SECOND QUARTERLY REPORT ON IMPLEMENTATION OF THE FINAL ACT OF THE CONFERENCE ON SECURITY AND COOPERATION IN EUROPE (CSCE)

• Document Type: CREST
• Collection: General CIA Records
• Document Number (FOIA) /ESDN (CREST): CIA-RDP79M00467A002500140008-2
• Release Decision: RIPPUB
• Original Classification: S
• Document Page Count: 83
• Document Creation Date: December 12, 2016
• Document Release Date: May 3, 2002
• Sequence Number: 8
• Publication Date: March 22, 1976
• Content Type: LETTER

X 75-/O3VC.
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DEPARTMENT OF STATE
Washington, D.C. 20520
NSC UNDER SECRETARIES COMMITTEE
SECRET
"NSC-U/SM-160B March 22, 1976
TO:
The Deputy Secretary of Defense
The Assistant to the President for
National Security Affairs
The Director of Central Intelligence
The 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, National Science Foundation
The Director, United States Information
Agency
The Acting Executive Directors Council on
International Economic Policy
SUBJECT: Second Quarterly Report on Implementation
of the Final Act of the Conference on
Security and Cooperation in rairope (CSCE)
.Attached for your comment and/or concurrence
are a draft Memorandum for the Presidcnt and second
quarterly report on the implementation of the CSCE
Final Act. Editorial and minor substantive comments
may be provided to Mr. John J. Maresca, Department
of State, 632-1358. Substantial substantive comments
should be addressed to the Chairman_jn writing. Your
response is requested by c.o.b. Tuesday, March 30,
Attachments:
am E. a riglir"
Staff Director
As stated SECRET
State Dept. review comnlefecl,
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NSC UNDER SECRETARIES COMMITTEE
MEMORANDUM FOR THE PRESIDENT
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Subject: Second Quarterly Report on Implementation
of the Final Act of the Conference on
Security and Cooperation in Europe (CSCE)
This is the second quarterly report submitted
by the NSC Under Secretaries Committee on implementa-
tion of the provisions of the Final Act of the
Conference on Security and Cooperation in Europe
(CSCE). It covers the period November 1, 1975 -
January 31, 1976, and reports those actions related
to the CSCE which have been taken since the end of
the last reporting period.
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While the CSCE involved thirty-five states, it
is also an important element of our relations with
the Soviet Union. Implementation of the Final Act's
provisions offers additional opportunities to engage
the Soviets in areas of constructive activity where
cooperation can be mutually advantageous. It also
gives us new possibilities for making progress in
areas such as family reunification and binational
marriages which have been long-standing bilAeral
problems between the US and the Soviet Union and the
Eastern European states. The follow-up meetings set
for Belgrade in 1977 will be an occasion for reviewing
implementation and considering possible further steps
in the CSCE context. Our appioach to implementation
of CSCE has been keyed to these aspects of the post-
Conference situation, and to the fact that implementa-
tion is an integral part of the overall East-West
equation.
The November-January reporting period can be
characterized generally as one of transition from
interpretation and organization to one of more
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active implementation efforts. NATO continues to
be the focal point of Western coordination on CSCE
implementation, with exchange of information and
consultations on implementation a regular fixture
on the organization's weekly agenda. The NATO
International Staff prepared a report on implementa-
tion for consideration at the December 11-12 meeting
of the North Atlantic Council at ministerial level.
The US has participated fully in all these activities,
and has urged the Allies to do the same.
The Warsaw Pact governments evidently developed
guidelines for implementation at meetings of Communist
Party leaders in Warsaw on Decetber 9 and January 26-28
and of Foreign Ministers in Moscow on December 15-16.
The communique of the Moscow meeting stated that
the Warsaw Pact countries would "fully implement
the principles and agreements" of the Final Act and
would take steps to "lend more concrete substance"
to European security and detente. These meetings
were followed by several specific implementation
steps by the Communist countries.
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The USSR on January 4 gave advance notification
of a major military maneuver named Caucasus held
near the Turkish-Soviet border from January 25 -
February 6. The Soviets also invited observers
to this maneuver from CSCE participant states in
the area, including two NATO members, Greece and
Turkey.
General Secretary Brezhnev, in a speech in
Warsaw on December 9, called for all-European
conferences on energy, transportation and the environ-
ment to continue the process of cooperation in fields
covered by Basket II of the Final Act. Two Eastern
European countries, Czechoslovakia and Bulgaria,
have issued decrees permitting establishment of
foreign business offices, in keeping with CSCE
provisions on improving working conditions for
businessmen, and consultations have begun at the
UN Economic Commission for Europe (ECE) in Geneva
on carrying out those CSCE provisions which are
the responsibility of the ECE.
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In the more sensitive Basket III area, the
Soviets have somewhat eased regulations governing
internal travel by foreign journalists, and we
have responded by easing our own regulations in a
similar way. The Soviets have also taken a number
of steps evidently aimed at simplifying application
for emigration and reducing its cost, and have
reportedly permitted delivery of some printdd religious
material, in accord with CSCE provisions. A Soviet
official has also announced the USSR's intention to
permit circulation of 18 Western newspapers, including
the New York Times and Le Monde. We have no informa-
tion on the conditions of distribution, but if past
practice is a guide the availability of these publica-
tions is likely to be highly restricted.
Overall Eastern practices in the field of Human
Rights have not changed. Dissident physicist Andrei
Sakarov was denied permission to go abroad to receive
his Nobel Peace Prize, and Mrs. Irina McClellan, the
Soviet wife of an American citizen, has not been
permitted to join her husband in the US despite
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widespread publicity and interventions by our Embassy
in Moscow. Overall emigration and family reunification
patterns remain about the same in the USSR and
Eastern European states.
Interest in expanding cultural and educational
exchanges is high in the US and in the Soviet Union
and the Eastern European countries. We have tabled
draft bilateral agreements on cultural-educational-
scientific exchanges with Bulgaria, Czechoslovakia
and Hungary, and negotiations are going forward at
differing paces depending on the different local
situations. In a report to Congress, the Chairman
of the United States Advisory Commission on Inter-
national Cultural Exchanges has recommended that
the CSCE provisions be used to increase such exchanges.
However, US government funds are insufficient for
such an increase at this time.
Eastern steps toward implementation have been
accompanied by more energetic Communist criticism
of Western implementation action. Communist repre-
sentatives and Eastern propaganda have accused the
West of unduly stressing the freer movement provisions
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of Basket III, while ignoring the list of principles
for interstate relations, which the Eastern nations
themselves consider the most important section of
the Final Act. The Communists have accused the
West of seeking through Basket III to intervene in
their internal affairs, and of failing to carry
out certain provisions of the CSCE, such as full
distribution of the Final Act and easing of procedures
related to travel.
We believe our performance in implementing
the great majority of the Final Act's provisions
vl cannot be faulted. Nevertheless, certain US visa
practices, such as exclusion of Communist party members,
expose us to possible criticism for failure to "facili-
tate wider travel" and "gradually to simplify and to
administer flexibly the procedure for exit and entry!"
as called for in the Final Act. Should fees for US
immigration visas be increased, as noted in the first
quarterly report, we could also be criticized for
failing to implement the Final Act commitment "gradually
to lower . . . the fees for visas." The State Department
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Visa Office has undertaken a review comparing the
provisions of the Final Act to our current
practices in an attempt to identify areas in which
our procedures can be improved, within the terms of
the Immigration and Nationality Att. Inability to
expand our existing exchange programs with the USSR
and the Eastern European states could also lead
to accusations of failure to carry out the Final Act's
provisions.
Activity during the reporting period suggests
that the Soviet Union and its Allies have decided
to take certain limited steps toward implementation
of the provisions of the CSCE Final Act. However,
the Eastern countries will have to come considerably
closer to full implementation before the June 1977
follow-up meetings in Belgrade to satisfy Western
public opinion. A serious analysis of the Final Act
circulated during the reporting period by the American
Jewish Committee (AJC) found that the West gained at
least as much--and possibly more--in the Human Rights
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field in CSCE as the Soviets did in terms of
legitimization of frontiers in Europe, but under-
lined the expectation of the US public that.the
Administration will continue to press for full
implementation. The AJC report particularly noted
the importance of the Belgrade follow-up meetings
and of a continuing follow-up mechanism for ensuring
full implementation.
