Rääkimine hõbe, vaikimine kuld: riigisaladuse kaitse Eesti Vabariigis 1918-1940 = Narratio argentea, silentium vero aureum est : the protection of classified information in Estonia (1918-1940)
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| Main Author: | |
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| Format: | Book |
| Language: | Estonian |
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Tallinn
SE & JS
2013
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| Subjects: | |
| Online Access: | Inhaltsverzeichnis Inhaltsverzeichnis Abstract Literaturverzeichnis Register // Personenregister |
| Physical Description: | 335 Seiten Illustrationen |
| ISBN: | 9789949940172 |
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Record in the Search Index
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RIIGISALADUSE KAITSE
EESTI VABARIIGIS 1918-1940
KIRJASTUS
TALLINN
SISUKORD
Sissejuhatus 9
1 RIIGISALADUSE ÕIGUSLIK KAITSE 34
1 1 Karistusseadused 38
1 2 Avalikku teenistust ja trükisõna reguleerivad seadused 75
1 3 Järeldusi 84
2 PIIRIST SALAJASE JA AVALIKU VAHEL 86
2 1 Riigisaladuse tasemed 86
2 2 Julgeolekualase teabe trükis avaldamise ja selle piiramise
põhjustest 91
2 3 Riigi publikatsioonid ja erialane perioodika 102
2 4 Tundliku julgeolekualase info sihilikust avaldamisest riigi poolt 104
2 5 Järeldusi 106
3 RIIGISALADUST TÖÖTLEVAD ASUTUSED JA NENDE
FÜÜSILINE KAITSE 108
3 1 Riigisaladust töötlevad asutused 108
3 2 Füüsiline kaitse 117
3 3 Järeldusi 147
4 RIIGISALADUST TÖÖTLEVATE ISIKUTE TAUSTAK0NTR0LL
JA VÄLJAÕPE 148
4 1 Taustakontroll 149
4 2 Väljaõpe ehk teadlikkuse tõstmine 170
4 3 Järeldusi 176
R Ä Ä KIMINEH Õ BE,VAIKIMINEKULD
5 SIDETURVALISUS 179
5 1 Kommunikatsiooni kaitse vajadus 179
5 2 Sidevõrgud ja nende haavatavused 186
5 3 Krüpteerimisviisid 207
5 4 Järeldusi 240
6 EESTI RIIGISALADUSE KAITSE EFEKTIIVSUS
(EHK MIDA NSVL TEADIS?) 244
6 1 Nõukogude luure hinnang Eesti sõjaväe kohta 1939 246
6 2 Poliitiline luure 1939 251
6 3 Järeldusi 255
Kokkuvõte 259
Summary 265
Lisad 281
Kasutatud allikad ja kirjandus 322
Nimeloend 334
SISUKORD
LISAD
Lisa 1 Väljavõte Kriminaalseadustikust 281
Lisa 2 Sõjaväeluure ülema kiri 1 jalaväe rügemendi ülemale andmete
salajaseks tunnistamise kohta 287
Lisa 3 Kokkuleppe protokoll NSVL sõjaväelise juhatuse ja
Eesti Vabariigi vahel sõjasaladuse hoidmise üle 288
Lisa 4 Väljavõte Kaitseväe kriminaalseadustikust 289
Lisa 5 Väljavõte VNFSV Kriminaalkoodeksi 1926 aasta redaktsioonist
muudatustega kuni 1940 291
Lisa 6 NSVL Rahvakomissaride Nõukogu käskkiri 293
Lisa 7 Väljavõte Valitsemise korraldamise seadusest 295
Lisa 8 Väljavõte Vabariigi Valitsuse Määrusest perioodilistes
trükitoodetes avaldamiseks keelatud teadete kohta 296
Lisa 9 Väljavõte Riigiasutuste asjaajamise juhtnööridest 298
Lisa 10 Sõjaministri päevakäsk asjaajamise kohta sõjaväes 299
Lisa 11 Polkovnik Lille ringkiri riigisaladuse kaitse kohta 300
Lisa 12 Valitsuse poolt tuleva korraldusena ajalehtedele ja
ajakirjadele saadetud juhtnöörid 301
Lisa 13 Väljavõte Harald Rootsi mälestustest mobilisatsiooni
puudutavate dokumentide hoidmise kohta 310
Lisa 14 Kaitseehitise valvuri kohused 311
Lisa 15 Väljavõte Nikolai Reegi loengust, kus käsitletakse
naisterahvastest tulenevaid ohte riigisaladuse kaitsele 312
Lisa 16 Juhend saladuse hoidmise kohta kindlustustöödel 313
Lisa 17 Sõjavägede ülemjuhataja käskkiri väärnähetest sõjasaladuse
hoidmisel 315
Lisa 18 Väljavõte PTTV juhendist telefoniühenduste toimimise kohta 317
Lisa 19 „Postivalitsuse informatsioon telefonitarvitajaile
Pealtkuulamised ja kõne-kostvuse muutumised 318
Lisa 20 Akt krüptosüsteemide üleandmise kohta 1 diviisi staabis 319
Lisa 21 Väljavõte Side-eeskirjast krüpteerimisreeglite kohta 321
SUMMARY
Narratio argéntea, silentium vero aureum est:
The Protection of Classified Information in Estonia (1918-1940)
Secrets and secrecy have always provided fodder for human imagination. Both
words are common in the titles of books, although they are usually used without
context. History professor Richard G. Powers has pointed out, “Secrecy sells. If
secrets aren’t interesting, nothing is.” (Moynihan 1998: 21) At the same time,
with frequent (ab)use of the word “secret”, the academic study of the protection
of classified information is mostly concentrated on contradictions between in-
formation security, the freedom of information in the post-Cold War era or
breaking enemy codes during the Second World War.
