Occasional Paper 11

The Soviet Biological

Weapons Program and Its
Legacy in Todays Russia
Raymond A. Zilinskas
 Center for the Study of Weapons of Mass Destruction
National Defense University

MR. CHARLES D. LUTES

Director

MR. JOHN P. CAVES, JR.

Deputy Director

Since its inception in 1994, the Center for the Study of Weapons of Mass
Destruction (WMD Center) has been at the forefront of research on the
implications of weapons of mass destruction for U.S. security. Originally
focusing on threats to the military, the WMD Center now also applies its
expertise and body of research to the challenges of homeland security. The
Centers mandate includes research, education, and outreach. Research
focuses on understanding the security challenges posed by WMD and on
fashioning effective responses thereto. The Chairman of the Joint Chiefs of
Staff has designated the Center as the focal point for WMD education in the
joint professional military education system. Education programs, including its
courses on countering WMD and consequence management, enhance
awareness in the next generation of military and civilian leaders of the WMD
threat as it relates to defense and homeland security policy, programs,
technology, and operations. As a part of its broad outreach efforts, the WMD
Center hosts annual symposia on key issues bringing together leaders and
experts from the government and private sectors. Visit the center online at
http://wmdcenter.ndu.edu.
The Soviet Biological
Weapons Program and Its
Legacy in Todays Russia
Raymond A. Zilinskas

Center for the Study of Weapons of Mass Destruction

Occasional Paper, No. 11

National Defense University Press

Washington, D.C.
July 2016
 Opinions, conclusions, and recommendations expressed or implied
within are solely those of the contributors and do not necessarily represent
the views of the Defense Department or any other agency of the Federal
Government. Cleared for public release; distribution unlimited.

Portions of this work may be quoted or reprinted without permis-

sion, provided that a standard source credit line is included. NDU Press
would appreciate a courtesy copy of reprints or reviews.

First printing, July 2016

Contents

Acknowledgments................................................................................. vii

Executive Summary.................................................................................. 1

The Soviet Unions First-Generation Biological

Warfare Program, 19261972.................................................................. 5

The 1972 Decision to Acquire a Second-Generation Biological

Warfare Program................................................................................... 18

Whats Past Is Prologue.......................................................................... 42

Appendix. Biography of Colonel-General

Yefim Ivanovich Smirnov....................................................................... 48

Notes....................................................................................................... 51

About the Author.................................................................................. 60

 The Soviet Biological Weapons Program

Acknowledgments
Several individuals contributed greatly to the success of this project, and the
author wishes to thank them for their encouragement and assistance. In particular,
I am indebted to Dr. Mikhail Tsypkin, an associate professor in the Department
of National Security Affairs at the Naval Postgraduate School and an expert on
Soviet military affairs, who reviewed a draft of this paper and helped me navigate
the labyrinthine Soviet bureaucracy and its difficult decisionmaking process. I also
thank Dr. Seth Carus and Mr. Paul Bernstein for their guidance while the oc-
casional paper was being developed and Ms. Helen Zilinskas for having edited a
late version of the draft paper.

vii
 The Soviet Biological Weapons Program

Executive Summary
In its first Weapons of Mass Destruction (WMD) Case Study, the Center for
the Study of Weapons of Mass Destruction (CSWMD) at the National Defense
University examined President Richard M. Nixons decision, on November 25,
1969, to terminate the U.S. offensive biological weapons program.1 This occasional
paper seeks to explain why the Soviet government, at approximately the same
time, decided to do essentially the opposite, namely, to establish a large biological
warfare (BW) program that would be driven by newly discovered and powerful
biotechnologies. By introducing the innovation of recombinant DNA technol-
ogycommonly referred to as genetic engineeringthe Soviets were attempting
to create bacterial and viral strains that were more useful for military purposes
than were strains found in nature.
Nixons decision was widely publicized and documents revealing the reasons
behind it are, in the main, available to the public in the National Archives, the
Nixon Presidential Library in San Clemente, California, and publications written
by members of the Nixon administration. In sharp contrast, the Soviet decision
was highly secret at the time and remains so to this day. All contemporary docu-
ments pertaining to the Soviet offensive BW program remain classified and none
of the military officers and officials who operated it has spoken or written about it
except to deny that it existed or to belie its offensive intent.
The information that has become available about the program has been di-
vulged by scientists and administrators who previously worked in the civilian com-
ponent of the Soviet BW program, called Biopreparat. Some of them had defect-
ed to Western countries and there told their stories, while others chose to remain
in Russia after the Soviet Union dissolved in December 1991 and later divulged
details of their past secret activities in their own publications, or in broadcasts or
print interviews. However, Biopreparat employees, even those who held manage-
rial positions, did not have sufficiently high clearances to be informed about high-
level BW-related decisionmaking. Decisions such as those that instituted what
in effect was a new BW program, and ordered the Soviet Ministry of Defense
(MOD) to develop strategies and tactics for the use of biological weapons, were

1
CSWMD Occasional Paper 11

made at the highest levels by members of the Politburo and Central Committee of
the Communist Party (CCCP) and the MODs General Staff (GS).
Nevertheless, some information pertaining to the establishment of Biopre-
parat, the planning of programs to research and develop weapons against hu-
mans (codenamed Ferment) and animals and plants (codenamed Ekology), and
the accomplishments of these program have become known because Biopreparat
scientists learned about them from military scientists who divulged some of this
knowledge while working together or in relaxed situations. Thus, the two authors
of an extensive history of the Soviet BW program, one of whom is the author of
this paper, were able to collect sufficient information from their interviews with
Biopreparat employees, autobiographies written by weapons scientists, and arti-
cles written by investigative Russian reporters to describe and discuss important
aspects of Soviet decisionmaking concerning BW.2 While this paper draws largely
on the contents of this book, additional information comes from sources listed
in the endnotes, particularly from the studies on Soviet military decisionmaking
conducted by John G. Hines, Ellis M. Mishulovich, and John F. Shull.3
In historical terms, the Soviet BW program had two so-called generations,
defined as distinct periods of time during which types of weapons were developed
from earlier types.4 The first generation of the Soviet BW program commenced
about 1928 and was based on naturally occurring pathogens that had caused dev-
astating epidemics during World War I and the subsequent Russian Civil War.
The second generation began approximately in 1972 when the decision was made
at the highest political level to institute a research and development (R&D) sys-
tem that utilized newly discovered techniques of genetic engineering to create
novel or enhanced bacterial and viral strains that were better adapted for BW
purposes than strains found in nature. President Boris Yeltsin ordered the cessa-
tion of the offensive BW program some months after the Soviet Union dissolved
in December 1991 and in 1992 publically stated that it had conducted an offen-
sive BW program in violation of the Biological and Toxin Weapons Convention.
However, after Vladimir Putin was elected president, high-level Russian officials
have lied about the Soviet BW program, stating that it was strictly a defensive
program that had not broken international law. As is discussed later in this paper,

2
 The Soviet Biological Weapons Program

elements of the Soviet offensive BW program continue in Russia and may provide
the basis for a third-generation BW program supported by the current leadership.
The first section of this paper describes the Soviet BW programs first genera-
tion, including its establishment, work plan and operations, and accomplishments.
The second section focuses on establishing the conditions for the Soviet decision
that was made sometime during 19691971 to establish and operate the second-
generation BW program. Conditions that are considered include the geopolitical
challenges as perceived by the Soviet government, the decisionmaking process for
military acquisitions, and the inferior state of the biosciences in the Soviet Union
at that time, which stimulated Soviet bioscientists to play the military card in
order to introduce genetic engineering into the Union of Soviet Socialist Repub-
lics (USSRs) bioscience establishment. The final section has two sub-sections.
The first summarizes the key factors that drove Soviet decisionmaking in the early
1970s to institute a huge offensive BW program. The second informs readers that
even before Vladimir Putin was elected president for the second time, he openly
stated that new weapons were to be developed using high technologies including
genetics. Based on this promise, and considering the secrecy that still keeps the
military biological institutes and anti-plague institutes closed to outsiders, the
paper discusses the possibility that the Putin administration may institute a third-
generation BW program. The appendix consists of a short biography of the Soviet
general Yefim Ivanovich Smirnov who was for many years in charge of the Soviet
BW program.

3
 The Soviet Biological Weapons Program

The Soviet Unions First-Generation Biological Warfare

Program, 19261972
Russian armies suffered heavy losses from disease during all three of the ma-
jor conflicts they were involved in at the beginning of the 20th century: the Russo-
Japanese War (19041905), World War I (19141917), and the civil war between
the Red and White forces (19181921). Disease caused more casualties in all of
these conflicts than did weapons.5 Armies and civilians were especially devastated
by typhus.6 A Soviet epidemiologist writes, There were 20 to 30 million cases
of typhus between 1918 and 1922 in the territories controlled by the new Soviet
Republic, and a mortality rate of around 10 percent.7 Vladimir I. Lenin is quoted
as having stated, We are suffering from a desperate crisis. . . . A scourge is assailing
us, lice, and the typhus that is mowing down our troops. Either the lice will defeat
socialism, or socialism will defeat the lice!8
Biological warfare was not waged on the Eastern Front during World War I,9
but with Russian troops having experienced the full effects of German chemical
weapons,10 the Bolshevik government that took power after the 1917 revolution
was intent on creating a chemical industry that could serve both civilian and mili-
tary purposes. To integrate chemical weapons into its force structure, the Workers
and Peasants Red Army (RKKA) created the Military Chemical Agency in 1925
under the directorship of Yakov M. Fishman, who was to remain in this position
until 1937 when he fell victim to Joseph Stalins Great Purge. One of Fishmans
first acts as director was to set up a small BW laboratory in Moscow, which was
named the Scientific Research Institute of Health and was headed by Nikolay N.
Ginsburg. In 1928, Fishman submitted a four-part progress report to Kliment
Y. Voroshilov, Peoples Commissar for Military and Naval Affairs. The first part
described the work that had been done by Ginsburg (see below), which dem-
onstrated the feasibility of BW. The second assessed the potential uses of bacte-
ria for warfare and sabotage, including as payloads in artillery shells and bombs.
The third part presented a plan for the organization of military biology, and the
fourth presented a plan for organizing defenses against biological attacks. Act-
ing on Fishmans recommendations, the Revolutionary Military Council in 1928
issued a secret decree that ordered the establishment of offensive and defensive

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CSWMD Occasional Paper 11

BW programs and designated the Military Chemical Agency to manage both.11

In addition, a civilian agency, the Peoples Health Commissariat, was ordered to
coordinate and execute military tasks related to BW.12 At that time, the Peoples
Health Commissariat was operating a substantial network consisting of at least
35 institutions working in such disciplines as epidemiology, genetics, immunology,
microbiology, virology, and plague protection.
Opinions differ as to how the decree was implemented. The findings of research
conducted by Bojtzov and Geissler are the most trustworthy.13 Their research re-
vealed that the BW program was headed by Ginsburg and initially focused on wea-
ponizing Bacillus anthracis14 and Clostridium botulinum15 and developing efficient
methods of disinfecting persons and equipment contaminated with pathogens. Ac-
cording to Fishmans 1928 progress report, Ginsburgs group attempted to enhance
properties of B. anthracis spores, which already in their natural state are well suited
for purposes of BW, being both virulent and hardy, but which conceivably could be
made even deadlier by using classical microbiology techniques of mutation, selec-
tion, and propagation. Military scientists would expose natural pathogen strains
to mutation-inducing chemicals or irradiation, then would recover mutants that
possessed improved or enhanced characteristics related to infectivity, virulence, and
hardiness, and would propagate promising mutants in mass. In this research, vari-
ous types of animals were used as test subjects, including cats, rabbits, goats, and
horses. The candidate BW agents either were injected into test animals or dispersed
as aerosols in closed chambers that contained animals. Typically, test animals died
within 2 or 3 days of exposure. Another dispersal method used explosives to spread
a quantity of the BW agents. In this case, the explosion created an aerosol whose
particles contained the microorganisms. Ginsburgs laboratory also studied Vibrio
cholerae16 and Yersinia pestis17 to ascertain whether they would be useful as BW
agents; the latter eventually was weaponized.
In 1933, the RKKA established the Vaccine-Serum Laboratory in the village
of Vlasikha, outside Moscow. Its objective was to develop and manufacture vac-
cines and sera against common infectious diseases. Professor Ivan M. Velikanov,
then the head of the M.V. Lomonosov Moscow State University (MSU) micro-
biology department, was appointed director of the laboratory. Also in 1933, the

6
 The Soviet Biological Weapons Program

United State Political Administration (OGPU) set up a laboratory, named the

Special Purpose Bureau, to research highly infectious diseases,18 located on the
property of the former Pokrovsky Monastery in the small town of Suzdal in the
Vladimir oblast.19 The facilitys staff members lived in cells formerly occupied by
monks and were not allowed to leave the grounds without special permission. The
monasterys chapel served as an animal facility, containing cages in which marmo-
sets, guinea pigs, and rats were kept. In addition, sheep and two camels used as test
subjects grazed in the monasterys yard. Bureau scientists studied pathogens that
cause cholera, plague, tetanus, and malaria.
In late 1933, the Vaccine-Serum Laboratory and the Special Purpose Bureau
were combined to create the RKKA Military Medical Scientific Institute, which
continued to be headquartered at Vlasikha. In 1934, the institute was renamed the
RKKA Biotechnical Institute. An accident in 1937 led to its relocation to Goro-
domlya Island, located on Lake Seliger in the Kaliningrad oblast,20 about 350
kilometers northwest of Moscow. The reason for the move was that the deputy
director of the institute, Abram L. Berlin, unknowingly infected himself with Y.
pestis during an experiment to develop a new anti-plague vaccine. After being
infected, but before he showed symptoms, Berlin traveled to Moscow to report
on the vaccines progress. While there, he infected two other people, and all three
died of bubonic plague. Fortunately, the local health authorities acted quickly and
effectively, thereby preventing the disease from spreading.21 However, Kremlin
officials concluded that the institute had endangered Moscows population and
therefore ordered it to be relocated far away from the city. Berlin was the first
known Soviet BW research scientist to be killed by a pathogen under study.
The RKKA Biotechnical Institute was renamed the Medical-Technical Insti-
tute of the RKKA (STI) in 1940. Soon after the German invasion that began in
June 1941, Soviet authorities feared that the Kaliningrad oblast would be overrun
by German forces, and ordered the institute relocated to Saratov; it was renamed
the Scientific Research Institute of Epidemiology and Hygiene. As the Battle
of Stalingrad raged from August 23, 1942 to February 2, 1943, the Luftwaffe
mounted air attacks on nearby cities, including Saratov. To safeguard the institute,
it was moved to Kirov City, where it was headquartered in an old hospital, and