At the same time, the Soviets and their allies
have taken the offensive in criticizing Western
implementation wherever possible in order better to
defend gaps in their own implementation. The Western
countries, including the US, will have to examine con-
scientiously their own practices in relation to CSCE
commitments, and prepare themselves to respond to
Eastern criticisms prior to and at Belgrade. The
Belgrade meetings thus have considerable potential,
not only for further constructive efforts, but also
for East-West recriminations. Eastern representatives
have indicated concern that such recriminations might
occur. The follow-up meetings look increasingly as
though they may be a complex and closely watched
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barometer of East-West relations. Our eventual approach
to the Belgrade meetings will need to take into account
the general state of East-West relations in mid-1977,
as well as CSCE implementation.
Nevertheless, perceptions of the significance
of the CSCE have continued to mature, and there has
been a growing realization that the Final Act repre-
sents a Western achievement, provided it is implemented
in a meaningful way. The views of Andrei Sakarov are
particularly relevant to this question because of his
role as spokesman for Soviet dissidents. In his Nobel
*Peace Prize acceptance speech, delivered on his behalf
on December 11 by his wife, Sakarov said in part:
? "The final agreement reached at the Helsinki
conference has a special claim on our attention,
because here for the first time official
expression is given to a nuanced approach
which appears to be the only possible one for
a solution of international security problems.
This document contains far-reaching declarations
on the relationship between international
security and the preservation of human rights,
freedom of information and freedom of movement.
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"These rights are guaranteed by solemn
obligations entered into by the partici-
pating nations. Obviously we cannot
speak here of a guaranteed result, but
we can speak of fresh possibilities that
can only be realized as a result of
long-term planned activities, in which
the participating nations, and in parti-
cular the democracies, maintain a unified
and consistent attitude."
In these circumstances, the policy enunciated
in your Helsinki speech, with its emphasis on imple-
mentation as the test of the CSCE, continues to
represent the most cogent approach to the results
of the CSCE.
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SECOND QUARTERLY REPORT ON IMPLEMENTATION
OF THE FINAL ACT OF THE CONFERENCE ON
SECURITY AND COOPERATION IN EUROPE (CSCE)
November 1, 1975 - January 31, 1976
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CONTENTS PAGE NO.
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. 12
B. Cooperation in the Field of Economics,
of Science and Technology, and of the
Environment. 16
C. Questions Relating to Security and
Cooperation in the Mediterranean. 26
D. Cooperation in Humanitarian and
Other Fields. 28
1. Human Contacts. 30
2. Information. 44
3. Cooperation and Exchanges in
the Field of Culture. 52
4. Cooperation and Exchanges in
the Field of Education. 60
E. Follow Up to the Conference. 63
F. Preamble and Final Clauses of the
Final Act. 66
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A. QUESTIONS RELATING TO SECURITY IN EUROPE.
1. Declaration on Principles. Guiding
Relations between Participating States.
Differing interpretations of the principles
deriving from fundamental ideological differences
continue to pose difficulties for the monitoring
of implementation of the principles. In a non-
paper handed to the US Ambassador in Moscow on
November 12, the Soviets stated that they had always
observed the principles embodied in the CSCE Final
Act and that there was thus no need for them to
take special implementation measures with regard to
the principles. This is obviously not the case,
especially with regard to such CSCE principles as
self-determination and respect for human rights.
Similarly, Czechoslovak Foreign Minister Chnoupek
stated during a visit to the Netherlands in November
that the CSCE principles should be applied only
between countries with differing social/political
systems, a view which makes it possible to reconcile
the CSCE principles with the Brezhnev doctrine of
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limited sovereignty for socialist states. This
proposition conflicts sharply with the Final Act,
which contains a specific commitment to put the
principles into practice in relation "with all other
participating states, irrespective of their political,
economic or social systems."
The Soviets and Eastern Europeans evidently are
seeking to recoup, through distorted interpretation
of the Final Act, what they were compelled to concede
at the CSCE negotiations in order to reach consensus
nr f'4" docurer4- Tr,nta4ning nitivc
desired by the West as well as by the East. The
following is a review of incidents and issues which
have arisen during the reporting period and which
relate to the CSCE principles.
Communists Stress Certain Principles.
Despite the fact that the Final Act makes it
clear that each of the 10 CSCE principles has equal
status, Communist spokesmen have continued to stress
the importance of certain principles, especially
inviolability of frontiers and non-interference in
internal affairs, and to overlook or downplay sections
of the principles such as respect for human rights
which they find distasteful.
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Soviet Note Cites CSCE Principles.
In a diplomatic note delivered to the State
Department on November 20, the Soviet Embassy in
Washington asserted that "gatherings of Zionists"
were permitted at the Soviet Embassy "in contradic-
tion to the spirit and letter of the Final Act of
the CSCE." The Soviet note reasoned that the CSCE
principle on fulfillment in good faith of obligations
under international law placed responsibility on the
US government to carry out its obligations under the
Vienna Convention on niplomatir Pelatinnq nf 1QA1
which outlines the special duty of receiving states
"to take all appropriate steps to protect the premises
of the Mission against any intrusion or damage and to
prevent any disturbance of the peace of the Mission
or impairment of its dignity." The Soviet note also
cited the District of Columbia Criminal Code, and the
fact that the CSCE Final Act was mentioned added
nothing to the arguments made by the Embassy that it
should be provided with more protection.
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Observance of Human Rights Principle.
Despite commitments undertaken in CSCE with
regard to respect for human rights and fundamental
freedoms, there is no evidence that the Soviet Union
and other authoritarian states have altered their
basic approach to human rights questions during the
reporting period. The cases of Andrei Sakarov and
Mrs. Irina McClellan, the Russian wife of an American
citizen, are examples. In both cases Soviet citizens
have applied to leave their country, a right accorded
by the Universal Declaration of Human Riahts-
Despite the USSR's undertaking in the CSCE to "act in
conformity with" this Declaration, neither Sakarov
nor McClellan have been permitted to leave. These
are, of course, the best known cases because of the
publicity they have received. Many other more obscure
but similar situations continue to exist.
We initiated consultations with the NATO Allies
on possibilities for calling attention to CSCE
commitments in the human rights field during the
February 1976 session of the UN Human Rights Commission
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in Geneva. These consultations resulted in a coordinated
Western position on the issue at the outset of the
Commission session.
Basket III and Non-Intervention.
The Soviet Union continues to complain that
Western interest in Basket III subjects constitutes
intervention in the internal affairs of the USSR, in
contradiction to the CSCE principle on non-intervention
in internal affairs. Pravda and Izvestiya have
published major articles which were sharply critical
of Western radio broadcasts to the Soviet Union.
including those of Radio Liberty, Radio Free Europe
and the Voice of America. The articles claimed that
the content of these broadcasts was not in keeping
with the spirit of the CSCE Final Act. In fact,
the Final Act specifically expresses the hope
for the continued expansion of information broadcast.
by radio and thus not only are our broadcasts fully
in keeping with the Final Act but also, in conformity
with the Final Act, the jamming of foreign broadcasts
should be reduced.
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Itanan-Yu oslav Border Issue Resolved.
The Italian and Yugoslav governments cited
resolution of the Trieste border dispute as an
example of their implementation of the CSCE principles.
The Agreement, which was reached between the two
countries on November 10, recognizing the existing
border as permanent, was in keeping with CSCE pro-
visions on peaceful settlement of disputes.
Cyprus Situation and the CSCE Principles.
The Cyprus situation, which was the subject of
fnrmAl rinqPrvAi-ions
by . ^
N7nril Arlrl Tlye-leal, *him
final stage of the CSCE, remains essentially un-
changed, despite efforts of Western countries,
including the US, to encourage the parties of the
Cyprus dispute to arrive at a mutually acceptable
solution.
UK and Iceland Seek Peaceful Settlement to
Fisheries Dispute.