In the vast literature on intelligence, the focus is mostly on data collection
activities, and if protection of classified information is dealt with, it is usually in
the context of some extraordinary counterintelligence operation and not routine
daily work. Therefore, in order to study the topic in depth, primary sources are
needed. A suitable case study for such research is the Republic of Estonia in the
years 1918-1940 (from the time independence was achieved to when it was de
facto lost): the country is small, and the logical time frame is rather short, which
allows comprehensive study. All archival sources of the time maintained in
Estonia are available to researchers without any restrictions. This period encom-
passes both peacetime and wartime (the 1918-1920 War of Independence),
democratic rule and authoritarian rule (1934-1940) in Estonia, thus allowing for
the examination of information-protection problems in different settings.
The book aims to demystify secrecy by a careful study of protection of classi-
fied information. The main focus is to learn the reasons for classification in
Estonia in the aforementioned period and to find out how such information was
protected. The adequacy of measures is analyzed throughout all the chapters.
There is no theoretical framework to cover all different fields of the subject;
therefore, such a framework was created. In this work classified information is
defined as: information that needs to be protected from disclosure in the in-
terests of national security or foreign relations. (The direct translation of the
term from Estonian would be state secrets [riigisaladus] - in the 1920s and 1930s
265
RÀÂKÎMINE HOSE, VAlKIMiNE KULD
there was no legal definition of state secret, although the term was used both
orally and in writing.) The protection of such information is defined using the
classical intelligence cycle, which is divided into five phases: tasking, collection,
evaluation, analysis, and dissemination. Numerous errors may occur in every
phase. However, these errors are mostly internal in four of the five phases:
tasking, evaluation, analysis, and dissemination. Only the effectiveness of
intelligence collection is highly dependent on the effectiveness of counter-
measures conducted by other countries. Accordingly the definition would be the
following: the protection of classified information means disturbing the intel-
ligence cycle of a possible adversary in the phase of intelligence collection
and is necessary to prevent hostile policies or hostile decisions from being
carried out based on accurate information.
Information protection is meant to hinder data-gathering; therefore, the
means of data collection have to be observed to find out the scope of the protec-
tion procedures. During the period covered in the book there were four essen-
tially different fields of intelligence-gathering:
Open source intelligence (OSINT) - permanent monitoring and analysis of me-
dia, literature, official publications, and other publicly available sources of infor-
mation of a foreign country.
Signals intelligence (SIGINT) - eavesdropping of foreign communication net-
works and interception of mail and decryption of such messages.
Imagery intelligence (IMINT) - photographing or observation with later descrip-
tion of objects of interest, mostly military installations.
Human intelligence (HUMINT or espionage) - the most widely known field of
intelligence, which involves using agents, including recruited foreign nationals,
for intelligence-gathering.
All of these were used by the Soviet Union in order to collect information on and
in Estonia. The protection of classified information had to counteract all these
fields and is studied in what are likewise four partially overlapping fields:
Legal protection is the basis for all the other fields as well. It has to define what
information has to be classified and how it should be protected, what is punish-
able and what the punishments are, and what the restrictions are for publication
of information (i.e. censorship). Legal protection has to counter mostly OSINT
and HUMINT.
266
SUMMARY
Facility security (or physical protection) means that rooms where classified
information is processed have to be inaccessible to unauthorized personnel and
safes need to be available for storing secret documents. It is a more complex is-
sue in the case of fortifications that have huge dimensions but were classified ac-
cording to the law of the period - this makes camouflage one of the subjects of
facility security. Facility security has to withstand HUMINT and IMINT and in-
directly also OSINT by preventing unauthorized or accidental disclosures to the
media.
Vetting procedures and training involves preventing unreliable people from
getting access to classified information and reminding cleared personnel of the
importance of keeping secrets. Vetting is closely connected to counterintelli-
gence and has to prevent HUMINT and training has to hinder OSINT by pre-
vention of unintended leaks of information to the press.
Communication security involves protecting information while it is transmit-
ted or moved from one place to another, regardless of what mode of communi-
cation is used (mail, courier, phone, telegraph, radio). It includes upgrading the
security of communication networks and the use of cryptology. Communication
security has to counter SIGINT.
These four fields determine the structure of the research and are dealt with in
four chapters of the book. Additionally, there are two chapters that cover more
general concerns. Chapter 2 deals with problems of defining what is secret, clas-
sification levels, and publication issues. Chapter 6 deals with the efficiency of
protection, analyzing the published Soviet intelligence reports of the period.
The nature of sources and literature for the study of different fields of pro-
tection of classified information depends greatly on the nature of the field. Infor-
mation on legal protection generally has always been publicly available in laws.
However, the laws of Imperial Russia can be hard to find in print nowadays, even
in the best libraries, although collections of the Library of the University of
Tartu as well as the Estonian History Archives have generally been sufficient.
In addition to current theoretical approaches, critiques made by prominent
Estonian lawyers of the 1920s and 1930s have also been used.
To identify the levels of secrecy, archival documents of various state bodies
and compendiums of published documents have been useful. To identify the
problems of defining the boundary between secret and public, newspapers,
periodicals, state publications, and other public data of the period have been
studied.
267
RÄÄKIMINE HÖBE, VAIKIMINE KULD
Much of the documentation on protection of classified information is classi-
fied itself. This is especially true of cryptographic systems - manuals often state
that after putting into use a new system, key, set of strips or the like, the previous-
ly used one has to be destroyed or sent to a higher authority for destruction and
is never to be surrendered to the enemy. Estonia lost its independence in sum-
mer 1940 without war, and nothing in the regulations explained what to do in
such a case. Although some documents, especially in Tallinn, were destroyed,
others remained intact. The existing data on used cryptographic systems and its
availability to researchers in Estonia is unique.
Information on vetting is derived from the counterintelligence materials of
the Estonian General Staff. The documentation of the state-owned armament in-
dustry Arsenal has been very useful - the company existed from 1923 to 1940,
and the material on background checks for most of that period has remained in-
tact.
