FOURTH QUARTERLY REPORT ON IMPLEMENTATION OF THE FINAL ACT OF THE CONFERENCE ON SECURITY AND COOPERATION IN EUROPE

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP79M00467A002500140005-5
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 87
• Document Creation Date: December 12, 2016
• Document Release Date: April 22, 2002
• Sequence Number: 5
• Publication Date: September 23, 1976
• Content Type: LETTER

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As Stated
erford M. Poats
Acting Stai:f Director
ate Dept. review coed For Release 2002/088 3CCPt-RDP79M00467A002500140005-5
GDS
NSC UNDER SECRETARIES CON'MITTEE
SECRET
NSC-U SM-1 i0E
DD/O%JO
September 23, 1976
TO:
T:ze Deputy Secretary of Defense
T:ie Assistant to the President for
National Security Affairs
Tie Director of Central Intelligence
Tie Chairman of the Joint Chiefs of Staff
The Deputy Secretary of the Treasury
The Under Secretary of Commerce
The Under Secretary of Health, Education
and Welfare
The
Under Secretary of Transportation
The
Special Trade Representative
The
Chairman, Council on Environmental
Quality
The
Administrator, Environmental Protection
Agency
The
Director, Arms Control and Disarmament
Agency
The
Director, Office of Science and Technology
Policy
The
Director, National Science Foundation
The
Director, U.S. Information Agency
The
Acting Executive Director, Council on
International Economic Policy
SUBJECT: Fourth Quarterly Report on Implementation
of the Final Act of the Conference on
Security and Cooperation in Europe (CSCE)
Attached for your comment and/or concurrence
are a draft Memorandum for the President and the Fourth
Quarterly Report on the Implementation of the Final
Act of CSCE. Your response, which may be telephoned
to Mr. John Maresca, Department of State, 632-1358,
is requested by c.o.b. Monday, October 4, 1976.
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NSC UNDER SECRETARIES COMMITTEE
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Subject: Fourth Quarterly Report on Implementation
of the Final Act of the Conference on Security
and Cooperation in Europe (CSCE)
This quarterly report is the fourth submitted by
the NSC Under Secretaries Committee on implementation
of the provisions of the Final Act of the Conference
on Security and Cooperation in Europe (CSCE). It covers
the period May 1 - July 31, 1976, and reports those
events related to the CSCE which have taken place since
the end of the last reporting period.
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A general intensification of interest in CSCE
associated with the first anniversary of Helsinki pro-
duced a wealth of statements and interpretations of
CSCE in both East and West. Actual implementation steps
were minimal, but there were some concrete actions and
evidence of increased emigration from the USSR.
The first anniversary of the signing of the Final
Act of the CSCE at the Helsinki Summit on August 1, 1975
dominated the reporting period. The approach of the
anniversary prompted renewed interest in the Conference
and its implications in all participant states. This
development was accompanied by an intensified effort to
interpret the significance of the Final Act and to
evaluate developments since the Helsinki gathering.
The Communist states in particular launched a
campaign of media attention and leadership statements
aimed at establishing the Helsinki Summit as a major
achievement of Soviet foreign policy, and a key watershed
in post-war East-West relations, while advancing Communist
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interpretations of the Final Act and its implementation.
Soviet propaganda traced the origins of the CSCE to the
Genoa Conference of 1922 and argued that its successful
conclusion demonstrated that the foreign policy of the
Communist states was now as important as that of the
capitalist states in shaping world events. The Communist
countries depicted the Final Act as constituting recogni-
tion of the post-World War II European geo-political
situation and as codification of the ground rules of
"peaceful coexistence." While this campaign was largely
a continuation of previous efforts, the level of attention
devoted to it, as well as its overall scale and intensity,
were significantly increased in connection with the
Helsinki anniversary.
Western attitudes toward the Helsinki anniversary
were considerably more restrained. Statements of Western
leaders attributed much less importance to Helsinki and
gave special attention to its provisions on the freer
movement of people and ideas. They invariably indicated
that judgment of the CSCE's place in history would
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depend on the extent to which its provisions are carried
out. Western evaluation of implementation to date was
also reserved, with political leaders suggesting that,
although some useful steps had been made on a few
Basket III issues, further progress would be required
if the results of the Conference are to be judged
positively.
Western media echoed the same reserve and skepticism.
Although many Western journalists recognized the potential
value of the Helsinki enterprise as a tool for moving
the Communist states toward more liberal practices in
the human rights and information fields, they generally
evaluated Soviet and Eastern European implementation
thus far as minimal. They also expressed reservations
as to the Communists' intentions to carry out what Western
governments believe to be their commitments under the
Final Act.
The anniversary was also seen by most observers,
East and West, as the mid-point between Helsinki and
the Belgrade review meetings set to begin with a prepara-
tory session in June, 1977. Political leaders and the
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press in all countries recognized the potential importance
of the Belgrade meetings in terms of encouraging imple-
mentation of the Final Act's provisions. and as a barometer
of East-West relations in the coming period.
Another major indicator of developing attitudes
toward Helsinki which occurred during the reporting
period was the European CommUnist Parties' Conference
(ECPC), held in Berlin, June 29-30, The treatment of
CSCE subjects by the final document of this conference
added a major new element to the Communist effort to
interpret the results of the CSCE to suit Communist
ideology and policy objectives. The document also
established a formal relationship between the CSCE
Final Act and relations among Communist parties, by
which non-ruling European Communist parties joined
in pledging themselves to support the Final Act,
Speeches by Communist leaders at the Berlin conference
paid considerable attention to the CSCE and its implica-
tions. They generally accorded the CSCE high importance
as a turning point in East-West relations, but were
highly defensive regarding implementation and carried
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the process of reinterpretation of the Final Act to its
highest level thus far. Brezhnev's speech was parti-
cularly defensive with regard to Soviet implementation,
and sharply attacked Western countries, especially the
US, for their alleged failure to implement the Final Act.
Brezhnev's review of CSCE was remarkable for its detail
and intensity.
Despite the increased rhetorical and media attention
to CSCE and its implementation, concrete Soviet and
Eastern European implementation steps all but dried
up during the reporting period. Our Embassy in Moscow
speculated that the Soviets may be saving whatever
further implementation measures they may be prepared
to adopt for the period immediately preceding the Belgrade
meetings, when they will have maximum impact and will
help to defuse the recriminations the Soviets evidently
fear.
The Soviets also adopted a sharper, more polemical
tone in our discussions with them on implementation,
paralleling the tone of Soviet propaganda and leadership
statements. Our response to this attitude was to point
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out privately to the Soviets that we have sought a
constructive dialogue with them, not a counter-
productive debate, and that their adoption of a polemical
attitude will not help us achieve the full implementa-
tion the Soviets say they seek and intend.
The Soviets went even further in protesting the
creation of the joint Legislative-Executive Commission
on CSCE. In a "non-paper" handed to Assistant Secretary
Hartman by Soviet Ambassador Dobrynin on June 17, the
Soviets claimed that the Commission's focus on Basket III
violated the Helsinki understanding that all parts of
the Final Act are equal, and that the commission's
intention to monitor implementation by the USSR consti-
tuted interference in internal Soviet affairs. The
Soviet media has bitterly attacked the Commission on
these grounds and it is clear that the Soviets are
particularly sensitive to its creation. One indication
of their concern was the question of a Soviet diplomat
in Washington who asked a State Department official
whether the Commission would invite Alexander Solzhenitsyn
to testify.
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There were, nevertheless, some concrete implementa-
tion steps during the reporting period. The Soviets
gave their second notification of a major military
maneuver (already reported.in the last quarterly report),
held near Leningrad, June 14-18. They invited observers
from five countries, including NATO member Norway, to
attend these maneuvers. In late July they announced
that journalists in the USSR could apply for interviews
directly to officials of Soviet ministries, rather than
through the Foreign ministry's press office, as previously
required. Our Embassy in Moscow is observing how this
measure will be carried out in practice in order to
evaluate its real significance. Emigration of Soviets
with exit visas for the US (almost all for the purpose
of family reunification) is currently running at twice
last year's rate. The flow of Soviet Jews leaving with
exit visas for Israel is also up slightly this year, but
the monthly rate has recently declined a bit. It remains
to be seen whether this is a seasonal slump or the
beginning of a downward trend.
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While not. occurring during the reporting period,
Ambassador Stoessel presented the Soviets with our 18th
representation list on August 5, stressing its relation-
ship to commitments undertaken by the Soviets under the
family reunification provisions of the CSCE Final Act.
The new list had been rigorously authenticated and
totaled 112 families (312 individuals). Our last list,
presented a year ago, included 249 families (641 indivi-
duals). Since that time, 35 family cases (95 individuals)
had been resolved and 100 family cases (229 individuals)
for various reasons have been withdrawn from the list--
most of these had already emigrated, were planning visits
rather than emigration, or had dropped their efforts
leave.
The Soviet dissident group, headed by Yuriy Orlov,
which is monitoring Soviet implementation of CSCE,
issued a statement on the Helsinki anniversary which
concluded that the Soviet authorities do not intend to
fulfill their human rights obligations under the Final
Act but that the Final Act is, nevertheless, a useful
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tool for pressing them toward better performance on
human rights.