In his speech to the CSCE Summit in Helsinki,
Icelandic Prime Minister Hallgrimsson linked the
CSCE principles to the need to respect Iceland's
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declaration of a 200-mile fisheries zone. The UK-
Iceland fisheries dispute over UK fishing within
this zone escalated during the reporting period to
another "cod war" episode, despite attempts by
NATO Secretary General Luns to defuse it. A decision
by the two countries to return to the negotiating
table would be in keeping with the CSCE principle
of peaceful settlement of disputes. The US and
?
other NATO member countries have made behind-the-scenes
efforts to support Luns' role in bringing this about.
cpeskr,,,man r44,?, ,,ccir 411 nc4.4=
to Angola.
An article in two Yugoslav periodicals in early
January, considered to reflect the views of the
Yugoslav leadership, claimed that US criticism of
Soviet aid to the MPLA in Angola represented a desire
to exploit the Helsinki Final Act to maintain spheres
of influence, since it constituted an attempt to
prevent Angola from choosing its own social system.
This claim is evidently based on the commitment in
the CSCE principle of Sovereign Equality to respect
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the right of states to choose and develop their own
political, social, economic and cultural systems,
as well as the CSCE provision stating the intention
of the participating states to "conduct their relations
with all other states in the spirit of the principles
contained in the present declaration." This distorted
view of the Angola situation is an example of the
Yugoslav desire to extend the CSCE context to other
parts of the world. Our view is obviously that if
anyone is interfering in Angolan affairs, it is the
cn7.74c4-," -nri- -611e C'..zban.7.,
1?rd7
The Baltic States Question.
The US House of Representatives on December 2
unanimously adopted a resolution introduced by
Congressman Derwinski and 24 other Congressmen noting
statements by the President and the Assistant
Secretary of State for European Affairs that the
results of the CSCE had not affected the long-standing
policy of the US on nonrecognition of the forceable
incorporation of the Baltic states into the Soviet
Union. The resolution expresses the sense of the
House that there has been no change in this policy
and that it will continue. The resolution was passed
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after the State Department indicated informally that
it would welcome this -expression of support for
Administration policy. An identical bill has been
introduced in the Senate by Senator Curtis, but has
not yet been approved.
Balkan Conference and CSCE.
The communique of the meeting of Balkan states
in Athens January 26 - February 5 related that
meeting to the CSCE. The Balkan Conference, which
included CSCE participants Greece, Turkey, Yugoslavia,
Bulaaria and_ Roman i a ha elc4ni r?i?Pfq A C -F.= 1i4rc
'under the CSCE principle that calls for cooperation
among states in all fields.
World Council of Churches Resolution on
Religious Liberty.
The Fifth Assembly of the World Council of
Churches, held in Nairobi in December, adopted a
resolution requesting its Secretary General to see
to it that the question of religious liberty becomes
the subject of "intense consideration" with member.
Churches in the nations which are signatories to the
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Helsinki Final Act, and that a first report on this
subject be made to the Central Committee of the World
Council of Churches in August 1976. The resolution
was based on the CSCE Principle of Respect for Human
Rights and Fundamental Freedoms, including the freedom
of thought, conscience, religion or belief, and was
adopted following sharp debate in which representatives
of the Russian Orthodox Church expressed reservations
as to the possible negative effects such an active
course of action could have on the treatment of
*hp C^Nr4,5*
Dubcek s Foreign Minister Cites CSCE in
alli122_f2E22,1p Liberal Czech Regime.
Former Czechoslovak Foreign Minister Jiri
Hajek, who as a member of Dubcek's government in
1968 strongly condemned Warsaw Pact occupation of
the country, has reportedly written to the Czechoslovak
government. Citing the CSCE Final Act, and particularly
the Declaration of Principles, Hajek asked for a
reevaluation of the 1968 Warsaw Pact intervention and
an end to discrimination against former Dubcek supporters.
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Hajek's letter evidently followed an appeal to the
Czechoslovak Communist Party by 35 former reformers
who, basing their view on the provisions of the CSCE,
called for release of political prisoners. The Final
Act has reportedly encouraged such internal opposition
in Czechoslovakia.
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2. Document on Confidence Buildin Measures and
Certain Aspects of Security and Disarmament.
Western activity under this subject heading was
minimal during the reporting period, following the
high number of notifications of maneuvers by NATO
states during the autumn exercise period. Notifica-
tion was given by Norway of one NATO exercise involving
17,000 troops.
Warsaw Pact policy on confidence building
measures (CBM's) was evidently set during the report-
ing period, as the Soviet Union gave its first noti-
fication of a maneuver involving 25,000 men, and
invited observers from neighboring countries, including
two NATO members. The propaganda line of the Warsaw
Pact states made an abrupt turn-around. During the
fall the Communist countries had harshly criticized
the West for the number of maneuver notifications
given, on the grounds that such a high level of
exercise activity was not in keeping with the spirit
of Helsinki. Since the Soviet maneuver announcement,
however, the Eastern press has been full of praise
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for the CBM provisions of the CSCE, and for Soviet
fulfillment of its CBM obligations.
Prior Notification of Major Military Maneuvers.
The Soviet Union made its first notification of a
major military maneuver under the Confidence Building
Measures (CBM) provisions of the CSCE during the
reporting period. In a letter given to our military
attache in Moscow on January 4 the Soviets stated
that a field maneuver called "Caucasus" involving
approximately 25,000 men (the threshold for notifica-
......
ef
Kutaisi, Yerevan and Tbilisi near the Soviet-Turkish
border from January 25 to February 6, with the
participation of airborne and airmobile units.
The USSR acted on its ?own in its first notifica-
tion, as this is a national rather than a Warsaw Pact
exercise. However, Eastern European desire to imple-
ment the CBM provisions may have encouraged the
Soviets to do so. Although the modalities of the Soviet
notification were slightly different from those of
notifications made by Western countries, they fulfilled
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the commitments of the CSCE on prior notification
of major maneuvers.
Prior Notification of Other Militarr Maneuvers.
Neither the Soviet Union nor its Warsaw Pact
allies have made a "voluntary" notification of a
maneuver of less than 25,000 men. The Russian
exercise "Caucasus" may in fact have involved less
than 25,000 troops but notification was made as for
a major military maneuver.
Th NZTO Alli 'r
notification of exercise "Atlas Express" which took
place in Norway from February 26 to March 22, 1976.
The exercise involved about 17,000 troops of the
Norwegian armed forces and the Allied Command Europe
(ACE) Mobile Force.
Exchange of Observers.
The CBM on observers encourages invitation of
observers but does not require that observers be
invited to all maneuvers of which notification is
given, or that all signatory states be invited as
was done by the FRG for exercise "Certain Trek" last
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October. The Soviets invited states in the region
of the "Caucasus" maneuver to send observers: Greece
and Turkey, Romania and Bulgaria, and neutral
Yugoslavia.
In the case of "Caucasus", the Soviet invitation
stated that observers could be military attaches
stationed in Moscow or could be sent from the capital
of the invited state. This is a more flexible
designation of observers than was used by the FRG
in the case of "Certain Trek", for which only personnel
accredited in Bonn were eligible. The formula used
for "Certain Trek" met FRG objectives of avoiding a
situation in which observers would be sent from the
GDR, but may have been one factor in Warsaw Pact
refusal to acknowledge or accept the invitations.
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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 Concerninv Trade and Industrial
gia=2112n.
4. Science and Technology.
5. Environment.
6. Cooperation in Other Areas.
-Transport
Tourism
Migrant Labor
Training of Personnel
Basket II has not received the same impetus as have
other CSCE subject headings. The major participants in
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the Conference have tended to view Basket II as
secondary in importance to the Declaration of
Principles, Military Confidence-Building Measures
and Basket III. In addition, bilateral trade and
technical activity continues between Eastern and
Western countries at an active pace, unrelated to
CSCE. Nevertheless, the characteristic difference
of approach to implementation which has been evident
in other subject areas has also been apparent in
Basket II as both East and West have tended to
emphasize those aspects of the Final Act provisions
which support their attitudes and priorities. Thus
the Western countries have stressed the need for
implementation of provisions on improving working
conditions for businessmen and freer availability
of commercial information, while the Eastern countries
have advocated the granting of MFN and projects of a
general nature or in specific areas of interest to them.