7
CSWMD Occasional Paper 11

where it remains to this day.22 For convenience in this paper, it is henceforth called
the Kirov Institute.
Many able microbiologists fell victim to Stalins purges in the late 1930s,
including Fishman, the founder of the Soviet Unions BW program.23 Of more
importance to this study, the Peoples Commissariat for Internal Affairs (NKVD)
arrested many microbiologists to secure expertise that it could exploit at small
cost. As has been vividly described by Aleksandr I. Solzhenitsyn, the NKVD often
placed imprisoned scientists and engineers in groups called sharaga and allowed
them to work much as they did in their free days.24 For example, N.A. Gaysky, a
specialist on Francisella tularensis, was ordered to work as a member of a sharaga
developing a vaccine against tularemia at the Third Experimental Laboratory of
the Red Army.25 Similarly, an expert on rickettsiae, P.F. Zdrodovsky, worked in a
sharaga while imprisoned, as did L.A. Zilber, who had proposed that viruses are
the cause of some cancers. After their release, some of these scientists continued
to work willingly at the institutions where they had been imprisoned. Despite the
decimation of Soviet scientists by Stalin, presumably a sufficient number of them
survived for the Soviet Union to have maintained an active BW program until
World War II and beyond.
On February 22, 1938, the world learned that the Soviet Union possessed
both biological and chemical weapons. In a speech reported by Western media,
Marshal of the Soviet Union Kliment Y. Voroshilov stated:

Ten years ago or more the Soviet Union signed a convention abolish-
ing the use of poison gas and bacteriological warfare.26 To that we
still adhere, but if our enemies use such methods against us, I tell you
that we are preparedfully preparedto use them also and to use
them against aggressors on their own soil.27

The civilian leaders in the Kremlin considered Voroshilovs remark to have

been a gross indiscretion. If he had stated that the USSR reserves the right under
the Geneva Protocol to reply in kind, he probably would have had no problems
with his superiors, but by asserting that we are preparedfully preparedto use

8
 The Soviet Biological Weapons Program

them, he in effect was telling the world that the Soviets possessed both chemical
and bacteriological weapons. This was contrary to the image that the Soviet Union
was trying to project: that only ruthless capitalist states possessed these weapons
while the Soviets only sought to defend against them.
In the interwar years, Western intelligence agencies knew very little about
the Soviet BW establishment. However, German forces that invaded the Soviet
Union in 1941 almost immediately captured several hundred thousand prison-
ers of war (POWs), some of whom in peacetime had worked in various mili-
tary facilities. German intelligence agencies set up units to interview POWs who
could be expected to have knowledge of various Soviet activities. Two Wehrmacht
intelligence officers, Walter Hirsch and Heinrich Kliewe, specialized in gather-
ing information on Soviet chemical and biological warfare programs. Both were
captured by American forces in 1945, and then willingly provided huge amounts
of information that had been collected from Soviet POWs. Some of this informa-
tion proved to be erroneous, but much was worthwhile. According to information
gathered by Kliewe,28 by the time World War II broke out, three institutes were
involved in offensive BW activities in the Moscow oblast: Ginsburgs institute, the
Moscow Chemical-Pharmaceutical Institute, and the Saratov Institute for Mi-
crobiology and Epidemiology. In the Leningrad oblast, four institutes were sup-
posedly involved in BW research and development: the Zlatogorov-Maslokovich
Laboratory at the Leningrad Veterinary and Zoological Technical Institute, the
Bacteriological Institute of Leningrad, an unnamed facility at the Kronstadt na-
val base,29 and an unnamed research station on the shore of Lake Ladoga. These
institutions largely focused their efforts to weaponize B. anthracis and Y. pestis,
although they did some work to develop BW agents against cattle, including the
virus that causes foot-and-mouth disease.
The Soviets established three open-air test sites before World War II. The
first, in 1925, was at Tomka (renamed Staryye Shikhany, in 1933), near Volsk
on the Volga River. Called the Central Chemical Proving Ground (Tsentralny
Khimichesky Poligon, or TsKhP), or more simply the Volsk Polygon, it covered
approximately 100 square kilometers. During the time of the German-USSR
accord in the 1920s, military units from both sides trained there together, and

9
CSWMD Occasional Paper 11

conducted exercises involving the use of both conventional and chemical weap-
ons. The other two open-air test sites were located on islands. Gorodomlya Island
had a 10-square-kilometer site on which weapons containing pathogens causing
foot-and-mouth disease, leprosy, plague, and tularemia were tested.30 The second
island, which was to become the favored site for large-scale open-air testing of
biological agents and weapons, as well as defensive equipment and measures, was
Vozrozhdeniye Island in the Aral Sea. The facility there, code-named Aralsk-7,
became fully operational in 1936, but was closed down during World War II. It
was reopened in the 1950s, after which it was the only open-air test site in the
Soviet Union for the realistic testing of weapons armed with all the different
types of pathogens weaponized during both the first and second generations of
the Soviet BW program. The extreme isolation of Aralsk-7 kept its activities far
away from prying eyes and afforded a high level of biosafety for open-air tests.
For the sake of comparison, by the time World War II commenced, Japan was
the only major nation with an offensive BW program approximating the size and
status of the Soviet Unions.31 The major Japanese military unit dedicated to devel-
oping biological weapons, Unit 731, was headquartered at Ping Fan in Manchuria,
only a few hundred kilometers from the Soviet border. Frances small program,
which was active in the 1930s, was terminated when German armies were close to
occupying that country in 1940.32 The United Kingdom (UK) had started a BW
program in 1937, but it did not reach full maturity until the early 1940s and never
reached anything near the size of the Japanese and Soviet programs.33 Canada had
also begun considering BW in the late 1930s and, in cooperation with the UK
and the United States, was to have a full-scale program by the mid-1940s.34 The
United States began to consider establishing a BW program in 1942 and did so
in 1943.35 Germany,36 Italy,37 and Poland38 had no offensive BW programs and, at
most, rudimentary defensive programs.
In 1939, Stalin placed his Minister of Internal Affairs, Lavrenty P. Beria,
in overall command of the Soviet BW program. In practice, the Main Military
Medical Directorate of the Red Army, headed by Colonel-General Yefim I.
Smirnov,39 had responsibility for its day-to-day operations. Smirnov, described
in a Russian publication as being a distinguished organizer and theorist of

10
 The Soviet Biological Weapons Program

military and civilian health,40 was at that time a rising star in the military med-
ical establishment, and from the late 1940s through the early 1980s was one of
the main planners and proponents, perhaps the main one, for the development
of biological weapons (see appendix for a biography of Smirnov).41
The Soviet Union had not only an extensive offensive BW program, but also
a substantial program to defend against both biological weapons and natural in-
fectious diseases. The offensive and defensive BW programs were conducted side
by side, often in the same institutions. The Soviet defensive research program had
seven objectives:

to develop and improve vaccines against BW agents that enemies might use

to develop methods and protocols for immunization utilizing vaccines and

other protective substances

to develop protocols for the emergency treatment of soldiers exposed to BW

agents, including diagnosis

to develop methods, means, and regimes for disinfecting personnel and

equipment contaminated by BW agents

to develop methods for identifying BW agents and clarifying indications of

biological attacks

to develop and test field detection systems for BW agents

to assess the possible damage of the various recipes42 that an enemy might

employ against the Soviet Union.43

It is not known exactly when these objectives were formulated, but they continued
to guide such research until the USSR dissolved in 1991.
The major defense efforts in the 1930s and leading up to World War II at
the Kirov Institute and its predecessors sought to develop live vaccines against
anthrax, plague, tularemia, brucellosis, and tuberculosis.44 However, the highest
priority was to develop an efficacious anthrax vaccine. The major R&D to this end
was conducted by military scientists at the Research Institute of Epidemiology
and Hygiene starting in 1935. Orlov wrote that this vaccine R&D was deemed so

11
CSWMD Occasional Paper 11

important that Smirnov was personally required to report on its progress to Beria
and Stalin.45 By 1940, Soviet microbiologists had developed two avirulent strains
of B. anthracis, named STI-146 and No. 3, which were derived from virulent par-
ent strains. When used as a trial vaccine in animals, the STI-1 strain protected
60 percent of guinea pigs, 70 percent of rabbits, and 97 percent of sheep that had
been deliberately infected by virulent strains of B. anthracis. Based on these good
results, more than 2 million domestic animals were vaccinated with the STI-1
strain of vaccine during World War II. After the war, many more animals were
vaccinated38.4 million in 1947, increasing to 140 million in 1960. As a result,
the number of domesticated animals that died from anthrax in the USSR de-
creased from 30,500 in 1947 to just 3,500 in 1960.47
The same Kirov Institute scientists who had developed the animal anthrax
vaccine developed a similar vaccine for use in humans. The vaccine proved safe
when administered to volunteers in May 1943 using the technique of scarifica-
tion.48 In 1944, with the Red Army poised to liberate Rumania, Soviet military
epidemic intelligence determined that there was a substantial threat of anthrax in
that country that might affect not only animals, but humans. Accordingly, 9,000
men from the units assigned to invade Rumania were vaccinated against anthrax.49
Orlov asserts that none of these contracted the disease. (Orlov does not say how
many of the non-vaccinated troops were stricken with anthrax.) The Ministry of
Health licensed the scarification vaccine for general use against anthrax in 1953
and an improved injectable vaccine in 1959.50 Other vaccines were also developed
by military scientists, such as those against plague and tularemia.
From the activities discussed in the preceding paragraphs, it appears that dur-
ing World War II the Soviets concentrated more on developing defenses against
natural infectious diseases that threatened its soldiers and draft animals than on
their offensive BW program. This situation changed as the Soviet offensive BW
program was given a boost in the late 1940s for three reasons. First, Soviet leaders
learned of the large, brutish Japanese program. After the Red Army invaded Man-
churia on August 8, 1945, and moved quickly toward the Pacific Ocean, it overran
Ping Fan where Unit 731 was headquartered. As they advanced, Red Army troops
captured scientists and medical doctors who had staffed the units laboratories and

12
 The Soviet Biological Weapons Program

test facilities.51 Interrogations revealed the appalling record of the Japanese BW

program,52 the extent and sophistication of which likely gave Soviet leaders an
indication of how powerful biological weapons could be and provided them with
additional knowledge and know-how. The Soviets also learned, probably for the
first time, that in the late 1930s, on orders of the Japanese Kwantung Army, De-
tachment 100 had systematically sent bacteriological parties to the borders of the
Soviet Union, where they contaminated water sources.53 There is no information
on the success or failure of these attempts at biological sabotage. Perhaps of more
consequence, the Soviets were informed of the Kan-Toku-En Plan for the Japanese
attack on the Soviet Union, which was approved in 1941 but never implemented.
This plan included the deployment of units that would disseminate plague-infested
fleas against the Red Army and conduct sabotage behind its positions.54
Second, the influential American scientist Theodor Rosebury wrote an article
and book shortly after World War II that had the unanticipated effect of convinc-
ing Soviet civilian and military leaders of the utility of biological weapons.55 Some
of the BW scientists interviewed by Leitenberg and Zilinskas stated that Rose-
burys article and book were the main determinant of the Soviet governments
decision to bolster its BW program in the 1950s.56 Ten years later, a former U.S.
general published two works that served to reinforce Soviet officials belief in the
power of biological weapons.57
Third, soon after World War II ended, the Soviet government learned of the
joint BW programs of the United States, UK, and Canada.58 Soviet authors de-
scribed in great detail the large size of these programs, the intent of these states
to use biological weapons in tandem with nuclear and chemical weapons, and the
perversity of the United States not having joined the Geneva Protocol (which
prohibits the use of bacteriological weapons).59 Soviet leadership might have been
motivated to build a BW program in order to match these capabilities.
In 1947, the Main Military Medical Directorate of the Red Army was re-
named the Main Military Medical Directorate of the Armed Forces of the USSR,
with Y.I. Smirnov as its head.60 However, soon thereafter he was promoted to
Minister of Health, a post he kept until December 1952.61 At that time, for un-
known reasons, Stalin lost confidence in Smirnov and he was demoted to a low

13
CSWMD Occasional Paper 11

staff position. But sometime after Stalins death, on March 5, 1953, the USSR
Council of Ministers transferred the responsibilities of the Main Military Medi-
cal Directorate to the MODs 7th Directorate of the General Staff, and in August
1953 appointed Y.I. Smirnov as its head. About the same time, the Kirov Institute
was designated as the lead agency for all Soviet BW-related R&D.
Orlov writes that, having recognized the growing threat of BW, the Soviet
leadership accelerated development of means to protect the population and the
army against biological weapons.62 It appointed the Marshal of the Soviet Union,
Ivan Kh. Bagramyan, as head of the domestic defensive program and Y.I. Smirnov
and General Piotr N. Burgasov as his deputies.63
As part of capability building, the MOD decided to construct and equip two
new research units. The first was an institute dedicated to the study and weap-
onization of viruses and Rickettsia. This came about after an internal assessment
concluded that the Soviet armys need for a bacterial component was covered,
but not the virological component.64 The assessment noted that the country had
only a single recently organized [within the past 5 years] civilian virology institute
of the USSR Academy of Medical Sciences. Further, for a number of reasons,
the latter [civilian virology institute] naturally could not engage in assessing the
threat of viruses being used for military purposes.65 The new virology institute
was established near Zagorsk (now Sergiyev Posad); henceforth it is called Za-
gorsk Institute in this paper.
The second new research unit was an institute whose stated purpose was to
conduct research on military hygiene. The MOD took over the former Cherkassy-
Sverdlovsk Infantry School in Sverdlovsk (now called Yekaterinburg) and rebuilt
it, so in actuality it housed development laboratories and biological production
equipment. The first group of scientists and technicians to staff the new plant be-
gan working in 1949. In 1960, this branch was separated from the Kirov Institute
and renamed the Military Technical Scientific Research Institute (henceforth,
Sverdlovsk Institute).66 The institute was located within Military Compound 19
and its major function was to mass-produce pathogens used to arm biological
weapons. In 1979, it became infamous when an accident at one of its production
facilities led to the escape of a large number of Bacillus anthracis spores that were

14
 The Soviet Biological Weapons Program

carried by prevailing winds over parts of Sverdlovsk and then to six villages out-
side the city. Shortly thereafter, the production plant was closed and its production
function was moved to Stepnogorsk in Kazakhstan.67
In addition to MOD institutes dedicated to biological weapons and biological
defense, the ministries of Agriculture, Internal Affairs, and Health each operated
BW-related R&D units.68 Further, both the USSR Academy of Sciences (USSR-
AS) and the USSR Academy of Medical Sciences provided expert assistance to the
offensive and defensive BW programs. Next to nothing is known about the activi-
ties or involvement of these agencies with BW during the pre-1970 era.
The Soviet BW program appears to have been energized in the period im-
mediately following World War II mainly by the infusion of practical information
gained from the Japanese BW experience, including the reopening and substan-
tial build-up of Aralsk-7. As a result, a number of pathogens were weaponized,
including B. anthracis, F. tularensis, Y. pestis, Coxiella burnetii, Brucella suis, Ven-
ezuelan equine encephalitis virus, and botulinum neurotoxin (see table 1). Per-
haps the most powerful of the biological weapons generated at this time by the
first-generation BW program was one based on the variola virus (the cause of
smallpox). The first-generation BW program experienced a second accident at
the Aralsk-7 test site in 1972, when variola virus escaped during an open-air test
of biological weapons and was carried by the prevailing wind to a research ship
where a scientist was infected. When the ship reached its homeport in Aralsk, the
infected person had spread the virus to 11 others, 5 of whom died.69
For unknown reasons, the Soviet BW program seemed to be treading water
in the late 1960s, with no breakthroughs or significant advances. Biopreparat sci-
entist Igor Domaradskij claimed that the program in this period was conducted
in a desultory way and was so unproductive that the Soviet military command
considered terminating it.70 This assessment was supported by former intelligence
analyst and Soviet specialist Raymond Garthoff, who noted:

On August 17, 1967, a top secret joint decree issued by the Central
Committee-Council of Ministers of the Soviet Union reviewed
the evidence for what was seen as an extensive and successful U.S.

