Lawmakers See Need to Sell Public on Aid Plan : Congress: Passage of package, many expect, will depend on number of members willing to take an unpopular stand.

WASHINGTON — For Sen. J. James Exon (D-Neb.), President Clinton’s Russian aid package represents the kind of political challenge that worries lawmakers--and tests their courage and skill at leading skeptical constituents.

“I support the President’s aid package, though from what I’ve seen, it may well be a pretty hard sell as far as the public at large is concerned, since they’re properly preoccupied with the lagging economy,” Exon said Saturday in comments echoed by lawmakers from across the political spectrum.

Many said they expect the issue’s fate in Congress to be determined by the number of lawmakers willing to take an unpopular stand and vote for the aid because they believe it is the right thing to do.

“Those of us who feel this way simply have to point out we are dealing with a historic time,” said Rep. Howard L. Berman (D-Panorama City), an influential member of the House Foreign Affairs Committee. “We have to convince voters that in some ways, how things sort out in Russia may be the most critical issue affecting our economy and security.”

Rep. Tom Lantos (D-Burlingame), referring to the giant, post-World War II American aid package to Europe, observed: “After all, the Marshall Plan had only 16% popular support when it was proposed. That’s what leadership is for.”

Even House Republicans, who normally vote en bloc against foreign aid bills, expressed support for Clinton’s proposals.

“Foreign aid is about as unpopular a program as there is,” said Rep. Henry J. Hyde (R-Ill.), ranking minority member of the Foreign Affairs Committee. “But I think there will be some aid. We have to convince the American people. I think most members of Congress understand the stakes--that if Russia reverts, it would be very dangerous for the whole world.”

Clinton is well aware of the need to sell the American public on the idea. Unlike aid packages prepared by earlier administrations, Clinton’s includes many street-level programs that Americans will, perhaps, identify with and recognize as similar to government efforts in this country.

The package, for instance, will include aid for building housing for Russian troops returning from former satellite states; an “enterprise fund” to provide “seed loans” to small businesses and private banks, and barter arrangements designed to halt the decay of Russia’s oil and gas industry.

Senate Majority Leader George J. Mitchell (D-Me.) on Saturday called Clinton’s package “innovative and useful” and predicted that prospects are good for early Senate passage of a Russian aid bill.

But several lawmakers expressed concerns Saturday that any aid to Russia could be misspent in the current economic chaos there.

As a result, many are seeking assurances from both Russian leaders and the Clinton Administration that there will be tight controls.

“We can help, for instance, in stabilizing their economy. But if Russia doesn’t get control of its central bank, which has been printing up rubles, everything we put into currency stabilization is going to be wasted,” Berman said as he prepared to join an 11-member House delegation traveling to Russia. “Much of this is a matter of sharing expertise. A lot of it is people-to-people.”

Berman and Hyde both noted that the House delegation’s visit, which is to include a post-summit meeting with Yeltsin, will focus on how best to target American aid and how to ensure it is not misused.

In turn, the House delegation hopes it will come back with ideas and information to sway skeptics like Sen. Phil Gramm (R-Tex.). Speaking Saturday on the Cable News Network’s “Evans & Novak” show, he said, “I think we’ve got to help Russia,” but declined to give unqualified support for Clinton’s proposal.

“There’s only one engine that is powerful enough to help get that train moving again,” he said. “And that’s trade and foreign investment. We ought to have a free trade agreement with Russia. We ought to establish a currency board with the seven industrialized nations, give them a stable currency, open up trade.”