The memorandum mainly warns agencies that they may find well after Oct. 1 that their budgets have been reduced for the 12-month period beginning on that date.

"There have been several collisions between careless snowmobile operators and slow-moving trail grooming equipment," the memorandum from Mr. Morelle warns.

The memorandum warned that denying such people cash and subsidized work could force children into "homelessness or foster care."

The memorandum, while not advocating a position, warned Mr. Clinton to expect such a charge.

The memorandum warned of "a potential for adverse publicity at any time."

The memorandum to Mr. Clinton warned of the political stakes.

In her words, the memoranda warned the industry: "Overtly confront the Legacy Foundation at your peril; they have broad public support for their program."

"Failing that," warned the writers' memorandum, "we will seek additional F.C.C. regulation."

The memorandum also warned, in what time would prove to be understatement, that this policy would "probably, even with your best efforts, result in local criticism."

A 1993 memorandum issued to consulates in Brazil also warned of the need for special handling of visa applications from people of Arab descent.