RESTRICTIONS ON FOREIGN TRAVEL IN THE USSR: ASSESSING RECENT CHANGES

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• Sequence Number: 1
• Publication Date: October 1, 1988
• Content Type: REPORT

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Directorate of
Intelligence 25X1
Restrictions on Foreign
Travel in the USSR:
Assessing Recent Changes
A Research Paper
GI 88-10093
October 1988
Copy 3 8.5
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Intelligence
Restrictions on Foreign
Travel in the USSR:
Assessing Recent Changes
Issues Division, OGI,
This paper was prepared by Office
of Global Issues. Comments and queries are welcome
and may be directed to the Chief, Geographic
Secret
GI 88-10093
October 1988
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Summary
Information available
as of 13 July 1988
was used in this report.
Restrictions on Foreign
Travel in the USSR:
Assessing Recent Changes
Travel by foreign officials in the USSR is strictly controlled by a system of
rules administered by official agencies. One of two recent diplomatic notes
revising the rules, issued 29 March 1988, theoretically opens an area
roughly equal to the size of the state of Alaska to foreign travel. In reality,
however, this will do little to alter the constraints placed on travel in much
of the country because Moscow continues to exercise almost complete
control over visitors outside the Moscow and Leningrad areas:
? Although a second note, issued 10 May 1988, slightly liberalizes Soviet
administrative procedures, it will not substantially increase travel oppor-
tunities. Almost all US official travelers will still be required to submit
itineraries before departure-even to theoretically open areas-and
Soviet authorities can deny or modify these at their discretion.
? At the same time, Moscow has not appreciably increased the number of
officially open transportation routes either within or outside the Intourist
system, thus creating few new opportunities for tourists as well as official
travelers-who generally have easy access only to the routes and
destinations served by the state travel agency.
? Finally, many areas that are in theory open-including the "newly
opened" places-are geographically remote and not served by any
established transportation systems, thereby making travel to them im-
practical or often impossible.
procedures and a lack of approved transportation routes.
On the basis of these factors, we judge that, while only 13 percent of the
USSR's 22.4 million square kilometers is now formally closed to foreign
travel, less than 2 percent will be routinely open. Access to the remaining
85 percent of the country, in our view, will be restricted severely by
geographic remoteness or by a combination of Soviet administrative
Nonetheless, the latest changes have some direct implications for US
interests. They could provide some unique opportunities to observe a
handful of sites of military or political concern that were previously closed
to US officials. Permskaya Oblast and Sakhalin Island, for example, are no
longer officially off limits. However, assuming current administrative
Secret
GI 88-10093
October 1988
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procedures continue to apply, US diplomats will have to confirm
procedures with Moscow for providing ad. hoc support to US INF
inspectors traveling in the USSR. As things stand, even in a medical or
similar emergency, it could take at least 48 hours for non-INF inspection
personnel to receive approval to travel to six of the eight sites where the
United States will maintain a continuous presence on Soviet soil as part of
the Intermediate-Range Nuclear Forces Treaty. Finally, the latest changes
have some direct implications relating to diplomatic reciprocity for Soviets
traveling in the United States-Moscow is likely to press for a similar
increase in access to US territory.
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Summary
iii
Background: Five Decades of Formal Restrictions
1
How Moscow Limits Travel in the USSR
1
The Status of Soviet Territory
1
Geographically Remote Areas
1
Administrative Procedures
2
The Intourist System
3
The 1988 Changes
4
Territory No Longer Formally Closed
4
The Status of Travel Routes
5
Travel in the Cities
8
Implications
10
A. Diplomatic Agency Note Number 79/Pr, Moscow, 29 March 1988
13
B. Diplomatic Agency Note Number 101/Pr, Moscow, 4 April 1974
17
C. Diplomatic Agency Note Number 219, Moscow,
12 December 1983, Travel Rules for Foreign Representative Staff
Members in Leningradskaya Oblast
D. A Chronology of Travel Restrictions
E. Accessibility of Major Soviet Cities to Governmental Travelers
27
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Restrictions on Foreign
Travel in the USSR:
Assessing Recent Changes
The Soviet Government tightly controls the move-
ments of all foreigners in the USSR in order to
prevent access to areas Moscow believes would be
detrimental to its interests. Since 1941, driven by
concerns for national security and fears of unfavor-
able publicity, Moscow has formally closed parts of its
country to foreigners and implemented bureaucratic
procedures that, combined with the inherent limita-
tions of geography and the Soviet transportation
infrastructure, serve to restrict the movement of
visiting officials and tourists. As a result, outsiders
have ready access to little more than some major
cities-most notably Moscow and Leningrad-and
parts of the European USSR on a regular basis. The
amount of territory actually accessible to US official
travelers has remained consistently limited despite six
regime changes and several reductions in the amount
of territory officially declared off limits. By and large,
these restrictions have gone well beyond those that
most countries, including other Communist states,
implement to protect national security.
On 29 March 1988, Moscow issued its latest note
governing diplomatic travel in the Soviet Union and
again reduced the amount of territory formally
closed-this time by one-third (see appendix A). Since
January 1978, some 20 percent of the USSR had been
formally closed. Now, only about 13 percent of the
USSR will be off limits to foreigners-theoretically
opening an area roughly the size of Alaska. Closer
examination suggests, however, that like its predeces-
sors this recent revision is likely to do little by itself to
improve opportunities for US and other visitors to
travel to areas of significant strategic, economic, or
political interest. Those areas will by and large remain
closed to all foreigners. Access to much of the "newly
opened" territory is limited because it is undevel-
oped-with travel impractical for even Soviet citi-
zens-or because it requires transit along routes that
pass through formally closed areas.
The experience of US officials traveling in the USSR
has consistently demonstrated that only a small por-
tion of the country is routinely accessible. To control
the movements of these officials-as well as the travel
of officials from other Western countries-Soviet
authorities formally close some territory and apply
administrative procedures that limit travel even in
areas that are theoretically open. As a result, only a
limited number of routes and destinations are routine-
ly open.
The Status of Soviet Territory
Formally Closed Areas. Since 1941, the Soviet Minis-
try of Foreign Affairs has issued a series of diplomatic
notes listing specific regions, places, and routes offi-
cially off limits to foreigners. The 1988 note reduces
the amount of Soviet territory formally closed to
about 3 million square kilometers (km2) of the USSR's
22.4 million km2. The proportion of territory formally
closed has varied from 41 percent in 1941 to a high of
over 50 percent in 1952 to the current low of about 13 25X1
percent. Although the provisions of the diplomatic
notes apply to all foreign diplomats, they are aimed
primarily at Western embassy personnel and attaches
and also define the outer boundaries for travel by
other visiting Westerners.
Geographically Remote Areas. Travel in other areas
of the USSR-arctic and desert regions, for exam-
ple-is impractical because they are remote or unde-
veloped and outside the country's main transportation
network. These areas are generally not reachable by
foreigners and Soviet citizens alike. We estimate that
45 percent of the USSR is, for practical purposes, too
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De Facto Closed Areas. Although large portions of
the USSR, which are neither formally closed nor
physically inaccessible, are theoretically open, we
classify much of this territory as de facto closed
because travel there is usually denied by the Soviets
or there are no transportation routes accessible to
foreigners (see appendixes A and B).' In isolated cases,
travel is permitted to cities in de facto closed areas.
Once travel is completed to a de facto closed location,
we reclassify it and any new travel routes used as
open. Embassy travelers, for example, in the last five
years, visited about 45 destinations previously classi-
fied as de facto closed, according to State Department
figures. Since our last report, however, only a negligi-
ble proportion of Soviet territory has thus been reclas-
sified. This is because the new destinations were
typically along transportation routes already open to
foreigners, along major transportation routes within
50 kilometers (km) of open routes, or accessible only
by air-meaning little new territory was actually
traversed. Currently, we judge that about 40 percent
Figure 1
Accessibility of Soviet Territory to
US Official Travelers
of the USSR is de facto closed.