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CSWMD Occasional Paper 11

Table 1. Soviet First-Generation Biological Warfare Agents

Bacteria Disease caused by
Bacillus anthracis Inhalation anthrax
Brucella melitensis (Brucella suis?) Brucellosis (undulant fever)
Coxiella burnetii Q fever
Francisella tularensis Tularemia
Rickettsia prowazekii Epidemic typhus
Yersinia pestis Pneumonic plague

Virus
Variola major Smallpox
Venezuelan equine encephalomyelitis Encephalitis
virus

Toxin
Botulinum neurotoxin Botulism

Source: Milton Leitenberg and Raymond A. Zilinskas, The Soviet Biological Weapons Program: A History
(Cambridge, MA: Harvard University Press, 2012), 46.

program in the field of chemical and biological warfare [CBW ].

The decree called for corresponding Soviet CBW preparations. Al-
though my attempts to obtain this decree in the Russian archives
have so far been unsuccessful, I was able to track down a reference
to it in the index of the still-closed files of the Central Committee.71

There are two probable explanations for why the Soviet BW program faltered.
First, most of the MODs highest officials came to believe that nuclear weapons
far superseded other capabilities, including chemical and biological weapons, so
these programs lost support. The BW program of the late 1960s in particular was
small in size when compared to nuclear, chemical, missile, and conventional arms
programs. Further, none of the defense industrial ministries was involved in mod-
ern biotechnology; nor were any of the scientific research institutes and scientific
production conglomerates. It is reasonable to conclude that the relatively modest

16
 The Soviet Biological Weapons Program

cadre dedicated to maintaining the BW program had little influence among those
shaping high-level policy decisions on military forcebuilding.
Second, and perhaps more important, applied microbiology for BW pur-
poses, and likely for civilian purposes as well, was unproductive in the 1960s
due to the negative influence of agronomist Trofim Lysenko on the biosciences.
Beginning in the 1930s, by using doctored data, Lysenko convinced Stalin that
when an agricultural technique he had developed, termed vermalization, was
used on a large scale, it would double or triple the crop yields of Soviet agricul-
ture.72 Since Nikita Khrushchev, Stalins successor in 1953, also was a Lysenko
adherent, Lysenko held sway until Khrushchev was removed as First Secretary
in 1964. But until that year, Stalin and Khrushchev both made political deci-
sions that gave full state support to vermalization and forbade the application
of other practices by Soviet agriculture. Even worse, during what came to be
called a lost generation of genetics, vermalization was the only theory that
was permitted to be taught and practiced by agricultural scientists, as well as
by biologists generally, which meant that rational theories such as the Mende-
lian theory of inheritance and the Darwinian theory of natural selection were
banned from Soviet science. In effect, Lysenko was responsible for convincing
Stalin and Khrushchev to suppress the correct bioscientific underpinnings of
genetics. Lysenkoism was repressed by the Soviet government after 1964, but
its influence continued to some extent in the form of scientists who through se-
niority maintained leadership positions in laboratories and institutes. For these
reasons, in the early 1970s most Soviet microbiologists did not understand mo-
lecular biology and, even less so, how to apply genetic engineering for either
basic research or bioindustrial applications.
Well-founded genetics and microbiology did not completely disappear dur-
ing the Lysenko era. There were brave directors of institutes dedicated to chemis-
try and physics who were strongly anti-Lysenko and who would hire bioscientists,
including geneticists, to work in their laboratories under false pretenses. After Ly-
senkoism was discarded, the bioscientists who had labored in secret were instru-
mental in establishing institutes that became leaders in biotechnology R&D. For

17
CSWMD Occasional Paper 11

example, the Institute of Molecular Genetics, which became a leading biological

research center, was an offshoot of the Kurchatov Institute of Atomic Energy.73

The 1972 Decision to Acquire a Second-Generation

Biological Warfare Program
As discussed in detail by Leitenberg and Zilinskas,74 two individuals were
responsible for promoting the establishment of the Soviet Unions new offensive
second-generation BW program: the exceedingly bright bioscientist academician
Yuri A. Ovchinnikov and Colonel-General Yefim I. Smirnov.

The Key Role of Ovchinnikov

Yuri A. Ovchinnikov was born in Moscow in 1934 and graduated in 1957

from the most prestigious university in the USSR, the Moscow State University,
with a candidate degree in chemistry.75 In 1960, he secured a research position at
the Institute of Chemistry of Natural Compounds, which had been founded a year
earlier by one of the Soviet Unions most famous chemists, Mikhail M. Shemyakin.
The institute investigated compounds derived from living beings, such as antibiot-
ics, peptides, toxins, and vitamins.
As Ovchinnikov had extensive contacts in the West, it is likely that he learned
from them about the revolutionary developments that led to the discovery of re-
combinant DNA in the late 1960s and its spinoff technology of genetic engineer-
ing in early 1970s.76 One of Ovchinnikovs colleagues at the USSR-AS was the
prominent Soviet bioscientist Aleksandr A. Baev. In 1972, Baev was instrumental
in establishing the first Soviet laboratory of molecular biology and the genetics of
microorganisms at the Institute of Biochemistry and Physiology of Microorgan-
isms in Pushchino. Baevs description of how he came to recognize the impor-
tance of the new developments in the West was probably similar to Ovchinnikovs
experience:

Scientific events were continuing to develop, however, and my pe-

riod of genetic engineering began. The works of P. Berg, S.N. Cohen,
and H.W. Boyer (19721973) heralded the beginning of the era of

18
 The Soviet Biological Weapons Program

recombinant DNAs. Even before this, however, my attention was

drawn to J. Beckwiths publication in Nature (vol. 224, p. 768, No-
vember 22, 1969) on the isolation of lactose operon. I was similarly
affected by the news that the Congress of the USA had granted 10
million dollars from the 1971 budget to support genetic scientists,
represented by J. Lederberg. At that time I had already sensed that
there were more important events on the horizon in biology, and I
began to prepare my research into molecular biology, starting with
prokaryotes.77

On the basis of his excellent publication record and the high esteem with
which he was regarded by colleagues, Ovchinnikov was elected as a corresponding
member of the USSR-AS in 1968 and just 2 years later was elected full academi-
cian of the Division of Biochemistry, Biophysics, and Chemistry of Biologically
Active Compositions.78, 79
While most Soviet scientists believed it was a waste of time for them to par-
ticipate in Communist Party of the Soviet Union (CPSU) activities, some real-
ized that one had to be an enthusiastic party member in order to move up in the
management sector of the science establishment. With very few exceptions, all
directors and deputy directors of research institutes were members of the CPSU.
Ovchinnikov must have understood this while young, because in parallel to his
scientific career, he made a political career. Joining the CPSU in 1962, at the age of
28, he advanced rapidly, becoming a candidate member of the CCCP and a mem-
ber of the Presidium of the Supreme Soviet of the Russian Republic of the Soviet
Union in 1973. Without doubt, Ovchinnikov toed the party line, as evidenced by
a statement he made in 1985:

The Communist Party considers scientific-technical progress as a

key factor in the acceleration of the Soviet Unions socio-economic
development. This was clearly and convincingly underlined by the
resolution adopted by the Plenum of the Central Committee of the
Communist Party of the Soviet Union in April of this year. These

19
CSWMD Occasional Paper 11

resolutions made Soviet science responsible for a critical task of his-

torical significance. Through these resolutions, Soviet science was in-
structed to concentrate its forces on the most important of courses, to
mobilize its entire creative potential to the greatest extent possible,
and to support the Soviet Union in its entry into key areas of science
and technology. Naturally, this encompasses the very new and rap-
idly developing field of biotechnology.80

To understand Ovchinnikovs success in persuading top civilian and military

decisionmakers that genetic engineering was a key enabling technology, it is nec-
essary to be aware of the relationship between the Soviet state and Soviet science.
Nikolai Krementsov described the relationship in his 1996 book, Stalinist Science:

The key feature of Stalinist science was the total dependence of science
on its sole patron, the party-state bureaucracy. . . . Thus, the state ap-
paratus and the scientific community each strove to acquire what it
most wanted from the other. The state provided scientists with funds,
resources, and great public prestige; the scientific community gave the
state expertise and legitimacy in industry, agriculture, and medicine.
Each developed various tactics to deal with its partner. The state es-
tablished strict administrative control over institutional structures,
scientific personnel, research directions, and scholarly communica-
tions. For their part, scientists cultivated patrons among the higher
party-state bureaucrats and skillfully played upon their constantly
changing policies and objectives.
Although the Soviet scientific community and the state control
apparatus have often been treated as separate entities, the actual
boundaries between them were frequently blurred. Their symbiosis
resulted in their institutional integration and individual co-option.
At their apex, the control apparatus and the scientific community were
blended and overlapping. Not only did scientists occupy key positions
within various state agencies, but also some scientific institutions,

20
 The Soviet Biological Weapons Program

such as the presidiums of Soviet academies, were in fact key elements

of the party-state control apparatus itself. Moreover, all appointments
to top positions in the scientific hierarchy had to be approved by the
highest party officials. In such circumstances, it is hardly surprising
that the development of the various Soviet scientific disciplines was
greatly influenced by the personal relations between particular disci-
plinary spokespersons and their powerful party patrons.81

Krementsov also succinctly explains how science was controlled in the Soviet
Union by the CCCP:

The main instrument of party personnel policy in general was the

system of nomenklatura. Nomenklatura was, literally, a list of posts
that could be occupied or vacated only with permission from the ap-
propriate party committee. All party committees, from the Central
Committee to the smallest one in the countryside, established person-
nel departments, whose main function was to approve candidates for
appointment to any post included in their own nomenklatura. Ini-
tially devised for the personnel of party organs and agencies, the sys-
tem was expanded in the early 1930s into the scientific community.
The nomenklatura system was strictly hierarchicalthe higher
the post, the higher the party committee controlling its personnel. The
posts of president, vice-president, and scientific secretary of such cen-
tral institutions as the USSR Academy of Sciences and VASKhNIL
[V.I. Lenin All-Union Academy of Agricultural Sciences] were
in the nomenklatura of the Politburo. The posts of institute direc-
tor and editor-in-chief of a journal were in the nomenklatura of
the Central Committee Secretariat. The position of laboratory head
belonged to the nomenklatura of the regional party committee. Even
the post of librarian in a scientific institute was in the nomenklatura
of the local party committee. . . . Thus, to occupy any administrative
post in a scientific institution, a scientist had to obtain permission

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CSWMD Occasional Paper 11

from the party apparatus. . . . Nomenklatura thus became the main

means of party control over the scientific community.82

While some aspects of the complex relationship between the party-state

and the scientific community changed in the post-Stalin erafor example, some
nomenklatura positions in scientific institutions no longer absolutely demanded
that the candidate be a member of the CPSUin the Brezhnev era the system
largely functioned as Krementsov describes it. This background allows certain
conclusions to be drawn about Ovchinnikovs influence within the USSR-AS
and government.
In 1967, Ovchinnikov was appointed director of the protein chemistry labo-
ratory at the Institute of Chemistry of Natural Compounds. This position most
likely belonged to the nomenklatura of the Moscow regional or city party com-
mittee, one of the most powerful committees in the USSR. Before approving
Ovchinnikov for this position, committee members undoubtedly learned about
him and liked what they saw. A year later, Ovchinnikov was elected as a cor-
responding member of the USSR-AS. His selection was probably more about
academy business than that of the party; nevertheless, such an election would have
been unlikely without approval by Moscow CPSU officials, which would have
given Ovchinnikov more visibility among important politicians. Then, in 1970,
Ovchinnikov was elected full academician of the USSR-AS and honored with
the Lenin Prize.83 This combination of honors could not have happened with-
out the approval of the Politburo. It is reasonable to believe that before being
accorded these honors, Ovchinnikov would have met with Politburo members,
including CPSU General Secretary Leonid Brezhnev. According to one of his
former graduate students, Ovchinnikov impressed Brezhnev with his imagina-
tion and knowledge.84
Because of his prominence in the scientific community, in the early 1970s
Ovchinnikov was chosen as one of only two scientific advisors to the Politburo. He
also served as a scientific advisor to the Military-Industrial Commission (VPK) of
the USSR Council of Ministers.85 He thus was in a favorable position to explain the
importance of modern biotechnology for military and, probably, civilian applications

