Foreign Relations of the United States, 1955–1957, Central and Southeastern Europe, Volume XXVI

191. Telegram From the Mission in Berlin to the Embassy in Germany¹

Berlin, April 20, 1957—7 p.m.

907. Subject: Berlin access. Reference Berlin telegram sent Bonn 903 repeated Department 1021 USAREUR 143.²

1. Accompanied by McKiernan³ I met Kotsiuba today as scheduled.

2. After usual amenities, during which Kotsiuba indicated he had returned from Moscow only this morning, Kotsiuba made long prepared statement. He said that recent “confusion, misunderstanding, and difficulties” regarding Allied travel to Berlin had arisen as result of faulty procedure for documenting travelers. Kotsiuba complained travel orders are issued by number of different US headquarters (he cited seven), that contents of orders differ, that not all travel orders are complete (some, he said, are not “properly stamped”), that orders are signed by many different persons, that orders do not contain necessary data to establish that traveler is authorized to proceed to Berlin, and that orders have been issued to “tourist”, including businessmen and persons having no official business in Berlin. Recent change in Embassy travel order form, Kotsiuba concluded, indicated need for “uniform” travel orders.

3. Kotsiuba proposed, to “eliminate misunderstanding”:

a. That travel orders should be issued only in the name of

(1) Ambassador as successor to High Commissioner,

(2) US Army Headquarters in West Germany, or

(3) US Commandant, Berlin;

b. That only two persons be authorized to sign travel orders for each of these issuing authorities and that samples of their signatures and stamps be furnished to Kotsiuba for forwarding to Soviet checkpoints;

c. That travel orders should contain the following information:

(1) indication of issuing authority,

(2) name, rank, nature of duties, and number of ID card or passport of traveler,

(3) purpose of travel (i.e., permanent change of station, temporary duty, or leave,

(4) period of validity of travel orders,

(5) type of transportation, i.e., motor vehicle or military train,

(6) signature of person issuing orders;

d. That travel orders should be in German as well as Russian.

4. Kotsiuba asked that samples of travel orders along above lines be sent to him 28 or 29 April and said that after 1 May only travelers with such orders will be allowed to pass.

5. Kotsiuba then defined types of persons who, in Soviet view, were authorized to travel to Berlin. These, he said, included:

a. Staff of US Commandant in Berlin,

b. Military personnel of Berlin garrison,

c. Families of above.

6. These persons, said Kotsiuba, should produce at Soviet checkpoints in addition to travel orders as described above, some form of documentation establishing traveler is employed by US Commandant, is member of Berlin garrison, or is member of family of one of these two. Documentation, said Kotsiuba, could take form of (1) special passport stamp “such as British use” (he may have been referring to status of forces certificate stamp in passports) or “special certificate”.

7. With respect to travelers from West Germany to Berlin, Kotsiuba stated only persons who came to Berlin on duty are legitimate travelers. These, he said, should carry, in addition to travel orders, documentation establishing they are coming to Berlin on permanent change of station or temporary duty.

8. Above procedures, said Kotsiuba, would apply to both Autobahn and train, and, if they were followed, no trouble should result.

9. After Kotsiuba finished describing Soviet requirements mentioned above, I reminded him that I represented only US and asked whether he planned to speak to British and French. He did not seem to have anticipated this question, but replied he would have similar meeting with French and British political advisers as soon as possible.

10. Referring to conversations of Ambassador Conant and Chargé Trimble with Soviet Ambassador Pushkin and our own earlier conversation, I reminded Kotsiuba that US had already made its position clear; that there had been no difficulties prior to November 1956, when Soviets introduced new procedures; and that Ambassador and military commanders have right to determine who should be documented to travel to Berlin. I informed Kotsiuba I would, however, bring his comments to attention of my British and French colleagues and of the Embassy. While making it clear I could give no commitments regarding any of his suggestions, I pointed out it would in any case be technically impossible to take decision on these matters by May 1.

11. Although Kotsiuba had just returned from Moscow, I am not certain whether he spoke with full authority or whether he was primarily repeating line concocted locally by his staff. Certain arguments and turns of phrase seemed reminiscent of those previously heard from Kotsiuba or his assistant Shilob. It seems likely, however, that Soviets have decided time has come to make effort to end present situation of mutual protest on trains of presence certain passengers and occasional refusal of clearance on Autobahn to certain travelers followed by Allied protest. While in some respects their present proposals mark retreat from previous position, they presumably fall considerably short of what we could accept and represent attempt to eliminate large miscellaneous category of travelers to Berlin particularly alleged tourists and other persons with no obvious official reasons for travel to Berlin. We have impression that Soviets feel that they are under pressure from GDR officials and wish to throw them some concessions in way of control over certain travelers to Berlin previously processed by Soviet control officers.

12. At meeting later today of political advisers, British and French were informed of foregoing. They indicated that they had within last hour received call from Soviets requesting meeting with Kotsiuba on Monday.

Hillenbrand

1. Source: Department of State, Central Files, 862B.181/4–2057. Confidential; Priority. Repeated to London, Moscow, Paris, and Washington. The source text is the Department of State copy.
2. This telegram transmitted the text of a short note from Kotsiuba asking Hillenbrand to meet him on April 20 to discuss the travel of American citizens to Berlin. (Ibid., 862B.181/4–1857)
3. Thomas D. McKiernan, political officer at the Mission in Berlin.