One year after Helsinki, and ten months prior to
the joint review of its results in Belgrade, there has
been a general intensification of interest in the CSCE.
Most Western countries, like ourselves, took the position
at the Helsinki Summit that they expect meaningful
implementation. Like the US, they have continued to
stress the need for implementation, both in connection
with the Helsinki anniversary and as the essential founda-
tion for a successful Belgrade meeting. The Soviets and
their Warsaw Pact allies, sensitive to Western interest
in the freer movement concepts of Basket III, have
become increasingly defensive of their own practices and
critical of what they see as Western implementation
shortcomings.
The juxtaposition of these attitudes has produced
the central problem of the CSCE's implementation phase:
Western governments must. respond to skeptical'public
opinion, as well as press and parliamentary criticism,
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on CSCE. The essential element in this response must
be implementation by the Soviets and the Eastern European
states of the CSCE's freer movement provisions. At the
same time, it is these provisions that the Communist
governments find most difficult to carry out. Yet the
Soviets and the Eastern Europeans have a clear interest
in making the CSCE a success. They want Belgrade '77
to be a "positive" meeting. But whether it is "positive"
to the west depends on the extent to which the Communists
themselves put "freer movement" into practice.
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FOURTH QUARTERLY REPORT ON IMPLEMENTATION
OF THE FINAL ACT OF THE CONFERENCE ON
SECURITY AND COOPERATION IN EUROPE (CSCE)
May 1, 1976 - July 31, 1976
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I. The Final Act
A. Questions Relating to Security
in Europe
1. Declaration on Principles
Guiding Relations between
Participating States
2. Document on Confidence-
Building Measures and Certain
Aspects of Security and
Disarmament
B.
Cooperation in the Field of
Economics, of Science and
Technology, and of the Environment
18
C.
D.
Questions Relating to Security
and Cooperation in the
Mediterranean
Cooperation in Humanitarian and
Other Fields
25
1. Human Contacts
2. Information
3. Cooperation and Exchanges in
the Field of Culture
4. Cooperation and Exchanges in
the Field of Education
E. Follow-Up to the Conference
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A. QUESTIONS RELATING TO SECURITY IN EUROPE
1. Declaration on Principles Guiding Relations
between Participating States.
Instances in which the CSCE principles were cited
in relation to developments in European affairs increased
significantly during the reporting period. This pattern
was particularly true on the part of the Soviet Union
and the Eastern European states. The increased references
to the principles brought out again sharp differences in
interpretation between East and West and the tendency
of the Soviets and their allies to focus only on those
principles which are useful for their purposes. The
principle of non-intervention in internal affairs was
cited particularly frequently by the Soviets in connection
with alleged Western interference in the internal affairs
of Italy and with alleged interference by the newly
established US Commission on CSCE in the internal affairs
of the Soviet Union.
The first anniversary of the Helsinki Summit generated
a wealth of Soviet commentary on the CSCE which served
to underline the Soviet view that the Declaration of
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Principles is the key section of the Final Act and
takes precedence over all other sections. This commentary
also expanded on Soviet interpretations of the meaning
of the principles in interstate relations. The European
Communist Party Conference in Berlin produced a document
which also develops Soviet and Communist interpretations
of the principles.
The following is a review of incidents and issues
which arose during the reporting period and which relate
to the CSCE principles.
Communist Stress on Pre-eminence of the Principles
The Soviets and their.Allies.continue to give the
principles the dominant place in their view of CSCE.
Despite the fact that the Final Act establishes the.
equal importance of all its sections, the Soviets have
taken the line that the undertakings of the principles
take precedence over the other provisions of the Final
Act, in view of their high "political" importance.
This position has provided the defense against Western
interest in Basket III freer movement subjects, which,
the Soviets claim, constitutes interference in their
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internal affairs. The Soviets have also complained
that western focus on Basket III is contrary to the
spirit of the CSCE. This Soviet position was reflected
in an editorial in Pravda on the first anniversary of
Helsinki, which extolled the principles and Soviet
adherence to them, and mentioned other parts of the
Final Act, but made no allusion whatsoever to Basket III,
Humanitarian interests, or even the customary "cultural
exchanges" subject heading. The Soviets have complained
that the CSCE Commission, and the West in general,
unduly stresses Basket III to the point that they are
interfering in internal Soviet affairs. In the June
"non-paper" on the CSCE Commission which Ambassador
Dobrynin handed Assistant Secretary Hartman they took
the position that to stress any one part of the Final
Act in comparison to its other parts was not in keeping
with the unity of the Final Act.
Communists Stress Certain Principles
Communist media and leadership statements have
continued to stress the importance of certain principles,
particularly non-intervention in internal affairs and
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inviolability of frontiers, despite the fact that the
Final Act stipulates equal status for all of the ten -
CSCE principles. Thus, the principle of inviolability
of frontiers has taken on cardinal importance as the
basis for relations among European states, and the
principle of non-intervention has become the chief defense
against Western insistence on the freer movement concepts
of Basket 3. At the same time, the principle of human
rights has been downgraded and obscured and subjected
to a distorted interpretation in the final document of
the European Communist Parties Conference (ECPC).
Soviets Distort Certain Principles
The Soviets have subjected certain principles to a
concerted program of reinterpretation and distortion.
For example, the principle of human rights and funda-
mental freedoms states that the participating states
"will act in conformity with . . . the Universal Declaration
of Human Rights." Nevertheless the ECPC document, which
expresses the purported willingness of the European
Communist Parties to implement all aspects of the Final
Act, omits any reference to the Universal Declaration
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in its section on human rights. Instead it proposes
ratification by all states of the more limited Inter-
national Covenants on Human Rights, which contain a
number of escape clauses.
Similarly with regard to the CSCE language on
peaceful changes of frontiers, the key balancing element
to the principle of inviolability of frontiers, an
analytical article in Pravda on July 13 advanced the
interpretation that the peaceful change provision applies
only to minor adjustments and rectifications of frontiers,
and not to the major post-World War II European borders.
There is no basis in the CSCE language for such a
restrictive interpretation.
Human Rights
The principle of human rights, which forms the
foundation for the specific measures of Basket 3, remains
one of the most sensitive aspects of the Final Act as
well as the principal test of Soviet intentions in the
view of most Western observers.. There is no indication
that the Soviets have changed their approach on these
issues since the signing of the Final Act. They continue
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to believe that individual rights must be subordinate
to the collective good, as defined by the CPSU. Atten-
tion was called to the human rights problem in the
Soviet union during the reporting period by the group
of Soviet dissidents which has taken on itself the
.task of monitoring Soviet compliance with the human
rights aspects of the Final Act. This dissident group
held a press conference to mark the first anniversary
of Helsinki at which its chairman, Yuriy,Orlov, distributed
a well-argued assessment of the effect the Final Act
had had on human rights in the USSR. This paper concluded
that the USSR does not intend to fulfill its human rights
obligations, but that the CSCE Final Act is nevertheless
a valuable tool in pressing Soviet authorities toward
better performance in the field of human rights. The
Orlov group also distributed a packet of documents
including a wealth of information on treatment of
political prisoners, repression of religious families
and families divided because of Soviet emigration
policies.
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UNESCO Symposium on CSCE and Covenants and Human Rights
The Final Act restricts UNESCO's role in imple-
mentation of the CSCE provisions to the fields of Culture
and Education, since the composition of UNESCO and its
voting procedure have resulted in unsatisfactory develop-
ments in fields such as Human Rights and Information.
In spite of this, the UNESCO Director General's proposed
program for implementing CSCE provisions in 1977-78
included the holding of an international symposium on
"The effects of the coming into force of the International
Covenants on Human Rights, in the light of the Final
Act of the Helsinki Conference." The Final Act principle
on Human Rights gives priority to the more far-reaching
Universal Declaration of Human Rights, and the US has not
ratified the less satisfactory International Covenants
on Human Rights. For these reasons most Western countries,
including the US, declined to participate in the UNESCO
symposium.
Soviet Accusations of Intervention in Internal Affairs
The Soviets have used their media and leadership
statements to accuse the West and particularly the US
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of intervention in the internal affairs of other countries.
This generalized campaign reached a new peak during the
reporting period with accusations taken up by Brezhnev
himself in an interview on the occasion of the Helsinki
,anniversary. Soviet and Eastern European allegations
have focused on the alleged decision of the US, FRG,
UK and France to withhold financial assistance from
Italy in the event that communists should be included
in the Italian government. Brezhnev's statement, like
other Soviet and Eastern European statements on the same
subject, viewed this action as contrary to the CSCE
principle of non-intervention in internal affairs.
Soviets Protest CSCE Commission
As noted above, Soviet Ambassador Dobrynin called
on Assistant Secretary Hartman in June to protest the
creation of the Joint Legislative/Executive Commission
to monitor CSCE and left a "non-paper" which claimed
creation of the Commission was contrary to the balance
of. the.CSCE Final Act since it would focus on Basket III.