This difference of approach has been clear in overall
position statements and proposals, bilateral dealings and
in the multilateral forum of the Economic Commission for
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Europe (ECE) which was designated in the Final Act
as the proper forum for implementation of a number
of Basket II provisions.
Progress on all these levels has been slow thus
far, but there were several important steps during
the reporting period. In a speech in Warsaw on
December 9, Brezhnev proposed the convening of
"European congresses and international conferences
on questions of cooperation in the sphere of environ-
mental protection, the development of transport,
the field of energy, and so on," in a context which
suggested that he intended this idea as a form of
CSCE follow-up. The same idea has subsequently
been inserted in joint Soviet-Finnish and Soviet-
Turkish communiques issued during state visits, and
has been taken up in a number of Soviet and Eastern
European press articles. The Brezhnev proposal
was generally formulated and the Soviets have up to
now offered no more precise explanation of what is
intended.
It would not be possible until the Belgrade
follow-up meetings in 1977 for the thirty-five
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CSCE participant states to agree to hold such
conferences, and it will be necessary to consider
carefully the advantages and disadvantages of
agreeing to them at that time. It should also
be noted that the location of the FRG's environ-
mental protection agency in West Berlin poses a
number of delicate problems for closer East-West
cooperation in the field of the environMent.* Pre-
sumably the Soviets will provide more information
on their proposal before Belgrade, to prepare the
way for a formal proposal.
The motivation for the Brezhnev suggestion is
probably multifold: a general' desire to continue
the forward thrust of the CSCE concept coupled with
the specific desire to move out of the defensive
posture which Western stress on "freer movement"
issues has forced upon the Soviets; an effort to
divert the implementation of the Final Act into
areas which are less damaging and difficult for
the Communist system to handle; and a substantive
interest in beginning multilateral work in these
fields.
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Limited steps forward have been made by Czecho-
slovakia and Bulgaria, both of whom issued decrees
during the reporting period permitting foreign
businesses to open offices in their countries under
carefully circumscribed conditions. While there are
still many practical obstacles, such as availability
of office space, and the Bulgarian requirement that
firms deal only with the state foreign trade.organi-
zations and not with end-users, the decrees are in
line with the Final Act, and are of potential signi-
'ficance to Western businessmen. It remains to be
seen, however, what effect these decrees will have on
real possibilities for doing business in these
countries.
In the ECE, the principal multilateral forum
for implementation of Basket II, activity has centered
on preparation for the March, 1976, plenary session,
which will concentrate on post-CSCE issues. The US
Permanent Representative in Geneva, in a statement
on November 21, set out the US view that the ECE
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should concentrate its CSCE implementation activities
in the fields of business information and contacts,
exchanges of information on science and technology,
studies of certain environmental problems and coopera-
tive research on certain transportation projects.
The approach of the EC-Nine to ECE implementation
activity has been similar to ours. Most other ECE
members, including the USSR and its allies, have also
indicated that they prefer the ECE to concentrate
on certain implementation subjects in order to
achieve some concrete accomplishments prior to the
Belgrade follow-up meetings. However, the subjects
chosen for emphasis are different in many cases,
with the Eastern countries wishing to avoid subjects,
such as the availability of commercial information,
which have a "freer movement" cast.
Romania has called for greater ECE attention
to the problems of developing countries, an idea
which is shared by some neutrals such as Yugoslavia,
but which is opposed by most of the Soviet bloc.
The Executive Secretary of the ECE, Janez Stanovik,
continues to press for an active ECE implementation
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role in accordance with the mandate of the Final
Act, and we have indicated our support for his
efforts.
Consultations among the Western countries on
Basket II subjects have continued during the reporting
period in the Economic Advisors Committee at NATO,
among the EC-Nine, and in the Western caucus at the
ECE.
Although falling outside the reporting period,
it should be noted that on February 19 the GDR, acting
on behalf of the Council for Economic Mutual Assistance
(CEMA), handed over to the Luxembourg government, in
its capacity as President of the EC Council of
Ministers, a draft agreement between CEMA and the EC,
the preamble of which specifically refers to the Final
Act. The Communist countries have subsequently por-
trayed this initiative as a form of CSCE implementation
activity. It is too early to judge whether the EC
will respond favorably to this CEMA proposal, which on
the surface appears to have been motivated mainly by
political rather than economic considerations.
Another multi-lateral forum which interested
itself in Basket II subjects during the reporting
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period was the Balkan Conference on Economic and
Technical Cooperation held in Athens on January 26 -
February 5, 1976. The Final Communique indicates that
this meeting "ascertained a common interest in the
development of economic and technical cooperation"
among the participants, and specifically mentions the
fields of agriculture, commerce, energy, transport,
telecommunications and environment as subjects on
?
which recommendations were made. These recommendations
were collated during the meeting and will be considered
by the governments of the Balkan states which
attended -- Bulgaria, Romania, Yugoslavia, Greece
and Turkey.
East-West bilateral economic contacts continued
apace during the reporting period. The Czechoslovak
government, in a "non-paper" given to our Embassy
in Prague on January 26, in response to our earlier
demarche on CSCE implementation, complained about
US "discrimination" against Czechsolovakia in the
trade field and about the fact that MFN has not
been granted to Czechoslovakia. We have taken the
position that we agree MFN can be beneficial, as
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stated in the Final Act, but that we would expect
effective reciprocity in any negotiations on MFN
which might be held with Czechoslovakia in the future
We have also called the Czechs' attention to the
Administration's efforts in this regard.
A 10-year French-Czechoslovak agreement on
economic cooperation was signed in Paris during
the November visit by Czechoslovak Premier Sfrougal.
This agreement was similar to those which France
has with other Eastern European countries. The
Netherlands also signed an agreement with Czechoslovakia
on economic, technological and industrial cooperation.
During a visit by GDR Foreign Minister Fischer to
Paris, France and the GDR agreed in principle to
increase their bilateral trade. Economic and tech-
nical cooperation has also been discussed in high
level meetings between the Turkish government and
the governments of the USSR, Czechoslovakia and
Bulgaria.
An item of interest under the Basket II sub-
heading of tourism is the US initiative to set up
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a "Visit USA" program in the Soviet Union. This subject
is discussed more fully under the Basket III section of
this report.
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C. QUESTIONS RELATING TO SECURITY AND COOPERATION
IN THE MEDITERRANEAN.
Participating states did not, during the reporting
period, relate any specific developments to the
Mediterranean provisions of the Final Act, even
though events have occurred that could be related
to CSCE under the very general terms of the Act. For
example, the settlement of the Spanish Sahara question
between CSCE participant Spain and Morocco, a "non-
participating Mediterranean state",* could be depicted
AC onnfnrmincr to the 1711-rOn in t119
section calling on states to conduct friendly relations
in the spirit of the CSCE principles--in this case,
the principle on the peaceful settlement of disputes.
*The phrase in the text "non-participating Medi-
terranean state" refers to states which expressed
interest in CSCE and were invited as guests to give
their views during the Conference. These states are
Algeria, Egypt, Israel, Morocco, Syria and Tunisia.
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Algeria, another "non-participating Mediterranean
state", has serious reservations about the Spanish
Sahara settlement. The US position on the Spanish
Sahara is to urge that all parties work out their
differences peacefully among themselves and without
armed interference; this position could also be
described as being in accord with the Mediterranean
section and the CSCE principles.
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D. COOPERATION IN HUMANITARIAN AND OTHER FIELDS.
1. Human Contacts.
2. Information.
Actions taken by the US during the reporting
period continued to stress our interest in implementa-
tion of the Basket III provisions on human contacts
and information. During the November 1 - January 31
period we raised human contacts and information
subjects, chosen with regard to the local situation,
in 111 Eastern cnp4+.1.c.4a?Z.. rlts
? 4 ...
?
modest at best, but there was some small progress.
In several cases, these initiatives were reported
to our Allies in NATO for their information and
for possible use in taking actions parallel to
ours; the Allies, in turn, conveyed their CSCE
experiences to us.