Open Areas. Despite the, recent reduction to the
amount of territory formally closed, we estimate that
less than 2 percent of the USSR is now routinely open
to foreigners.' We classify as open only those routes
and destinations that are specified in the Soviet
diplomatic notes as officially open as well as those
proved to be regularly accessible on the basis of the
actual travel experiences of US officials. In general,
only parts of the Moscow and Leningrad areas, the
routes and destinations included in the network oper-
ated by Intourist'-the official state travel agency-
and selected routes and cities mostly in the European
part of the USSR are consistently open. For tourists,
usually only the Intourist network is open.
I The portion of territory in the USSR that we estimate is routinely
open to foreigners represents the aggregate of the estimated
metropolitan areas of open cities and a 2-km-wide strip visible to
travelers alon both sides of roads, rail lines, and waterways open to
foreigners
' Intourist operates a system that consists of a limited number of
destinations, accommodations established specifically for foreign-
Administrative Procedures
The Soviets retain the ability to control travel outside
the Moscow and Leningrad areas through the applica-
tion of a bureaucratic screening process. This process
requires travelers to submit itineraries for proposed
travel and enables Soviet authorities to disapprove or
modify travel plans. This provides the tool for the
Soviets to create de facto closed areas because travel
to destinations that are not in formally closed areas
can still be disapproved. Also, as with the formal
closure of some cities, the denial of a destination that
serves as a regional transportation hub can be used to
block access to larger areas. Furthermore, these pro-
cedures permit the Soviets to restrict transportation
routes and modes of transit, thereby limiting access to
intermediate points; foreign officials are not permitted
to take side trips when traveling by automobile or
alight from trains or aircraft until final destinations
are reached.
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The specific procedures required by Moscow before it
will approve any official travel are set forth in a
diplomatic note dated 10 May 1988. Although this
note now excludes Heads of Missions, Plenipotentiary
Ministers, Counselors, and Heads of Consular Mis-
sions-in addition to the ambassador-from the pro-
cedures, it reconfirms that all other travelers must
submit detailed itineraries for all travel outside the
Moscow and Leningrad areas. Specifically, these itin-
eraries must include the date and time of departure,
mode of transportation (including flight number or
train number), exact route, location and duration of
any stopovers, and final destination (including name
of hotel, date, and time of arrival). Itineraries must be
submitted by diplomatic personnel to the Protocol
Section of the Ministry of Foreign Affairs and by
defense attaches to the External Relations Directorate
of the Ministry of Defense. For travel on roads within
the Intourist network, travel plans must be submitted
24 hours (of which eight must be a normal working
day) in advance of anticipated departure. For travel
on roads outside the Intourist network, they must be
submitted two working days in advance. The Soviets
will consider, and on rare occasions approve, itinerar-
ies that involve travel to formally closed areas; howev-
er, less than 5 percent of such trips requested by the
US Embassy have been approved in the last four
years.
Proposals for official travel outside the Intourist
network are more frequently disapproved than those
for travel within it-even if such trips do not include
travel in formally closed areas, according to the
records of US defense attaches and Embassy person-
nel. Soviet authorities provide a variety of reasons for
not approving travel plans as submitted, according to
Embassy and attache reporting. Among the more
commonly stated reasons for denial are the unavail-
ability of transportation tickets or hotel rooms and the
fact that routes specified in the itinerary are not open
to foreign travelers. Sometimes Soviet authorities.
deny travel "for reasons of a temporary nature,"
without further explanation.
The Intourist System
Although there have been recent changes to foreign
travel restrictions, the Intourist system is unaffected
Figure 2
USSR: Denial Rates for US Official Travel
to Areas not Formally Closed, 1984-87
.I I I I
0 1984 85 86 87
and, as a result, will continue to be an effective
mechanism to restrict movement. In practice, the
Intourist network serves as the principal conduit for
official travelers and tourists alike. In general, Soviet
authorities want all foreign visitors to stay within the
network. Because this system is established primarily
in the European part of the USSR it does little to
provide opportunities for travel in much of the coun-
try.
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Nonetheless, a small expansion of the network may be
possible in the near future. The number of US tourists
visiting the Soviet Union is increasing-64,000 in
1987, up from 46,000 in 1986, according to Soviet
figures. This may place additional demands on the
network to open new areas. For example, areas are
currently under consideration in the Baltic Republics,
according to Embassy reporting, and the city of
Vladivostok, according to attache reporting.
The 1988 Changes
By our computation, the 29 March 1988 note govern-
ing diplomatic travel in the USSR removes about 1.5
million km2 of Soviet territory from the formally
closed list. Furthermore, unlike some occasions in the
past, no new territory has been moved into the
formally closed category. The changes also include
the addition of several officially open transportation
routes-all in the European USSR. In general, how-
ever, travel opportunities in many of the areas theo-
retically open-including those "opened" in 1988-
will continue to be limited by the lack of open
transportation routes and by administrative proce-
Territory No Longer Formally Closed
Although the March note theoretically opens 16 areas
in eight of the 15 Soviet republics, most of this
territory is concentrated in the more remote regions of
East Siberia and the Soviet Far East. Nearly half of
this "newly opened" territory lacks a sufficient trans-
portation infrastructure to make travel by foreigners
practical. Furthermore, almost another one-fourth
could remain unreachable because transportation
routes that provide access to it pass through formally
closed areas. Access to the remaining one-fourth is
questionable because it would require travel along
routes that, while not formally closed, are not speci-
fied as open
In Chitinskaya and Amurskaya Oblasts about
700,000 km2 (area 16, figure 3) have been removed
from the list of formally closed areas, for example, but
the effect is negated because a 50-km-wide strip along
the Trans-Siberian Railroad needed for access to the
area is.still formally closed, according to the Soviet
note. In all likelihood, this means that foreigners, who
are generally permitted to travel by rail through this
area, will not be allowed to alight at destinations
along the closed strip. Access by-air is restricted
because the regional airports serving the oblasts are
located in the area still closed to foreign visitors. Even
if travel becomes possible along the partially open
Baikal-Amur Mainline (BAM) Railroad-which par-
allels the Trans-Siberian Railroad-access to most of
this area would be restricted by a paucity of roads in
the northern part of these oblasts.0
Three other areas appear to have constraints that
could preclude foreign travel. The 180,000-kmZ area
in the northern Koryakskiy AOk (area 14, figure 3) is
remote and inaccessible. Access to most of the 80,000
km2 in Pavlodarskaya Oblast (area 13, figure 3) is
blocked because the city of Pavlodar, which serves as
the transportation hub, is still formally closed, accord-
ing to the Soviet note; the remainder of the "newly
opened" area in the oblast is remote or requires travel
along routes that have never yet been approved for
foreigners. About 45,000 km2 in northern Permskaya
Oblast (area 9, figure 3) is also remote and, for
practical purposes, inaccessible
Travel to Mordovskaya (area 8, figure 3) and Sakha-
linskaya (area 15, figure 3) Oblasts require transit
using routes that have not been specifically opened
and are as yet untested. Access to Mordovskaya
Oblast, for example, would require either rail transit
from Ryazan' or Penza or air transit from Moscow to
the city of Saransk. Access to Sakhalin Island would
require air transit into Yuzhno-Sakhalinsk-perhaps
from the open city of Khabarovsk. We believe that
part of these two oblasts will ultimately prove accessi-
ble, but, by not specifically opening these routes,
Soviet authorities can be selective in approving travel
itineraries.
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Figure 3
Changes to Formally Closed Areas in the Soviet Union, 1978 and 1988
F.R.G.
G.DR,
IR.
Saudi
Arabia
'Iran
Tashkentl, h
72
13 MavIodar
Afghanistan
The Status of Travel Routes
Although several new travel routes are officially
opened in the 1988 note, the mobility of foreign
travelers will still be restricted because they will have
access to only a limited proportion of the Soviet
transportation network. In the experience of US
officials, foreign travel in the USSR has always been
limited to certain main or arterial roads and rail lines,
Aeroflot-the Soviet national airline-routes; and
waterways. As a result, travelers may not be able to
reach some destinations that are theoretically open,
The United State. Government hee not recognized
the incorpore n of Eetdnia. Latvia, and Lithuania
to the Soviot Union, Other boundary representation
.e not neceaaa.u, emnmitetroo.