The Dobrynin "non-paper" also claimed the Commission's
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activities would interfere in internal Soviet affairs.
The Soviet press agency announced that the Soviets
had made this demarche.
Basket 3 and Non-Intervention
Soviet statements and official declarations continue
to insist that Western pursuit of Basket III constitutes
intervention in internal Soviet affairs. Brezhnev's
speech at the European Communist Parties' Conference
sharply attacked Radio Liberty and Radio Free Europe
on these grounds. The Soviets have exhibited increased
sensitivity to Western interest in Basket III and have
correspondingly.increased their stress on non-intervention.
ECPC Document Distorts Final Act Provisions
The ECPC document, which Communist statements have
indicated is considered a further development of the
CSCE provisions, contains serious distortions of the
Final Act in areas of particular concern to the West.
One example of this tendency is cited above under the,
heading "Soviets Distort Certain Principles." Another
example is the ECPC document's treatment of the issue
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of freer circulation of information. Whereas the CSCE
document commits states "to facilitate the freer and wider
dissemination of information of all kinds," the ECPC
document undercuts this commitment by aiming "to insure
that mass media everywhere will, on the basis of objective
information, be placed in the service of mutual acquain-
tanceship, the dissemination of ideas for a better under-
standing and the strengthening of an atmosphere of trust
and cooperation among peoples." The ECPC document calls
for expanded cooperation among states in keeping with
the CSCE Final Act, "which presupposes application of
the principle of Most Favored Nation treatment," whereas
the CSCE Final Act merely recognizes the "beneficial
effects which can result . . . from the application
of MFN treatment."
GDR-FRG Border Disputes
Accusations of failure to carry out Helsinki
commitments have been exchanged by the GDR and the
FRG. The FRG has accused the GDR of violating the
principle of human rights by shooting individuals who
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seek to cross the FRG-GDR frontier. The GDR in its
turn has accused the FRG of not respecting the inviola-
bility of the GDR frontier by preventing such incidents.
The GDR has also accused the FRG of failure to respect
its sovereign independence by using the term "intra-
German relations" in referring to these incidents.
Tito Accuses Ambassador Silberman of Interference
in Internal Yugoslav Affairs
In an interview on July 31 Tito accused US Ambassador
Silberman of "giving lessons about our internal and
foreign policy and interfering in our affairs" in an
allusion to discussion stemming from the case of imprisoned
US citizen Laszlo Toth. The Yugoslav Foreign Ministry
followed this with a specific accusation that "the US
Ambassador interfered in our country's internal affairs
in a series of statements made both inside and outside
Yugoslavia."
Soviet Allusion to Baltic States Question
In the Soviet reply of May 3 to our earlier general
demarche on CSCE the Soviets alluded to US policy on the
Baltic states and suggested that this policy was not
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in keeping with the CSCE principles. The Soviets were
apparently referring specifically to our omission of
officials from the Baltic states from a list of officials
from Soviet republics invited to visit the US, They
have no doubt also been displeased by reaffirmations of
our policy on the Baltic states in response to Congressional
and public interest.
Cyprus Situation and CSCE Principles
At the Helsinki Summit Turkey made a formal reserva-
tion on the applicability of the provisions of the Final
Act to Cyprus, in view of the fact that, as the Turkish
Government contended, "the representation of the State
of Cyprus in the Conference cannot be considered legal
and therefore legitimate." Cyprus then made a formal
interpretive statement to the effect that, in view of
the language of the Final Act, and Turkey's signature
on it, the Turkish reservation "is of no effect". The
Cyprus situation remains essentially unchanged, despite
efforts of western countries, including the US, to
encourage the parties to the dispute to find a mutually
acceptable solution.
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2. Document on Confidence-Building Measures
and Certain Aspects of Security and
Disarmament
There were several significant developments during
the reporting period relating to the military security
provisions of the Final Act. These included the second
Soviet notification of a major maneuver and invitations
to observers to view the maneuver, and decisions reached
by the Allies concerning notifications to be made in relation
to this autumn's cycle of NATO maneuvers and invitations
to observers. In addition, the USSR increasingly
emphasized disarmament as an important aspect of the
Final Act, citing its own disarmament initiatives as
implementation of the CSCE. This effort formed part
of the continuing Soviet stress on the need to reinforce
"political detente" with "military detente."
Prior Notifications of Major Military Maneuvers
The Soviet Union gave notification on May 24 of
a maneuver called "Sever" which took place near
Leningrad June 14-18 with participation by "approxi-
mately 25,000 men." This was the second Soviet
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notification of a major military maneuver. Notifica-
tion was made by calling in military attaches in Moscow.
Soviet television had carried a story on the maneuver
one day before the CSCE notification. As noted in the
Second Quarterly Report, the first maneuver for which
the Soviets gave notification also took place on a NATO
flank in the region of the USSR's border with Turkey.
In further consultations at NATO, the Allies revised
the total.number of Allied maneuvers for notification
this fall. They agreed to give notification of two
major military maneuvers and five maneuvers below the
25,000 troop threshold during the Autumn Forge exercise
series. The maneuver notifications will make reference
to Reforger, the yearly movement of US forces from the
US to Europe to maneuver with troops already in place
there.
As indicated in the last quarterly report, the NATO
Allies concurred in our view that readiness tests,
consisting of assembly and movement of troops to local
dispersal areas, are not military maneuvers under the
terms of the Final Act, and are therefore not subject
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to notification. A USAREUR Readiness Test was conducted
in early June. Like a similar SACEUR readiness test in
March, it drew neither media nor official comment from
the Warsaw Pact countries.
Exchange of Observers
The USSR invited observers from Finland, Sweden,
Norway, Poland and the GDR to the Sever maneuver, thereby
following the same principle of inviting a mix of NATO,
neutral and Warsaw Pact states near the maneuver area,
as in the case of the Caucasus maneuver in January -
February.
Various Allies will invite observers to maneuvers
in the Autumn Forge series as follows: Grosser Baer
(FRG), Lares Team (FRG), Spearpoint (UK), and Teamwork
76 (Norway). Norwegian invitations to Teamwork will be
the first Allied invitations accorded on a selective
basis to certain NATO, neutral and Warsaw Pact country
observers within a regional framework. The Norwegians
explained that constraints imposed by limited facilities
dictated this selective approach.
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Soviet Ambassador Mendelevich stated in Bonn during
the reporting period that the USSR did not send observers
to the Certain Trek maneuver during last fall's NATO
exercise season, because acceptance, as well as issuance,
of invitations to observers was voluntary. He also
noted that the large-scale 1975 fall NATO maneuvers
seemed to him to be a demonstration of strength immediately
following the signing of the Helsinki Final Act, and
the'Soviet Union could not send observers and thereby
"approve of" the NATO maneuvers.
Other Confidence-Building Measures
A provision under this CBM calls for states, on a
reciprocal basis, to promote exchanges among military
personnel. Canada and the USSR have agreed on an exchange
of naval visits in late 1976, with three Soviet vessels
visiting Vancouver and three Canadian ships visiting
Leningrad. An exchange of notes on these visits between
Canada and the USSR referred to the CSCE provisions.
Questions Relating to Disarmament
The Soviets increasingly emphasized during the
reporting period that the Final Act calls for a lessening
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of military tension and promotes disarmament to complement
political detente in Europe and to strengthen security.
A senior Soviet official recently stated in Bonn that a
Soviet aim in CSCE follow-up efforts is disarmament.
In his speech at the Berlin Conference of European
Communist Parties (ECPC) Bre.zhnev called attention to
Soviet disarmament proposals as a form of implementation
of the CSCE. The final document of the ECPC itself
included a comprehensive list of Soviet and Eastern
European disarmament initiatives as examples of imple-
mentation of the disarmament section of the Final Act.
CBMs at Belgrade
Discussion began among. the Allies about the possi-
bility that new proposals related to CBMs may be submitted
at the Belgrade follow-up meetings. Possible new proposals
which were mentioned included improvement of the parameters
for notification of maneuvers and negotiation of a new
CBM on notification of military movements. We have also
been informed of the possibility that certain neutral
states may propose establishment of an institutional link
between CSCE and MBFR.
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B. COOPERATION IN THE FIELD OF ECONOMICS, OF SCIENCE
AND TECHNOLOGY, AND OF THE ENVIRONMENT
1. Commercial Exchanges.
2. Industrial Cooperation and Projects of Common
Interest.
3. Provisions Concerning Trade and Industrial
Cooperation.
4. Science and Technology.
5. Environment.
6. Cooperation in Other Areas.
Transport
Tourism
Migrant Labor
Training of Personnel
Concrete implementation activities on Basket II
during the past quarter have been notably meager. Rather,
the period seems to have been more one of rhetoric from
the communist countries, particularly in connection with
the first anniversary of the signing of the Final Act.
The chief focus of their attention continues to be
Brezhnev's call.for all-European energy, transport, and
environment conferences.
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On the question of conferences, a decision adopted
at the ECE 31st session invited member governments to
transmit their views to ECE Executive Secretary Stanovnik
for dissemination at the 32nd session next spring.