22
 The Soviet Biological Weapons Program

to Brezhnev and other government officials. Aware of the USSRs inferiority in the
biosciences and fearing that the already wide gap between Western and Soviet ca-
pabilities in this field would grow into a chasm, Ovchinnikov likely concluded that
the only way to quickly gain support from decisionmakers for a program that aimed
to match Western developments was to promote its military benefits. He could do
so by convincingly arguing to civilian and military decisionmakers that the U.S. De-
partment of Defense was likely to apply genetic engineering to create new deadly
pathogens for weapons applications.
According to Vladimir A. Pasechnik, the first defector from the Soviet BW
program, as part of his campaign Ovchinnikov wrote a memorandum to the
CCCP sometime in 1970 or early 1971 on the necessity of applying modern
biotechnology to develop biological weapons. He reportedly used as a model a
memorandum written in 1938 by a physicist addressed to Stalin on the neces-
sity of acquiring nuclear weapons. That memorandum proposed establishing a
large nuclear weapons program to be carried out in secret nuclear cities. While
Pasechnik never read Ovchinnikovs memorandum, his friends in the USSR-AS
recounted to him the essence of its contents. In particular, Ovchinnikov was
said to have stressed the need to solve scientific problems related to BW using
new biotechnology techniques and that doing so was vital to national defense.
In order for the Soviet Union to undertake the program Ovchinnikov proposed,
it would need to make a long-term commitment and back it up with large state
resources, in much the same way that the country supported its World War II
era nuclear program. Pasechnik was certain that Ovchinnikov could not have
written and submitted his memorandum without first having secured strong sup-
port from highly placed academicians, including the President of the USSR-AS,
Mstislav V. Keldysh.86
Ovchinnikov is credited with having said, At the Central Committee of the
Communist Party, if we offer ten drugs nobody would support us. Nobody would
give us money for medicine. But offer one weapon and youll get full support.87
Whether this quote is accurate or apocryphal, there is a near-consensus among
former BW scientists who were interviewed by Leitenberg and Zilinskas that
Ovchinnikov was their big manthe most influential person in garnering the

23
CSWMD Occasional Paper 11

support from the Soviet political and military systems that led to the Soviet gov-
ernments decision sometime during 19691971 to establish a new, very large of-
fensive BW program.
Recently, the current director of the institute that Ovchinnikov once di-
rected, the Shemyakin-Ovchinnikov Institute of Bioorganic Chemistry, was in-
terviewed on the status of his institute and took the opportunity to idolize his
old boss:

It was he who convinced the countrys leadership of the need for serious
work on the problem of our countrys biosecurity and being prepared to
ward off all threatsboth natural and competitive. . . . Ovchinnikov
was a genius at communication, and after he succeeded in convincing
party leaders and government at the time of the need for biosecurity
programs, the machine was put into motion. Three joint Central Com-
mittee of the Communist Party of the Soviet Union and USSR Coun-
cil of Ministers decrees were approved (in 1973, 1981, and 1985),
according to which all the work proceeded. . . . Five institutes of the
USSR Academy of Sciences system, including our institute, as well as
an entire series of institutes, institutions, and enterprises (including
the Ministry of Health, Main Directorate of the Microbiological In-
dustry, Ministry of Agriculture, and others) were chosen as the princi-
pal executors of these decrees. It was a deeply echeloned, well-conceived
effort with strong material and financial support.88

Several scientists interviewed by Leitenberg and Zilinskas said that Ovchin-

nikov was not personally interested in BW-related R&D; to him it was merely
a means to become more politically powerful and to be able to disperse funding
to those he favored in the Soviet scientific establishment. Whatever his ultimate
objective, as a result of Ovchinnikovs influence the Soviet government in 1971
designated biotechnology as a field of critical importance in the civilian sphere, as
well as in the secret military sphere. In the military sphere it enabled the creation
of by far the worlds largest and most sophisticated BW program, which operated

24
 The Soviet Biological Weapons Program

in violation of international law for more than 20 years. However, as the next sec-
tion of this paper makes clear, while Ovchinnikovs influence was vital, it had to be
directed at the MODs General Staff, which was the ultimate arbiter of decisions
related to military forcebuilding involving advanced technologies. And within
the General Staff, the major proponent for BW was Smirnov.

The Geopolitical Context

Decisionmaking in the Soviet era was informed by the continuous analysis

of the USSRs standing in relation to other countries, as well as appraisals of the
most important factors that defined the Soviet Unions status. In the times that are
most relevant to this study, the late 1960s and early 1970s, the term correlation of
forces was frequently used by civilian and military leaders at all levels of govern-
ment, as well as by writers whose books and articles dealt with Soviet internal and
external politics, to describe these assessments. One of the best Western analysts
of the Soviet system, Michael J. Deane, describes the concept as follows:

The calculation of the correlation of forces takes into consideration

numerous economic, military, political, and international factors. In
speaking of the correlation of forces, Soviet spokespersons appear to
differentiate two levels of analysis: (1) the general, worldwide level,
and (2) a level of individual factors and/or regions. Assessment on
the first level is essentially an intuitive process in which the correla-
tion of forces is based upon a feel for world events. With respect to
individual factors or geographic regions, analyses are made more sys-
tematically because of the far fewer elements to be assessed at a given
moment. Therefore, whereas the overall correlation of world forces
may intuitively show the trend of the international situation, a more
specific calculation of individual factors (e.g., economic, military, etc.)
or in a separate geographic region is needed in order to assist in the
formulation of foreign policy actions.89

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CSWMD Occasional Paper 11

From the perspective of the General Staff, the correlation of forces in the
early 1970s heavily favored the United States.90 This period was characterized by
Colonel-General Andrian A. Danilevich, Senior Special Assistant to the Chief
of the MODs Main Operational Directorate and one of the most credible au-
thorities on Soviet military strategy, as a time of struggle for strategic superiority,
where the Soviets continued to lag in key areas such as the quality of missiles,
multiple independently targetable reentry vehicles (MIRV) technology, nuclear
command and control, and naval strategic systems.91 This assessment led to the
launch of a rapid development program for intercontinental ballistic missiles.
It also led to deception efforts as a way to convince U.S. planners that Soviet
capabilities were more advanced than was the case. As an example, successful
deception led senior U.S. officials to become very concerned about the Soviets
presumed superiority in chemical weapons. Harold Brown, U.S. Secretary of De-
fense (19771980), asserted that the Soviet Union was likely to use chemical
weapons. He expected the USSR to employ chemical weapons (CW) even if the
North Atlantic Treaty Organization (NATO) did not and even in the absence of
nuclear exchanges.92 In a similar vein, as Zbigniew Brzezinski, the National Se-
curity Advisor to the President (19771980), stated, the Soviets had significant
chemical weapons capabilities and they used CW in exercises. In a serious war,
they would probably resort to CW, and they might even employ CW in the ab-
sence of nuclear use.93 In reality, the Soviet military appears to have designated
a minor role for chemical weapons in both its tactical and strategic doctrines. As
Danilevich noted:

Chemical weapons were considered to be a secondary means of armed

conflict, since with the advent of nuclear weapons chemical weapons
had lost their significance. Although chemical weapons are a means of
mass destruction, it is incomparable in its consequences with nuclear
weapons. It does not lead to the death of humanity, but it does carry
enormously tragic consequences. But they are limited and localized
in nature. They were developed primarily as a secondary means in
the conduct of armed conflict. Despite the relative unimportance of

26
 The Soviet Biological Weapons Program

chemical weapons, the Soviet Union could not concede to the U.S.
superiority in this field and matched all U.S. means, including deliv-
ery and agents used. We could deliver it by means of aircraft bombs,
and rockets, in sufficient amounts. The arsenals were on the order of
1,000s of tons.94 So we were ready for chemical warfare, but only as
a retaliatory means.95

As the Politburo allowed the General Staff to take the lead in decisionmaking
regarding military systems, its assessment of the correlation of forces vis--vis the
United States would have been of the highest importance in informing a decision
on whether to initiate a new BW program. Likewise, with China, where a period
of turbulent political relations led to a significant buildup of armed forces along
the border and a running series of military skirmishes, culminating in the border
conflict of 1969, the General Staff s assessment also would have been of the high-
est importance. While Soviet forces were far superior qualitatively and included
tactical nuclear systems, Chinas willingness to engage these forces appeared to
reflect, in the words of a 1969 Central Intelligence Agency memorandum, a dis-
tinctly Maoist method of deterrence. By assuming a hard line posture, Peking was
demonstrating to Russia [sic] that despite its pre-occupation with internal prob-
lems it was determined to resist Soviet pressures and to defend Chinas territorial
rights, while at the same time calling world attention to the Soviet threat.96
A second memorandum in 1970 suggested how Moscow might react to Chi-
nas hardline stance:

Soviet protests over the continuing border clashes contained hints of

military action against China; and prominent Soviet leaders, such
as party chief Brezhnev and Foreign Minister Gromyko, publicly
attacked Mao and his regime. By late summer, Soviet pressure took
a more ominous turn. Soviet officials began soliciting reactions to the
possibility of Sino-Soviet hostilities, including a Soviet pre-emptive
strike against Chinas atomic installations.97

27
CSWMD Occasional Paper 11

The significance of these developments is that the Soviets were consider-

ing more severe military measures against China and informing the world of
this possibility. In April 1970, two high Soviet officials, including Kosygins son-
in-law, told Americans that in their opinion eventually it would be necessary
for the USSR to destroy Chinas nuclear arsenal, even if it meant using nuclear
weapons.98 In June, an Izvestiya editor asked an unnamed U.S. official what the
American response would be to a Soviet attack on China.99 It is probable that
when these threats reached the Chinese leaders, it led them to ratchet down their
border provocations and agree to bilateral talks in September 1970. After the So-
viet Union dissolved, more was learned about the General Staff s thinking during
the border conflicts with China in the 1960s. As Danilevich observed:

The Soviet MOD was forced to create groupings of forces in the Far
East. In the late 1960s and early 1970s the only area that demanded
significant force buildup was along the Chinese border. China rep-
resented a major diversion of resources and attention. For every one
General Staff exercise carried out in the West, three were done in the
Far East.100

It must have been difficult for the Soviets to assess the correlation of forc-
es vis--vis China in this period. It was obvious that the USSR was superior at
the strategic level, given the disparities in the two sides nuclear capabilities, and
in terms of the quality of conventional forces. Nevertheless, a large number of
Chinas huge population could be deployed by Mao along the 4,300-kilometer
Sino-Soviet border. This possibility was made vividly clear in the summer of 1966
when an estimated 2 million Chinese converged along the length of the border to
demonstrate support of Chinese territorial claims. If a border war was imminent,
it would force the Soviets to deploy large numbers of troops to protect against
possible intrusions at many sites that could occur at any time. In this kind of situ-
ation, the use of nuclear weapons might not be an efficient solution and also ran
significant political risks. This uneasy situation would not abate, from the General
Staff vantage point, until the late 1970s when it felt increasingly confident that the

28
 The Soviet Biological Weapons Program

correlation of forces indeed favored the Soviet Union for several reasons, includ-
ing Chinas limited military-industrial capacity and infrastructure to support the
projection of power toward the USSR. Moreover, the Chinese did not appear to
have any intention to attack the Soviet Far East.101

Soviet Distrust of Nixons 1969 Executive Order

An important factor shaping Soviet decisionmaking was distrust of the U.S.

decision in November 1969 to terminate its offensive BW program. Nixons ex-
ecutive order to this end was implemented during 19701972 and the disposal
operation that rid the United States of all its BW agents and munitions was wit-
nessed by members of the U.S. and foreign press. However, the Soviets were to all
appearances not impressed. In August 1972, a team of four Soviet officials led by
Minister of Health Boris Petrovsky visited former U.S. BW facilities that were in
the process of being converted to National Cancer Institute laboratories. As Science
reporter Nicholas Wade noted at a press conference held after the visit, Petrovsky
complained about the superficiality of his visit. Wade further observed:

The Russian party saw the building much as the Army had left it, as
the conversion to cancer research had hardly begun. But if the Rus-
sians were impressed by the significance of the switch [conversion],
they failed to show it. Maybe they suspect that offensive biological
warfare research still continues.102

When Leitenberg and Zilinskas were interviewing former Soviet scientists

who had worked in secret BW laboratories, they learned that all of them had to
attend Committee for State Security of the Soviet Union (KGB) briefings during
which they were told that the United States was conducting offensive BW R&D
and therefore the Soviet Union had to do the same. Although some found these
briefings to be tendentious and a crude appeal to patriotic duty, military scientists
or military planners might have believed what they heard. Their sources of infor-
mation typically would be TASS (the Telegraph Agency of the Soviet Union),
Pravda, Izvestiya, and technical journals published by government print shops,

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CSWMD Occasional Paper 11

while classified information was provided to them by the KGB and the Main
Intelligence Directorate (GRU). Undoubtedly, highly placed KGB and GRU
directors would have had access to raw intelligence and therefore would know
that the United States had divested itself of the offensive BW program, but this
data would not necessarily have been passed to lower ranked soldiers and civilian
decisionmakers. There are many known examples of the GRU providing vastly
exaggerated figures on U.S. military capabilities to the General Staff, which in
turn would so inform members of the Politburo and thereby secure funding for ar-
mament projects favored by the military-industrial complex and their supporting
generals.103 Lacking information to the contrary, it would be difficult or impos-
sible for Soviet decisionmakers to dispute assessments that indicated a continuing
U.S. BW program. The scenario used then, as now under the Putin administration,
is that U.S. Government laboratories and facilities where BW R&D was conduct-
ed were indeed closed or converted, but that subsequently, BW-related projects
whose intent violated the Biological Weapons Convention (BWC) cleverly were
assigned to academic institutions and biotechnological and chemical industries.

The Military-Technical Rationale and the Decisionmaking Apparatus

As indicated in the figure, the structure that supported force-building de-

cisions as it existed during the 1970s integrated policy input from a variety of
sources in the military-industrial and scientific complex.104 We understand the
broad output of this process concerning the large, sophisticated BW program ini-
tiated sometime during 19691971, but there are many gaps in our knowledge
of specific decisionmaking in the biological field, especially when compared to
what is known about other top secret programs such as the nuclear, chemical, and
missile programs. For example, the study done by Hines et al. is based largely on
information on strategic planning and intentions provided by former high-level
Soviet planners and analysts. The interviews that generated this information took
place during 19901993. The authors estimate is that approximately 90 percent of
this information deals directly or indirectly with nuclear weapons and their means
of delivery. The remainder addresses chemical and conventional weapons and their
means of delivery. The words biology or biological are not found anywhere in

30
 The Soviet Biological Weapons Program

Defense Communist Party

Industrial Central Committee
Department
Politburo
Defense
Policy Determination
put

Council
y In
c

Central Defense
Poli

Policy-Making Body

Po
t

ut
pu

li
Inp
In

cy
icy

Inp
licy

Policy
l
Po

ut
Po
Center for
Policy Coordination Operational-Strategic

In
Research

put
Council of
VPK
Ministers TsOSI
Military-Industrial
Commission

9 Defense Industrial Ministries Academy

of Sciences
General
Staff
MOM
Policy Ministry of Defense
Ministry of General Machine Implementation
Building (Strategic Missiles)

NIIs, OKBs, NPOs NIIs

TsNIIMash
Strat. missile TsNII-4
SRF support
production support

NII-6
GRU support

MoD, General Staff Directorates and services

Massive substructure for each Ministry all had several NIIs. Well over 40 total.