River or canal closed
Area not closed, 1988
3Q Corresponding location (table 1)
Railroad
0 1000 Kilometers
0 1000 Miles
1 Japan
Vladivostok %
because Soviet authorities do not consider the neces-'
sary transit routes open to foreigners. In fact, even
with the recent changes, foreigners will be permitted
to use only about 4 percent of the hard surface roads
and about 25 percent of the rail system-including
9,200 km of the 'i rans-Siberian Railroad, which has
never been formally opened. If the BAM_were also to
prove accessible, the proportion of the rail system
open to foreigners would increase by only about 2
percent.
U n 1 O n
Mainline
{~
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Table I
Areas No Longer Formally Closed
Area
(location on figure 3)
Approximate Size Significance
(thousand square
kilometers)
Triangle in Leningradskaya Oblast 10
cast of city, northeast of Lenin-
grad-Moscow highway, south of
Leningrad-Novaya Ladoga high-
way, and west of the Volkhov
River (1)
Five rayons in Estonian SSR and 20
five in Latvian SSR, along the
common oblast boundary (2)
Two western rayons north of 20
Kovel'-Sarny-Snovidovichi
highway (4)
Chigirinskiy rayon south of
Cherkassy (7)
Largely swampland, with some peat Limited to Moscow-Leningrad
cutting and agriculture. Includes cities highway; direct access from Lenin-
of Mga and Ul'yanovka. grad blocked by closed area bound-
ary in 1983 Note on travel in
Leningrad.
Largely agricultural area; Tallinn- By two rail lines: Riga-Tartu or
Pskov highway open before 1988 does Riga-Pskov b and by road on Riga-
not fall within this area. Parnu and Parnu-Poltsamaa roads.
Extensive secondary road network
in area.
Largely agricultural area; includes By road from Kaunas-Vilnius high-
eastern and western end of the open way. Secondary roads provide ac-
Kaunas-Vilnius highway. cess to some of the area.
Appears to open cities of Kovel' and By secondary roads north from Ko-
Sarny, which are of slight military vel'-Snovidichi highway; by rail
significance. from Kovel' and Sarny.b
Cities of significance in this area were Secondary roads could provide ac-
open before 1988. cess to most of the area.
Military training facilities along roads Can be reached by road or rail
north of Uzhgorod and east of Bere- routes from L'vov to Mukachevo;
govo and off rail spur South of Muka- secondary roads provide access to
chevo. Area is contiguous with borders most of the oblast.c
of Czechoslovakia, Hungary, and Ro-
mania. Key cities of Uzhgorod, Chop,
and Mukachevo were open before
1988.
By road from either Cherkassy or
Kremenchug.b
By rail from the open city of Penza
to the south or by air from
Moscow.b
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Table I (continued)
Area
(location on figure 3)
Approximate Size
(thousand square
kilometers)
Significance
Southern Azerbaijan SSR includ-
ing Northern Nakhichevanskaya
ASSR (10)
40
Appears to open Nagorno-
Karabakhskaya Autonomous Oblast-
site of ethnic unrest, the cities of
Stepanakert, Alyat, and the
Kirovabad-Shamkor area-site of sev-
eral army training facilities.
Tamanskiy Peninsula (11)
5
Appears to open Kerch' Strait which
separates the Sea of Azov and the
Black Sea-and the small port of Tem-
ryuk for visual observation.
By road b or rail from Baku and
Tbilisi; secondary roads provide ac-
cess to most of the area.
By road or rail from Kachkanar or
by rail from Novorossiysk.b
Koryakskiy.Okrug (14) 180 Barren; some reindeer herding.
Sakhalin Island (15) 76 Military-strategic outpost of eastern
defenses; most key facilities are located
at Yuzhno-Sakalinsk and along the
southern coast, some facilities near
railline north of Poronaysk, and city of
Aleksandrovsk-Sakhalinskiy.
Chitinskaya and Amurskaya 741 Appears to open Chinese border, Yev-
Oblasts and the Yevreyskaya reyskaya Autonomous Oblast-which
Autonomous Oblast (16) may be accessible by rail from Khaba-
rovsk, and the area along the new
BAM rail line.b
Theoretical accessibility based on areas no longer formally closed
and past travel experiences. Actual accessibility is probably more
limited.
b Route not open before 1988 note.
c Secondary roads in areas not open before 1988 note.
secondary roads from open city of
Frunze.
Inaccessible because city of Pavlo-
dar-the transportation hub-is
closed.
Inaccessible.'
City of Yuzhno-Sakhalinsk accessi-
ble by air from Khabarovsk; roads
or rails link key locations.b
Generally inaccessible because 50-
kilometer band along Trans-Siberi-
an Railroad is closed as are Ray-
chikhinsk and Chita-the main air
hubs. Birobidzhan can be reached
by rail.
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Even though the newly added routes do little to
increase the proportion of the Soviet transportation
infrastructure open to foreigners, all of them are
significant because they provide the opportunity for
observation in otherwise formally closed areas (see
foldout maps). These routes include the Tallinn-
Minsk, Ternopol'-L'vov, and Leningrad- Orsha via
Pskov highways, and the Apatity-Murmansk rail
line-all located in the European USSR. The note
also opens the Volga River from Moscow to Yaros-
lavl', via the city of Andropov-until recently a de
facto closed city. Although the 1988 revisions do not
appear to close any previously open routes, the status
of those routes opened in 1978
but not addressed in the latest note is unclear. (See
inset, "Some Unresolved Questions on Foreign Travel
Route").
Travel in the Cities
Foreign tourists are generally permitted to travel only
to selected urban areas-where they are allowed some
freedom of movement during their stays. Of the 304
cities that we have identified as being of possible
interest to US Embassy and attache travelers, we
judge that travel to 192 (63 percent) is possible (see
appendix E). On the other hand, the 25 cities identi-
fied as formally closed in the 1988 note are by no
means a complete listing; we estimate that at least 25
other cities on our list may be off limits. Cities may be
denied for several reasons, including the presence of
sensitive military installations or the unavailability of
services-for example, hotels and resturants. Also, the
placing of a single city off limits can have the effect of
barring travelers from an entire region if that city
straddles the only major road or rail line through the
region and is the site of the only regional airport. In
the recent note, for example, the closure of the city of
Pavalodar has this effect.
Nonetheless, a number of cities of significant mili-
tary, political, and economic interest are now at least
ostensibly open. The only new city specifically opened
in the 1988 note-Dnepropetrovsk-is a key strategic
industrial center located on the Dnepr River in the
southern Ukraine. In addition, several other cities
located in areas no longer formally closed may prove
to be significant additions to foreign travelers' itiner-
aries: Perm'-a key military and industrial center and
transportation hub in the Urals; Yuzhno-Sakha-
linsk-the administrative center for Sakhalinskaya
Oblast and a key military and port city in the Soviet
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Figure 4
Travel Restrictions on Foreigners in Moscow
Mosio
city p
0 10 Kilometers
0 10 Miles
Vnukovo
Airport
ff
Fr aiino
Bolshevo
Mytishchi
Babushkin. Nikol'skoye-
Trubetskoye
Balashik
< Kpchino
Lyubertsy
Moscow
/QPerovo
T rl a?
ilino,I
hiliino\
Domodedovo
Airport
Far East; and Saransk-the Mordovskaya ASSR
capital, which has become one of the USSR's leading
producers of electronic goods.
The latest countrywide revisions will have no impact
on travel in Moscow and little impact in Leningrad,
where travelers already enjoy fairly broad freedom of
movement. Travel in Moscow should continue to be
relatively easy within the 3,300 km2-amounting to
about two-thirds of the city and its environs-that are
open to restriction-free travel. For travelers in Lenin-
grad,.there are no changes to the restrictions set forth
in a separate 1983 note (see appendix C); 1,609 km2-
about half the city and its environs-are open to
restriction-free travel. To the east of Leningrad, how-
ever, a relatively insignificant 10,000-km2 area is now
theoretically open, according to the 1988 note, al-
though travelers may not be able to reach this area
directly from the city.
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Figure 5
Travel Restrictions on Foreigners in Leningrad
elenogorsk
,,,Solnechn
Area open
to private boats -
of consular corps- )
daytime only /
(3-kilometer limit)
for specia'
events only Kavgolo
Skotnoye
'Lagolovo D.