While most of the Eastern European countries have vocally
supported the Soviet initiative during the past quarter,
only Hungary has so far actually notified the ECE
Secretariat in writing of its agreement with the confer-
ences idea.
In the West, there has been scant attention paid to
positions and tactics for dealing with the Brezhnev
proposal. At the ECE Western Caucus meeting July 2,
for example, only the UK was prepared to provide an initial
response, and that was to note that there was no need as
yet to take a firm position on the Soviet initiative.
The UK believes that reports of ECE principal subsidiary
bodies on the subjects the Soviets proposed would have
to be considered, possibly in the context of preparations
for Belgrade.
Elsewhere, in bilaterals with the FRG the Germans
stated that they see some merit in the environmental
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topics, particularly if the Soviets could be induced
to agree to the inclusion of representatives from the
FRG Environmental Agency (located in Berlin) in the
German delegation to such a conference. On energy
and transport, however, the Germans see almost no
utility in holding all-European conferences.
In the meantime, the US is attempting to utilize
all ECE meetings which have taken place since the 31st
session to call members' attention to and mold work
programs around the "special attention" projects decision
taken in April. One such activity is the ECE Task Force
for Development of a Program for Monitoring and Evalua-
tion of the Long-Range Transmission of Air Pollutants,
which met in May and will hold another session in. November.
Another important activity, through which we are
trying to hold the East to its CSCE and "special attention"
commitments, is the ECE Fourth Seminar on East-West
Trade Promotion, Marketing and Business Contacts. A
preparatory-meeting for this seminar was held July 13,
at which, through Western and particularly US insistence,
agreement was reached to include the key theme of market
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research (including all aspects of commercial informa-
tion) on the agenda for the seminar. The Seminar itself
will be held in early 1977.
The final major ECE activity during this period
related directly to Basket II was the June meeting of
Senior Advisors for Science and Technology. As a direct
consequence of the 31st session and the "special
attention" decision, the S&T senior advisors adopted
a wide-ranging work program comprised largely of acti-
vities mentioned in the Final Act. These relate mainly
to reviews of international S&T cooperation (both bilateral
and multilateral), removal of obstacles to and the
promotion of the exchange of S&T information and person-
nel, review of S&T research in selected problem areas,
and study of possibilities for expanding multilateral
S&T cooperation. At US insistence (and despite vigorous
Eastern opposition) the S&T senior advisors agreed to a
Secretariat examination of possibilities for the ECE to
sponsor conferences, symposia, and study and working
groups to bring together younger scientists and tech-
nologists from East and West.
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Also at the ECE S&T senior advisors meeting, and
in the CSCE context, the UK tabled a proposal that the
ECE consider sponsoring symposia and expert meetings
in the following areas:
-- The Arctic: International Aspects of R&D
-- Transport: Freight Movement, High-Speed Rail
Transport and Area Traffic Control
-- Space: Monitoring Pollution
No specific agreement was reached on this proposal, and
delegations undertook to express national sentiments on
the issue directly to the Secretariat.
The final noteworthy Basket II activity during the
past quarter was an initiative.by Denmark, proposing a
symposium of countries which have territories north
of the Polar Circle with the aim of exchanging views
regarding experience in construction technology in the
arctic areas. The Danes initially contacted only the US
Canada, and Norway with this proposal, and, after receiving
positive responses, tabled the idea in the NATO Economic
Committee. The idea was welcomed by the other Allies
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as well. The Danes plan to move ahead with their
initiative by contacting the other CSCE countries with
territory in the arctic: Finland, Sweden, and the
USSR.
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C. QUESTIONS RELATING TO SECURITY AND COOPERATION
IN THE MEDITERRANEAN
There were no specific developments during the
reporting period which. CSCE states chose to relate
to the very broadly drafted provisions of the Final
Act on the Mediterranean.
As indicated in the last quarterly report, we
anticipate that some CSCE states such as Malta and
Yugoslavia, which are interested in expanding the
scope of the CSCE provisions to the Mediterranean
in connection with their overall foreign policy
interests, may begin to express interest in subjects
related to the Mediterranean as we move forward toward
the 1977 Belgrade follow-up meetings. The Yugoslavs
in discussions with the Dutch during the reporting
period raised the question of expanding the CBMs
provisions to the Mediterranean as a subject for
discussion at Belgrade.
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D. COOPERATION IN HUMANITARIAN AND OTHER FIELDS
1. Human Contacts.
2. Information.
The trend of events in human contacts and informa-
tion in the May 1 - July 31 period was generally similar
to that described in the Third Quarterly Report.
The Soviets and the Eastern European states
continued their aggressive polemical approach on
information and human contacts by criticizing US
visa refusals to Soviet labor representatives,
attacking US and Western radio broadcasting, and
claiming an imbalance in Western books and films
distributed in the East, as opposed to Eastern books
and films available in the West. In reply to Ambassador
Stoessel's July 2 presentation on CSCE in Moscow,
Soviet Deputy Foreign Minister Korniyenko indicated
the USSR would continue to criticize publicly US
visa refusals and radio broadcasts.
The US during the reporting period continued
to raise human contacts and information issues in
Moscow and the Eastern European capitals. Figures
that became available, and which are cited below
under Family Reunification, indicate a significant
increase in emigration from the USSR to the US in
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the first six months of 1976. At the same time, the
Soviet Jewish emigration rate remains only slightly
above the level of last year. Another significant
development was a Soviet announcement indicating that
Western journalists could apply for interviews directly
to Soviet officials, although it remains to be seen
what effect this measure will have in practice. The
GDR has also taken similar steps to improve working
conditions for journalists.
A summary of the review of US visa practice in
relation to the provisions of the Final Act will be
provided in the Fifth Quarterly Report. The review will
indicate what improvements can be made in US. practice,
taking into account the Final Act and US law. The Visa
Office of the Department of State is presently considering
liberalizing, on a reciprocal basis, the condition of
issuance of selected categories of visas to nationals of
certain communist countries. The Visa Office is also
exploring the possibility of proposing legislative
measures for the facilitation of travel.
As indicated in the Third Quarterly Report, the
Department of State, at the urging of the GAO, has under
consideration the question of raising US Immigrant Visa
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fees from $25 to $58 ($33 for children under 16) as
provided by law. We can anticipate criticism
from the Soviets and East Europeans for increasing
immigrant visa fees, rather than lowering them as specified
in the Final Act.
1. Human Contacts.
Family Reunification
Soviet issuance of exit visas for Soviet citizens
to join relatives in the US for permanent residence
has been increasing. The numbers of emigrants processed
by our Embassy in Moscow are as follows:
1970
1971
1972
1973
1974
1975
1976(through 6/76)
230
287
494
758
1029
1162
1303
As indicated, the emigration rate was slowly increasing
until this year when the number of persons processed in
the first six months of 1976 for entry into the US more
than equalled the total for all of 1975. Almost all the
increase is in one ethnic category - Armenians. Issuance
to Soviet Jews of exit visas for the US is only slightly
higher than before the CSCE. However, the overall numerical
increase is a significant development.
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Issuance of exit visas for Israel through the
first six months of 1976 was slightly higher than during
the same period in 1975. However, the recent average
monthly rate of approximately 1,200 dropped off in July
and August. It remains to be seen whether this is simply
a seasonal slump, or the beginning of a downward trend.
We have received reports that the Soviet authorities
in several cities are processing foreign emigration invita-
tions to Soviet Jews more restrictively, and that when
prospective emigrants are not able to document a family
relationship, the invitation is riot accepted. This
practice could-have a detrimental. effect on emigration
if it becomes widespread. There are also reports of a
new, more restrictive Soviet definition of "family" for
emigration purposes by some Soviet visa offices, limiting
travel to join only spouses or unmarried or minor children.
This new definition is said to be linked by Soviet officials
to the CSCE; it is reportedly being applied only in
certain areas of the USSR. In a letter to UN Secretary-
General Kurt Waldheim, 15 Jewish activists also noted that
since last May those who intend to seek an exit visa from
the USSR must give up their apartments before applying
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to emigrate. (Our information does not indicate that
this is a general problem.) While the Final Act notes
that the rights of applicants should not be modified
because of their request to emigrate, the letter noted
that if denied a visa "the applying family is left with-
out shelter from the elements".
Although not occurring within the reporting period,
on August 5, Ambassador Stoessel presented our 18th
Representational List to the Soviets, citing CSCE provi-
signs on the reunification of families. Noting that the
cases of 35 families consisting of 95 individuals from
our Representational List 17 of August 1975 had been
favorably resolved, the Ambassador expressed hope for a
better Soviet record on the new list. Representational
List 18, containing 112 families consisting of 312
individuals, has been rigorously authenticated, criteria
for inclusion being that the individual must have been
refused emigration, and must be the relation of an American
citizen or an alien admitted to the US for permanent
residence. (The previous Representational List included
249 families or 641 individuals of which -- besides the
above-mentioned 35 resolved family-cases -- 100 family-
cases consisting of 229 individuals have been for various
reasons withdrawn from the new list.)