Generally, primary sources kept at the Estonian State Archives (ERA) in Tal-
linn are the backbone of the book. The record groups ERA.l (Police Board),
ERA.14 (Ministry of Interior), ERA.31 (State Chancellery), ERA.495 (General
Staff), ERA.927 (Higher Military Court), ERA.957 (Ministry of Foreign Affairs),
and ERA. 1843 (Arsenal of the Ministry of War) are among the most important,
although many others were also used. To better understand some details, other
archives have been used, namely the papers of Elmar Kirotar at the Archive of
the Estonian Students’ Society in Tartu and the Records of the National Security
Agency/Central Security Service (Record Group 457) at the National Archives
and Records Administration in College Park, Maryland, in the United States.
The literature and published sources used are from the period 1901-2013.
The most important books for creating the theoretical basis were Handbook for
Intelligence Studies, edited by Loch K. Johnson (London: Routledge, 2007) and
the four-volume handbook Military Cryptanalysis by William F. Friedman
(Washington, DC: War Department Office of Chief Signal Officer, 1938-1941),
which was outstanding at the time of publishing and, seven decades later,
remains the best study of historical cryptology.
What follows is a short overview of the content of all six chapters and appen-
dices.
268
SUMMARY
1. Legal protection
The legal regulation of protection of classified information in Estonia between
1918 and 1940 existed but was rather fragmentary. At least as important as writ-
ten laws were traditions and unwritten rules, which always considered talking
too much to be a vice.
While Estonia proclaimed its independence on February 24, 1918, and de
facto controlled its territory only after the end of World War I in November, it in-
herited all its laws from the Russian Empire. In the first issue of Estonia’s State
Gazette, the Provisional Government proclaimed that on Estonian territory Rus-
sian laws were in force in the wording they had as of October 24,1917 (according
to the Julian calendar), that is, before the October Revolution. The development
of Estonia’s own laws was a time-consuming process, and in the field of informa-
tion security it was completed only in 1935-1938. The subject was regulated by
three fields of laws: punitive laws, regulations of public administration, and print-
ing regulations. Penal laws devoted the most attention to the problem and were
the most detailed.
By 1917 three penal codes were in force in the Russian Empire that were
relevant to the protection of classified information in Estonia in years to come.
These were the New Penal Code (YeonoeHoe ynoMenue), the Penal Code
(ynoxcenue o naKa3animxrb yeonoeHux'b u ucnpaeumenvHbix'b), and the Military
Penal Code (Bouhckuu ycmae'b o HaKa3aHuxxi ). The laws were from the 19th
century; however, with the Law on Changes in the Laws on High Treason by
Espionage (06 U3Menenuu u dononnenuu deucmeywiMux y3aKonenuu o
eocydapcmeennou U3uene nymeM lunuoncmea), new regulation was set mostly
by changing and modernizing the New Penal Code. Signed by Tsar Nicholas II
on July 5, 1912 (according to the Julian calendar), it became known as the “Law
of July 5”. The law took into account experiences from the Warsaw Military
District in the first decade of the 20th century. The Military District bordered the
German Empire and Austro-Hungarian Empire and was exposed to HUMINT
from both countries. Colonel Nikolai Batyushin, head of counterintelligence in
the Staff of Warsaw Military District, was not satisfied with the prosecution pro-
ceedings of the alleged spies he had caught, and according to his memoirs, he
was the main initiator behind the Law of July 5.
In the New Penal Code Articles 108, 110-1131 and 118-1182 defined neces-
sary elements of 32 different criminal offenses connected with espionage and un-
authorized disclosure of classified information. When the Estonian Criminal
Code (Kriminaalseadustik) was drafted, these articles were translated into Esto-
nian, rearranged, and had some minor changes in penalties made. However, the
269
RÄÄKiMiNE HÖBE, VAIK1M1NE KU LO
number of defined offenses and their content remained the same as it had been
according to the Law of July 5. The Criminal Code was passed by the Estonian
Parliament in 1929 and took effect only on February 1, 1935, when the Military
Criminal Code (Söjaväe Kriminaalseadustik) also took effect. From the point of
view of information protection, the most important parts were Article 83, “assis-
tance to a foreign government or national in collecting artifacts or information
concerning the external security of the Republic of Estonia or its military or
military installations”, and Article 84, “the publishing, disclosure, or passing on
to other persons in the interest of a foreign country and without authorization:
1) information and artifacts concerning the external security of the Republic of
Estonia or its military or military installation and that had to be kept in secrecy;
2) plan, drawing, or other description or image of a fortification of the Republic
of Estonia, an area or esplanade meant for fortification or warship or other mili-
tary installation, or a document connected to mobilization or military prepara-
tions in the broader sense ” Penalties varied from six years of imprisonment up
to a lifetime of penal labor.
Other parts of the Penal Code and Criminal Code defined leaking informa-
tion by state or municipal employees and postal employees. However, such infor-
mation usually concerned the private life of persons or their financial interests
and not classified information as it is defined in this book.
The Criminal Code was changed and amended in February 1940. Most of the
penalties were increased for offenses connected to classified information. This
was a result of the spy case two years earlier of Nikolai Trankmann, a captain
and head of the First Pioneer Company in charge of fortification works in the
northern sector of the Estonian-Soviet border who was found guilty of spying for
the Soviet Union. He was sentenced to 20 years of penal labor, the highest penal-
ty possible according to the laws then in force. The Estonian General Staff
regarded this as too soft a punishment, and it initiated changes in the Criminal
Code. The Code was also amended by Article 971 defining a new set of necessary
elements of a crime for the first time since 1912. It conflated espionage crimes
against the Republic of Estonia with such crimes “against the state that has a
mutual assistance treaty with the Republic of Estonia and concerning the armed
forces or military installations of the same state on Estonian territory”. This
referred to the Soviet Union, which had signed a mutual assistance pact with
Estonia in September 1939 following an ultimatum.