The Soviet Union evidently made basic policy
decisions on CSCE implementation in late 1975 that
resulted in certain limited positive developments and
changed a few Soviet procedures in some Basket III
areas, including family reunification and visits,
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binational marriages, personal and professional travel,
working conditions for journalists and, to a limited
extent, information. There was less progress in Eastern
Europe, where practice in the fields of human contacts
and information is generally not as severe as in the
USSR; however, some favorable, if modest, CSCE develop-
ments did occur in the Eastern European countries.
Compared to the human contacts and information
situation in the East reported in the First Quarterly
Report on CSCE implementation that covered the
August 1 - October 31 period, there has been an
Eastern, and particularly Soviet, effort to bring
policies and procedures into line with CSCE provisions
on human contacts and information. However, only a
modest start has been made and a very great deal still
must be done to fully implement the provisions of the
Final Act, and it remains to be seen what impact the
changes which have been made thus far will actually
have on the situation of the Soviet and Eastern European
peoples. The true test of implementation will be the
extent to which revised procedures are carried out.
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1. Human Contacts.
Famil Visits; Famil Reunification; Binational
Marriages
The family reunification question has beer a
major part of our bilateral approaches in all Eastern
CSCE states. Ambassador Stoessel raised family
reunifications with the Soviets on August 18 and
October 14, but subsequent progress on this problem
has been disappointing. Out of the 249 families
involving 641 individuals on the US Exit Visa Rep-
rpspntfion List nrpgenf-pa hx7 ATnh rr Cc1qn
August, some 28 families with 81 persons have left
the USSR with exit visas for the US. Some of these,
however, left before the list was presented. Twenty-
seven cases involving 61 individuals have also been
deleted from the list because of emigration to
Israel, current lack of interest in emigrating to the
US or other related reasons. Soviet Deputy Foreign
Minister Korniyenko indicated on November 12 that
family reunification is a proper subject for US-USSR
discussions on CSCE implementation. The family
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reunification issue will be raised in the US-USSR
talks in the coming weeks to review our Consular
Convention with the Soviet Union.
Additionally, there have been reports that the
Soviet Union is adapting its laws and administrative
practice in order to conform to the CSCE provisions
under this heading. In this regard, two visa appli-
cants at our Embassy in Moscow recently stated that
Soviet exit visa fees dropped from 400 ($500) to 300
rubles ($435), effective January 1. (Emigrants to
Israel, however, pay an additional 500-ruble ($725)
charge for the required renunciation of Soviet citizen-
ship.) Also, whereas applicants for travel documents
in the Soviet Union previously had to pay a 40-ruble
($58) application fee each time they applied, irrespective
of how many times they were refused, they now only
have to pay when the application is granted, which is
in accord with a CSCE provision on this question.
Additionally, emigrants from Soviet Armenia have
reported that local authorities were showing greater
willingness to change the country of destination
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stamped in their passports, thereby easing one problem
related to emigration. Other reported changes in
Soviet procedure include a simplification of the
? "character reference" procedure connected with emi-
gration, a reduction in the review period for refused
applications from one year to six months, and a change
in Soviet procedures in regard to travel by persons
who have knowledge of state secrets, are "criminals",
or who leave behind dependent children and parents.
On the other hand, the tightening of Soviet regulations
crovernina remittances from Ahrna will havAl A
detrimental effect on remittances to intending
emigrants and those who are refused emigration and
are consequently left without work. It remains to
be seen what effect these measures will have in
? practice.
In Czechoslovakia and Hungary, where the number
of reunification cases is relatively small, a few
persons were permitted to emigrate to join families
following our representations. In the GDR, Ambassador
Cooper raised the divided families question with
Communist Party First Secretary Honecker in November
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.
and with Foreign Minister Fischer in January. There
appears to be a modest increase in the number of
persons permitted to leave the GDR to join relatives
since the signing of the CSCE Final Act.
With respect to Poland we have not been satisfied
with the level of their response to the divided
family problem in the wake of Helsinki; however,
Administrator Leonard F. Walentynowicz of the Bureau
of Security and Consular Affairs discussed this at
length with senior officials in Warsaw on November 20
ana reports that there are some signs or movement by
the Poles. If we continue to pursue these family
reunification matters on an ad hoc, case-by-case
basis, it is possible that there may be more Polish
responsiveness to the problem.
The Bulgarian Minister of Foreign Affairs has
promised to review the divided families issue, which
comprises a relatively small group of people, and to
contact us again on this matter. In the meantime,
Bulgaria has granted permission to four persons on
the divided families list to travel to the US; two
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of them were permitted to join their families perma-
nently, the other two to visit their relatives. The
reunification of divided families through emigration
from Romania is related as much to the granting of
MFN and the emigration commitments Romania has under
the terms of the Trade Act as it is to the terms of
the CSCE. Romania recently launched a propaganda
campaign focused on Western economic difficlaties
and "decadence" in an apparent attempt to discourage
those wishing to leave. Emigration from Romania
declined somewhat during November, December and January.
This could be a seasonal fluctuation. Nevertheless,
the monthly rate during the three-month period
covered by this report was higher than during the
first six months of 1975. We continue to remind
the Romanians of the importance of permitting a
reasonable emigration flow.
The GDR was widely criticized when it came to
light that children of persons apprehended while
attempting to flee to the West were permanently taken
away from their parents who were sent to prison. While
this type of case does not come under the specific
terms of the Final Act on divided families, which
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deal with families divided by national frontiers,
such actions are not in keeping with the principle
of human rights and fundamental freedoms. The GDR
was vigorously attacked by the media on this matter
as being in violation of the spirit of the CSCE.
Given the complicated ethnic mix across national
frontiers that history has left in Eastern Europe,
it is not surprising that certain Communist states
have addressed the divided families question among
themselves. Thus, the Yugoslays have reportedly cited
the CSCE provisions in urging Bulgaria to permit
Macedonians in Bulgaria to join relatives in Yugoslavia.
Similarly, there is a report that in the wake of the
CSCE, the number of Soviet Moldavians, who are ethnic
Romanians, hoping to emigrate to join family members
in Romania has increased markedly. Also, the Soviets
are said to have increased the number of visas to
Romanians to visit relatives in Soviet Moldavia since
Helsinki.
Concerning family visits, a problem continues in
some Eastern states which refuse visas to naturalized
Americans who wish to visit relatives in their countries
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of origin. For example, during the reporting period
our Embassy in Prague made representations on eleven
such cases in the context of CSCE, but was told by a
Czechoslovak official that naturalized American citizens
of Czech and Slovak origin who departed Czechoslovakia
"illegally" (i.e. without official permission) after
1968, could not be granted visas to visit family
members. We are pursuing this matter on a case-by-
case basis.
There have been reports that the Soviet Union
is planning to amend laws and regulations to liberalize
practice in regard to emigration and family reunification,
and Deputy Soviet Foreign Minister Korniyenko noted on
November 12 that some family reunification and binational
marriage cases had been resolved. Meanwhile, however,
considerable publicity has been given to the case of
the wife of an American citizen, Irina McClellan, who
has been refused exit permission to depart the USSR to
join her husband. Our Embassy in Moscow has raised
the McClellan case several times, citing the CSCE. There
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are also several other cases in this category in the
USSR. Additionally, we are following up on a case
in Bulgaria where a Bulgarian married to an American
citizen has been refused permission to leave Bulgaria,
despite earlier promises that such permission would
be given.
Travel for Personal or Professional Reasons;
Consular Conventions; Religious Contacts and
Information
911,- T_Tqq,P
4-1,,14..
permitted wider travel in the Soviet Union; this
subject is treated elsewhere in this report under
Working Conditions for Journalists. The Soviets
have also indicated they may be considering a reduc-
tion in the zones closed to personnel accredited to
the US Embassy in Moscow. We also have under study
the question of reducing, unilaterally, zones closed
to Soviet personnel stationed in the US with the aim
of encouraging the Soviets to take similar action.
We are also proposing the elimination of closed
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zones, with with the exception of areas around sensitive
installations, on a reciprocal basis to Czechoslovakia
and Bulgaria, together with the elimination of
designated points of entry into the US by officials
of those two countries.