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During presentation of the new Representational
List Ambassador Stoessel requested that when cases on
the list are refused, we be informed of the reason.
In response to the Soviet reply that it had no obliga-
tion to explain why visas are refused or exit permission
denied, the Ambassador suggested that both sides try
to deal with the problem of explaining refusals at
forthcoming consular review talks.
On June 15, new Soviet regulations on receipt of
gift merchandise from abroad went into effect, increasing
duties significantly, and, in some instances, imposing
stricter limits on the number of articles per package.
Like the revised Soviet regulations on gift cash remittances
from abroad, covered in the Second Quarterly Report on
CSCE Implementation, the.new restrictions on gifts
will apply to all Soviet citizens. They are not
specifically related to CSCE provisions but will be
especially hard on intending emigrants and those who
are refused emigration and are consequently without
work.. This change in Soviet regulations on foreign
gifts has evoked significant public and Congressional
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interest. Secretary Kissinger has conveyed our concern
about the measure to Soviet Ambassador Dobrynin, and
we have asked the Soviet Ministry of Foreign Affairs
about the matter.
As noted in the last Quarterly Report, the
Immigration and Naturalization Service (INS) Field
Office in Rome has refused conditional entry in
about 8 - 10 cases to Soviet emigrants because of
their past Communist Party membership, although the US
Embassy in Moscow had found them eligible for relief
from the pertinent ineligibility provision, under
the "involuntary" provision of section 212(a)(28)(I)(i)
of the Immigration and Nationality Act. There is
some difference of opinion between INS and the Depart-
ment of State regarding the interpretation of the
provision on involuntary membership in Communist organi-
zations, which the Department of State is discussing
with INS Central Office.
As noted in the Second Quarterly Report, Dean
Cornelius Hoxsey, a former American who is now a
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Soviet citizen, has cited the CSCE in requesting
approval of his application to return to the US.
However, Hoxsey's former membership in the US Communist
Party renders him ineligible, under the Immigration and
Nationality Act (INA), to receive a visa to return
permanently. The State Department has under considera-
tion a recommendation to the INS that Hoxsey's case
be reviewed in light of the CSCE, and, that he be paroled
into the US.
Unlike the case of the USSR, there have not been
significant increases in emigration rates from the
Eastern European countries, although there has been
some improvement in emigration to the United States
from Romania, where emigration is linked by the Trade
Act to MFN. Nevertheless, there have been several
developments on divided families in Eastern Europe
during the reporting period.
In a meeting with Assistant Secretary Hartman
on July 8, the GDR Ambassador claimed that over half
the divided family cases on the first list presented
by the US to the GDR had been resolved. However,
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this amounts to the resolution of only 14 of 27 cases
over more than two years, and 4 of these cases were
resolved independently of GDR authorities. Several
cases not on the first list are also pending. The US
Embassy in Berlin has followed-up on cases where
intending emigrants to the US have lost their jobs,
citing the CSCE provision that the "rights and obligations
of those applying for emigration should not be modified
because of their applications."
FRG officials have told us that the number of
GDR nationals applying to emigrate to West Germany
at the FRG Permanent Representation in East Berlin
has been steadily increasing. FRG officials attribute
this increased interest in emigration to rumors in
East Germany that the GDR may soon toughen emigration
policy; West German media, however, have linked. emigra-
tion interest to the CSCE provisions. FRG officials
fear that the increasing rate of applications for
GDR exit permits may jeopardize the successes achieved
in 1975 when the GDR issued over 10,000 emigration
permits for the FRG for "family reunification",
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although only about half of those granted permits
actually had family ties in the FRG.
In connection with a long-standing divided family
case, the Czechoslovak Foreign Ministry notified our
Embassy in Prague that the reunification of the family
should take place in Czechoslovakia, and that the case
of the person who wished to emigrate to join her
husband was "finally refused". our Embassy replied
by note that, according to the CSCE provisions, the
place of reunification could not be limited; that the
decision to pursue emigration rested with the indivi-
dual, not the state; and that the state therefore
could not "finally refuse" permission to emigrate.
Secretary of Treasury Simon and Assistant Secre-
tary Hartman raised.divided families during their
visit to Poland in June; Ambassador Davies also raised
several individual cases with Polish officials in
July. During a visit by a Polish parliamentary group
to Washington in June Ryszard Frelek, foreign policy
adviser to Gierek and head of the visiting group,
said that the overall question of family reunification
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is being studied in Poland. Deputy Assistant Secre-
tary Armitage took up the subject with Vice Minister
of Foreign Affairs Adamski in Washington late in July.
Adamski said that the Poles could pay adequate atten-
tion to this issue now that the divided families
problem with the FRG had been taken care of, for the
most part. The Polish situation is potentially sensi-
tive because of the large number of outstanding US-
Polish divided family cases.
As noted in the last quarterly report, Secretary
of Agriculture Butz was informed by Bulgarian authorities
in Sofia that 42 of the 72 cases of Bulgarians wishing
to be reunited with their families in the US would be
given permission to do so. Sixteen have since been
issued visas.
The emigration rate from Romania to the United
States continues to be well above past years. Although
the rate for the first six months of 1976 is slightly
lower than for the last six months of 1975, which
followed the granting of MFN, the current 1976 annual
emigration rate far surpasses the rate for any previous
year.
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On June 21, the Director of the Intergovernmental
Committee for European Migration (ICEM) in Geneva
sent a letter to all CSCE states, noting the CSCE
provisions on reunification of families and offering
the services of ICEM to assist in the realization of
those provisions. While no role for ICEM was foreseen
by the CSCE Final Act, because the membership of that
organization varies considerably from that of the CSCE,
we have replied to ICEM, indicating our support for
its initiative.
The Director General of UNESCO, in his proposed.
program for implementation in 1977-78 of the CSCE
provisions relating to UNESCO, has proposed a study
of "measures to facilitate the mobility of persons."
This subject is beyond the mandate given to UNESCO
for implementation of CSCE which was limited to
provisions relating to cultural and educational exchanges.
Most Western countries have opposed UNESCO involvement
with CSCE provisions relating to Human Contacts (see
also above section on Principles -- subheading on
"UNESCO Symposium on CSCE and Covenants on Human Rights.")
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Family Visits and Bi-national Marriages
Communist policy on family visits and bi-national
marriages continues to vary widely from country to
country. We continue to raise family visits and
bi-national marriages in the CSCE context on a case-
by-case basis. For example, in the GDR we continue
to pursue a case where the fiancee of an American
citizen has lost her job in connection with her
intended marriage and emigration.
During the first six months of 1976 issuance of
exit visas for private visits by GDR citizens to rela-
tives in the US totaled about 740, which is about 40%
higher than the 1974 and 1975 rates.
In Prague during the reporting period US Embassy
officers discussed with Foreign Ministry officials
the Czechoslovak practice of refusing permission for
persons to visit relatives in the US. The officials
explained that exit visas were refused to Czechs and
Slovaks wishing to visit relatives who were abroad
"illegally" (i.e., without official permission),
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although exceptions to this rule were made on a case-
by-case basis. The officials also indicated that there
might be some liberalization in Czechoslovak practice
within the next few months.
Travel for Personal or Professional Reasons
As indicated in the last quarterly report, in
keeping with a Final Act provision that states should
lower non-immigrant visa (NIV) fees to promote travel,
as well as standing US policy to lower NIV fees wherever
possible on a reciprocal basis, we instructed our
embassies in the five CSCE countries which charge NIV
fees (Bulgaria, Czechoslovakia, the GDR, Hungary and.
Poland) to make a proposal to host governments to reduce
NIV fees down to a no-fee status. To date, Hungary
and the GDR have replied negatively to our initiative.;
their reluctance to lower NIV fees is evidently based
on the need to continue such fees at. the present level
to obtain much needed hard currency from Western
travelers.
The requirement in the Eastern European states
for western visitors to exchange up to $10 per day
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for each adult may be a greater barrier than visa
fees to travel to the East. We have asked US embassies
in Eastern Europe for details on exchange requirements,
as a first step in exploring the possibility of seeking
reductions in exchange levels, at least for pensioners.
Soviet media and officials, including Brezhnev
at the European Communist Party Conference in Berlin
on June 29, have sharply criticized the US for refusing
visas to Soviet labor representatives, and have cited
such refusals as a violation of the CSCE provisions.
A Soviet Embassy officer, when informed of the visa
refusal, observed that the refusal came at a time when
the US is pressing the USSR to implement the Basket III
provisions. A high-ranking Soviet Foreign Ministry
official, taking exception to the refusals on grounds
of Communist Party membership, wondered what the
reaction in the West would be if the USSR refused
visas on the grounds that the applicants were Republi-
cans, Democrats or European Christian Democrats.
In response to public and Congressional queries
on the refusals, we pointed out that the labor
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representatives were refused under the terms of the
Immigration and Nationality Act regarding Communist
Party membership; that waivers of ineligibility were
not recommended in keeping with long-standing policy
in such cases; and that the views of the mainstream
of the American labor movement were taken into account
in the matter. In connection with the CSCE,?we indicated
that the US supports the provisions which generally
promote travel and contact among individuals and
organizations. However, there is no specific Final Act
reference to travel and contacts among labor repre-
sentatives because of the US position on the subject.