Directions for dealing with classified information appear in four more laws
of the Russian Empire that were at least theoretically in force on Estonian terri-
tory for some time after 1918. These were the General Regulations of Ministries
(Oöuiee ynepeMdenue uunucmepcme and Oöu^ee o6pa3oeanue Munucmepcme)y
270
SUMMARY
Government Service Regulations {Ycmae o cnyoK6e no onpedenenwo otm
npasume/ibcma), and General Provincial Regulation (06w,ee ynpeMdenue
aydepncKoe). The aforementioned laws were never translated or directly substi-
tuted by Estonian ones. Some hints concerning the protection of classified infor-
mation were in the Law of Public Service (Riigiteenistuse seadus) of 1924. Article
31 of the law stated that service secrets had to be kept secret even after the end of
service. The issue was more carefully regulated only with the Government Sys-
tem Law (Valitsemise korraldamise seadus) in 1938 that dedicated two articles
(40-41) to classifying and declassifying the matters the ministries had to deal
with and setting some rules for keeping accounts of secret matters.
While it took some time to modernize penal and other laws, the Estonian
Provisional Government dealt with the printing regulations immediately. The
Temporary Regulations of Print Media (Trukiasjade ajutised maarused) were
approved on November 18, 1918, in the first week of de facto independence.
However, the regulation mostly declared that previous regulations remained in
force. The first Law on Print (Trukiseadus) was passed by Parliament in 1923.
According to Article 13 it was prohibited to print secret matters without permis-
sion. The article authorized the government to prohibit publication of certain
military information if the minister of war and the minister of interior agreed to
do so. A list identifying 13 categories of such information was approved by the
government in 1924 and was in force until 1940. The new Law on Print was de-
creed by the regent (the new constitution was in force, but the president was not
yet elected), Konstantin Pats, on April 19, 1938. Article 16 of the law contained a
mostly politically motivated list of 14 fields of information not to be published;
four of these were connected with the protection of classified information. The
earlier list of 1924 was never officially cancelled.
Before independence was lost, the legal protection of classified information
was stronger than ever before. Although the regulation still relied somewhat on
the laws of Imperial Russia, they provided reasonably sufficient protection. The
penal laws, combined with the active work of police authorities and courts, made
spying an exceptionally dangerous business, and the responsibility of classifica-
tion was defined in 1938.
2. Defining the boundary between secret and public
The vague legal definition of secrecy caused some practical problems. However,
no one doubted the existence of classified information and the need for its pro-
tection. The State Chancellery attempted unsuccessfully to regulate the matter:
271
RAAKIMINE HG8E, VAIKIMINE KULD
in 1923 it compiled the Manual for State Records Management (Riigiasutuste
asjaajamise juhtnodrid). It stated that according to their content, all documents
were either public or secret. In reality it was impossible to follow the manual, and
the rigid division of information into these two categories only caused confu-
sion.
In reality there were three levels of classification: top secret (t. salajane),
secret (salajane), and not for the public (ei kuulu avalikkusele). These were also
the most common markings on documents, although particularly in the first half
of the 1920s, other phrases were also used, and some international treaties were
marked as confidential (konfidentsiaalne). The use of these levels and markings
was rather flexible; the only fixed requirement was that all documents concern-
ing mobilization and fortifications had to be labeled top secret. In other cases
such markings indicated the importance of the document.
Documents without markings were also not “public” in the modern sense -
the content of state documents could be released to the press only with the per-
mission of superiors in public service.
According to print regulations there was a possibility to ban publication of all
military information. However, it was not a real option - the military had to be
promoted in order to gain public support for military spending and keep up the
public will to defend the country. On the other hand, there was a fear of hostile
OSINT; the Russian Empire had blamed its defeat in the Russo-Japanese War in
part on its lack of censorship. (It is not in the scope of this book to argue
whether that was indeed the case. However, that was taught in Russian military
academies where future Estonian military decision makers studied.)
In 1923 the temporary head of the General Staff, Juhan Torvand, found that
society was not sufficiently informed on military matters and that, at the same
time, information had been published in the media that might contain military
secrets. To solve the problem, he made Department II of the General Staff (mili-
tary intelligence) in Tallinn or the intelligence officer at the local division in the
regions responsible for handing information over to the press. Such an arrange-
ment did not solve the problem completely. In January 1935 Commander-in-
Chief General Johan Laidoner and Head of the State Propaganda Service Ants
Oidermaa met to discuss the issue. As a result, the head of Section B of Depart-
ment II (II/B, counterintelligence) was ordered to compile a manual. The officer
in charge of that work, Paul Villemi, had limited journalistic experience. It took
more than three years before the document reached the commander-in-chief s
desk. Laidoner suggested numerous changes but generally approved of the docu-
ment. Compiled by the head of military counterintelligence, the document most-
ly discussed issues not to be published. Still, 10 issues were listed that were to be
272
SUMMARY
discussed more, including parades, military sports, maneuvers, and anniversa-
ries of units. The document - although secret and marked as such - was sent to
all major newspapers.
In reality journalists almost never published sensitive information on their
own. More problematic were officers themselves - including Tôrvand and
Laidoner - who discussed military matters in the press. Rather sensitive articles
could also be found in military publications like Sôdur (Soldier) and Kaitse Kodu
(Guard Home).
In some instances the publication of secrets was intentional. This included
the exact numbers of casualties in the War of Independence, which were probably
less than rumored, and information on communist subversion in Estonia.
After abandoning media freedom in 1934, the state as a whole faced the
problem that the military had faced earlier: it was possible to prevent informa-
tion from being published, but some information had to be published. The new-
ly formed State Propaganda Service took over the previous work of free news-
papers in covering the daily work of state institutions. Ironically, this resulted in
more openness and more detailed publications, especially the yearbook of pub-
lic service (Valitsusasutiste tegevus). In 1934-1935 the book contained both
military and counterintelligence matters that were not covered later.
3. Government bodies processing classified information
and their security
The most sensitive documents were concentrated in a limited number of build-
ings in a rather small area in central Tallinn. Around Pagari Street were the build-
ing of the Ministry of War (from 1929 to 1937, the Ministry of Defense), which
also housed the General Staff, and the Tallinn Security Police building. Toompea
Castle housed the Parliament, the State Chancellery, the Ministry of Interior
(from 1924 to 1934, the Ministry of Justice and Interior), the Security Police HQ,
and other government offices. All the aforementioned buildings were guarded
around the clock by armed personnel. Large quantities of classified documents
were stored in the Ministry of Foreign Affairs, located only 200 meters from
Toompea Castle. In the basement of the building were situated the first rooms
specially constructed for secret archives. The procedures for taking visitors into
the buildings were gradually improved from the security point of view.