Research, Design, and Production

Key:
NII - Scientific Research Institute (large basic R&D and analytical organization)
NPO - Scientific Production Conglomerate (very large enterprises - 10,00045,000 pers.)
OKB - Experimental Design Bureau (generator of specific line of weapons associated with specific Chief Designer)

the two volumes containing the results of the study. This is the case despite the
fact that Vladimir Pasechnik, the first defector from the Soviet BW program,
defected in March 1989 and had undergone extensive debriefings by British and
American intelligence officialsa fact that must have been known by some of the
individuals interviewed by Hines et al. (although perhaps not by the interviewers).
Furthermore, an encompassing book by Andrei A. Kokoshin, one of Russias best

31
CSWMD Occasional Paper 11

known analysts of Soviet military strategy and thinking, makes no mention of

anything biological.105
The main reason for this was that all classified programs in the Soviet Union
were compartmentalized to an extreme degree, which makes it highly likely that,
even within the General Staff from 19691971, only a few individuals knew any-
thing about the first-generation BW program, or that its upgrade and expansion
were being considered. The BW program had a higher classification level than even
the nuclear program because it was about to be deemed illegal under international
law, which was not the case with other WMD systems. By signing the Biological
and Toxin Weapons Convention in April 1972,106 the Soviets committed to the
global ban on biological and toxin weapons, even though they were already violating
its most important provisions. For this reason, the Soviet BW program could not be
acknowledged in any way. After the second-generation BW program was instituted,
those requiring access to it were accorded F clearance, which was somewhat akin to
the U.S. Sensitive Compartmented Information clearance. From 19691971, very
few civilian officials and military officers were accorded F clearance.
Furthermore, none of the defense industrial ministries was involved in mod-
ern biotechnology; nor were any of the scientific research institutes and scientific
production conglomerates. It is reasonable to conclude that the relatively modest
cadre dedicated to maintaining the BW program had little influence among those
shaping high-level policy decisions on military forcebuilding. It was not until
Ovchinnikov decided, for reasons described above, to apply his considerable influ-
ence to the task, and was able to convince Smirnov of its worth, that the enhanced
BW program became reality.
In turn, as the program was based on newly discovered biotechnologies that were
largely unknown to the organizations typically involved in force-building decisions,
many of them were excluded from the policy determination. This would be true even
of key organizations such as the Defense Industry Department of the Communist
Party and the Military-Industrial Commission, though the latter came to assume
important responsibilities for advancing the second-generation BW program once it
was established, so much so that Leitenberg and Zilinskas conclude that its role was
crucial to the existence and maintenance of the Soviet BW program.107

32
 The Soviet Biological Weapons Program

The Politburo, of course, was the supreme decisionmaking body of the Soviet
state. But as Hines et al. report, the Politburo tended to give little attention to
military-technical matters. Danilevich told Hines:

Brezhnev showed very little interest in the military area and was
very weak in the area of military decision-making. In exercises he
would become very nervous and agitated even thinking about nu-
clear weapons and would physically tremble when required to make
an exercise decision with respect to their use. Because of his aversion
to thinking about military questions, he ceded control over military
decisions to the Minister of Defense. He also gave carte blanche to the
Minister of Defense in terms of defining force requirements. Mar-
shal Grechko, the Minister of Defense until 1976, focused on plan-
ning strategic force deployments.108

These observations were seconded by Dr. Vitaly Nikolayevich Tsygichko, a

senior analyst at the All-Union Scientific-Technical Institute for Systems Studies,
USSR-AS:

[In] the Brezhnev era the Politburo delegated all military matters
to the Ministry of Defense to include all force procurement decisions.
Threat definition was also a military function carried out within the
General Staff by the Main Political Directorate. There was essentially
no political oversight over the force-building process and no serious
challenge from the Politburo to what was clearly a decision situation
in which there were serious conflicts of interest. This hands-off
attitude of the Brezhnev Politburo and the mindless nuclear force-
building that resulted was strongly confirmed by General-Colonel
Danilevich. . . . Brezhnev and the Politburo left military doctrine to
the professionals and gave the military great reign in determining
resource allocation and threat definition.109

33
CSWMD Occasional Paper 11

It seems reasonable to conclude from these observations that a decision on

genetic engineering and its possible applications for warfare was not made directly
by the Politburo but was delegated to the Soviet MOD and, within it, to the Gen-
eral Staff. As there were important civilian considerations concerning the priority
to be accorded modern biotechnology in light of its potential benefits for agricul-
ture, pharmaceuticals, and public health, it is likely that the USSR-AS had power-
ful influence on Brezhnev and probably other Politburo members. One of Hines
et al.s findings was that personalities were as important, if not more important,
than institutional or bureaucratic competition in determining Soviet military and
force-building policy and clearly played a more immediate and decisive role than
did expert analysis.110
If this was the situation in military forcebuilding, it would have been similar in
what one might call civilian forcebuilding that focused on a powerful technology
that could have significant positive effects on the Soviet economy. As noted earlier,
Ovchinnikov had substantial influence on Brezhnev and, quite likely, the Politburo
as a whole, and this would have led to the there is an opinion phenomenon. That
is, once Brezhnev made known that he was in favor of a course of action as spelled
out in an edict, officials serving in agencies that would be implementing that edict
would understand that there is an opinion and, accordingly, do what was necessary
to realize the edicts objectives without questioning it. In this case, once Brezhnev
had recognized the importance of modern biotechnology for Russia and made this
known, two edicts were drawn up. The first was issued in 1971 and was top secret.
It ordered that high priority be given to developing modern biotechnology in the
military sphere and that the Biopreparat be established.111 The direction of military
forcebuilding was to be decided by the military. The second edict, issued in 1974,
was On the Measures for Accelerating the Development of Physical-Chemical
Biology and Biotechnology and the Use of Their Achievements in Medicine, Agri-
culture, and Industry, which in effect established a complex program for applying
biotechnology throughout the USSRs civilian sphere.
The General Staff was engaged in biological warfare issues through its 7th Di-
rectorate, headed since 1954 by Y.I. Smirnov, certainly the most important military
decisionmaker in the Soviet BW program.112 He directed the BW program until

34
 The Soviet Biological Weapons Program

1972, as well as its successor, the 15th Directorate, until his retirement in 1985.
Smirnov was one of the principal, and perhaps the most important, of the MODs
BW ideologists, and is also believed to have been the main strategist of biological
weapons applications. The Biopreparat scientist Domaradskij called him the ideo-
logue par excellence of Soviet bioweapons research from the 1950s to the 1980s
and our apologist for biological warfare.113
With respect to advancing the BW program to leverage new scientific develop-
ments, Smirnov had two concerns. First, as Domaradskij describes, in the late 1960s
he had to confront the faction in the MOD that believed the BW program to be
ineffective because it was not solving problems. These officials also believed there
was no need for biological weapons in view of the Soviets growing strength in the
nuclear area. This view might have been strengthened by the U.S. decision in 1969
to close down its offensive BW program because BW lacked military usefulness.114
Smirnovs second concern centered on advances in biotechnology and their
possible application by the United States for military purposes as hypothesized by
Ovchinnikov. This concern was, oddly enough, first publicly aired by two retired
Soviet generals in a 1977 article published in the Bulletin of the Atomic Scientists,
although its underlying meaning probably was not understood by American read-
ers. The authors noted that R&D in the area of genetic weapons had been going
on for a long time in the United States.115 The authors provided two specific
examples. First, by 1962, the U.S. Department of Defense (DOD) allegedly had
confirmed that it was sponsoring research whose solution would permit discovery
of a mechanism which determines the fundamental changes of bacterial cells.
Second, in the 1960s, DOD supported a 5-year plan that was said to have ob-
tained practical results in transforming a microorganism that gives rise to plague
so as to obtain a new strain of this pathogen that was resistant to antibiotics and
does not require a complex nutrient medium for growth.116 The authors said that
they had obtained this information from U.S. Department of Defense Appropria-
tions documents from 1963 and 1970, respectively.117
Even earlier than the 1977 article, in 1970 a journal for command-level mili-
tary personnel published by the U.S. Army Command and General Staff College
featured as its lead article Ethnic Weapons, which outlined the history, desirability,

35
CSWMD Occasional Paper 11

and possibilities of engineered biological pathogens that would affect only those rac-
es which historically have no natural defense against certain enzyme inhibitors.118
Its author, a medical doctor, explains that many of the chemical activities and func-
tions within the human body are caused by the interactions of enzymes. One of the
more significant activities enabled by enzyme chemical reactions is the contraction
and relaxation of muscle tissue. If the activities of these enzymes are blocked, the
victim will be paralyzed, even to the point of death by asphyxiation.
Undoubtedly, the two articles had been passed to Smirnov and, given his
medical background and, presumably, Ovchinnikovs expert explanation of genetic
engineerings revolutionary applications, he would have understood their implica-
tions for biological weaponry. As is made clear by the interviews conducted by
Hines et al., the Soviet military was keen on learning about and acquiring new
American technologies. This attitude was rooted in an enduring belief in Ameri-
can technological and scientific omnipotence. In addition, the military is likely
to have been affected by a type of mirror imaging; were a similar publication to
appear in the USSR, it almost always would signal official approval of the idea or
development that is being described.119
Being an advocate for retaining and, likely, expanding the Soviet BW program,
Smirnov probably acted to exploit this development. He would have sought to make
clear that while the U.S. Government had publicized closing its offensive BW pro-
gram in 1969, in reality it had lied and simply transferred the program from the
Defense Department to private companies and university laboratories charged with
developing new biological weapon agents.120 As noted earlier, the GRU would have
been helpful in this regard given its practice of routinely exaggerating U.S. threats to
the USSR. Confronted with intelligence that the United States was applying revo-
lutionary advances in biotechnology to produce powerful new weaponsinforma-
tion that, however false, would be difficult to disputesenior General Staff officers
who were against continuing the BW program could more easily be persuaded to
change their views.
It is possible that Brezhnev may have welcomed the Ovchinnikov and
Smirnov initiative to apply genetic engineering in an expanded and improved
BW program for internal political reasons in light of improving relations with the

36
 The Soviet Biological Weapons Program

United States. Since 1969, Moscow and Washington had been working toward
the dtente that after the Nixon-Brezhnev summit of May 1972 came to charac-
terize a period of reduced tensions and greater cooperation. In response to internal
opposition to dtente, Brezhnev is quoted as telling a 1971 Politburo meeting,
We communists have to string along with the capitalists for a while. We need
their credits, their agriculture, and their technology. But we are going to continue
massive military programs and by the middle of the 1980s will be in a position to
return to a much more aggressive foreign policy designed to gain the upper hand
in our relations with the West.121
The newly empowered BW program would have fit well into this strategy as
a major military program that would employ their technology and thus serve as
a concrete demonstration of Brezhnevs commitment to gain military superiority
over the West. It was also realistic to foresee demonstrable military gains from the
new BW program by the middle of the 1980s. Such thinking would have been
consistent with the broader and highly urgent imperative in Soviet military plan-
ning to keep pace with and respond to American advances in military technology.
This issue comes up repeatedly in the Hines et al. volumes. Interviewees peppered
their comments with statements such as the following:

Qualitative technological advances and R&D efforts were largely condi-

tioned by competition with the U.S. and, in the eyes of the Soviets, were reactive
and imitative in most instances.122

The Soviet military leadership was particularly intent on responding to

technological advances in U.S. weaponry.123

The military wanted a mix and quantity of weapons that supported the
General Staff s operational strategy, weapons that embodied the most advanced
technologies with which to counter a technologically advanced Western enemy.124

There is evidence that [in the early 1960s] the VPK and the Central
Committees Defense Department as a matter of policy stressed the need of
the Soviet Union copying of foreign technologies and systems, rather than sup-
porting domestic R&D. Almost all sources stated that during the period in

37
CSWMD Occasional Paper 11

question, new systems were developed primarily in reaction to developments in

the U.S.125

The Soviets followed the U.S. lead in many technological areas, including
MIRVs, missile accuracy, early warning systems and command and control, neu-
tron weapons, low frequency, enhanced EMP [electromagnetic pulse], and other
exotic weapons [emphasis added].126

Thus the Soviet military seemed predisposed to acquire and adapt for its
own purposes almost any new Western technology. This propensity would have
been even stronger concerning modern biotechnology because of a convergence
of several factors: possibly the brightest Soviet bioscientists had made clear that
genetic engineering could be used to develop new, powerful pathogens for military
purposes; a top general highly regarded for his knowledge of military medicine
favored instituting a second-generation BW program; articles published in the
West by eminent authors strongly indicated that the United States was pursuing
bioweapons R&D, something GRU intelligence served to confirm; and senior
leaders were probably hearing about the huge potential of genetic engineering
from prominent scientists and academicians. It was in this context that the Gen-
eral Staff decided to eliminate the 7th Directorate, which was in charge of the
first-generation BW program, and establish the 15th Directorate for the purpose
of directing the new second-generation BW program. Of course, the MOD has
never announced or published its reasons for making this change, but it could
reflect the fact, as noted above, that the first-generation BW program had by the
end of the 1960s stagnated and become unproductive. Perhaps it was viewed as
necessary to create a new organization in order to underscore the importance of
and give greater impetus to the new BW program.
There probably were discussions in the General Staff on how biological weap-
ons might be useful in the Soviet force structure. If a strong argument could be
made that acquiring and deploying advanced biological weapons would substan-
tially strengthen the Soviet military, it would be easier to convince doubters, if
any, to go along with establishing the second-generation BW program. When
interviewing former Soviet BW scientists, Leitenberg and Zilinskas always posed

38
 The Soviet Biological Weapons Program

questions on how biological weapons were to be used. As noted above, none of the
interviewees possessed the high clearance level required to have had access to the
information needed to provide concrete answers. Nevertheless, they had opinions
based on information and ideas they received from military colleagues that al-
lowed them to provide educated conjectures.127 According to these scientists, the
General Staff conceived of five types of war:

an instantaneous, full-scale nuclear war in which strategic nuclear forces

play the principal role

a protracted nuclear war involving all the armed forces

a major war in one or several theaters of military operations involving the

restricted use of nuclear weapons

a major conventional war

a local war involving conventional weapons.128

Any of these would be characterized by three levels of military operations

tactical, operational, and strategic, although these could overlap. Tactical refers to
engagements between small units at the local level. Operational refers to the en-
emys rear areas containing vital facilities such as harbors, airports, supply depots,
and assembly areas. Strategic refers to wide-ranging military actions designed to
win wars. Since the Soviets did not develop tactical biological weapons, only bio-
logical weapons designed to be used at the operational and strategic levels need to
be considered. It is not obvious what a protocol for the use of biological weapons
in any of the five types of war would look like or at which level of warfare they
would be used and under what circumstances. However, some ideas can be devel-
oped using the correlation-of-forces discussions presented above, especially those
that focused on the United States and China.
The General Staff s greatest concern was war with the United States. During
the years that are of most direct interest to this paper, 19691971, the prevail-
ing view was that if a war were to break out, it would be of the worst kindan
instantaneous, full-scale nuclear war that would feature massive exchanges of