Veriksolovo
Finland
Leningirad
LomonoSOV Trips to Lomonosov etis,
require permission Op r
Petrodvorets Itic
Alakyuly
?Veligonty
? Krasnoye , ISkachki
% Selo/ r~t'~-
Gulf Lakhtinskiy
of
Area closed to travel
Area removed from formally
closed list in 1988
Boundary of open area, 1983
Open recreation zone
Road designated open to travel
Route designated open to travel
with permission
--- City limits
^ Railroad station
State farm (sovkhoz)
Note: Water bodies closed unless
otherwise noted.
Source: Ministry o! Foreign Altairs of the USSR
Diplomatic note No. 219 dated 12 December 1983 and
Diplomatic Note No. 79/Pr dated 29 March 1988.
Tosno
10 Kilometers
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Some Unresolved Questions on
Foreign Travel Routes
The status of several additional open road, rail, air,
and water routes listed in the now superseded 1978
note is unclear. On the first page of the 1988 note, the
Soviets indicate that they are opening three addition-
al roads to foreign auto tourists as a supplement to
the special note of 4 April 1974 (see appendix B)-no
mention is made of the status of the routes covered in
the 1978 note. In some cases, the routes are probably
open and may have been omitted because the destina-
tions now lie within "open" areas. In other cases,
however, the cities are listed as open, but access
routes pass through closed areas. The routes now in
question include:
? Road-Lvov to Mostiska/Checkpoint Shegni; Ko-
vel' to Lutsk to Rovno; Vilnius to Druskininkai;
Vyborg to Pyalli (toward the Finnish border); and
Riga to Ogre, Sigulda, or Saulkrasti.
? Rail-Tashkent to Frunze; Tashkent to Alma-Ata;
Tallinn to Leningrad, Riga, or Pskov; Leningrad to
Vilnius to Grodno; Riga to Ogre, Ventspils, Si-
gulda, or Saulkrasti; Tbilisi to Baku; and Nikel' to
Murmansk.
? Water-Riga to Ventspils.
? Air-Turkmen SSR cities of Ashkhabad, Mary,
Chardzhou, Tashauz.
The new rules at least could ostensibly provide some
unique travel opportunities in the Soviet Union. For
example, access to:
? Central Asia and the Transcaucasus would permit
observations in two areas where ethnic tensions are
prominent. In theory, travelers should now be able
to reach Stepanakert, for example, the capital of
Nagorno-Karabakh-the Armenian enclave of the
Azerbaijan SSR-which has been the object of
recent ethnic tensions. On the basis of Embassy
experience, however, we consider opportunities to be
limited as long as the unrest continues.
Although we believe that this may be an oversight
and that Moscow did not intend to close these routes,
until there is clarification, or they are tested by the
submission of travel itineraries including these
routes, travelers should be aware that they are not
now specified as open.
The status of two other rail lines is also uncertain.
The Trans-Siberian, although routinely traveled by
foreigners, has never been officially opened. On occa-
sion this has resulted in US officials being denied
access, particularly on the Siberian segment. Also,
there has been no indication of the eventual status of
the partially open Baikal-Amur Mainline (BAM),
which runs parallel to the Trans-Siberian through
Siberia.
In addition, the status of routes traveling east from
the city of Leningrad into the "newly opened" area is
unclear. The use of these routes appears to be
blocked by the Leningrad open area boundary set
forth in the 1983 note (see figure 3). Again, it appears
that this is the result of a bureaucratic oversight, but
travelers should be aware that a literal interpretion
of the 1983 note would mean that this area can be
reached only from the Moscow-Leningrad Highway
south of the city.
? Yevreyskaya Autonomous Oblast would be of inter-
est because of its Jewish population. Although this
region was established by Stalin to allow Jews their
own homeland, it was unsuccessful in attracting
Jewish settlers; only about 30 percent of its popula-
tion is Jewish. Nonetheless, it could prove to be an
interesting place to observe how the Soviets are
treating Jewish citizens.
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? Blagoveshchensk, a key cross-border trading city
with China, would permit assessment of the pulse of
Sino-Soviet relations. It is not clear whether foreign
travelers will be able to reach Blagoveshchensk
because ground transportation would probably re-
quire transit through the formally closed 50-km
band along the Trans-Siberian Railroad.
? Permskaya Oblast might enable observations of rail
shipments to the ICBM complex located to the
south of the city of Perm'. Shipments must transit
the city en route from the military-industrial centers
in the European USSR. We would, however, expect
Moscow to deny permission for travel into the area
when important shipments are scheduled. Also,
three forced labor camps-known as Perm' 35, 36,
and 37-located near Chusovoy, about 90 km east
of Perm', are of significance because they house
prominent dissidents.
? Sakhalin Island could permit observation 'of mili-
tary facilities-located at the southern end and in
the center of the island-and the rail transshipment
point from the mainland located at Kholmsk. Obser-
vation of military shipments to the island-related
to the defensive network around the Sea of
Okhotsk-might also be possible along the Kholmsk
to Yuzhno-Sakhalinsk rail line. Also of significance
is oil and gas development, particularly along the
northeastern coast, targeted by the Soviets for joint
ventures with Japan.
____]Observation of rail traffic to the large
Pot'ma Forced Labor complex, which has camps for
foreigners and some dissidents, may be possible
from the city of Pot'ma-a stop along the rail line
from Saransk to Moscow.
Indeed, the recent experiences of nongovernment trav-
elers suggests that the Soviets in certain cases may be
increasingly willing to make some parts of their
country more accessible to Westerners. Consequently,
the success of "unofficial" travelers, like journalists,
in reaching destinations that were previously off limits
could be a leading indicator of greater opportunities
for US diplomatic travel. Even so, US officials will
Some unofficial foreign travelers, particularly jour-
nalists, business people, and scientists, may get more
latitude than official travelers and tourists. Indeed,
Soviet authorities have recently afforded several new
opportunities to journalists. Within the last 18
months, for example, correspondents from several US
newspapers visited six formally closed and six de
facto closed cities. The closed cities are concentrated
in two geographic areas: Central Asia and the Far
East-in most cases well away from areas of strate-
gic significance. Most of the de facto closed cities
visited by these journalists were in the European
USSR near areas usually open to foreigners. Scien-
tists, often as part of exchange programs, and busi-
nessmen have also visited a few formally closed
locations within the last year, according to State
Department records.
There may be several reasons why the Soviets may
occasionally provide access to otherwise closed areas.
Among the most likely, in our judgment, are:
? To showcase successful large development projects.
? To promote regions for joint development projects
with the United States.
? To appear more "open" in the spirit of glasnost.
Another-perhaps less likely but not unrealistic-
possibility is that Soviet authorities may be attempt-
ing to test areas being considered for future travel-
restrictions liberalization. Three of the six formally
closed cities visited by journalists within the last 18
months, for example, were subsequently removed
from the list of formally closed areas in the 1988
note.
probably still have to probe the system to find how
much additional latitude it will allow them, and it
might take several submissions of itineraries using
variations of routes and modes of transportation be-
fore a combination that is acceptable to Soviet au-
thorities is found. Also, we would expect the Soviets to
refuse to allow travel to places where temporary
regional developments could embarrass Moscow.
25X1
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In addition, current travel restrictions could make
access to INF sites by personnel who are not part of
the verification teams difficult, even in an emergency
when team members might require medical or other
assistance. Only Moscow and Ulan-Ude-the ports of
entry for US inspectors-now have open access. Itin-
eraries for travel to the six other sites' where the
United States will maintain a continuous presence
will require transit along routes not usually open to
foreign travel. This could delay processing by Soviet
authorities who would have to evaluate the implica-
tions of the proposed travel and add at least 48 hours
to the time required to get a nonteam member into
any of these six sites. Furthermore, three of the six
sites-Votkinsk, Jelgava, and Saryozek-are located
in formally closed areas, thus requiring a special
exception by Soviet authorities to permit travel and
raising the possibility of even longer delays. Inspection
team members themselves, however, should be largely
unaffected by the travel restriction even at the three
sites located in formally closed areas.