Some three kilometers from central Tallinn, in the Kadriorg area, the seat of
the President of the Republic and his chancellery was situated in 1938-1940.
These premises, the Kadriorg Palace, and the Administration Building were also
permanently guarded by the Army.
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RÀÀKIMiNE H Ô B E , VAIKïMINE KULD
Although the largest number of the most sensitive documents concerning
defense, foreign relations, intelligence, and counterintelligence were in the above-
mentioned buildings, some had to be kept elsewhere.
The Ministry of Economy and the National Audit Office were well-informed
on defense expenditure, including some costs of intelligence and counterintelli-
gence; and the Ministry of Roads possessed some information on mobilization
plans. However, ministry buildings usually had two doorkeepers, one of whom
always had to be present to keep strangers out during office hours and guard the
premises at night and on Sundays (Saturday was a working day at the time).
Some information on mobilization was located across the country in scat-
tered police stations and municipalities - information mostly on the reservists
living in the respective areas. The concentration of classified information in such
places was low. However, they were still relatively well-guarded due to the pres-
ence of guns in police stations and municipal funds in cash in the municipalities*
buildings.
Farther away from the capital were some military installations that, in addi-
tion to secret documentation, also had a permanent troop presence. Therefore,
in terms of safeguarding classified information, such installations were relatively
secure. More problematic were Estonian legations abroad, especially the
embassy in Moscow, which remained a counterintelligence challenge despite
implemented safeguards.
At this time Estonia possessed some rather impressive coastal artillery around
Tallinn and some minor fortifications on the northeastern border. To protect
them from observation, no-fly zones for commercial air traffic were allocated by
the Minister of the Interior in 1926. It was especially important for coastal artil-
lery, due to the large dimensions of the positions and their placement on the sea-
side near the capital - the busiest seaport and airport of the country - exposing
it to observation and possible photography by foreigners. The camouflage of
artillery positions was upgraded, and the islands of Naissaar and Aegna in the
Bay of Tallinn, with the highest concentration of heavy artillery, were made
restricted zones (in 1922 Aegnas local inhabitants were actually deported). All
visitors and workers had to be vetted by military authorities.
4. Vetting and training of persons processing classified information
To protect classified information it is important to prevent enemy spies - and
even people who could potentially become enemy spies - from working in posi-
tions in which they deal with secrets. This is a complicated task, especially if
finances for salaries are limited or there are few specialists available.
274
SUMMARY
During the War of Independence and afterward, the possibilities for back-
ground checks were limited. First of all, there were no databases of political or
ordinary criminals, and many people moved due to wars and had no documents.
Therefore, letters of reference were sometimes considered sufficient documenta-
tion to hire someone. In the military, vetting procedures were made compulsory
in summer 1921 after a spy ring was discovered at the General Staff. Later, back-
ground checks were conducted for all civilian personnel of the military, every
person enrolling in military school, and all soldiers and NCOs working in
staffs.
The quality of vetting improved gradually, due to the experience gained by
counterintelligence personnel and the considerable information added to the
databases. Throughout the period in question, both II/B (military counter-
intelligence) and the civilian Security Police were active in vetting, and their
obligations sometimes overlapped. Towards the end of the 1930s, the impor-
tance of II/B was gradually reduced to passing the information between the
military and the Security Police.
It was possible to ask for police vetting for persons employed by other
government bodies outside the military. For example, such vetting was done on
people working for the Chancellery of the President of the Republic. For other
establishments, especially the Ministry of Foreign Affairs, the procedures are not
known.
The overall number of background checks conducted is not known. In 1939
around 3,000 inquiries were made for the military alone, but the number was
probably higher than in earlier years due to the tense political situation in
Europe (there were more fortification works, and some reserve officers were also
vetted). The reason for vetting was to keep away from the state service radical
left-wingers, radical right-wingers (whose number was substantial in the mid-
1930s), and people with a criminal record. If people were known to be alcoholic,
this was pointed out by the controlling authority. The financial background of
the vetted people was hard to review, since there was no law permitting it, and
information on loans from the banks was generally not available to police or
military authorities. This was a serious handicap of the vetting system, since huge
personal debts and desperate financial situations make people vulnerable for
recruiting by hostile intelligence services or can even motivate people to offer
classified information for sale themselves.
For training purposes the importance of securing classified information was
pointed out in the state-defense handbook for high schools and echoed in a num-
ber of military manuals and regulations. Since the entire male population had to
go through mandatory military conscription, they had to be acquainted with the
275
RÂÂKf M IN E HQBEt VAIKIMINE KULD
matter. During this time the vast majority of persons with duties requiring access
to classified information were also males. (However, there were important excep-
tions - for example, the sole professional cipher clerk of the Estonian Ministry of
Foreign Affairs also responsible for the Secret Archive was a female.) Therefore,
they had a basic understanding from their military service. The subject of infor-
mation security was also dealt with in the courses for officers. Probably most of
the training was done without leaving any documents; there was a number of cir-
culars pointing out the shortcomings in training and giving orders to improve
the situation.
5. Communication security
The leaking of information during the transmission of information or the trans-
portation of documents always follows the same pattern. A sender sends infor-
mation out to an intended receiver. Somewhere in between is the interceptor,
who obtains the information although it was never intended to reach him/her.
And this scheme does not depend on the mode of transmission used.
In order to hinder interception, there are two main kinds of countermeasure:
making the communication networks themselves more secure and encrypting
the information circulating in them. Usually both methods are applied; that was
the case also in interwar Estonia.
During the period, various means were used for communicating classified
information. The choice depended on the availability, price, and speed of differ-
ent means and only to a limited extent on regulations and security concerns.