39
CSWMD Occasional Paper 11

intercontinental missiles, as well as intermediate-range missile exchanges be-

tween NATO countries and the Soviet Union. The correlation-of-forces analysis
pointing to U.S. strategic superiority suggested that after such a conflict, the
Soviet Union would be in far worse condition than the United States in terms of
military and economic power, public health, and other measures. If, however, the
Soviet Union could effectively deliver deadly and contagious pathogens over a
few population centers in North America, it possessed at least a theoretical capa-
bility to initiate a pandemic that would kill or seriously sicken a large proportion
of Americans who had survived the nuclear holocaust.
Two pathogens that the first-generation BW program had already weapon-
ized and that would be appropriate for this purpose were the variola virus (which
causes smallpox) and Y. pestis (which causes pneumonic plague). In nature, small-
pox has a fatality rate of about 30 percent and pneumonic plague of about 80
percent if untreated. However, there was at the time an effective vaccine against
smallpox, and Y. pestis is susceptible to antibiotics and, unless protected, its cells
die soon after they are released into the open air. To sell a second-generation
BW program to generals, scientists like Ovchinnikov could propose to develop
variola virus strains that were more deadly than the viral strains found in nature
by inserting genes taken from hemorrhagic fever virus and, similarly, to insert
genes into Y. pestis cells that make the bacterium resistant to common antibiotics.
These are only examples of what actually was done by the second-generation BW
program to enhance the infective, virulence, and hardiness properties of bacteria
and viruses.129
In the second type of war, a protracted nuclear war, Warsaw Pact and NATO
forces likely would be involved, supporting a similar argument for BW use. That
is, biological weapons would be used against survivors of nuclear exchanges. As
the Soviet BW program also developed biological weapons to sicken animals and
plants, these weapons could also be employed were the war expected to continue
for a protracted period. The dispersal, for example, of foot-and-mouth disease or
African swine fever virus would cause horrendous damage to surviving American
and European livestock, while there are several bacterial and fungal pathogens
that could be used to destroy barley, maize, rice, rye, wheat, and other crops. It

40
 The Soviet Biological Weapons Program

bears noting that all NATO countries would have been poorly prepared to de-
fend themselves against an onslaught of weapons bearing these pathogens, even if
nuclear weapons had not been used.
Were the third type of war to occurone involving several theaters of mili-
tary operations but restricted use of nuclear weaponsthere would be very good
reasons for the Soviet Union to use both chemical weapons for tactical purposes
and biological weapons at the operational level. Lethal biological weapons likely
would be employed against military strongholds away from urban areas and con-
taining few civilians, so as to reduce the risks of nuclear escalation. Alternatively,
incapacitating weapons would be used, for example, to sicken defenders of air-
fields, ports, storage depots, and the like without killing civilians in nearby urban
areas and leaving facilities and stores intact so that they would be of immediate
use to advancing Soviet forces.
When Leitenberg and Zilinskas asked Soviet weapons scientists about their
views on how biological weapons were to be used, a significant proportion of them
answered that China would be the target. In their view, Chinas huge population
advantage would have necessitated the use not only of nuclear weapons, but also
biological weapons.130 Since no ocean separates the two countries, it would be im-
perative to avoid the use of contagious pathogens, such as variola viruses, which
could spread easily to countries bordering China. While the Soviet population was
almost completely protected by vaccination against smallpox, the vaccination rate
was much lower in Afghanistan, Burma, Nepal, Pakistan, and other nearby coun-
tries (the rate for China was not known). Instead of a contagious pathogen, it
would make more sense to employ a noncontagious agent, such as Marburg virus,
which is highly virulent with a morality rate of over 80 percent and for which there
is no vaccine or effective treatment. The second-generation BW program, in fact,
weaponized the Marburg virus and developed a method for its mass production.
In wars of the fourth and fifth types, involving only conventional weapons,
biological weapons probably would not have been used. This supposition is not
certain though. For example, a conventional war with China that went poorly for
the Soviets could lead them to use nuclear and/or biological weapons to restore
their position and gain the upper hand. A similar scenario could also occur in the

41
CSWMD Occasional Paper 11

context of a conventional war with NATO. Soviet military thinking along these
lines likely will not be known with any fidelity until MOD archives are opened
to scholars, which is not likely to occur while Putin and leaders like him remain
in power.
To summarize the foregoing discussion, one can see the military and techno-
logical arguments underpinning a final judgment supporting the establishment of
a second-generation BW program: that by possessing powerful biological weap-
ons that no other country, especially its major potential adversaries, were aware of
and therefore could not defend against, the Soviet Union would gain strategic and
operational superiority and thus shift the correlation of forces in its favor. Cru-
cial to this was the ability to inflict a major technological surprise on the United
States in nuclear war scenarios, providing the Soviet Union with an advantage in
postwar recovery. An additional consideration could have been that the appropri-
ate biological weapon might have been capable of decimating Chinas population.

Whats Past Is Prologue

Understanding the Decision

While the precise deliberations of the Politburo are unknown, it is well known
by now that in the end the Politburo decided to expand and update its biotechnol-
ogy programs in the military sphere, utilizing modern biotechnology techniques,
in particular genetic engineering, to create unique strains of bacteria and viruses
for weapons purposes. A careful reading of available sources indicates six factors
underpinning this decision:
1. The Soviet Unions first-generation BW program, dating to 1928, provided
the necessary foundation for advocating and institutionalizing the second-gener-
ation BW program. Even if this program was viewed by some military leaders as
ineffective, it served as an institutional-bureaucratic base from which champions
of adopting genetic engineering could make their case for instituting an enhanced
BW program.
2. The large civilian biotechnology industry that used classical applied micro-
biology techniques to produce pharmaceuticals, dietary supplements, and single-

42
 The Soviet Biological Weapons Program

cell proteins was well-placed to provide a legendor legitimate industrial cov-

erfor a new entity called Biopreparat that ostensibly was a civilian institution
but that in fact reported to the 15th Directorate and whose role was to direct the
very large civilian component of the second-generation BW program that secretly
conducted both offensive and defensive BW R&D.
3. Influential bioscientists in the USSR Academy of Sciences convinced
members of the Politburo, including Brezhnev, of the need to import new biotech-
nology techniques for the purpose of using them to research and develop unique
pathogenic bacterial and viral strains that could be used as weapons. This was
necessary, they claimed, to respond to similar U.S. efforts. While the bioscientists
were not particularly interested in biological weapons, they knew that playing the
military card was the best tactic to gain Politburo agreement for the large invest-
ment required. As biotechnology is dual-use, once the decision was made by the
military to acquire modern biotechnology, it inevitably was broadcast to civilian
R&D institutes whose scientists were conducting unclassified investigations. The
1974 edict noted above made that possible.
4. The Soviet military was predisposed to acquire new military technologies
whenever they were developed in the West and in the Brezhnev era was given
ample funding to acquire infrastructure and human capital to exploit them. There
probably was no opposition within the General Staff or VPK to the possibility of
gaining new, unique weapons via modern biotechnology.
5. The General Staff s military analysis of the correlation of forces reinforced
the rationale to acquire the capability to produce modern biological weapons.
Such weapons were seen as a potentially decisive factor in the types of nuclear and
conventional wars against the United States and China envisioned by the General
Staff at that time.
6. There was a high probability that the program could be kept secret. Con-
cealing and denying the program enhanced the prospects of technology surprise
directed at adversaries, but also meant foregoing the deterrence value of openly
possessing biological weapons. The latter, however, was not an option after Mos-
cow signed the BWC. Successfully keeping its BW program secret allowed Mos-
cow to appear to be in compliance with the treaty. In fact, it was not until 1989,

43
CSWMD Occasional Paper 11

and more so in 1992, when the Soviet BW program was revealed to the world,
that the treatys weaknesses with respect to verification, investigation of alleged
violations, and sanctioning of violators were widely understood.

The Legacy of the Soviet Biological Warfare Program in Russia Today

In 1992, Russias President Boris Yeltsin admitted that the USSR had op-
erated an offensive bioweapons program in violation of the BWC.131 He then
attempted to close the program but was undermined by the MOD, which kept
its biological research institutes operating and their work programs secret. In Sep-
tember of 1992, Russia, the United States, and the United Kingdom signed a
trilateral statement by which Russia pledged to allow its Western counterparts
access to these bioweapons facilities. But Moscow failed to deliver on this promise,
so the military biological institutes remain as secret today as they were in Soviet
times. Further, Yeltsins 1992 admission was reversed by Vladimir Putin after he
became acting president in 1999, and Russias official position since then is that
the USSR never had an offensive bioweapons program and had only conducted
defensive research as permitted by the BWC.
We cannot know whether new biological techniques, based on genetic manip-
ulation developed since the Soviet BW program supposedly closed in 19921993,
have been applied by scientists working in the three top-secret MOD biological
institutes to create new or improved weaponized strains of bacteria and viruses. In
particular, these techniques could be applied by weapons scientists to develop sub-
stances that interfere with genes that control behavior or immunological defense
systems. Work to this end was at an advanced stage of development at the time of
the Soviet Unions dissolution in December 1991 and could have been continued
even during Yeltsins administration, which ended in 1999.
In February 2012, the Moscow newspaper Rossiiskaya Gazeta published a
long essay authored by thenPrime Minister Vladimir Putin titled A Smart De-
fense against New Threats that included the following passage:

What is the future preparing for us? . . . In the more distant future,
weapon systems based on new principles (beam, geophysical, wave,

44
 The Soviet Biological Weapons Program

genetic, psychophysical and other technology) will be developed. All

this will, in addition to nuclear weapons, provide entirely new in-
struments for achieving political and strategic goals. Such high-tech
weapon systems will be comparable in effect to nuclear weapons but
will be more acceptable in terms of political and military ideology.132

After Putin was elected president for the second time in March 2012, he
chaired a meeting attended by a select group of his ministers. During this obvi-
ously staged event, the ministers took turns explaining what their organizations
would do to implement 28 tasks that Putin had stated in the February Rossiiskaya
Gazeta article. ThenMinister of Defense Anatoly Serdyukov stated, Mr. Putin,
we have thoroughly studied your article and prepared a plan for implementing the
tasks set there for the Defense Ministry.133 In particular, Serdyukov promised to
implement Task 4to create weapons systems that use different physical prin-
ciples.134 It bears noting that the official Web site of the Russian MOD has an
encyclopedia that defines genetic weapons as:

a type of weapon able to damage the genetic (hereditary) apparatus

of people. It is assumed/expected that some viruses can/may serve
as the active principle. These viruses are in possession of mutagenic
activity (with the capability to cause hereditary changes) and can
introduce into a chromosome cells that contain deoxyribonucleic acid
(DNA) and even chemical mutations, taken from natural sources by
chemical synthesis or biotechnological methods. The primary result of
the use of genetic weapons is damage/injury and changes to basic/
primary structure of DNA, which can lead to serious diseases and
their hereditary transmission.135

In the days directly following Serdyukovs remarks, comments on them ap-

peared on Russian Web sites and in mass media. Some supported the implemen-
tation of Task 4 on the grounds that such weapons were being developed by the
United States, as they claimed, and that Russia therefore had to do the same.

45
CSWMD Occasional Paper 11

Table 2. Soviet Second-Generation Biological Warfare Agents

Bacteria Disease caused by
Bacillus anthracis Inhalation anthrax
Brucella melitensis (Brucella suis?) Brucellosis (undulant fever)
Burkholderia mallei Glanders
Burkholderia pseudomallei Melioidosis
Coxiella burnetii Q fever
Francisella tularensis Tularemia
Legionella pneumophila Legionnaires disease
Yersinia pestis Pneumonic plague

Virus
African swine fever virus African swine fever (panzootic)
Capripoxvirus Goatpox, sheeppox (panzootic)
Foot-and-mouth disease virus Foot-and-mouth disease (panzootic)
Marburg virus Marburg virus disease
Rinderpest virus Rinderpest (panzootic)
Variola major Smallpox
Venezuelan equine encephalomyelitis Encephalitis
virus
Source: Milton Leitenberg and Raymond A. Zilinskas, The Soviet Biological Weapons Program: A History
(Cambridge, MA: Harvard University Press, 2012), 79250.

Foreign reactions differed. For example, articles written by David Hoffman in

Foreign Policy and Raymond Zilinskas in Nature Medicine made clear that it is
difficult to conceive of a weapon based on genetic principles that would not be
a violation of the BWCs core provisions.136, 137
There is great cause for concern that well-resourced secret Russian institutes
with access to modern microbiology techniques will provide the basis for the Pu-
tin administration to establish a third-generation BW programfor two spe-
cific reasons. First, cultures of pathogens that were weaponized by the first- and
second-generation BW programs presumably are stored in the cell culture collec-
tions of secret MOD facilities. These would include genetically engineered strains
whose infective and virulence properties have been enhanced to make them more

46
 The Soviet Biological Weapons Program

suited for use as weapons than strains recovered from nature (see table 2 for a list-
ing of pathogens weaponized by the second-generation BW program).
Second, it is reasonable to assume that recipes generated by the second-gen-
eration BW program that specify how to develop, test, and produce biological
weapons are deposited in government archives.138 These recipes could be adapted
to develop payloads consisting of third-generation weaponized pathogens. It is
also reasonable to assume that the enhancement of existing second-generation
weaponized pathogens through the application of modern genetic techniques is
easier than starting from scratch with a nonweaponized microorganism.
At this time, there are no signs that Russia intends to scale back the biological
institutes that once directed the Soviet bioweapons program or to destroy related
culture collections. In this light, Putins 2012 statement is ominous. Having been
forewarned, it is imperative that the United States and other Biological Weapons
Convention state parties try to impress upon the Putin government the need to
practice transparency by opening its closed bioweapons institutes to outside ac-
cess, and to acknowledge the illegal Soviet BW program of the past by revealing
its accomplishmentsincluding weaponized pathogensand then taking the
necessary steps to publicly destroy them and the associated recipes. Unfortunately,
given its past behavior on bioweapons-related issues, the Russian government is
unlikely to take any of these steps. Still, by applying this kind of political pressure,
it may be less likely that a third-generation BW program will be realized.