In signing the Final Act, all participants were aware
of our long-standing policy and.had accepted our position
against a reference to such exchanges.
On the other hand, the communist countries continue
to refuse visas to individuals and groups. During the
reporting period, the Soviet Union refused visas to
an American rabbi and his associate without explanation.
The Soviets also refused visas to a group of three
Jewish newsmen from Buffalo because of the "anti-Soviet"
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activities of certain American Jewish groups. In
both cases, the Soviets said further visa requests
might be considered favorably at a later time. Also,
as noted in the last quarterly report, the USSR
refused a visa to a voice of America correspondent.
When this matter was raised with a Soviet official in
May, he countered with the example of US visa refusals
to Soviet labor representatives.
On May 1, we informed the Soviets that we were
opening certain areas in the US formerly closed to
Soviet diplomats stationed here. The Soviets "took
note" of our action. On July 17, Assistant Secretary
Hartman. reminded Ambassador Dobrynin that we are
awaiting a response to our initiative.
Religious Contacts and Information
The Soviet Union gave permission to three Lithuanian
bishops to travel to the US in August for a Eucharistic
Conference in Philadelphia and later to the Vatican.
According to the Vatican, which views this Soviet action within
the CSCE framework, seven priests from the USSR went to
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the conference. Poland and Hungary were also repre--
sented at the Eucharistic Conference by high-level
Church officials. The Polish delegation was among
the largest.
Tourism; Meetings among Young People; Sport; Expansion
of Contacts
The Visit USA Committee, comprised of local
American businessmen and US Embassy officials to
.promote tourism to the US, had its first meeting with
Intourist officials in Moscow on May 10. The purpose
of the meeting was to solicit the views and assistance
of Intourist on ways to promote tourism. The US
side also made several specific proposals for considera-
tion by Intourist. The Soviets seemed generally
receptive at this initial session; the Committee
hopes to arrange additional meetings.
The European Youth Security Conference, which was
organized by a communist-dominated youth organization,
took place in Warsaw in June. Neither the US Youth
Council (USYC) or the American Council of Young Political
Leaders (ACYPL) were invited to preparatory meetings
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for the Conference; invitations to participate in the
Conference itself arrived late and requested each
organization to send a single delegate who would serve
only as an observer. The USYC and ACYPL rejected
these limited invitations as not being in keeping with
the CSCE.
As to American youth groups, an ACYPL delegation
visited Romania on July 22-29 for meetings with
Romanian youth groups. Additional information on
youth activities is contained in this report under
Cooperation and Exchanges in the field of Culture.
Sports exchanges continue to be an active area
of East-West activity. Some 30 US teams traveled to
Poland during the three-month reporting period to
compete in various sports, including basketball,
volleyball and soccer. A US volleyball team played
a series of matches in the USSR in June, and there
was a US-USSR juniors track meet in Leningrad in
early July. Also, a junior US womens' basketball
team played in Bulgaria in July.
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Additionally, a Soviet soccer team played a
German team in Washington, D. C. during the. reporting
period. A Romanian handball team toured the US in
July, and a Bulgarian basketball team played. several
matches in New England in early July.
The expansion of contacts provisions continues
to be a sensitive area, as communist media and spokes-
men attack US. refusal of visas to certain communist
groups, such as Soviet labor representatives.
2. Information,
Oral, Printed, Filmed and Broadcast Information;
Cooperation in Field of. Information
The communist attacks on
the content of US and
Western broadcasting as being contrary to the CSCE
continued during the reporting period. Brezhnev
personally joined the attack in his June 29. speech
at the Conference of European Commluzist Parties when
he charged that the existence of Radio Liberty and
RadioFree Europe "is a direct challenge to the spirit
and letter of the Helsinki accords." We continue to
refute this type of argumentation, noting that all C:SCE
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states are committed under the Final Act "to facilitate
the freer and wider dissemination of information of
all kinds."
As noted in the Third Quarterly Report, at Soviet
and East European instigation, the accreditation of
RFE was revoked by the International Olympic Committee
(IOC) on a technicality at the Winter Olympic Games.
After steps were taken by the management of RFE and RL,
with the assistance of the US, to guard against a
repetition, the IOC granted accreditation to the two
organizations to cover the 1976 Summer Games in
Montreal despite a Soviet and East European effort
to deny the radios' accreditation. -
The Soviets and Eastern Europeans continue to
compare the comparatively large number of Western
books and films available in their countries to the
smaller number of Eastern books and films in the West.
This position has become a prominent fixture of
communist CSCE policy and is likely to continue to
the 1977 follow-up meetings. This reasoning tries,
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by way of statistical comparisons, to make the case
that the East is implementing the Basket III provi-
sions, despite claims to the contrary by the West.
In a related development, news reports have
publicized the Soviet practice of deleting portions
of Western books for political and ideological reasons.
In one case, a Hemingway classic was altered to present
a communist in a more favorable light.
There was no change during the reporting period
in numbers of copies and titles of Western newspapers
and periodicals available in the USSR and Eastern
Europe.
The Director General of UNESCO, in his proposed
program for implementation in 1977-78 of the CSCE
provisions relating to UNESCO, has proposed consulta-
tions with broadcasting organizations from Eastern and
Western Europe in order to arrange for increased program
exchanges. This subject is beyond the mandate given
to UNESCO by the,CSCE Final Act, which was limited to
implementation of provisions relating to Cultural and'
Educational exchanges. Most Western countries have
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opposed UNESCO involvement with CSCE provisions
relating to Information. (See also above section
on Principles -- subheading on "UNESCO Symposium on
CSCE and Covenants on Human Rights.)
Working Conditions for Journalists
US Embassy officers in Moscow continue to have
frequent contact with Soviet Foreign Ministry officials
on such matters as wider travel opportunities and
greater access to sources for American journalists.
In mid-July the Soviets announced that foreign
journalists in Moscow will be permitted to contact
government officials directly instead of applying
through the Foreign Ministry. According to a Foreign
Ministry source, this move confirms a procedure that
is.al.ready followed by many Soviet officials. American
journalists in Moscow seem to doubt that this action
will lead to greater access to Soviet officials or to
better sources of information, although it will require
some time to determine its application in practice.
A similar change has been announced by the GDR.
Effective July 1, 1976, journalists accredited to the
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GDR are authorized to request information directly
from the press offices of individual government
ministries, rather than only through the Foreign
Ministry as in the past. FRG journalists accredited
in East Berlin report an increasingly business-like
attitude toward them on the part of GDR officials.
Although high-level party functionaries remain
inaccessible, the journalists have noted success in
dealing directly with individual ministries in the
weeks since July 1.
Also effective July 1, dependents of accredited
journalists are now entitled to documents that facilitate
travel between East and West Berlin and between-the
GDR and the FRG. The GDR, however, continues to
refuse accreditation to American and other journalists
based in West Berlin and the FRG.
On May 25 the Soviet paper Literaturnaya Gazeta
charged that three American journalists in Moscow
were linked to the CIA. Follow-up Soviet news stories
went so far as to imply that one of the journalists,
who had entered a suit for slander against Literaturnaya
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Gazeta (subsequently dropped), had been involved in illegal
activities. The newsmen and their papers categorically
denied any connection with the CIA. While this type of
harrassment of journalists is not covered specifically
by the CSCE provisions, the effect of the Soviet
charges has been to detract from progress made in
working conditions for journalists in the USSR in
such areas as the granting of multiple entry-exit
visas, somewhat wider travel opportunities, and the
possibility of easier access to sources.
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Sko
D. COOPERATION IN HUMANITARIAN AND OTHER FIELDS
3. Cooperation and Exchanges in the Field
of Culture.
4. Cooperation and Exchanges in the Field
of Education.
In the year since the signing of the Helsinki
Final Act the Soviet Union and the Eastern European
countries have expressed interest in expanding existing
educational and cultural exchanges with the US and
in initiating new exchanges.
In review talks with the Department of State
in December 1975 the Soviets proposed to increase
the existing reciprocal exchanges of graduate students
and young scholars, a proposal the Department agreed
to consider and which will be discussed further during
negotiations on the 1977-79 program of exchanges. The
Soviets have also shown interest in bilateral seminars in
fields of common interest. Two seminars have been held in
education and two are being planned in theater and
literature. The Soviets have also agreed to a proposal
to expand the exchange of leaders for short-term visits,
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and Soviet delegations in the fields of journalism,
radio and TV, literature, and library science have
visited the US. The Soviets have also agreed in
principle to an expansion of the long-term exchange
of Fulbright lecturers between universities of the
two countries, details of which are now being worked
out. In a new policy departure, the Soviets have
given approval in principle to direct exchanges
between universities of the two countries. Expansion
of other exchanges with the Soviets has been limited
by a shortage of funds.on the US side caused by a
rescission in the Department's FY 76 budget for
educational and cultural exchanges.