Security makes communication much slower and more expensive. For shorter
distances - within a town - couriers were normally used (most of the secret in-
formation circulated in Tallinn). Between towns, classified documents were sent
by registered letter/parcel through the ordinary mail service - this practice could
hardly be considered secure. Whenever possible, documents on paper were to be
used rather than the telephone or telegraph. However, there was not always
enough time, especially in crisis situations. During the War of Independence, the
telegraph was the mainstay of operational military communication, and it
remained so later for urgent matters. Although the lines were on Estonian terri-
tory (or, in some cases, on Estonian-controlled territory during the war), this
type of communication was encrypted.
Some communication by radio or cables and mail, for instance, with war-
ships at sea or embassies in foreign countries, was exposed to interception by
276
SUMMARY
possibly hostile powers. This made encryption inevitable and highlighted the
importance of checking the backgrounds of diplomatic couriers.
In addition to the aforementioned means of communication, the armed
forces used flag semaphore and signal lamps; courier airplanes were envisioned
as a backup method in crisis situations, and for some time pigeons and even dogs
were used for tactical combat communication (both were abandoned in 1934
and never used outside of maneuvers). These means of communication were not
relevant in the field of protection of classified information.
For encryption, three different options were used at this time: ciphers (where
the letters and numbers of the original message are substituted with other letters
or numbers [substitution ciphers] or where the order of letters in the message is
changed [transposition ciphers]), codes (where words, syllables, or parts of sen-
tences are replaced by combinations of letters or numbers), and mechanical de-
vices of encryption. Estonia used all of these in the interwar period and examples
are available in the archives. This book deals with systems according to the insti-
tutions using them. These were the Army (this work covers seven systems, includ-
ing the one Estonian military attaches used abroad), the Navy (four systems, in-
cluding one mechanical device), the Air Force (one system), the Ministry of For-
eign Affairs (three systems, including one mechanical device) and the police (two
systems, including the Security Police system). A total of 17 systems of the period
from 1919 to 1939 are covered, all of them fundamentally different.
Although the country and, accordingly, the state institutions were rather
small, the number of different systems in use at any given time was impressive,
and the number of messages using each system was relatively low. This made
breaking them a more complex task for foreign SIGINT. Every system must have
had its advantages and disadvantages; however, the information on breaking
them is not available to researchers. Some success against the systems of the
Ministry of Foreign Affairs has been claimed in Russian historiography and is
plausible.
6. The effectiveness of protection of classified information
in Estonia (or what did the Soviets know?)
The effectiveness of protection of classified information is hard to measure. First
of all, there is no full picture of what foreign countries knew about Estonia. And
secondly, if there were gaps in their knowledge, it is hard to determine if these
were caused by effective disturbance of the intelligence cycle in the collection
phase or by errors in other phases.
277
RAAKIMINE HOBE, VAiKIMI NE KULD
The foreign power most active in trying to collect information illegally in
Estonia was the Soviet Union. Some Soviet intelligence reports have been pub-
lished; however, most of them remain classified. Although far-reaching conclu-
sions are not possible due to the limited available source material, the issue can
be addressed to some extent.
The best times for evaluation of the protection of classified information are
turning points in history. While Soviet Russia had to withdraw after the War of
Independence, it was definitely not because of the effectiveness of protecting
Estonian classified information. On December 1, 1924, an attempted coup d’etat
in Estonia facilitated by the Comintern failed. This failure had to do with a lack
of information or a stream of false information. However, once again it might
have been caused mostly by errors in other phases of the Soviet intelligence
cycle (politically biased analysis) or decision-making (wishful thinking) and not
only the disrupted data collection.
Some information on Soviet knowledge of Estonian armed forces in the cru-
cial year, 1939, can be derived from the summary on the Estonian and Latvian
navies and air forces published by the Intelligence Department of the Red
Banner Baltic Fleet.
In the document, the number and types of Estonian warships were accurate:
since these ships had to be at sea during training, they were observed in the Gulf
of Finland. With coastal artillery that was situated on the coast and also exposed
to the sea - meaning also to Soviet vessels - the issue is more complicated. Most
positions were used before and during the First World War by the Russian
Empire. Therefore, the overall layout of Tallinn s coastal defense was known, but
it was still overestimated by 1.5 times. The number of anti-aircraft batteries was
overestimated even more.
According to the summary, the Estonian Air Force possessed 90-120 military
aircraft (fighters and reconnaissance-bombers), excluding training aircraft. In
reality only 16 military aircraft were available, all out of date and some not even
operational. Six Estonian cities are named as “the most important air force
bases”, although the country’s few military aircraft were stationed at only three
airfields. Some information had once been correct but was just outdated. For
example, it was stated that “all air force training is conducted under the guidance
of a British instructor-advisor,” when in reality the last British instructor left the
Estonian Air Force in 1930, nine years earlier.
In general, the information provided in the summary exaggerated the size of
Estonian forces to an extent that would probably cause errors in Soviet military
planning, such as engaging more air cover than needed and not considering
landing areas with alleged but nonexistent coastal defense batteries. Of course,
278
SUMMARY
the Intelligence Department of the Red Banner Baltic Fleet was not the most
efficient branch of the Soviet intelligence community, and the questionable
quality of its information may point to information-sharing problems inside the
Soviet intelligence community - this means inadequacies in the dissemination
phase of the Soviet intelligence cycle.
The information the Soviet Union possessed on Estonian ground forces in
1939 was more accurate. However, there were still exaggerations. The informa-
tion considered most classified in Estonia, the number of its troops after the mo-
bilization, was overestimated by 24 percent (129,000 instead of 104,000). Esto-
nian artillery was also overestimated. On the other hand, the numbers of rifles
and machine guns were underestimated. The relative inaccuracy of Soviet intel-
ligence estimates of Estonian military strength was approximately the same as
that regarding the German Wehrmacht in summer 1941.
Soviet military preparations along Estonia’s borders in August-September
1939 showed that the Red Army was preparing to fight and the Soviet leadership
was not sure if Estonia would accept an ultimatum. The number of Soviet troops
was larger than even the overestimated strength of post-mobilization Estonian
forces, and the superiority in planes, tanks, and artillery pieces was especially
strong. The operational orders for Soviet troops were meant for a fast military
campaign and not for a deception operation to influence the Estonian decision-
making process. Therefore, even if exact data on the Estonian military was avail-
able, it is still not published, and it apparently was not taken into account when
planning.