47
CSWMD Occasional Paper 11

Appendix. Biography of Colonel-General Yefim Ivanovich

Smirnov
Yefim Ivanovich Smirnov139 was born in 1904 and died in 1989. In 1932 he
graduated from the Military Medical Academy in Leningrad, and in 1938 from
the Frunze Military Political Academy. From 1932 to 1937 he worked as a mili-
tary doctor. During 19381939 he headed the medical service of the Leningrad
military district, and from 1939 to 1946 he worked in the military service of the
Red Army as head of the Main Military-Medical Directorate on Questions of
Organization and Tactics of the Military Service. Thanks to the work of this Di-
rectorate, many thousands of lives were saved during World War II and millions
were returned to duty.140 For his important work, he was the only physician in the
history of Soviet military medicine to be awarded a generals medal (the Kutuzov
Order) for organizing the evacuation of the entire army of wounded from Kharkov
City before it was captured by German troops. The uniqueness of this operation
lay in the fact that it was accomplished by using empty railroad cars and motor
transport returning from the front under almost continuous bombing. When the
question of withdrawing troops from Kharkov was discussed at the Supreme High
Command headquarters, it was informed that approximately 100,000 wounded
soldiers were lodged in the city. The Command called Smirnov, who reported that
all the wounded could be evacuated in empty returning vehicles. After this was
successfully accomplished, Stalin suggested that Smirnov be awarded the generals
medal because Indeed, he saved an entire army. Stalin ended the meeting at the
headquarters by saying that, in his opinion, Smirnov should also receive a Lenin
Order for his level-headed initiative. Naturally, there were no objections.
After World War II, on February 17, 1947, Stalin appointed Smirnov Min-
ister of Health. Fortunately, fate proved kind to him during the period of repres-
sions that swept the country in the mid- to late 1940s. Later, it became known
that Beria asked Stalin several times for permission to arrest Smirnov after he had
been removed from the post of Minister of Health in connection with the affair of
the doctors-poisoners in the Kremlin. Stalin ordered Beria to leave Smirnov alone
and not to approach him regarding this matter again.

48
 The Soviet Biological Weapons Program

After Stalins death in March 1953, Smirnov served in several different lead-
ership positions in the Soviet army including head of the 7th Main Directorate of
the Ministry of Defense (MOD) and, after it was disbanded, head of the MODs
15th Main Directorate (codenamed Post Office Box A-1968).141 Starting in 1975,
he was a member of the Interagency Council on Molecular Biology and Genetics
under Glavmikrobioprom (later renamed the Ministry of Medical and Microbio-
logical Industry). In essence, Smirnov was one of the main Soviet ideologues, if
not the main ideologue, in the development of biological weapons and strategies
of biological warfare. Naturally, this side of his work was always kept secret.
Smirnov was the head editor of the Encyclopedic Dictionary of Military Medi-
cine (19491950) and numerous installments of Experience of the Soviet Mili-
tary during the Great Patriotic War (19461956). He was a member of the edito-
rial board and the editor of the section on military medicine in the second edition
of the Great Medical Encyclopedia.
According to his biography, both the Medical and Surgical Society of Canada
and the Royal Medical Society of Great Britain elected him as a Distinguished
Member. A selection of his works include Issues of Organization and Tactics of the
Medical Service (Moscow, 1942); Military Medicine and Nikolai Ivanovich Pirogov
(Leningrad, 1945); Soviet Military Doctors in the Great Patriotic War (Moscow,
1945); Special Tasks of the Ministry of Health of the USSR, Soviet Medicine, no.
8, 1947; Military Medicine in Forty Years of Soviet Health (19171957) ed. M.D.
Kovrigina (Moscow, 1957), 309; Contemporary Meanings of the Basic Propositions
of N.I. Pirogov, with A.M. Geselevich (Moscow, 1960); Some Issues of Military
Epidemiology, Military Medical Journal, no. 12, 1960, and Military Medical Jour-
nal, no. 1, 1961; War and Military Medicine, 19391945 (Moscow, 1976 and 1979);
Problems of Immunology in the System of Anti-Epidemiological Defense of
Military Force in the Great Patriotic War, with N.S. Garin, Immunology, no. 3,
1980; Epidemiological Process (Problems and Resolution) (Moscow, 1980); Wars and
Epidemiology, with V.A. Lebedinskiy and N.S. Garin (Moscow, 1988).
Among others, Smirnovs honors include the following: academician of the
USSR Academy of Medical Sciences, designated Hero of Socialist Labor, recipient

49
CSWMD Occasional Paper 11

of the Order of Lenin, recipient of the Third Order of Red Medal, and recipient of
First Commanding Kutuzov Order.

50
 The Soviet Biological Weapons Program

Notes
1
Jonathan B. Tucker and Erin R. Mahan, President Nixons Decision to Renounce the
U.S. Offensive Biological Weapons Program, Case Study Series 1 (Washington, DC: Center
for the Study of Weapons of Mass Destruction, National Defense University, October
2009).
2
Milton Leitenberg and Raymond A. Zilinskas, The Soviet Biological Weapons Pro-
gram: A History (Cambridge, MA: Harvard University Press, 2012).
3
John G. Hines, Ellis M. Mishulovich, and John F. Shull, Soviet Intentions
19651985, Volume I: An Analytical Comparison of U.S.-Soviet Assessments During the Cold
War (McLean, VA: BDM Federal, Inc., September 22, 1995); Hines, Mishulovich, and
Shull, Soviet Intentions 19651985, Volume II: Soviet Post-Cold War Testimonial Evidence
(McLean, VA: BDM Federal, Inc., September 22, 1995).
4
A biological weapon has four components: a quantity of pathogens that cause dis-
ease, a formulation that protects the pathogens while in storage and after being released
into open air, a munition that contains the quantity of formulated pathogens, and a
dispersal mechanism that disseminates the formulated pathogens over a targeted popula-
tion. The Soviet decision to establish Biopreparat and operate Ferment and Ekology was
to conduct research, develop, and test (weaponize) pathogens that arm biological weapons.
5
V.N. Orlov, ed., We Defended Russia [in Russian] (Moscow, 2000). Orlov was a colo-
nel on the staff of the Directorate of the Radiological, Chemical, and Biological Defense
Forces Command, Ministry of Defense of the Russian Federation.
6
Ken Alibek with Stephen Handelman, Biohazard: The Chilling True Story of the
Largest Covert Biological Weapons Program in the WorldTold From Inside by the Man Who
Ran It (New York: Random House, 1999).
7
Alfredo Morabia, East Side Story: On Being an Epidemiologist in the Former
USSR: An Interview with Marcus Klingberg, Epidemiology 17, no. 1 (2006), 115.
8
Ibid.
9
Valentin Bojtzov and Erhard Geissler, Military Biology in the USSR, 192045,
in Biological and Toxin Weapons: Research, Development, and Use from the Middle Ages to
1945, ed. Erhard Geissler and John Ellis van Courtland Moon (Stockholm: Stockholm
International Peace Research Institute, 1999), 153167.
10
According to H.L. Gilchrist, chemical weapons killed 56,000 and wounded
419,340 Russians in World War I. See H.L. Gilchrist, A Comparative Study of World
War Casualties from Gas and Other Weapons (Edgewood Arsenal, MD: Chemical Warfare
School, 1928).
11
Alibek with Handelman, 33.
12
Bojtzov and Geissler, 156157.
13
Ibid.

51
CSWMD Occasional Paper 11

14
Bacillus anthracis (B. anthracis) is the causative bacterium of the disease called
anthrax.
15
Clostridium botulinum is the bacterium that produces botulinum toxin, which is the
most toxic substance known to science.
16
Vibrio cholerae is the bacterium that causes cholera.
17
Yersinia pestis (Y. pestis) is the bacterium that causes plague.
18
Article 61 of the new USSR constitution gave the United State Political Adminis-
tration the responsibility to unite the revolutionary efforts of the Union Republics in the
struggle against political and economic counter-revolution, espionage, and banditism. See
Simon Wolin and Robert M. Slusser, The Evolution of the Soviet Secret Police, in Wolin
and Slusser, eds., The Soviet Secret Police (Santa Barbara, CA: F.A. Praeger, 1957), 10.
19
This person might have been M.M. Faybich, who later was recognized for his work
in developing various vaccines.
20
An oblast is an administrative unit akin to a province.
21
Igor V. Domaradskij and Wendy Orent, Biowarrior: Inside the Soviet/Russian Bio-
logical War Machine (Amherst, NY: Prometheus Books, 2003). In the era before antibiot-
ics, a person who contracted plague usually died.
22
Kirov is located approximately 500 kilometers northwest of Moscow.
23
Bojtzov and Geissler.
24
Aleksandr I. Solzhenitsyn, The First Circle, trans. Max Hayward, Manya Harari,
and Michael Glenny (London: Harvill Press, 1968).
25
Gaysky was the inventor of the Gaysky Live Vaccine, which is a preparation of
Francisella tularensis holarctica, Strain 15; new versions of this vaccine are still in use in the
former Soviet Union.
26
The convention Voroshilov is referring to is the 1925 Geneva Protocol, which
forbids the use of bacteria in warfare.
27
W. Duranty, Soviet Threatens to Use Gas in War, The New York Times, February
23, 1938, quoted in The Problem of Chemical and Biological Warfare, Volume I: The Rise of CB
Weapons (Stockholm: Stockholm International Peace Research Institute, 1971), 287.
28
J.W. Barnes, C. Henze, W.J. Cromartie, and J.W. Hofer, A Review of German Activ-
ities in the Field of Biological Warfare, Intelligence Report No. B-C-H-H/305 (Washing-
ton, DC: War Department, ALSOS Mission, 1945).
29
Possibly Fort Alexander I, which was the home of a plague laboratory before 1917.
30
Walter Hirsch, Soviet BW and CW Preparations and Capabilities: The Hirsch Report
(Washington, DC: U.S. Army Chemical Intelligence Branch, May 1951).
31
Keiichi Tsuneishi, The Germ Warfare Unit That Disappeared: The Kwantung Armys
731 Unit (Tokyo, 1982); Peter Williams and David Wallace, Unit 731: The Japanese
st

Armys Secret of Secrets (London: Hodder & Stoughton, 1989); and Sheldon H. Harris,

52
 The Soviet Biological Weapons Program

Factories of Death: Japanese Biological Warfare 193245 and the American Cover Up (Lon-
don: Routledge, 1994).
32
Olivier Lepick, French Activities Related to Biological Warfare, 191945, in
Biological and Toxin Weapons, ed. Geissler and van Courtland Moon, 7090.
33
Gradon B. Carter and Graham Pearson, British Biological Warfare and Biological
Defence, 192545, in Biological and Toxin Weapons, 168189.
34
Donald Avery, Canadian Biological and Toxin Warfare Research, Development
and Planning, 192545, in Biological and Toxin Weapons, 190214.
35
John van Courtland Moon, U.S. Biological Warfare Planning and Preparedness:
The Dilemmas of Policy, in Biological and Toxin Weapons, 215254.
36
Erhard Geissler, Biological Warfare Activities in Germany 192345, in Biological
and Toxin Weapons, 91126.
37
Biological and Toxin Weapons.
38
Ibid.
39
Y.I. Smirnov should not to be confused with L.V. Smirnov, who was head of the
Military-Industrial Commission.
40
Orlov.
41
Igor V. Domaradskij, personal communication, 1999.
42
The term recipe refers to the written procedures followed by weapon scientists to
research, develop, test, and produce a particular pathogen for weapons use.
43
Orlov.
44
E.N. Shlyakhov and E. Rubinstein, Human Live Anthrax Vaccine in the Former
USSR, Vaccine 12, no. 8 (1994), 727730; Orlov.
45
Orlov.
46
It was the custom in the USSR, and in other countries, to name an important
strain after the institute where it was first developed.
47
Orlov.
48
Scarification involves the injection of the vaccine by puncturing the outermost
layer of the skin (ectoderm) with a needle, but without drawing more than a minimum of
blood. This causes a local infection that stimulates antibody production by the immuno-
logical defense system of the recipient of the vaccine.
49
Orlov.
50
Shlyakhov and Rubinstein.
51
V.V. Tomilin and R.V. Berezhnov, Exposure of the Criminal Activities of the
Japanese Militarists in Preparations for the Use of Bacteriological Warfare [in Russian]
(1985).
52
Union of the Soviet Socialist Republics (USSR), Materials on the Trial of Former
Servicemen of the Japanese Army Charged with Manufacturing and Employing Bacteriological
Weapons (Moscow: Foreign Language Publishing House, 1950).

53
CSWMD Occasional Paper 11

53
Ibid., 26.
54
Ibid., 2528.
55
Theodor Rosebury and Elvin A. Kabat, Bacterial Warfare, Journal of Immunol-
ogy 56 (1947), 796; Theodor Rosebury, Peace or Pestilence: Biological Warfare and How to
Avoid It (New York: McGraw-Hill, 1949).
56
Rosebury headed the Airborne Pathogen Laboratory at Camp Detrick during
World War II. Among other accomplishments, he had directed experiments to test Ser-
ratia marcescens, Bacillus globigii, Brucella suis, Malleomyces mallei, and Pasteurella tular-
ensis for use as biological weapons agents or simulants. Roseburys work and ideas were
important in early U.S. postwar decisionmaking on biological weapons research projects
requirements. His writings make clear that several bacterial species could be applied for
BW purposes and therefore posed dangers to all of humanity.
57
Jacquard H. Rothschild, Germs and Gas: The Weapons Nobody Dares Talk
About, Harpers Magazine 218, no. 1309 (1959), 2934; and Jacquard H. Rothschild,
Tomorrows Weapons: Chemical and Biological (New York: McGraw-Hill, 1964).
58
George W. Merck, Biological Warfare: Report to the Secretary of War by George
W. Merck, Special Consultant for Biological Warfare, January 3, 1946, Military Surgeon,
no. 98 (1946), 237242.
59
A.M. Arkhangelsky, A.M. Kamorsky, and I.D. Nuzhdin, Bacteriological Weapons
and How to Defend Against Them [in Russian] (Moscow, 1967) and L.A. Belikov, The Bac-
teriological Weapon and Methods of Protection From It [in Russian] (Moscow, 1960).
60
The epithet Red Army was officially discontinued in 1944.
61
A High Reward [in Russian], Voenno-Meditsinskiy Zhurnal, no. 4 (1978), 8082.
62
Quoted in Roza N. Lukina and Yevgeniy P. Lukin, eds., The 50 Years of the Ministry
of Defenses Virology Center Deserves Recognition [in Russian] (Sergiev Posad: Ves Sergiev
Posad, January 10, 2004), 69.
63
Burgasov was a military microbiologist who in his younger days had worked on a
project to weaponize botulinum neurotoxin. From 1965 through 1986, he held the dual
position of Deputy Minister of Health and Chief Sanitary Physician of the USSR, which
is a position akin to that of the U.S. Surgeon General.
64
Lukina and Lukin, 69.
65
Ibid.
66
Its current name is Russian Federation Ministry of Defense Center for Military
Technical Problems in Antibacteriological Defense under the Scientific Research Insti-
tute of Microbiology.
67
V.P. Nepranov et al., The Analysis of Biological Terrorism Cases (for the Last 10
Years) and Disinfection Actions on Liquidation of Their Consequences, in Advanced
Disinfectants and Safety Techniques Applied in Pathogen Treatment, ed. G.N. Lepeshkin,