Ambassador Stoessel on October 14 raised with
the Soviets the question of wider travel possibilities,
as well as multiple entry-exit visas, for American
businessmen and students who reside in the Soviet
Tiy%inr%. clih4c,n4- will 1-1.c, r=irehrl at-v=4n irt
upcoming US-Soviet consular review. All of these
steps, if taken, would be in conformity with the
CSCE stipulation that states should ease regulations
governing the movement of citizens from other CSCE
states in their territory.
The Eastern states continue to complain about
what they claim are unduly long delays in US issuance
of visas and US refusal of visas in certain cases.
On November 12 Soviet Deputy Foriegn Minister Korniyenko
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noted our refusal to grant visas to Soviet trade
union groups and other organizations, and claimed
that it takes the US longer than the USSR to issue
tourist visas. The latter point has also been made
to American ambassadors in Budapest and Sofia during
the reporting period. We have agreed in principle with
the Hungarians to reduce from 14 to 7 days tbe proc-
essing of visas for official Hungarian travelers. The
Bulgarian Foriegn Minister proposed to Ambassador Herz
.that the US and Bulgaria eliminate visas on a reciprocal
basis, an action which he depicted as being within the
spirit and letter of the CSCE. Such a move would not,
however, be possible under the terms of the Immigration
and Nationality Act (INA) which governs travel to
the US and requires the issuance of US visas to foreign
travelers.
The INA also governs US action in the case of
Dean Cornelius Hoxsey, a former American who is now
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a Soviet citizen, and who has cited CSCE in requesting
approval of his application to return to the US to
be with his aged mother. Despite the terms of the
CSCE, Hoxsey's membership in the Communist Party of
the Soviet Union still renders him ineligible, under
the INA, to receive a visa to return permanently to
the US. The Visa Office of the Department's Bureau
of Security and Consular Affairs is reviewing the
Hoxsey case in light of CSCE with a view to deter-
mining whether the Department should recommend to the
Immigration and Naturalization Service that it
parole Hoxsey into the United States. Further, the
Visa Office is, on a case-by-case basis, taking into
consideration the provisions of CSCE in doubtful or
borderline visa issuance cases. We are also reviewing
visa procedures to determine what changes can be made
to improve US practice, taking into account the
Final Act and US law.
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We have urged the Czechoslovaks, in the context
of the Final Act which calls for the conclusion of
consular conventions, ?to ratify the US-Czechoslovak
Consular Convention wh...ch would then enter into
force; the Czechoslovaks replied that early action
on this matter could be expected. Negotiations on
the US-GDR Consular Convention continue.
As to religious contacts and exchange of informa-
tion, an interesting item has been reported from our
Embassy in Rome. According to the Vatican, word was
LeueiveklLUdLa pat.:kt 017 religious material,
delivered at its destination in one of the Baltic
states, bore a Soviet stamp stating that the material
was forwarded according to the terms of the CSCE.
The Chief Rabbi of Great Britain also made a trip to
the USSR at the invitation of local Jewish communities
and met with Soviet officials while there. There
is also a report that the Soviets will allow five
Soviet rabbinical students to study in the US.
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Tourism; Meetings among Young People; Sport;
Expansion of Contacts
American travel industry and US officials met
in Washington January 27 to discuss the possibility
of establishing a "Visit USA" program for the 'USSR.
Such a program would involve establishment in Moscow
of a Visit USA Committee comprised of local American
businessmen and US Embassy officials. The US plans
to participate in this project within the resources
that are currently available for such activities.
mpetinas amona vouna peoplP haxna fakpn nlArp
or are planned within the framework of exchange
agreements which we have with the East. Examples
during the reporting period were visits in November
by a group of young American political leaders to
Romania and Poland and by a group of young American
journalists to the Soviet Union.
A European Youth Security Conference with partic-
ipation by youth groups from Europe and elsewhere
is scheduled to take place in Warsaw in June to dis-
cuss the CSCE and other matters. We are taking
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steps to ensure that American youth representatives
are invited to preparatory meetings and to the
Conference.
Several East-West events in the field of sports
have taken place. The most publicized of these
were the US tours in December-January of two Soviet
ice hockey teams, during which one of the teams
played the champion Philadelphia Flyers. Other
Eastern teams that visited the US, all in November,
included a Soviet heavyweight boxing team that
r,e-Im.rwrI in Mw
a Polish equestrian team that rode in competition
in Maryland and New York; and a Soviet basketball-
team that played American college teams in nine
states.
Several American sports teams also visited ?the
Soviet Union and Eastern Europe. Americans partic-
ipated in international swimming and figure skating
competitions in Czechoslovakia in November. A team
from Choate School played in volleyball matches in
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December in Poland. Finally, the American Athletic
Union sent a boxing team on a tour of several cities
in the USSR during January.
During the reporting period there was official
Soviet criticism of US visa refusals to Soviet
organizations, such as trade union groups wishing
to travel to the US on official business. Such
travel is covered under the Expansion of Contacts
section of the Final Act. Since this section of the
text results from an Eastern initiative, we may
pxpPct thaf- the SnuiPts ar0 r111-^,-Nc%=r1c' T.741,
remain sensitive as to its implementation.
2. Information.
Oral, Printed, Filmed and Broadcast Information;
Cooperation in Field of Information
Stress was laid on Western broadcasting in
relation to CSCE by the East during the reporting
period. Deputy Soviet Foreign Minister Korniyenko
complained to Ambassador Stoessel on November 12 that
radio broadcasts should serve the interests of mutual
understanding between peoples, that the Final Act
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text reflects this aim, and that the content of the
broadcasts of Radio Liberty, Radio Free Europe and
the Voice of America were not fulfilling the terms
of the text. The Soviet media have taken a similar
line. On the other hand, Bulgarian Foreign Minister
Mladenov in an exchange on CSCE with Ambassador Herz
on December 29 said that the VOA is doing a creditable
job in presenting the American story to the Bulgarian
people. In response, we have noted that the Final
Ant text on broadnaRting exnressps thin hnnp fnr A
reduction of jamming, does not mention the content
of broadcasts and that the Eastern states, as well
as others who participated in the Conference, are
well aware of this. The Final Act also commits
CSCE states "to facilitate the freer and wider
dissemination of information of all kinds"; our
broadcasts clearly conform with this concept.
Otherwise, a practical problem related to broad-
casting has been resolved between the US and the
GDR. The East Germans do not currently jam German-
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language broadcasts from West Berlin of Radio in
the American Sector (RIAS) on FM and short wave, but
do jam such broadcasts, with only partial sucCess,
on the highly popular medium wave. We learned that
the East Germans planned to begin transmissions on
the same medium wave frequency as RIAS in a manner
that would have blotted out the RIAS medium wave
signal, and that they were also planning to broadcast
?
in FM on the same FM frequency used by RIAS. We
raised this question in the context of CSCE with the
East Germans. At the Medium WAVP Conferenne in
Geneva in November the medium wave problem was satis-
factorily resolved in a cooperative spirit on the
technical level, without the creation of a trouble-
some political problem. We remain hopeful that the
FM problem can be resolved in a similar manner. We
will continue to raise with the East Germans the
question of jamming of the RIAS medium wave.
There have been a few developments in regard to
the flow of printed information. A Tass article has
quoted a Soviet press distribution official as saying
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that eighteen Western. newspapers, including the New
York Times, are to go on sale in the Soviet Union
in 1976. Should this action be taken, it seems vir-
tually certain, given past Soviet practice on Western
news media, that the sale of such Western newspapers
would be highly restricted. In a related development,
Bulgarian Foreign Minister Mladenov stated December 29
that Bulgaria is importing more Western publications,
but our Embassy in Sofia has, as yet, seen no evidence
of an increase in numbers of titles of these publica-
tions in the marketplace. Also, a Polish diplomat
told a State Department official January 21 that the
Soviets consider they are implementing the CSCE
provisions by allowing the US Embassy in Moscow to
distribute a new US Russian-language magazine--this is
evidently a reference to "Dialogue", a USIA publication,
the circulation of which was discussed in the First
Quarterly Report on CSCE Implementation. Finally,
a minor item on information flow is the agreement in
principle by the Hungarians to permit our Embassy in
Budapest to send US publications through the Hungarian
nail system.