In conclusion, Estonia took measures in all four fields of protection of classi-
fied information covered in this book. The improvement was obvious in all
fields - in 1929 Estonia guarded secrets better than in 1919, and in 1939 better
than in 1929. Background checks required considerable resources from both
military and civilian counterintelligence. The encryption solutions varied great-
ly, there were many of them and they were constantly improved.
279
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NIMELOEND
Aaman, Rudolf 122
Akel, Friedrich 175
Alender, Johannes 42
Anderkopp, Ado 13, 244
Anepaio, Toomas 33
Batjusin, Nikolai 40
Bekka, Martin (vt Hendrikson,
Manivald) 198
Birk, Ado 43, 55, 108, 145, 146, 175,
235
Birk, Roman 106
Bleimann, Martin 123, 131
Botskarjov, Vladimir 254
Brücker, Richard 122
Calder, James D. 15
Collier, Alfred Conrad 249
Dressen, Aleksei 32
Greene, Graham 20
Einbund, Karl 13, 92
Ellul, Jacques 73
Endre, Sir je 33
Friedman, William F. 31,209
Gustav VI Adolf 61
Habermann, Eugen 129
Hendrikson, Manivald (vt Bekka,
Martin) 198
Hiio, Toomas 33
Johanson, Herbert 129
Jänes, Liine 33
Kaiv, Johannes 81
Kalinin, Vassili 46
Kasak, Elias 146
Kauler, Hugo 86, 107
Keng, August-Mihkel 122
Kent, Sherman 93
Klemmer (eestistatult Kivinurm),
Alfred 105
Kukk, Juhan 150
Kuli, Ferdinand 118
Käro, Allan 254
Köomägi, Aleksander-Eduard 146
Laidoner, Johan 97, 101, 175, 196
Lattik, Jaan 13
Laurits, Karl 18, 19, 105, 179, 181
Lempo, Peeter 153, 177
Liszt, Franz von 39
Liventhal, Nicolai 208, 209
Luts, Alfred 123, 125
Maasing, Richard 45, 46, 158
Madeira, Victor 33
Maddison, Eugen 10, 13, 31, 38, 70,
85, 92
Maripuu, Meelis 33
Matto, Karl (Kaarel) 53
Mattson, Toomas 33
Meltjuhhov, Mihhail 244, 246, 250
Issakov, Arseni 254
334
Navarre, Henri 93
Nikolai II 39,40,84,260
NIMELOEND
Noormets, Tiit 28
Normak, Artur (Artur-Bernard) 31,
208, 209, 210, 213
Oidermaa, Ants 97
Ojansoon, Voldemar 254
Oksanen, Sofi 33
Orav, Mart 33
Pajur, Ago 32
Palm, Richard 178
Pedaja, Johannes 170
Pichelstein, Voldemar 181
Pihlak, Jaak 33
Piip, Ants 150
Polisinski, Adolf 56
Pusta, Karl Robert 128
Pärna, Voldemar 216
Päts, Konstantin 62, 133, 134, 135
Raag, Arno 100
Reek, Nikolai 41, 97, 173, 174
Reijonen, Erkki 130
Rezanov, Aleksandr 40
Riis, Sergius 152
Rjabov, Valentin 254
Roolaht, Andrus 29
Roots, Harald 125, 146, 152
Rosenthal, Reigo 28, 33
Saar, J. (pseudonüüm), pärisnimi
Laaman, Eduard 105
Saarmann, Karl 10,41
Saarsen, Villem 46, 47
Salo, Urmas 33
Schaurup (Saarup), August 105
Seppius, Rein 33
Simm, Herman 32
Sirge, Rudolf 178
Zimmermann, Johannes 13
Tambek, Elmar 155
Tamm, Kaili 33
Tamman, Tiina 33
Tannberg, Tönu 32
Taylor, Alan J. P. 93
Teer, Artur 105
Tiilo, Heinrich 93
Tilk, Johannes 33
Tomingas, William 108, 145
Torokoff, Kuldar-Jaan 33
Trakmann, Konstantin 31, 41, 52, 54,
55, 70
Traks, A. 169
Trankmann, Nikolai 56, 57, 62, 142,
146, 170, 175, 251
Triik, Paul 61
Träss, Olev 33
Tsögankov, Leonid 146
Tsertoprud, Sergei 39
Tuju, Kerttu-Liina 33
Tönurist, Ralf-Leonid 104
Törvand, Juhan 95, 101, 106
Uus, Henno 33
Vaher, Villem 234, 235, 236
Valge, Jaak 33
Veitman, Vladimir 32
Villemi, Paul 97, 99, 175
Vlassov, Jüri 33
Wilhelm II 40
Öpik, Oskar 73, 86, 89, 128, 150
Öpik, Paul 150
oayenscbe
Staatsbibliothek
München
335 |
| any_adam_object | 1 |
| author | Juurvee, Ivo 1979- |
| author_GND | (DE-588)1121117511 |
| author_facet | Juurvee, Ivo 1979- |
| author_role | aut |
| author_sort | Juurvee, Ivo 1979- |
| author_variant | i j ij |
| building | Verbundindex |
| bvnumber | BV042746298 |
| ctrlnum | (OCoLC)916733419 (DE-599)GBV815701578 |
| era | Geschichte 1918-1940 gnd |
| era_facet | Geschichte 1918-1940 |
| format | Book |
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| geographic | Estland (DE-588)4015587-0 gnd |
| geographic_facet | Estland |
| id | DE-604.BV042746298 |
| illustrated | Illustrated |
| indexdate | 2024-10-30T13:04:41Z |
| institution | BVB |
| isbn | 9789949940172 |
| language | Estonian |
| oai_aleph_id | oai:aleph.bib-bvb.de:BVB01-028177148 |
| oclc_num | 916733419 |
| open_access_boolean | |
| owner | DE-12 |
| owner_facet | DE-12 |
| physical | 335 Seiten Illustrationen |
| publishDate | 2013 |
| publishDateSearch | 2013 |
| publishDateSort | 2013 |
| publisher | SE & JS |
| record_format | marc |
