports events.
	Assigned to: All agencies
	Target date: Continuing
Para. 9: “If the Soviets or East Germans impose, or theaten imminently to impose, a blockade, or increase harassment to the point of seriously impeding Western access to Berlin, the United States should consult with its Allies and be prepared to:	32. (Self-explanatory).
“a. Make a determined effort in Berlin to end the restrictions by vigorous protests from Allied Commanders to the Soviet Commander.	Assigned to: Defense
“b. Instruct the U.S. Ambassador in Moscow to join with the U.K. and France in presenting an agreed declaration stating their intention to use force if necessary and the risk to world peace occasioned by the Soviet action in Berlin. If the U.K. and France cannot agree to such a declaration, the U.S. should then consider making aunilateral declaration.	Assigned to: State
“c. Continue to hold the Soviet Union responsible for any Communist action against the Western position in Berlin whether the action is taken by the Soviets or by East Germans or other satellites.	Assigned to: State
“d. In the meantime, make use at an accelerated rate of the means of access remaining open, in order to provide an opportunity to gain support of our Allies and world opinion.	Assigned to: State, Defense
“e. Initiate appropriate mobilization measures with the dual purpose of convincing the Soviets of the seriousness of the situation and of getting the United States and its Allies in a ‘ready’ state in the event resort to general war is required.	Assigned to: All agencies
“f. In agreement with the other occupying powers, use limited military force to the extent necessary to determine Soviet intentions and to demonstrate the Allied refusal voluntarily to relinquish their right to access to Berlin. If Soviet reaction to this course indicates their intent forcibly to deny Allied access to Berlin, the United States should consider implementing the course of action set forth in para. 9–i below.	Assigned to: Defense, State
“g. Seek to solifify the free world behind the U.S. position, inlcuding appropriate action in the United Nations and in NATO.	Assigned to: State, USIA
“h. Start evacuation of U.S. dependents at an appropriate time.	Assigned to: State, Defense
“i. In the light of all the circumstances, including the general security situation, use limited military force to attempt to reopen access to Berlin. In doing so, recognize that Berlin is not militarily defensible and that if determined Soviet armed opposition should develop when U.S. units attempt to force their way into or out of Berlin, no additional forces would be committed, but resort would have to be made to general war. Prior to the use of force on a scale which might lead to general war, however, measures as enumerated in subparagraphs 9–a through –g above should be taken to make clear to the USSR the nature of our determination.”	Assigned to: State, Defense
Para. 10: “If the USSR should attack Berlin with its own forces, the United States will have to act on the assumption that general war is imminent. In addition to resisting the initial attack and to placing itself in the best possible position for immediate global war, the United States should, if circumstances permit, address an ultimatum to the Soviet Government before full implementation of emergency war plans.*	33. (Self-explanatory). Assigned to: All agencies
“*The President, on February 4, 1957, approved NSC Action No. 1664–c, in which the Council agreed that, because an attack on Berlin by East German forces alone might not necessarily carry the same implications as an attack by Soviet forces, the United States (in addition to resisting the initial attack) would consider at that time whether or not to treat such an attack in the manner stated in paragraph 10 of NSC 5404/1 with respect to an attack by Soviet forces.”	[3 paragraphs (5 lines of source text) not declassified]

1. Source: Department of State, OCB Files: Lot 61 D 385, Germany. Top Secret. Copies were sent to Bruce and Gufler on May 15. A memorandum of transmittal and a brief summary of the background and substance of the paper are not printed.
2. See Foreign Relations,, 1952–1954, vol. VII, Part 2, p. 1390.
3. Document 178.
4. Ellipsis in the source text.
5. Document 232.