Finally, the new rules have implications relating to
diplomatic reciprocity. Since 1955, the United States
has maintained a policy of matching the percent of
territory formally closed to US travelers in the Soviet
Union by restricting Soviet access to the same percent
of US territory (see appendix D), according to State
Department officials. Most likely, therefore, Moscow
will press for greater access by Soviet officials travel-
ing in the United States.
These sites include five locations where missiles will be destroyed:
Jelgava, Sarny, Lesnaya, Stankovo, and Saryozek, as well as the
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Appendix A
Diplomatic Agency Note Number 79/Pr,
-,Moscow, 29 March 1988
The Ministry of Foreign Affairs of the Union of
Soviet Socialist Republics presents its compliments to
the Embassies in Moscow and has the honor to advise
that, in order to enable representatives of the diplo-
matic corps to travel more freely in the territory of the
Soviet Union, the Government of the USSR has
decided to open an additional, number of Soviet cities
and areas for visits by foreigners.
2. Chukchi National Okrug-a 25-kilometer strip
along the coast to the east of the Amguema River as
far as Cape Il'pyrskiy in Kamchatskaya Oblast.
3. Kamchatskaya Oblast, with the exception of the
Penzhinskiy and Olyutorkskiy Rayons.
The hitherto valid List of Soviet Cities and Areas
Closed to Visits by Foreigners, transmitted to the
Embassies by Note No. 1/Pr of January 4, 1978, is no
longer in force.
The Ministry of Foreign Affairs of the USSR re-
quests the Embassies to be guided by the new List,
which is attached.
At the same time, referring to its Note No. 101 /Pr of
April 4, 1974, the Ministry has the honor to advise
that the following additional routes will be opened for
travel by foreign motorists:
? Leningrad-Pskov-Vitebsk-Orsha (with certain traf-
fic limitations)
? Minsk-Vilnius-Riga-Tallinn
? Ternopol'-L'vov
The new map of the USSR for orientation of the
personnel of Embassies traveling in Soviet territory
will be sent under separate cover.
The Ministry avails itself of this opportunity to renew
to the Embassies the assurances of its highest
consideration.
List of Cities and Areas in the USSR Closed to Visits
by Foreigners
1. A 25-kilometer strip along the border with Norway,
Finland, Turkey, Iran, and Afghanistan.
5. The Khabarovskiy Kray east of the Amur River,
with the exception of the city of Khabarovsk.
6. The Primorskiy Kray, with the exception of the
city of Nakhodka and travel to Nakhodka by rail
from Khabarovsk.
7. The Chitinskaya and Amurskaya Oblasts-a 50-
kilometer strip along the railroad in the Chita-Bureya
sector.
8. (Waterways)--Travel on the White Sea-Baltic and
Volga-Baltic Canals, the Yenisey River, the Lena
River north of the city of Yakutsk, and Lake Onega,
with the exception of Kizhi Island.
9. Novgorodskaya Oblast-the area between the rail-
road lines from the east (Chudovo-Uglovka) and from
the south (Bologoye-Dno), with the exception of the
cities of Novgorod, Valday, Staraya Russa, and the
settlement of Kresttsy.
10. Komi ASSR-a 50-kilometer strip along the
railroad in the Vorkuta-Zheleznodorozhnyy sector.
11. Arkhangel'skaya Oblast-the Solovetskiye Is-
lands, the Primorskiy Rayon west of the Severnaya
Dvina River, and a 50-km strip along the railroad in
the Arkhangel'sk-Konosha sector, with the exception
of the city of Arkhangel'sk.
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13. Sverdlovskaya Oblast, with the exception of the
settlement of Zarechnyy for IAEA workers.
14. Chelyabinskaya Oblast, with the exception of the
city of Magnitogorsk.
16. Volgogradskaya Oblast-the area east of the
Volga River, with the exception of the area bounded
by a line from the city of Volzhskiy (within the city
limits), to the settlement of Srednyaya Akhtuba, and
to the southern tip of Sarpinskiy Island.
17. Astrakhanskaya Oblast-the area east of the
Volga River, with the exception of the city of Astrak-
han' and travel to Astrakhan' by air.
18. Murmanskaya Oblast-the area west of the
Voron'ya River and north of the line Kirovsk-
Kuolayarvi, with the exception of the left bank of the
Patso-Yoki (Pasvikel'v) River from the Borisoglebsk
Hydroelectric Station to border marker No. 218,
excursions to the Borisoglebsk Hydroelectric Station
(the right bank of the Patso-Yoki River) for visits by
tourists from the Scandanavian countries, as well as
the Borisoglebsk border point, the cities of Mur-
mansk, Kola, Kirovsk, and Apatity, and travel to
them by rail and air.
19. Leningradskaya Oblast-the area west of the
Moscow-Leningrad Highway and north of the Lenin-
grad-Novaya Ladoga Highway, with the exception of
the cities of. Leningrad, Zelenogorsk, Gatchina, Vy-
borg, Petrokrepost', and Lomonosov, and a 30-km
zone around Leningrad.
? The cities of Moscow, Zagorsk, Dubna, Dmitrov,
Serpukhov, Orekhovo-Zuyevo, Klin, Solnechno-
gorsk, Istra, Zvenigorod, Mozhaysk, Pushchino, the
village of Borodino (Borodino Museum), the
Prioksko-Terrasnyy State Reserve, the city of Volo-
kolamsk with visits to Teryayevo village and toward
the Dubosekovo Railroad Siding, Abramtsevo, the
village of Muranovo in Pushkinskiy Rayon, Shere-
met'yevo Airport, Lake Senezhskoye within a radius
of 6 km, and the Krasnogorskiy, Leninskiy, Sere-
bryano-Prudskiy, Zarayskiy, Ozerskiy, and Kashirs-
kiy Rayons.
? The Balashikhinskiy, Lyuberetskiy, and Ramenskiy
Rayons west of the line Nikol'skoye-Trubetskoye-
Balashikha-Kuchino-Tomilino, Zhilino-Ryazan'
Highway (excluded)-Ivanovka-Zhdanovskoye.
? The Domodedovskiy, Podol'skiy, and Naro-
Fominskiy Rayons north of the line Domodedovo
Airport-Vostryakovo-Sergeyevka-Krasnaya-
Pakhra-Aprelevka.
? The Odintsovskiy Rayon southeast of the Minsk
Highway to Golitsyno Station (inclusive).
? The Istrinskiy Rayon east of the line Palitsy-
Snegiri-Khovanskoye (inclusive).
? The Mytishchinskiy and Pushkinskiy Rayons within
the boundaries of the Dmitrov Highway-Trudovaya-
Rakovo-Zelenogradskiy-the Pushkino State Fur
Farm (inclusive), excluding the Pestovskoye,
Uchinskoye, and Pyalovskoye Reservoirs and a 2-
km-wide coastal strip around them.
? Transit travel by automobile to open cities and
rayons in Moskovskaya Oblast is permitted:
Along the Yaroslavl' Highway to the city of
Zagorsk, the village of Muranovo (via Rakh-
manovo), and the Abramtsevo Farm Center
Museum (via Ryazantsy and Khot'kovo).
- Along the Dmitrov highway to the cities of
Dubna and Dmitrov.
- Along the Simferopol' Highway to the cities of
Serpukhov and Pushchino (via Lipitsy) and the
Prioksko-Terrasnyy State Reserve (via Danki).
- Along the Gor'kiy Highway to the city of
Orekhovo-Zuyevo (via Malaya Dubna).
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- Along the Leningrad Highway to the cities of
Klin and Solnechnogorsk, to Lake Senezhskoye,
and to Sheremet'yevo Airport.
- Along the Volokolamsk Highway to the cities of
Istra and Volokolamsk, to the Dubosekovo Rail-
road Siding (via Volokolamsk) and the village of
Teryayevo (via Maslennikovo).
Along the Minsk Highway to the cities of
Zvenigorod (to Golitsyno and farther on the
Zvenigorod Highway), Mozhaysk, and the vil-
lage of Borodino (to Modenovo and farther on
the Mozhaysk Highway).