| spelling | Juurvee, Ivo 1979- Verfasser (DE-588)1121117511 aut Rääkimine hõbe, vaikimine kuld riigisaladuse kaitse Eesti Vabariigis 1918-1940 = Narratio argentea, silentium vero aureum est : the protection of classified information in Estonia (1918-1940) Ivo Juurvee Narratio argentea, silentium vero aureum est Tallinn SE & JS 2013 335 Seiten Illustrationen txt rdacontent n rdamedia nc rdacarrier Zusammenfassung englisch Geschichte 1918-1940 gnd rswk-swf Geheimhaltung (DE-588)4140232-7 gnd rswk-swf Staatsgeheimnis (DE-588)4182648-6 gnd rswk-swf Sicherheitspolitik (DE-588)4116489-1 gnd rswk-swf Estland (DE-588)4015587-0 gnd rswk-swf Estland (DE-588)4015587-0 g Staatsgeheimnis (DE-588)4182648-6 s Geheimhaltung (DE-588)4140232-7 s Sicherheitspolitik (DE-588)4116489-1 s Geschichte 1918-1940 z DE-604 DE-601 pdf/application http://external.dandelon.com/download/attachments/dandelon/ids/DE0204B8DA20210675CACC1257C8D00286860.pdf Inhaltsverzeichnis HEBIS Datenaustausch application/pdf http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=028177148&sequence=000002&line_number=0001&func_code=DB_RECORDS&service_type=MEDIA Inhaltsverzeichnis Digitalisierung BSB Muenchen 19 - ADAM Catalogue Enrichment application/pdf http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=028177148&sequence=000006&line_number=0002&func_code=DB_RECORDS&service_type=MEDIA Abstract Digitalisierung BSB Muenchen 19 - ADAM Catalogue Enrichment application/pdf http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=028177148&sequence=000007&line_number=0003&func_code=DB_RECORDS&service_type=MEDIA Literaturverzeichnis Digitalisierung BSB Muenchen 19 - ADAM Catalogue Enrichment application/pdf http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=028177148&sequence=000008&line_number=0004&func_code=DB_RECORDS&service_type=MEDIA Register // Personenregister |
| spellingShingle | Juurvee, Ivo 1979- Rääkimine hõbe, vaikimine kuld riigisaladuse kaitse Eesti Vabariigis 1918-1940 = Narratio argentea, silentium vero aureum est : the protection of classified information in Estonia (1918-1940) Geheimhaltung (DE-588)4140232-7 gnd Staatsgeheimnis (DE-588)4182648-6 gnd Sicherheitspolitik (DE-588)4116489-1 gnd |
| subject_GND | (DE-588)4140232-7 (DE-588)4182648-6 (DE-588)4116489-1 (DE-588)4015587-0 |
| title | Rääkimine hõbe, vaikimine kuld riigisaladuse kaitse Eesti Vabariigis 1918-1940 = Narratio argentea, silentium vero aureum est : the protection of classified information in Estonia (1918-1940) |
| title_alt | Narratio argentea, silentium vero aureum est |
| title_auth | Rääkimine hõbe, vaikimine kuld riigisaladuse kaitse Eesti Vabariigis 1918-1940 = Narratio argentea, silentium vero aureum est : the protection of classified information in Estonia (1918-1940) |
| title_exact_search | Rääkimine hõbe, vaikimine kuld riigisaladuse kaitse Eesti Vabariigis 1918-1940 = Narratio argentea, silentium vero aureum est : the protection of classified information in Estonia (1918-1940) |
| title_full | Rääkimine hõbe, vaikimine kuld riigisaladuse kaitse Eesti Vabariigis 1918-1940 = Narratio argentea, silentium vero aureum est : the protection of classified information in Estonia (1918-1940) Ivo Juurvee |
| title_fullStr | Rääkimine hõbe, vaikimine kuld riigisaladuse kaitse Eesti Vabariigis 1918-1940 = Narratio argentea, silentium vero aureum est : the protection of classified information in Estonia (1918-1940) Ivo Juurvee |
| title_full_unstemmed | Rääkimine hõbe, vaikimine kuld riigisaladuse kaitse Eesti Vabariigis 1918-1940 = Narratio argentea, silentium vero aureum est : the protection of classified information in Estonia (1918-1940) Ivo Juurvee |
| title_short | Rääkimine hõbe, vaikimine kuld |
| title_sort | raakimine hobe vaikimine kuld riigisaladuse kaitse eesti vabariigis 1918 1940 narratio argentea silentium vero aureum est the protection of classified information in estonia 1918 1940 |
| title_sub | riigisaladuse kaitse Eesti Vabariigis 1918-1940 = Narratio argentea, silentium vero aureum est : the protection of classified information in Estonia (1918-1940) |
| topic | Geheimhaltung (DE-588)4140232-7 gnd Staatsgeheimnis (DE-588)4182648-6 gnd Sicherheitspolitik (DE-588)4116489-1 gnd |
| topic_facet | Geheimhaltung Staatsgeheimnis Sicherheitspolitik Estland |
| url | http://external.dandelon.com/download/attachments/dandelon/ids/DE0204B8DA20210675CACC1257C8D00286860.pdf http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=028177148&sequence=000002&line_number=0001&func_code=DB_RECORDS&service_type=MEDIA http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=028177148&sequence=000006&line_number=0002&func_code=DB_RECORDS&service_type=MEDIA http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=028177148&sequence=000007&line_number=0003&func_code=DB_RECORDS&service_type=MEDIA http://bvbr.bib-bvb.de:8991/F?func=service&doc_library=BVB01&local_base=BVB01&doc_number=028177148&sequence=000008&line_number=0004&func_code=DB_RECORDS&service_type=MEDIA |
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Indexes