In Eastern Europe a similar interest has been
evident. With Hungary, Czechoslovakia, and Bulgaria,
countries with which previously we have had very limited
exchanges, we are now negotiating intergovernmental
exchanges agreements which are expected to lead to
an expansion of these activities. In 1973 the GDR
agreed for the first time to conduct scholarly
exchanges with the US, and the first US Government-
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supported American and East German scholars will begin
exchanges in September. With Poland direct exchanges
of students and lecturers with US universities continue
to proliferate.
While there are still limitations and controls
on the educational and cultural exchanges we can conduct
with the Communist countries, the CSCE Final Act appears
to have given a cautious approval to those in the Soviet
Union and Eastern Europe desiring to expand mutually
advantageous exchanges with the US.
Developments during the May 1-July 31 period
relating to the cultural and educational provisions
of the Final Act coincided for the most part with
patterns noted in previous Quarterly Reports. Imple-
mentation continued to be channelled through primarily
bilateral - but also multilateral - arrangements
developed prior to the CSCE, and the provisions on
cultural and educational cooperation remained less
controversial than the Basket III sections concerning
Human Contacts and Information. Progress toward
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implementation continued to reflect the slow but posi-
tive trend of expanding activities which has characterized
East-West cultural and educational relations in recent
years. As in the past, however, ideological differences,
national interests, and the availability of funds-have
set parameters limiting broader implementation.
There were no major changes during the reporting
period in the position of the USSR and the Eastern
European states regarding cultural and educational
cooperation. As noted below, however, there were
some new developments in exchanges along established
lines of cooperation.
The Soviet Union and its Eastern European Allies
are ever on the alert to reinterpret the Final Act of
the CSCE to their benefit. At the 99th session of the
UNESCO Executive Board (April 26 - May 26, 1976), the
GDR, with the backing of the Soviets and East Europeans,
offered a draft resolution which, if adopted, would
have broadened UNESCO's role in the implementation of
the Final Act. A preambular paragraph of the GDR
resolution considered UNESCO "capable of serving in the
future as an instrument of wider regional co-operation,"
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while an operative paragraph invited the Director-
General "to take all the steps he considers appropriate
to carry out the measures envisaged" in his program.
The United States and Western European countries were
successful in eliminating the GDR.language in the final
resolution and in separating the specific projects noted
in the above sections on Human Contacts and Information
from those activities legitimately carried out by UNESCO
in the CSCE context.
In terms of US action, an important development
during the reporting period was a meeting June 14 between
representatives of the publishing industry and government
officials to discuss ways to implement the sections of
the Final Act pertaining to books. As a result of that
meeting, agreement was reached on an agenda of possible
new initiatives in this area. The meeting was also note-
worthy in that it was undertaken at the initiative of
the private sector which in the US must bear much of the
burden in carrying out certain Basket III provisions.
Another benchmark.of the reporting period involved events
surrounding observance of the US Bicentennial.
In other areas, the US continued negotiations on
bilateral exchanges agreements in scientific, educational
and cultural areas with Bulgaria, Czechoslovakia and
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Hungary. There were some positive developments in
cultural and educational cooperation with Romania. As
in the past, the USSR and Poland in Eastern Europe
continued to be the countries in which most US educa-
tional and cultural activity centered.
* * * *
Set out below are specific examples of activities
in the cultural and educational fields covered by
Basket III.
3. Cooperation and Exchanges in the Field of
Culture.
Extension of Relations; Mutual Knowledge;
Exchanges and Dissemination; Access;
Contacts and Cooperation;- Fields and Forms
of Cooperation.
As noted above, the potentially most significant
new development during the reporting period was the
June 14 meeting of representatives from government
and the private sector to review proposals for possible
initiatives in the area of books and libraries. During
the meeting the publishing community was encouraged to
make a specific proposal to the Soviets regarding the
establishment of an American Bookstore in Moscow.
The Association of American Publishers (AAP) will
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also explore the possibility of having a Book Fair
on the Culture of the CSCE Nations in Moscow. Following
the UNESCO General Conference in Nairobi this November -
at which it is anticipated that a new protocol to
the Florence Agreement will be adopted - the Department
of State will urge CSCE nations not a party to the
Florence Agreement (i.e., Bulgaria, Canada, Czechoslo-
vakia, the German Democratic Republic, Hungary,
Iceland, Liechtenstein, Portugal, San Marino, Turkey
and the USSR) to join the agreement which facilitates
educational, scientific and cultural materials by
removing certain customs barriers.
In the publishing field, the AAP also hosted
in July the visit of two Soviet officials to discuss
future exchanges between the US and the USSR and a
joint Publishers Seminar presently scheduled to be
held in Moscow this September. The AAP's International
Trade Committee is also developing a paper, based on
the recommendations and comments made during the June 14
meeting at the Department of State, on reestablishing
the Informational Media Guaranty Program (IMG) or a
similar organization. USIA is also studying the question.
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Some developments during the reporting period
involving the USSR and Eastern European countries
were keyed to observance of the Bicentennial. Soviet,
Polish and Romanian sailing vessels were among-the
225 ships from 30 countries which participated in
"Operation Sail." Following the festivities in New
York Harbor on July 4, the Polish schooner Dar Pomorza,
the largest of three Polish ships which participated
in "Operation Sail," continued on to Savannah, Georgia.
There it delivered an urn of soil from the birthplace
of Count Casimir Pulaski which was presented by
the Polish Ambassador to the US to the people of
Savannah in a ceremony honoring the Revolutionary war
hero, who was mortally wounded during the 1779 Siege
of Savannah.
Polish television highlighted July 4 by broad-
casting a 15-minute salute to the Bicentennial which
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relayed via satellite from the US. The newscast was
led off with a ten-minute filmed segment of ceremonies
at the Polish Sejm during which First Secretary Gierek
presented US Ambassador Davies with models of statues
of Polish-born Revolutionary War heroes Pulaski and
Kosciuszko which will be placed in American cities.
Polish television also marked the Bicentennial by
broadcasting a Kosciuszko Foundation-produced film
on Poles in the United States.
After initially strong negative coverage by
the media in the GDR ?-- most notably a documentary
broadcast July 2, entitled "America: Sick Land" --
the GDR presentation of the Bicentennial assumed a
positive tone. A special observance, hosted by the
GDR League of People's Friendship and the Institute
for International Relations of the Academy of Political
Science and Jurisprudence, was held in East Berlin
July 22. GDR television carried a report on the
observance and focused upon the presence of US
Ambassador Cooper. The GDR's sudden observance of
the Bicentennial represented an unusually positive
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gesture and probably is intended as a signal of GDR
interest in further movements in US-GDR relations.
Czechoslovak authorities also held special ceremonies
for the Bicentennial in one of the warmest gestures
towards the US in recent years.
Romania's response on the occasion of the Bicen-
tennial has also been extremely positive. Our Embassy
in Bucharest reports that the National Day reception
was marked by the largest and highest-level turn-out
ever, including attendance by Prime Minister Manea
Manescu. The Romanian press also published articles
on US-Romania relations written by Ambassador Barnes
and the Economic Counselor at our Embassy in Bucharest.
A third article, written by Ambassador Barnes on
Idealism and Pragmatism in American History, is to
appear in a scholarly journal published by the Romanian
Association for International Law and International
Relations. This marks the first time Romania has ever
published articles written by Western diplomats
resident in Bucharest. In addition, a Romanian publishing
house is planning to release a book dealing with American
graphics as a tribute to the Bicentennial. In September
the same publishing house, in conjunction with USIA, will
issue a Bicentennial photo album.
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Attendance by Soviet officials at the National
Day reception at the US Embassy in Moscow and the
media coverage in the USSR in connection with the
Bicentennial were also very good. Ambassador Stoessel's
five-minute presentation on July 4th was carried on
Soviet prime-time news. Soviet television also
broadcast coverage of a Soviet-sponsored meeting
observing the Bicentennial which was hosted by the.
USSR-USA Society and the Institute of the USA and
Canada.
In the area of films, the USSR, as noted in the
Third Quarterly Report, continues to cite "discrimination"
towards Soviet films by Western film distributors and
festival organizers. They specifically note the
absence of Soviet films at the Cannes festival. The
basis for the low number of Soviet and Eastern Euro-
pean films seen in the West, however, rests with
their lack of audience appeal. To help in part to
remedy this situation., the Department of State has
proposed to the Soviets that they consider an initial
exchange of young film directors to learn Western
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techniques which might enhance both audience acceptance
and thus the financial viability of their movies in the
West. Our Embassy in Moscow has also proposed an ex-
change of film festivals which the USSR State Committee
on Cinematography has accepted. We are currently dis-
cussing possible dates for our festival in Moscow.
Talks between a US film company and Soviet
officials were conducted June 22-25 in Moscow on a
second US/USSR co-production entitled "Sea Pup". As
a result of these discussions a protocol and prelimi-
nary agreement were signed. Filming will be conducted
both in the US and USSR with actors from both countries
participating in the movie which is scheduled to be
released in late 1977. Also during the reporting period,
the Environmental Protection Agency's film "Does It
Have to Be This Way?" was shown on Czech television on
nation-wide, prime viewing time. The film was an
entry in "Ecofilm '76", this year's International Show
of Films on the Environment in Prague.