- Along the Kashira Highway to Domodedovo
Airport and the Kashirskiy, Ozerskiy, Zarays-
kiy, and Serebryano-Prudskiy Rayons.
21. Travel is permitted on the Moscow Canal to the
city of Dubna and farther along on the Volga River to
the city of Yaroslavl' on steamships chartered by the
State Committee for Tourism of the USSR.
Voru, Polva, Parnu, Aluksne, Valka, Valmier, Lim-
,bazhi, Cesis, Alytaus, Varena, Kaisiadorys, Kaunas,
Prenai, and Trakai Rayons.
27. Volynskaya and Rovenskaya Oblasts south of the
highway national border-Kovel'-Sarny-Snovidovi-
chi, as well as Ivano-Frankovskaya and L'vovskaya
Oblasts, with the exception of the cities of L'vov,
Rovno, and Lutsk, as well as the Dubnovskiy, Zdol-
bunovskiy, Ostrozhs"kiy, and Chervonoarmeyskiy
Rayons of Rovenskaya Oblast, and Brodovskiy, Zhi-
dachovskiy, Zolochevskiy, Peremyshlyanskiy, and
Stryyskiy Rayons of L'vovskaya Oblast.
28. Krymskaya Oblast-the area east of the railroad
line Solenoye Ozero-Dzhankoy-Simferopol' and the
Simferopol'-Alushta Highway, with the exception of
the cities of Dzhankoy, Simferopol', and Alushta.
29. The cities of Nikolayev,. Sevastopol', and
Balaklava.
22. Vladimirskaya Oblast-the area southwest of the
line Aleksandrov-Kosterevo (inclusive).
23. Kaluzhskaya Oblast-the area northeast of the
cities of Maloyaroslavets and Tarusa (inclusive).
24. Kaliningradskaya Oblast.
25. The cities of Magadan, Tomsk, Krasnoyarsk,
Kaliningrad in Moskovskaya Oblast, Angarsk,
Nikolayevsk-na-Amure, Komsomol'sk-na-Amure,
Okhotsk, Amursk, Noril'sk, Dudinka, Dikson, Kha-
tanga, Omsk, Kem', Kirov, Saratov, Kuybyshev.
30. Gur'yevskaya, 5 Semipalatinskaya, Vostochno-
Kazakstanskaya, Taldy-Kurganskaya, Dzhezkaz-
ganskaya, and Alma-Atinskaya Oblasts, with the
exception of the city of Alma-Ata, the Chimbulak
wilderness area, and Lake Issyk.
31. Pavlodarskaya Oblast-Pavlodarskiy and the
Mayskiy Rayons.
32. Kzyl-Ordinskaya Oblast-the area northeast of
the Syrdarya River.
26. The entire territory, with the exception of the
cities of Tallinn, Kohtla-Jarva, Narva, Riga, Vents-
pils, Jurmala, Ogre, Sigulda, the settlements of Sala-
spils (including Akademgorodok and the Salaspils
Memorial Complex, Ikshkile, Saulkrasti, the cities of
Vilnius, Druskininkai, Kaunas, Trakai, and the settle-
ment of Pravenai, as well as the Valga, Viljandi,
5 Information obtained in June 1988 indicates that Mangyshlaks-
kaya Oblast was eliminated after the note was issued. The territory
is now part of Gur'yevskaya Oblast, which is closed to foreigners
(see paragraph 30). Since this change occurred after the issuance of
this note, however, we do not now consider the former Mangysh-
lakskaya Oblast formally closed.
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33. Dzhambulskaya Oblast-the area east of the
Mynaral-Lugovoy railroad.
34. Ural'skaya Oblast-the area west of the Ural
River.
35. The city of Shevchenko in Mangyshlakskaya
Oblast.
37. The territory of the Surkhandar'yinskaya Oblast
within the boundaries of the settlements of Denau-
Baysun-Sherabad-Dzharkurgan.
38. The Karakalpakskaya ASSR-the Muynakskiy
Rayon and the Kungradskiy Rayon northeast. of the
Kungrad-Karakalpakiya railroad line.
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Appendix B
Diplomatic Agency Note Number 101/Pr,
Moscow, 4 April 1974
The Protocol Section of the Ministry of Foreign
Affairs of the USSR presents its compliments to the
Embassies and in addition to the Note of the Ministry
No. 52/Pr of February 18, 1974 has the honor to
name highways open for foreign auto tourists:
? Moscow-Vladimir-Suzdal
? Moscow-Yaroslavl'
? Moscow- Kalinin-Novgorod-Leningrad-Vyborg-
Torfyanovka
? Moscow-Smolensk-Minsk-Brest
? Moscow-Tula-Orel-Khar'kov-Simferopol'-Yalta
? Moscow-Zagorsk
? Moscow-Abramtsevo (along the Yaroslav' Highway
as far as Ryazantsy and then via Khot'kovo)
? Moscow-Dubna (along the Dmitrov Highway)
? Moscow-Solnechnogorsk, to the Lake Senezhskoye,
Klin, Sheremet'yevo (along the Leningrad Highway)
? Moscow-Zvenigorod (along the Minsk Highway as
far as Golitsyno and then along the Zvenigorod
Highway)
? Moscow-Leninskiye Gorki and to the Domodedovo
Airport along the Kashira highway
? Leningrad-Narva-Tallinn (without stopovers for
nights)
? Khar'kov-Poltava-Kiev-Zhitomir-Chernovtsy-
Parubnoye
? Kiev-L'vov-Stryy-Uzhgorod-Chop
? Novo-Alekseyevka-Chkalovo (with a drive into As-
kaniya Nova)-Novaya Kakhovka
? Orel-Glukhov-Kiev
? Kopti-Chernigov
? Kiev-Uman'-Odessa
? Simferopol'-Bakhchisaray
? Odessa-Kishinev-Bel'tsy-Chernovtsy-Parubnoye
? Kishinev-Leushany
? Khar'kov-Rostov-na-Donu-Krasnodar-Sochi-
Sukhumi-Tbilisi-Ordzhonikidze-Pyatigorsk-Rostov-
na-Donu
? Tbilisi-Kazakh-Sevan-Yerevan
? Kashuri-Borzhomi-Bakuriani
? Kutaisi-Tskhaltubo
? Samtredia-Makharadze-Kobuleti-Batumi
? Yerevan-Vartanashen-Eraskagun-Khatunarkh-
Echmiadzin-Zvartnotu-Varanash-Argavant-
Markara.
Conditions of the drive to cities and settlements
located on these highways for employees of foreign
missions and consulates are reported in the above
mentioned note of the Ministry.
The Protocol Section avails itself of the opportunity to
renew to the Embassies its assurances of the highest
consideration.
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Appendix C
Diplomatic Agency Note Number 219,
Moscow, 12 December 1983,
Travel Rules for Foreign Representative
Staff Members in Leningradskaya Oblast
The Diplomatic Agency of the Ministry of Foreign
Affairs of the USSR in Leningrad presents its compli-
ments to the General Consulates and has the honor to
forward documents specifying rules for travel of
foreigners in the territory of the city of Leningrad and
the adjoining rayons, namely:
? A precise description of the boundaries of the zone
of free travel for foreigners within the city limits of
Leningrad and the recreation zones.
? Rules for travel by foreigners.
? A map-diagram of Leningrad (two copies).
Having forwarded the indicated documents, the Dip-
lomatic Agency requests that the General Consulate
Staff, as well as all members registered with the
Diplomatic Agency at the request of the General
Consulates, be guided by them during trips. For this,
as before, written notification about trips with indi-
cated routes of movement, points, and lengths of stay,
and also means of travel shall be directed to the
Diplomatic Agency more than 48 hours before the
start of the trip, and for trips to cities and to
populated places, located on routes open for auto
travel by foreign auto tourists within 24 hours before
the start of the trip. This period does not include time
of nonworking days.
Besides this, foreigners may visit specifically desig-
nated Recreation Zones:
1. On the northern shore of the Gulf of Finland
from the settlement of Lakhtinskiy to the city of
Zelenogorsk (inclusive). The zone is bounded by the
shore of the Gulf of Finland and by the suburban
railroad in the direction of Beloostrov up to the
platform "Aleksandrovskaya," further on by the
western shore of Lake Razliv, then by the railroad
to Beloostrov and Zelenogorsk.