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The Eastern states have developed a position
on information which is based on reciprocity. In
response to criticism that not enough Western publi-
cations and films are avaliable to the public in the
East, the Communist states respond that there are
in fact more Western films and publications available
in the East than Eastern publications and films in
the West, and that the same is true in regard to
listenership to international broadcasting. .This
position has been made during the reporting period
in the Communist media, by Eastern officials to
American representatives, and by East German Polit-
buro member Albert Norden in the first GDR public
statement on Basket III at the Leningrad Peace
Conference in late November. There is no easy response
to this Eastern position since there is in fact an
imbalance to the Western advantage due to the popularity
of Western materials in the East and general lack
of Western interest in books as well as films from
the East. The Central point is, of course, that
wide circulation in the West of Eastern materials is
limited only by private demand while Western materials
are limited in the East by governmental edict. It
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should also be noted that Western films and books
shown or published in the East are evidently chosen
for political reasons, and tend to convey the image
of a decadent Western society. The Communists seek
to make the same claim about the choice of Eastern
authors or books for publication in the West, e.g.,
Solzhenitsyn's Gulag Archipelago.
There has been further cooperation in the field
of information, similar to that outlined in the first
report on CSCE implementation covering the period of
August 1 - October 31. An example during this report-
ing period was the visit to the USSR in Novembar of
a group of twelve young
the American Council of
American journalists under
Young,Political Leaders - Soviet
Committee of Youth Organizations exchange program.
Working Conditions for Journalists
On December 31 the Soviet Union announced that .
restrictions on the travel of Western journalists in
the USSR would be reduced, effective March 1, to
allow them to travel to the extent permitted Western
diplomats accredited to Moscow. We informed the
Soviets by note on January 19 that we were similarly
relaxing travel controls on Soviet correspondents in
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the US, starting March 1. We have told the NATO
Allies of this development, noting that while
reciprocal action was appropriate in this case, our
view remains that, with few exceptions, further
implementing arrangements are unnecessary in regard
to most Basket III provisions on human contacts and
information. The reduction in travel controls on
journalists is a significant development; and there
?
is the possibility of still wider travel opportunities
if zones closed to diplomats in the USSR are reduced,
aq
di us' in tbis renor* imeler TravP1 for PprqnnAl
or Professional Reasons.
Ambassador Stoessel raised the general question
of working conditions for journalists with the Soviets
on October 14. We plan to raise this question again
soon including the question of access to officials
and other issues.
Czechoslovakia, sensitive to Western media
stories on Czech dissidents, continues to take the
harshest line on Western journalists among Eastern
European states. Our Charge in Prague, in a meeting
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with Czechoslovak officials on October 31, stressed
in the context of CSCE the importance we attach to
press matters and treatment of American journalists.
However, during the reporting period Los Angeles
Times correspondent Murray Seeger was refused a visa
to visit Czechoslovakia. A VOA correspondent was
similarly refused, and we suspended action on the
visa application of a Rude Pravo correspondent assigned
to Washington in retaliation until the matter was
satisfactorily resolved. Our Embassy in Prague
pointed out to the Czechoslovak authorities that such
visa refusals were not in conformity with CSCE pro-
visions. Another incident involving a journalist
was the expulsion of a German Der Spiegel correspondent
from the GDR in connection with stories on the forced
separation of families in East Germany, which is
noted in this report under Divided Families.
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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.
Trends in the pace and structure of cultural
and educational activities have in large meabure
tended to be a function of the budgeting and program-
planning element involved. As such, it is not surprising
that developments in the areas of cultural and
educational cooperation and exchanges during the
November 1 - January 31 period reflected no sharp
deviation from the slow but definite progress noted
in the First Quarterly Report on CSCE Implementation.
Likewise, implementation of many of the provisions
under these sections of the Final Act continued
during this reporting period to be channelled through
primarily bilateral (but also multilateral) arrange-
ments developed prior to the CSCE.
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It should be noted, however, that the Final Act
does appear to be positively influencing the atmosphere
surrounding - if not ocUrectly influencing the pace
and direction of - cultural and educational arrange-
ments. During the December 15-17 review talks on the
1975 programs under the US-USSR Cultural Exchange Agreement,
for example, the Soviets took occasion to make reference
?
to the opportunities and obligations stemming from
the CSCE, and appeared to be under instructions to
nnt nonfentinus iRSneg in the mnst prvaitim.
*possible and to avoid discord. New bilateral arrangements
with Hungary, Bulgaria and Czechoslovakia also appear
on the horizon. While they were discussed prior to the
CSCE, the influence of the Final Act appears to have
hastened the progress noted during the reporting
period in the formulation and development of bilateral
science and cultural agreements with these three
East European countries.
While these and other favorable developments
are encouraging, we should be aware that the recently
increased Eastern interest in the cultural and
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educational provision's of Basket III may largely
be defensive. The East's goal may be to achieve
a self-interested balance within and between baskets
i.e., as a counterweight to the Basket III provisions
relating to human contacts and information, and as move-
ment in response to criticism of the East's emphasis on
Basket I principles. Such a defensive posture would
?
fit in with the occasional attacks noted during the
reporting period on US implementation of Basket III.
71e"f ' ^Cf4TJ1 UF r'4-4'""'"" 4" 4-1-14'
concerned, implementation continues to hinge primarily
on the availability of funds. A no-growth situation or
even possible reductions, stemming from the minimal
increase in the Department of State's Bureau of Educa-
tional and Cultural Affairs budget for FY 1976, could
leave the US open to charges that we are not genuinely
prepared to expand relations as called for in the
Final Act. As things stand now, East European countries
are already showing a more aggressive attitude in
pressing the US on fulfillment measures.
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The US has also found that administrative
difficulties have slowed the progress of our Fulbright
Lecturer exchange and have restricted our ability to
choose the performing arts groups we wish to have
performing in the USSR. This issue was taken up at
the December review talks and it was understood that
our views would be made known to the proper authorities.
The December review talks which were cohcluded
on a constructive note, as well as discussions with
Western European countries, regarding their experiences
in the field of CSCE Implementation have given mixed
indications of the East's intentions in the cultural
and educational areas of the Final Act. Ongoing consulta-
tions with neutral countries should provide further
occasion to compare views and experiences on exchanges,
as will the meeting of the NATO East-West Contacts
Working Group in Washington March 22-24.
Because of the number of undertakings underway
or planned during this reporting period, and since
some are also noted in other sections of this report,
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set down in the sub-paragraphs below are examples of
programs in the cultural and educational fields in
which the US participates.
3. Cooperation and Exchanges in the Field of Culture.
Extension of Relations; Mutual Knowledge;
Exchanges and Dissemination
The US bilateral negotiations with Hungary,
Bulgaria and Czechoslovakia, mentioned above, mark
the main new ground broken in the extension of
cultural relations by means of official aareements
between states. 'Within the framework of existing
arrangements, however, programs are also evolving
in new directions of interest to us. The Fulbright
lecturer program with the USSR, for example, is
headway despite some bureaucratic growing pains
the Soviet side.
Likewise, on December 18, the
making
on
Soviets
gave us approval in principle for a special bicentennial
exhibit in the USSR. Under the Exchanges Agreement, the
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exhibit, "Technology for the American Home," has
already been shown in five Soviet cities and was
recently opened in Minsk by Senator Edward Brooke.
Illustrative of new arrangements between states
and non-governmental organizations during the reporting
period is that between Novoexport and Multicom, Inc.
of New York to display and sell through American
department stores Soviet modern art. The Soviets have
also engaged the West German firm Tele-Globe to tape
the Bolshoi Ballet's production of Serge Prokofiev's
"Romeo and Juliet" for broadcast around the world.
In the US, the program will be shown by CBS in the
fall of 1976. In the USSR, the Soviet Melodiya
company has put out a recording of Louis Armstrong
performing some of his most popular numbers.