In connection with their Bicentennial observance,
Romanian television aired two films made in conjunction
with USIA by a Romanian film team. The first film,
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shown nationwide on prime-time on June 29, dealt
with the cities of New York and San Francisco. The
second film concerned American history and was broad-
cast during prime-time on July 4, just prior to
Ambassador Barnes' 10-minute national day presenta-
tion. To cap the occasion Romanian television made
it an entirely American evening by showing "That's
Entertainment" as the evening movie. Also during the
reporting period, a special 30-minute program on the
Viking project, based primarily on material provided
by USIA, was broadcast: on Polish television.
Exchanges in the performing arts included the
visits to the USSR by the American Conservatory Theater
(ACT) and the North Texas State University Jazz Band.
The latter group gave concerts during June in the
Soviet cities of Yerevan, Tbilisi, Baku, Leningrad
and Moscow while ACT presented some twenty-two
performances of "Desire Under the Elms" and "Match-
maker" to audiences in Moscow, Leningrad and Riga.
Soviet performing artists visiting the US included
the Russian Festival of Music and Dance which began
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its tour in New York City June 28 and also performed
in Holmdel, New Jersey; Ambler, Pennsylvania; and
Boston during the reporting period. A Soviet Quartet
also played with the Philadelphia Symphony Orchestra,
June 18-26.
In the area of exhibits, the Soviet display,
"Scientific Siberia," continued its tour of the
US. The USSR also provided a Soyuz capsule for
the. recent opening of the Smithsonian's National
Aeronautics and Space Museum. On the US side, the
exhibit, "Photography USA" opened in July in Kiev.
The Soviet USA Institute has also given us an
informal positive response concerning cooperation
in joint seminars on the American Revolution, Issues
in American History, and the US After 1976, in connec-
tion with our Bicentennial Exhibit opening in Moscow
in November 1976. The newly-formed Center for US
Studies at Moscow State University has also shown
interest in participating in such seminars.
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4. Cooperation and Exchanges in the Field of
Education.
Extension of Relations; Access and Exchanges;
Science; Foreign Languages and Civilization;
Teaching Methods.
Exchanges and the planning for future exchanges
highlighted progress towards implementation of the
educational provisions of the Final Act during this
reporting period. The Soviet Academy of Sciences
accepted in principle a proposal by the US National
Academy of Sciences for a series of seminars in
.experimental psychology. On July 10 a delegation
-of US specialists in this field arrived in Moscow
to negotiate the conditions governing such an
exchange. The Director of the National.Institute of
Education also visited Moscow during the reporting
period to learn what the Soviets are doing in educa-
tional research and to explore possibilities for
future exchanges and cooperation.
For their part, a five-person Soviet university
library delegation arrived in the US May 2 for a two-
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week visit to public and university libraries in
Washington, D. C.; Columbus, Ohio; and New York City.
Another US/USSR exchange involved the twelve-week
visit under 4-H sponsorship of fifteen young Soviet
agricultural specialists to US farms. A similar
group of Americans is in the Soviet Union, marking
what is believed to be the first time the Soviets
have permitted Americans to live on collective farms.
In addition, thirty-five American teachers of Russian
departed June 12 for a ten-week language program
at Moscow State University. Our Embassy in Moscow
also noted during the reporting period that the USSR
Union of Journalists has responded well to our over-
tures for journalist exchanges. Reports brought
back by the first Soviet participant in a multi-
regional project involving radio studies at Syracuse
University were positive and set the stage for more
such programs. In this connection, a three-person
delegation sponsored by the Soviet State Committee
on Radio and Television started a short visit to
the US on July 20.
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In terms of future exchanges in new areas, the
Department of State's Bureau of Educational and Cul-
tural Affairs is looking into the possibility of
.exchanges of graduate students and senior faculty
with the Soviets in business administration and
management. The feasibility of American law students
going to the Soviet Union for a year of study is
also being investigated.'
In Eastern Europe, the Hungarian Institute of
Cultural Relations agreed during the reporting period
to a US proposal for a short-term (six-weeks) lecturer
exchange during the 1976-77 academic year. Poland
has proposed an exchange of publications on historical
preservation in Poland and the US. The Director of
the Polish Historical Monuments Documentation Center,
who visited the United States last fall for a conference
on this subject, has been giving a series of lectures
in his country on historical preservation in the US.
The Poles are also actively promoting direct
exchanges with US universities. Warsaw University
and the University of Kansas'signed an agreement
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May 18 on student and faculty exchanges to start in
September 1976. Warsaw University, in cooperation
with Indiana and Illinois Universities, is also pre-
paring to open an American Studies Center in October.
Staffed with two US lecturers, and partially funded
by a Department of State grant, this will be the first
such center staffed with Americans in a Communist
country. In addition, Marie Curie Sklodowska University
of Lublin, Poland, and Lock Haven State College
(Pennsylvania) concluded an exchange agreement which
will begin in September.
As noted in the Third Quarterly Report, the Soviets
are also coming to see the benefits in direct university-
to-university exchanges. During negotiations on an
exchange agreement between the State University
of New York (SUNY) and Moscow State University, for
example, the Soviet Ministry of Higher Education
did not seek to exert political or administrative
control over arrangements. The Ministry's only
change in the SUNY draft concerned stipends. In
the discussions on this exchange, the Soviets also
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agreed that at least half the people in the program
will come from the humanities and social sciences
and noted they are prepared to start exchanges of
graduate students and faculty in January 1977. The
one possible hitch in the SUNY-Moscow State University
negotiations, which could set a precedent for future
direct university exchanges, was the Soviet insistence
on higher stipends. This, in turn, could place the
costs beyond the reach of some US universities that
may be interested in such exchanges.
Soviet academic institutions are also becoming
more receptive to presentations by Americans in US
history. During the reporting period, for example,
Harvard Professor Robert Fogel held relatively open
discussions with top Soviet historians and economists
at a number of-prestigious Moscow academic institutions.
As the Soviets have generally been agreeable to
increased exchanges, sensitivity has grown in the
American academic community toward inequalities in
access received by Americans in the Soviet Union, as
compared with facilities open to Soviets in the US.
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This issue was debated at a recent American Association
for the Advancement of Slavic Studies meeting and
was the subject of a scholars' petition and a state-
ment read into the Congressional Record by Congressman
Larry McDonald of Georgia. In a related development,
six University of Maryland department chairmen
recently informed the International Research and
Exchanges Program that they will no longer accept
Soviet scholars in their departments. Their decision,
they say, is due to the failure of the Soviet
government to permit individual Soviet scientists
to leave the USSR. On balance, however, our Embassy
in Moscow notes that the recently concluded academic
year was the smoothest in terms of Soviet support
since the signing of the US-USSR exchanges agreement..
The Bicentennial, of course, has heightened
Eastern interest in American history. In mid-July,
seven US historians and political scientists parti-
cipated in a special session of the Romanian Academy
of Sciences which focused on the US Bicentennial.
Following the week-long conference the US partici-
pants lectured at various Romanian academic
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institutions on American Life. There were two other
developments of significance during the reporting
period regarding
a four-person US
Council of Young
and the Romanian
US-Romanian relations. On July 22-29,
delegation sponsored by the American
Political Leaders visited Romania
ministry
approved an agreement for
University of Illinois at
of Cluj.
of Education finally
cooperation between.-the
Urbana and the University
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E. FOLLOW UP TO THE CONFERENCE
Activity related to the question of the two
follow-up meetings to begin in Belgrade in June 1977
continued to increase during the reporting period.
At the NATO Ministerial in Oslo on May 20-21 several
Ministers addressed the follow-up meetings, expressing
some preliminary thoughts on how they should be
organized and what should be discussed. Acting on
broad policy guidelines provided by the Ministerial
discussion, it was'agreed at NATO that a second CSCE
experts meeting would take place in October, following
an EC Nine meeting which will approve a report by
the Nine on CSCE. The purpose of the NATO meeting
would be to lay the groundwork for a further discussion
of CSCE and the follow-up meetings at the December
Ministerial.
In addition to NATO consultations, a Department
official traveled to Belgrade and Bucharest in late
May for discussions of CSCE. In July, the Department
instructed embassies in certain neutral capitals to
make another presentation to host government CSCE
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officials on CSCE issues, including the question, of
the follow-up meetings.
Exchanges among governments have. been yielding
an increasing number of ideas on the Belgrade meetings
with wide differences of view in many cases. For
example,.the Yugoslavs have said the jfirst follow-up
meeting should be brief and the secon should be
long; the Swiss have suggested the reerse; and a
Polish official has said two short-mei~tings would be
:while other Allies and the Eastern states do not appear
appropriate. The Western states are generally interested
in a serious review of implementation!at Belgrade;
the communist states evidently want a brief, general
meeting which will not go into details. Certain
Allied and neutral states may wishtolmake new proposals,
t this time to be interested in new substantive initia-
The neutrals will probably press for a regularized
follow-up mechanism after the Belgrade meetings.
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