Travel to the zone is permitted along the Primorsk
Highway and the suburban railroad in the direction
of Beloostrov and Zelenogorsk.
2. On the eastern shore of Lake Razliv. The zone is
bounded by the shore of Lake Razliv and the
highway road to the monument "Shalash V. I.
Lenin." Travel to the zone is permitted on the
highway from the Aleksandrovoskaya settlement to
the monument "Shalash V. I. Lenin."
? 3. On the south side of the Gulf of Finland: from the
settlement Izhorka (inclusive) to the city of Lomono-
sov (inclusive). The zone is bounded by the shore of
the Gulf of Finland and by the suburban railroad in
the direction of Lomonosov.
The Diplomatic Agency takes this opportunity to
confirm to the General Consulates, assurances of its
highest consideration.
Rules (For Travel of Foreigners in the Territory of
Leningradskaya Oblast)
For travel by foreigners in Leningradskaya Oblast the
zone is open around the city of Leningrad in accor-
dance with the description.
Travel to the zone is permitted by auto, by suburban
railroad to the station "Staryy Petergof," and by local
boats on the Gulf of Finland to the "Petrodvorets"
landing.
On one-day trips to the Leningrad recreation zones,
permission from the organs of Internal Affairs is not
required.
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With proper permission it is possible to visit cities:
Gatchina (along the Kiev Highway and along the
railroad through station "Aeroport"), Petrokrepost'
(along Petrozavodsk Highway or by water), Vyborg
(along the international tourist auto route and by
international trains.)
As an exception, foreigners may go to the populated
places of Yukki and Kavgolovo by auto transport
along the Priozersk Highway according to the route:
Leningrad-Osinovaya Roshcha-Vartemyaki-
Skotnoye-Toksovo-Kavgolovo when international
competition is held in motor and skiing sports.
Travel and stay with proper permission is permitted at
the base "Borovoye" (139th km of the Eastern-
Vyborg Highway) for consular workers located in
Leningrad, for the sake of recreation and also for the
purpose of hunting and fishing.
The territory of the base is bounded: from the north
by a section of the railroad Lazarevka-Zhitkovo, from
the south by a section of the Eastern-Vyborg High-
way, from the northeast by a 50-meter wide zone
along the shore of the lake, from the southwest by a
dirt road.
Travel is permitted along the international auto tour-
ist route: Leningrad-Zelenogorsk-Ogon'ki-Vyborg-
Torfyanovka.
With special permission foreigners may travel to the
settlement of Voyeykovo (by auto in the direction
toward the city of Vsevolozhsk through the settlement
Koltushi and Myaglovo without the right of deviating
from the route), and to the airport "Rzhevka" and to
the railroad station "Devyatkino" (station of the
subway "Komsomolskaya") by urban transport.
Within the bounds of Leningradskaya Oblast and the
established zone around Leningrad travel is
permitted.
Along the Roads and Highways (Any Type of
Transport)
Primorsk Highway-Through the settlement Alek-
sandrovskaya (the 30th km along the highway) travel
is permitted to the recreation zone; with proper
permission travel is conducted along the international
route: Leningrad-Zelenogorsk-Ogon'ki-Torfyanovka,
and for large freight international auto transport:
Leningrad-Zelenogorsk-Chernaya Rechka-Pervo-
mayskoye-Vyborg-Torfyanovka.
Eastern-Vyborg Highway-To the settlement Osino-
vaya Roshcha (22nd km along the highway).
? Travel by the auto route from the Eastern-Vyborg
Highway to the Murino settlement is permitted
without entering the state farm "Bugry."
? Travel to the Koltushi settlement is permitted by
roads through state farm "Yanino" or through the
Novosergiyevka settlement.
? Travel to the east along the right bank of the Neva
River is permitted to the settlement Malyye Porogi
(inclusive) through Utkina Zavod' and through the
Novosaratovka settlement.
Petrozavodsk Highway-To the Sapernyy settlement
(25th km along the highway).
? Travel is permitted along the road from the Petroza-
vodsk Highway to the Moscow. Highway through
the city of Kolpino.
Moscow Highway-To Yam-Izhora settlement
(inclusive).
? With proper permission travel is conducted along
the international tourist route Leningrad-Moscow.
? Travel is permitted from the Moscow Highway in
the direction of the cities of Pushkin and Pavlovsk
along the roads from Moskovskaya Slavyanka and
Yam-Izhora.
Kiev Highway-To the 25th km along the road.
? Travel is permitted to the cities Pushkin and Pav-
lovsk through Pulkovo.
Tallinn Highway-To Krasnoye Selo (inclusive).
? With proper permission travel is allowed along the
international tourist route Leningrad-Tallinn; travel
is permitted along the automobile road to Staryy
Petergof.
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? Travel in rayons of Leningradskaya Oblast open for
visits by foreigners to the east of the Volkhov River
(with the exception of the cities Podporozh'ye and
Lodeynoye Pole) is permitted by long distance trains
on Murmansk and Petrozavodsk travel lines.
Travel by Water Routes Is Permitted
For employees of the consular establishment on pri-
vate boats in the northern part of the Gulf of Finland
in the area from Sestroretsk to the Chernaya stream
(Serovo settlement) within a limit of no more than 3
km from shore. Travel is permitted only in daylight.
On steamships within the limits of Leningrad and to
Petrodvorets, and with proper permission to the city of
Petrokrepost'.
Description (of the Boundary of the Zone Around
Leningrad Open to Visits by Foreigners)
? From the shore of the Gulf of Finland along the
stream northeast of Solnechnoye settlement along
the Beloostrov-Zelenogorsk railroad; including the
Beloostrov station (inclusive), Dibuny station (inclu-
sive), Levashovo station (inclusive).
? From the Levashovo station along the highway to
the east up to Osinovaya Roshcha station
(exclusive).
? To the south, east of the highway to Pargolovo
(inclusive) and Torfyanoye (inclusive).
? Farther to the north of the railroad Pargolovo-
Murino to its intersection with the highway Ozerki-
Murino, along the highway Ozerki-Murino to Mur-
ino (the settlement of Murino with station
Devyatkino inclusive).
? Along the right bank of the river Okhta to the
intersection with the railroad branch line (from
station Piskarevka to station Rzhevka), along the
railroad branch line to the east to the urban (Lenin-
grad) boundary line and farther along this boundary
and to the north of the highway to the state farm
Yanino (inclusive), the settlement of Suoranda (in-
clusive), the settlement of Tokkari (inclusive).
? To the west of the highway Koltushi-Tavry, Tavry
(inclusive), Virki (inclusive), Ozerki Pervyye and
Vtoryye (inclusive), Yeksolovo (inclusive), Bol'shoye
and Maloye Manushkino (inclusive) along the
boundary of the reclamation canal and the Cher-
naya stream to the right bank of the Neva River
(Malyye Porogi inclusive).
? To the south of the road to Pushkin, Pavlovsk
(inclusive), Gummolosary, Novoselki (inclusive).
? To the south of the road Novoselki-Krasnoye Selo,
up to the intersection with the Kiev Highway.
? To the north, west of the Kiev Highway, up to the
intersection with the highway Aleksandrovskaya-
Volodarskiy.
? To the south of this highway up to the intersection
with the railroad Staropanovo-Gorelovo.
? Along the railroad to the south up to the Skachki
station (inclusive), then to the east of this railroad
through the settlements Gorskaya, Pikkolovo, Ver-
iksolovo (all inclusive).
? To the west of the highway to Krasnoye Selo,
Krasnoye Selo (inclusive).
? To the south of the highway to Lagolovo, Lagolovo
(inclusive).
? To the northwest, west of Ertelevo, to Ukkolovo,
Alakyulya, Rappolovo, Oliki, Veligonty, Uzigonty,
Nizino.
? To the north along the canal up to Yegerskaya
Sloboda, Yegerskaya Sloboda (inclusive), farther to
Troitskaya Gora (inclusive), Temyaskino (inclusive).
? To the northwest up to the city Lomonosov (inclu-
sive) and to the shore of the Gulf of Finland.
