CIA director William H. Webster says the Soviets are trying harder than ever to tap into U.S. intelligence and that security breaches in the past three years have cost the United States billions of dollars. In a speech Tuesday to the American Bar Association in Toronto, he said he has set up a special counter-intelligence agency to protect the CIA's foreign operations. "This center was badly needed . . . too many things were falling between chairs," he told attorneys. "Over the past three years, we have discovered more penetrations of the U.S. defense and intelligence communities than at any time in our history," said Webster.