Direct contacts and communications among persons,
which are fostered by existing exchange agreements,
are numerous and include the recent American tours
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by the Soviet conductor Yuriy Temirkano (January 4 -
February 1) and by pianists Arkidyiy Sevido (January 4
28) and Lazar' Berman (January 11 - February 16).
American exchanges include the Roy Clark Country
Music Show which played in Riga, Leningrad and
Moscow, January 20 - February 21, and Boris Chaliapin,
whose art work was exhibited in Moscow and Minsk
in November and December of last year. During the
reporting period, however, the Soviets refused to
accept the soft rock group, America.
Access; Contacts and Cooperation; Fields and
Forms of Cooperation
The East continues to be very sensitive in
regard to the question of access, especially that
involving personal contacts. The Soviet press in
January, for example, attempted to refute allegations
that significant cultural trends, i.e., dissidents,
were not reflected in Soviet exhibits and at the
same time maintained that control of the flow of
information across Soviet borders in this area is in
accord with the Final Act. While the Bulgarian
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Foreign Minister claimed in December discussions that
his country was loosening up on foreign publications,
it was reported during the same time period that Romania
issued a directive. to its media requiring that
presentations on Western culture stress the idea
of alienation and the destruction of human values.
The latter development has been attributed to Romania's
desire to discourage emigration.
As to particular developments in the area of
books. the president of the American Assoniation of
Publishers (AAP) broached the question of opening
an American Book Store in Moscow during his November
visit to the USSR. The Soviets in turn have indicated
a willingness to participate in a childrens' book
exchange, paying the costs for a US exhibit in the USSR
if the US is willing to reciprocate the offer. To facili-
tate access to US books, the AAP during a November seminar
on CSCE implementation with the Government Advisory
Committee on International Book and Library Programs
recommended the reconstitution of the Informational
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Media Guarantee Program and a conference to take
place in Helsinki with the participation of UNESCO,
the Department of State and publisher's associations
in the Spring of 1976 to develop meaningful programs.
Recently the USSR has expressed a particular
interest in exchanges in the field of television
programming. It is reported that the Soviets were
expecting visits from the president of CBS apd
representatives of educational television in January
and that the State Committee for Radio and TV has been
.awaiting the selection of programs outlined in an
earlier discussion with representatives of PBS.
4. c22peration and Exchanges in the Field of
Education.
Extension of Relations; Access and Exchanges;
Science
The major developments during the reporting
period in the educational field under extension of
relations, access and exchanges evolved out of the
December review talks with the Soviet Union. Soviet
representatives proposed an increase in the number
of graduate student exchanges from 50 to 55 for 1976-77.
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Likewise, they seconded the US desire to expand
direct university to university exchanges. As noted
in the First Report on CSCE Implementation, a US-
Soviet seminar on higher education is scheduled
to open at Princeton March 15. Among other
things, the seminar will touch upon the question of
degree equivalencies, a topic already discussed
at an October 21-24 meeting in Helsinki which was
sponsored by UNESCO.
hiL.Lhc. c.1".
education has also been dealt with in the section
of this report on Basket II, it should be noted
that as a result of the eleven bilateral, specialized
agreements we have with the USSR more than a thousand
scientists and specialists visited each other's country
last year. The productive exchange agreements in this
area with Poland and Romania also contribute towards
fuller implementation of the Final Act's section on
science as regards education, as should successful
completion of the aforementioned agreements with
Hungary, Bulgaria and Czechoslovakia.
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Foreign Languages and Civilization; Teaching
Methods
The National Defense Education Act, as noted
in the last report on CSCE, continues to be a prime
vehicle for fulfilling the provisions of the Final
Act with regard to language and civilization studies.
Within the US-USSR Cultural Exchange Agreement US
officials proposed during the December review talks
that the annual summer exchange of teachers of English
and Russian be increased from the current exchange of
32 teachers from each country to 37. The International
Visitors Program, established in 1975 to bring
selected Soviet leaders to the' US for several weeks,
is also making a new contribution to mutual under-
standing.
As to teaching methods, twelve American
educators participated in the first US-Soviet seminar
on early childhood education in Moscow on November 28 -
December 13.
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E. FOLLOW UP TO THE CONFERENCE.
During the reporting period some CSCE states
began to turn to the question of the Belgrade follow-
up meetings to the Conference to begin in 1977. The
first of these is a preparatory meeting which will
convene on June 15, 1977; the second should begin
before the end of that year. The rules of procedure
for the follow-up meetings will be the same as those
of the CSCE, which means the rule of consensus will
apply. At the meeting in late 1977 implementation
of the CSCE results will be considered and some new
proposals are likely to be raised by Eastern, Neutral
and perhaps also by Western states. Both Finnish and
Polish diplomats recently indicated to us their govern-
ments' views that the 1977 meetings would be lengthy
and would deal with several new proposals. The Pole,
clearly under instructions, estimated on January 13
that as many as fifty substantive proposals might be
made, and claimed that Eastern countries would propose
an item which would be unpleasant for the West in
response to every proposal the West introduced which
would be embarrassing for the East.
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Recent indications of activity indicate that the
Neutral states are especially active in policy formu-
lation on the 1977 Belgrade meetings. Accordihg to a
January 20 report, Finland, Austria and Switzerland
plan to meet soon to coordinate their preparations
for Belgrade. An article by a high-level Yugoslav
Communist Party foreign policy specialist, published
in mid-January, called for undefined "new initiatives"
in 1977, evidently related to new proposals he
Yugoslays have in mind. Additionally, a Romanian
Communist Party functionary told a State Department
official on November 20 that the primary subject
Romania will raise at Belgrade is the institutional-
ization of follow-up. Perhaps the most extreme
statement on follow-up during the reporting period
was by Czechoslovak Foreign Minister Chnoupek who,
in a November 11 speech, raised the question of
another CSCE.
We reported the Polish diplomat's comments noted
above to the NATO Allies and asked them to inform us
of any Eastern views on follow-up they may receive.
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In individual exchanges on follow-up we have stressed
the need for review of CSCE implementation at the
Belgrade meetings, and have indicated that any further
proposals and follow-up arrangements should be'con-
sidered in the light of that review.
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F. PREAMBLE AND FINAL CLAUSES OF THE FINAL ACT.
Applicability of Final Act to Berlin.
Considerable care was taken during the CSCE
by the Bonn Group powers to ensure that the benefits
of the Final Act- would also apply to Berlin and its
residents. A clause in the preamble to the Final
Act states that the signatories are determined
"to give full effect to the results of the Conference
and to assure, among their States and throughout
Europe, the benefits deriving from those results."
Af thp nonoludina stagiq of tilt= csrp fhp 1pArIcarq nf
the US, Great Britain, France and the FRG called
attention to this phrase and its significance for
Berlin, in order to place on record their inter-
pretation of its meaning. Moscow has never formally
accepted this interpretation. An article in Pravda
on February 10 expressed the view that CSCE has
brought many advantages to West Berlin and complained
that the West Berlin authorities had not provided
full information on what West Berlin is doing and
plans to do to implement the provisions of the CSCE.
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This article could be seen as an implicit acknowledge-
ment that the results of the CSCE apply also to
Berlin, but it also suggests that the USSR and the
GDR will continue to resist automatic applicability
to Berlin of agreements reached with the FRG.
Publication of the Final Act.
The Eastern states have made the publication and
dissemination of the Final Act, which is covered
under the final clauses of the Act, a matter of CSCE
implementation policy. Noting that through publica-
tion in their national Dress the Final Act was
disseminated much more widely than in the West,
Eastern media and spokesmen, including Brezhnev in
his December 9 speech at the Polish Communist Party
Congress, claim their countries have implemented the
clause on publication and dissemination satisfactorily
and the West has not.
We have replied that in the US the Final Act is
available to the public through the Government Print-
ing Office and the State Department, that copies will
be continually kept in stock to meet demand, and that
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the US has carried out its undertakings under the
terms of the Final Act on publication and dissemina-
tion of the Act within the means at its disposal.
As to non-governmental publication, we note that the
full text of the Final Act has appeared in the
September 1975 number of "International Law Materials",
a bi-monthly publication of the American Association
of International Law, which is subscribed to by
lawyers and institutes of law.
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