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Appendix D
A Chronology of Travel Restrictions:
Soviet Actions-US Reactions
16 May
Initial Soviet note. Regulations for registration of
travel by all diplomatic personnel established. Certain
areas and cities of the USSR closed to travel by all
foreigners.
7 June
US note. Prior registration of all travel by Soviet
Embassy and Consular personnel in the United States
required.
23 June
US travel restriction lifted.
22 June
Soviet note. List of areas closed completely revised.
System of preliminary registration retained.
12 November
Soviet note. Five port areas added to closed list.
February
Soviet circular note. Regulations restricting photogra-
phy in the USSR established.
30 September
Soviet note. New list of closed areas in the USSR
presented.
27 October
Soviet note. Rules governing transit-through forbid-
den areas and travel within 50-kilometer radius from
the center of Moscow clarified.
15 January
Soviet note. List of places closed in September 1948
extended.
10 March
US note. Prior registration of travel by Soviet person-
nel in the United States again required.
3 January
US note. Areas in the United States closed to Soviet
citizens for the first time.
20 July
Peter the Great Bay (Vladivostok) closed to foreign
ships and aircraft.
13 August
United States protests closure of Peter the Great Bay.
28 August
Soviet note. June 1953 list of closed areas amended.
USSR indicates willingness to discuss reciprocal
reductions.
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va.a.u
11 November
United States proposes abolition. of closed areas.
22 May
United States offers suggestions for reciprocal reduc-
tion of closed areas.
18 August
Soviet note. June 1953 list of closed areas amended
further.
6 January
US note. Abolition or reduction of US and Soviet
travel restrictions proposed. US list of closed areas
revised.
22 July
Soviet note. Four previous notes superseded. Compre-
hensive list of closed areas issued. System of prelimi-
nary registration reaffirmed.
26 July
US note. List reduced amount of area closed to Soviet
travelers in the United States to match the reduction
in the 1966 Soviet note.
23 November
Soviet note. List of travel restrictions of diplomats in
Leningrad.
18 February
Soviet note. Defines conditions for filing travel notes
with Ministry of Foreign Affairs and Ministry of
Defense.
4 April
Soviet note. List of auto routes open to foreigners.
A number of oblasts along the Sino-Soviet border
placed off limits to foreigners. United States recipro-
cates by closing areas in the United States.
16 October
Soviet note. Opens city Vyborg.
United States cancels additional travel restrictions
imposed in 1974.
4 January
Soviet note. List of closed areas and cities in USSR
completely revised.
16 November
US note. Revised list of closed areas and-cities in the
United States; reduction of closed territory matches
1978 note.
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12 December
Soviet note. Travel restrictions for Leningrad revised.
29 March
Soviet note. List of closed areas and cities in the
USSR revised; refers to April 1974 note for travel
routes.
10 May
Soviet note. Soviet travel notification requirements
are lifted effective 10 July 1988 for heads of missions,
plenipotentiary ministers, counselors, and heads of
consular missions. Requirements for all other travel-
ers restated with no change from February 1974 note.
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secret
Appendix E
Table 2
Accessibility of Major Soviet Cities to Government Travelers
Achinsk
Open
Open
Open
1979
Aktyubinsk
Open
Open
Open
1988
Aldan
Open
Open
Open
1986
Alma-Ata
Open b
Open b
Open
1988
AI'met'yevsk
Open
Open
Insufficient data
Arkhangel'sk
Open b
Open b
Open
1988
Armavir
Open
Open
Open
1982
Ashkhabad
Open
Open
Open c
1988
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Secret
Accessibility of Major Soviet Cities to Government Travelers (continued)
Bryansk
Open
Open
Open
1986
Bugul'ma
Open
Open
Open c
1978
Bukhara
Open
Open
Open e
1988
Chardzhou
Open b
Open
Open e
1985
Cheboksary
Open
Open
Insufficient data
Chelyabinsk
Closed r
Closed f
Closed f
Cheremkhovo
Open
Open
Insufficient data
Cherepovets
Open
Open
Open
1981
Cherkassy
Open
Open
Open
1983
Chernigov
Open
Open
Open
1979
Dnepropetrovsk
Closed
Open
Open
Donetsk
Open
Open
Open
1985
Dushanbe
Open
Open
Open e
1987
Dzerzhinsk
Closed f
Closed f
Closed r
Elektrostal'
Closed f
Closed f
Closed F
Engel's
Open
Open
Closed h
Open h
Open b
Open
1988
Open
Open
Open
1987
Closed r
Closed f
Closed f
Grodno
Open
Open
Open
1986
Groznyy
Open
Open
Open
1975
Gulistan
Open
Open
Open
Irkutsk
Open
Open
Open
Ivano-Frankovsk
Closed r
Closedf
Closed r
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necrec
Accessibility of Major Soviet Cities to Government Travelers (continued)
Kaliningrad
Closed r
Closed r
Closed r
Kaluga
Open
Open
Open
1985
Kamenets-Podol'skiy
Open
Open
Open
1983
Kamensk-Ural'skiy
Closed r
Closed r
Closed r
Kamyshin
Open
Open
Closed h
Khabarovsk
Open b
Open b
Open
1988
Khar'kov
Open
Open
Open
1988
Kherson
Open
Open
Open
1982
Khmel'nitskiy
Open
Open
Open
1986
Khirnki
Closed r
Closed F
Closed r
Khiva
Open
Open
Open
1984
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Secret
Accessibility of Major Soviet Cities to Government Travelers (continued)
Kurgan
Open
Open
Open
1982
Kurgan-Tyube
Open
Open
Open
1985
Kursk
Open
Open
Open
1987
Kustanay
Open
Open
Open
1984
Kutaisi
Open
Open
Open
1988
Kzyl-Orda
Closed I
Closed f
Closed r
Leninabad
Open
Open
Insufficient data
Leningrad
Open b
Open b
Open
Leninsk-Kuznetskiy
Open
Open
Insufficient data
Liepaja
Closed r
Closed f
Closed r
Lipetsk
Open
Open
Open g
1987
Lisichansk
Open
Open
Open
1987
Lutsk
Open b
Open b
Open
1984
Margilan
Open
Open
Open
1978
Mary
Open
Open
Open
1987
Maykop
Open
Open
Open
1986
Open
Open
Open
Open
Open
Open
1980
Open b
Open b
Open
1988
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Accessibility of Major Soviet Cities to Government Travelers (continued)
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LYCCL VL
Accessibility of Major Soviet Cities to Government Travelers (continued)
Petropavlovsk-Kamchatskiy
Closed f
Closed r
Closed f
Petrozavodsk
Open
Open
Open
1987
Pinsk
Open
Open
Open
1986
Polotsk
Open
Open
Open
1983
Poltava
Open
Open
Open
1988
Poti
Open
Open
Open
1985
Prokop'yevsk
Open
Open
Insufficient data d
Pyatigorsk
Open
Open
Open
1987
Riga
Open b
Open b
Open
1988
Rostov-na-Donu
Open -
Open
Open
1988
Rovno
Open b
Open b
Open
1988
Siauliai
Closed f
Closed f
Closed f
Simferopol'
Open b
Open b
Open
1987
Slavyansk
Open
Open
Open
1978
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Accessibility of Major Soviet Cities to Government Travelers (continued)
Star City
Open
Open
Open
1988
Starokonstantinov
Open
Open
Open
1986
Staryy Oskol'
Open
Open
Open
1986
Stavropol'
Open
Open
Open
1988
Sterlitamak
Open
Open
Open
1978
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Accessibility of Major Soviet Cities to Government Travelers (continued)
City
Apparent Status From Diplomatic Notes
Actual Experience
Last Visited
Voronezh
Open Open
Opens
1986
Voroshilovgrad
Open Open
Open
1984
Vyborg
Open b Open b
Open
1987
Yakutsk
Open Open
Open
1987
Open
Open
Open
1974
Open
Open
Open
1985
Travel requests consistently refused.
b Specifically excluded from a closed area.
Specifically listed as a closed city.
d Probably open.'
By air only.
Located in a formally closed area.
s By rail only.
1, Access nodes or routes closed.
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Secret
Secret
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