54
 The Soviet Biological Weapons Program

Proceedings of International Workshop (Kirov: Racem Ltd., 2006), 215228; available at

<www.racem.org/>.
68
Gulbarshyn Bozheyeva, Yerlan Kunakbayev, and Dastan Yeleukenov, Former Soviet
Biological Weapons Facilities in Kazakhstan: Past, Present and Future, Occasional Paper No.
1 (Monterey, CA: Center for Nonproliferation Studies (CNS), 1999); available at <http://
cns.miis.edu/pubs/opapers/op1/index.htm>.
69
Jonathan B. Tucker and Raymond A. Zilinskas, eds., The 1971 Smallpox Epidemic
in Aralsk, Kazakhstan, and the Soviet Biological Warfare Program, Occasional Paper No. 9
(Monterey, CA: CNS, 2002).
70
Domaradskij, personal communication.
71
Raymond L. Garthoff, Polyakovs Run, Bulletin of the Atomic Scientists 56, no. 5
(September/October 2000), 38.
72
Lysenko repudiated Mendelian genetics and instead applied vermalization, which
was based on the Lamarkian notion that structural changes in animals and plants brought
about by environmental or agricultural forces are transmitted to offspring. This notion
fitted Soviet concepts on how society can be changed, so it became state dogma avowed
by Stalin and Khrushchev.
73
History of the Institute of Molecular Genetics, Russian Academy of Sciences,
available at <http://old.img.ras.ru/hist_e.htm>.
74
Leitenberg and Zilinskas, 5260.
75
A candidate degree is equivalent to a Ph.D. in the United States.
76
Genetic engineering had its origins during the late 1960s in experiments with
plasmids, which are small, free-floating rings of DNA found in bacteria. A key discovery,
made by Swiss microbiologist Werner Arber in 1968, was restriction enzymes, which are
able to cut DNA into fragments during replication. The first experiments to combine
DNA molecules from different sources were performed in Paul Bergs laboratory in the
early 1970s and published in 1972. He shared the 1980 Nobel Prize in chemistry for this
work. This was the birth of genetic engineering.
77
Aleksandr A. Baev, The Paths of My Life: Autobiography, Comprehensive Bio-
chemistry 38 (1995), 439479.
78
Scientists who make significant contributions to science could be honored by being
elected to membership in the USSR Academy of Sciences (USSR-AS). There were three
types of membership: corresponding members, full members (academicians), and foreign
members. Being elected to membership was considered very prestigious. In 1974, the
Academy had 237 full members and 439 corresponding members. After 1991, the USSR-
AS was converted to the Russian Academy of Sciences (RAN); See Answers.com, Russian
Academy of Sciences, 2011, available at <www.answers.com/topic/russian-academy-of-
sciences-1>.

55
CSWMD Occasional Paper 11

79
By the time of his death from cancer on February 17, 1988, Ovchinnikov was a
vice president of the USSR-AS, recipient of the Lenin Prize, named Hero of Socialist
Labor, and recipient of the State Prize of the USSR.
80
[Yuri] A. Ovchinnikov, Biotechnology in the Forefront of Scientific-Technical
Progress [in Russian], Kommunist ( July 1985), 20.
81
Nikolai Krementsov, Stalinist Science (1996), 45.
82
Ibid., 4041.
83
Ovchinnikov was awarded the anniversary medal: For exemplary work. In com-
memoration of the 100th anniversary of the birth of Vladimir Ilyich Lenin.
84
Anonymous, personal communication, 2001.
85
Anthony Rimmington, The Soviet Unions Offensive Program: The Implications
for Contemporary Arms Control, in Biological Warfare and Disarmament: New Prob-
lems/New Perspectives, ed. Susan Wright (Lanham, MD: Rowman and Littlefield, 2002)
103148.
86
An indication of Ovchinnikovs influence may be realized from what Joshua
Lederberg wrote after having met him in June 1985: Ovch. told me he had gotten
Brezhnevs personal backing to modernize Soviet biology through molecular genetics,
[fairly explicitly to get over the Lysenko blight] for its indispensable values for medi-
cine and agriculture. See Joshua Lederberg, Observations from Lederberg during His
Presence at the Joint U.S.-U.S.S.R. CISAC Meeting in Moscow in June 1985 [ June 12,
1985], National Library of Medicine: The Joshua Lederberg Papers.
87
Mark Williams, Interview with Serguei Popov, at George Mason University
( January 3, 2005). A variation of this quote was written by William Kucewicz, Lead
Scientist in a Scourge Search, Wall Street Journal, May 1, 1984: If we bring the Central
Committee of the Communist Party of the Soviet Union vaccines, nobody will pay atten-
tion to it. But if we bring a virus, oh, then this will be recognized by all as a great victory.
88
Interview of Vadim Tikhonovich Ivanov, On the Threshold of Artificial Life [in
Russian], Zavtra Online, September 19, 2013.
89
Michael J. Deane, The Soviet Concept of the Correlation of Forces, Stanford Research
Institute, Strategic Studies Center, SSC-TN-4383-1, May 1976, iv.
90
Hines et al., Vol. I, 23.
91
Ibid., 23.
92
Hines et al., Vol. II, 13.
93
Ibid., 16.
94
This is a gross underestimate; Russia declared having a stock of 40,000 tons of
weapons when it joined the Chemical Weapons Convention, but even that number was
much lower than the Soviet Unions stockpile.
95
Ibid., 34.

56
 The Soviet Biological Weapons Program

96
Central Intelligence Agency (CIA), Intelligence Memorandum: Sino-Soviet
Border Talks: Problems and Prospects, No. 2618/69, November 10, 1969, 8 (Secret).
97
CIA, Intelligence Report: The Evolution of Soviet Policy in the Sino-Soviet
Border Dispute, No. ESAU XLV/70, April 28, 1970, 9 (Top Secret).
98
Ibid., 57.
99
Ibid. The newspaper Izvestiya was in effect the mouthpiece of the Soviet govern-
ment.
100
Hines et al., Vol. II, 23.
101
Ibid., 154.
102
Nicholas Wade, Russians Reserve Doubts: Is Fort Detrick Really De-tricked?
Science 177 (August 11, 1972), 500.
103
Vitaly Shlykov, Fatal Mistakes of the U.S. and Soviet Intelligence: Part One,
International Affairs (Moscow) 42, nos. 56 (1996), 159168.
104
Hines et al., Vol. I, xv.
105
Andrei A. Kokoshin, Soviet Strategic Thought, 19171991 (Cambridge, MA: MIT
Press, 1998).
106
United Nations Office of Disarmament Affairs, Convention on the Prohibi-
tion of the Development, Production, and Stockpiling of Bacteriological (Biological)
and Toxin Weapons and on their Destruction; available at <http://disarmament.un.org/
treaties/t/bwc/text>.
107
Leitenberg and Zilinskas, 565.
108
Hines et al., Vol. II, 23.
109
Ibid., 138, 142.
110
Hines et al., Vol. I, 7.
111
Leitenberg and Zilinskas, 564571.
112
The 7th Directorate, and subsequently the 15th Directorate, were responsible for the
offensive BW work carried out by the Soviet Union. The 15th Directorate was established
in accordance with a June 25, 1973, decision of the CCCP (no. 444-138) and a Soviet
Ministry of Defense decree of January 11, 1973 (no. 99).
113
Domaradskij and Orent, 131 and 134.
114
New Technology and Biological Warfare. Testimony by Deputy Assistant Sec-
retary of Defense for Negotiations Policy Douglas J. Feith before the Subcommittee on
Oversight and Evaluation of the House Permanent Select Committee on Intelligence,
August 8, 1986, Defense Issues 1, no. 60 (September 8, 1986), 1.
115
M.A. Milstein and L.S. Semejko, U.S. Military R&D Through Soviet Eyes, Bul-
letin of the Atomic Scientists 33 (1977), 3338.
116
Ibid., 36.
117
Ibid., 38.

57
CSWMD Occasional Paper 11

118
Carl A. Larson, Ethnic Weapons, Military Review 50, no. 11, November 1970,
311.
119
Mikhail Tsypkin, personal communication, September 2, 2014.
120
There was a basis for this claim. In a report to Congress, the Department of
the Army wrote that substantial support had been provided to the pre-1969 U.S. BW
program by non-DOD institutions. Specifically, 288 contracts were placed with 73
educational institutions and 440 contracts were awarded to 181 industrial firms. See In-
formation for Members of Congress: U.S. Army Activities in the U.S. Biological Warfare (BW)
Program (Washington, DC: Office of the Secretary of the Army, March 8, 1977).
121
Gus W. Weiss, Duping the Soviets: The Farewell Dossier, Center for the Study
of Intelligence, available at <www.cia.gov/library/center-for-the-study-of-intelligence/
kent-csi/docs/v39i5a14p.htm>.
122
Hines et al., Vol. I, 7.
123
Ibid., 11.
124
Ibid., 49n224.
125
Ibid, 6566.
126
Hines et al., Vol. II, 33.
127
Leitenberg and Zilinskas, 301309.
128
Kokoshin, 126.
129
See Leitenberg and Zilinskas, 698710.
130
Ibid., 207.
131
Viktor Litovkin, Yeltsin Bans Work on Bacteriological Weapons. This Means:
Work Was Under Way, and We Were Deceived [in Russian], Izvestiya, April 27, 1992.
132
Original article [in Russian] was reprinted by the following source: Vladimir Pu-
tin, Being Strong: National Security Guarantees for Russia, Rt.com, February 20, 2012,
available at <http://rt.com/politics/official-word/strong-putin-military-russia-711/>.
133
Prime Minister Vladimir Putin Holds a Meeting on the Tasks He Set in His Ar-
ticles as a Presidential Candidate, transcript, March 22, 2012, Archive of the Official Site
of the 20082012 Prime Minister of the Russian Federation Vladimir Putin, available at
<http://archive.premier.gov.ru/eng/events/news/18490>.
134
Putin fired Serdyukov on November 5, 2012, for alleged fraud and appointed
Moscow Regional Governor Sergei Shoigu to replace him. Unless information is received
to the contrary, the 28 tasks are assumed to be in force and guiding the Ministry of De-
fenses future activities.
135
Ministry of Defense of the Russian Federation, Encyclopedia: Weapons on New
Physical Principles [in Russian], n.d., available at <http://encyclopedia.mil.ru/encyclope-
dia/dictionary/details.htm?id=13770@morfDictionary>.
136
David Hoffman, Why Did They Do It? Foreign Policy.com, June 18, 2012, avail-
able at <http://hoffman.forgeignpolicy.com/posts/2012/06/17/why_did-they-do_it>.

58
 The Soviet Biological Weapons Program

137
Raymond A. Zilinskas, Take Russia to Task on Bioweapons Transparency,
Nature Medicine 8, no. 6 ( June 2012), 14.
138
Leitenberg and Zilinskas, 282322.
139
The material in this biography is abstracted from two sources: (1) a eulogy written
by Sergei I. Prigoda and inserted in the book edited by Roza N. Lukina and Yevgeniy
P. Lukin, The 50 Years of the Ministry of Defenses Virology Center Deserves Recognition [in
Russian] (Sergiev Posad: Ves Sergiev Posad, January 10, 2004), 2829; and (2) A.M.
Shelepov, I.T. Leonov, and H. Veselov, Marshal of Military Medicine [in Russian] (Kirov:
Kirov Military-Medical Academy, 2008).
140
Smirnov has described the work of the Medical Corps during World War II in
an article he wrote in English; see Yefim Smirnov, The Medical Corps in Red Army
Operations: Its Tasks and Their Fulfillment, British Medical Journal 1, no. S19 (February
10, 1945), 43884390.
141
The USSR had many secret institutes and agencies that commonly were called
post office box institutes because their classified names were P.O. Box numbers. The
codename for the 15th Directorate was Post Office Box A-1968.

59
CSWMD Occasional Paper 11

About the Author

Dr. Raymond A. Zilinskas directs the Chemical and Biological Arms Non-
proliferation Program at the Middlebury Institute of International Studies at
Monterey, where he is also a Research Professor at the Graduate School of Inter-
national Policy and Management. He is also a consultant to the National Defense
University in Washington, DC.
Previously, Dr. Zilinskas worked for 15 years as a clinical microbiologist in
acute care hospitals in the Los Angeles area. However, he became interested in
policies affecting science and technology and enrolled at the University of South-
ern California. His doctoral dissertation addressed policy issues generated by
recombinant DNA research, including the applicability of genetic engineering
techniques to biological weapons development. After graduating, he worked at the
U.S. Office of Technology Assessment, the United Nations Industrial Develop-
ment Organization, the University of Maryland Biotechnology Institute, and, as
an Adjunct Associate Professor, the School of Hygiene and Public Health at The
Johns Hopkins University.
In 1993, Dr. Zilinskas was appointed Foster Fellow at the U.S. Arms Con-
trol and Disarmament Agency, which seconded him to the United Nations Spe-
cial Commission, where he participated in two biological warfare inspections in
Iraq encompassing 61 biological research and production facilities. In 1999, Dr.
Zilinskas secured a position at the Monterey Institute of International Studies,
where he concentrates on chemical and biological nonproliferation. In 2003, the
U.S. Defense and Threat Reduction Agency appointed him as a consultant to
manage research projects being undertaken in three Russian research institutes
that once had been dedicated to biological weapons research and development.
This provided a basis for a long-term study of the history of the Soviet biologi-
cal warfare program, whose results can be found in the book The Soviet Biological
Warfare Program: A History, published by Harvard University Press in 2012. He
currently is conducting a study of the Putin administrations views on biodefense
and biosecurity.

60
Center for the Study of Weapons of Mass Destruction
Occasional Paper Series

10
The Future of Weapons of Mass Destruction: Their Nature and
Role in 2030
John P. Caves, Jr., and W. Seth Carus
June 2014

9
Proliferation Security Initiative: Origins and Evolution
Susan J. Koch
June 2012

8
Defining Weapons of Mass Destruction
(Revised and Updated)
W. Seth Carus
January 2012

7
Countering Weapons of Mass Destruction:
Looking Back, Looking Ahead
Paul I. Bernstein, John P. Caves, Jr., and W. Seth Carus
October 2009

For additional information, including requests for publications and instructors notes,
please contact the Center directly at [email protected] or (202) 685-4234 or
visit the Centers Web site at http://wmdcenter.ndu.edu.