Security Council meeting that he wanted covert operations launched against North Vietnam, in retaliation for their equivalent actions in the South. It is not suggested that this was an inappropriate decision, but the existence of covert operations against the North, has to be understood in analyzing later events, especially the Gulf of Tonkin Incident. Even earlier, he issued National Security Action Memorandum (NSAM) 2, directing the military to prepare counterinsurgency forces, although not yet targeting the North. Kennedy discovered that little had progressed by mid-March, and issued National Security Action Memorandum (NSAM) 28, ordering the CIA to launch guerilla operations against the North. Herbert Weisshart, deputy chief of the Saigon CIA station, observed the actual CIA action plan was "very modest". Given the Presidential priority, Weisshart said it was modest because William Colby, then Saigon station chief, said it would consume too many resources needed in the South. He further directed, in April, a presidential task force to draft a "Program of Action for Vietnam". In April, the Bay of Pigs invasion of Cuba, under the CIA, had failed, and Kennedy lost confidence in the CIA's paramilitary operations. Kennedy himself had some responsibility for largely cutting the Joint Chiefs of Staff out of operational planning. The JCS believed the operation was ill-advised, but, if it was to be done, American air support was essential. Kennedy, however, had made a number of changes to create plausible deniability, only allowing limited air strikes by CIA-sponsored pilots acting as Cuban dissidents. After it was learned that the main strike had left behind few jet aircraft, he refused a follow-up strike; those aircraft savaged the poorly organized amphibious ships and their propeller-driven air support. The U.S. Air Force, however, responded to NSAM 2 by creating, on April 14, 1961, the 4400th Combat Crew Training Squadron (CCTS), code named "Jungle Jim." The unit, of about 350 men, had 16 C-47 transports, eight B-26 bombers, and eight T-28 trainers (equipped for ground attack), with an official mission of training indigenous air forces in counterinsurgency and conducting air operations. A volunteer unit, they would deploy in October, to begin FARM GATE missions. The task force reported back in May, with a glum assessment of the situation in the South, and a wide-ranging but general plan of action, which became NSAM 52. In June, Kennedy issued a set of NSAMs transferring paramilitary operations to the Department of Defense.