861.111/793½
Memorandum by Mr. Edward Page, Jr., of the Division of European Affairs
It will be recalled that during the summer of 1937 62 American citizens on various cruise ships were not permitted by the Soviet authorities to land in Leningrad. Although these persons were not in possession of valid Soviet visas it is believed that certain of them had purchased Intourist96 tours (a prerequisite to the granting of a landing permit) and were given to believe that they would be permitted to land without visas (as would appear to be customary for tourists on cruise ships). Their names were included on passenger manifests which were forwarded to Moscow for inspection. No reasons were given by the Soviet authorities for the refusal to issue the necessary landing cards or for recalling certain cards after they had been issued.
During the summer of 1938, 26 Americans on board the Gripsholm were refused permission to land at Leningrad and 65 Americans on the Reliance were unable to debark until more than 48 hours after the arrival of the vessel. It would appear that permission to land was obtained in the latter case only after the Embassy’s representations at the Foreign Office. The Foreign Office maintained that the delay was entirely due to the fault of the German steamship company.
In view of these incidents the Embassy believes
“The Department may desire to inform Americans applying for passports for use on cruise ships visiting the Soviet Union that being inscribed on a passenger manifest and possessing an American passport not bearing a Soviet entrance visa does not justify passengers in the assurance that they will be assured landing permits upon arrival at a Soviet port …97 that the matter is one which is solely within the competence of the Soviet Government”.
Although I believe that Americans on cruise ships visiting the Soviet Union should be warned of the difficulties under discussion, it would seem that it is more the duty of the tourist agency or steamship company from which the cruise is purchased to issue such a warning. The Department might informally advise such agencies of the contents of the Embassy’s despatches relative to this matter and express the belief that it might appear advisable to acquaint tourists with contingencies incident to the purchase of an Intourist tour.
With this in view Mr. Henderson has talked the matter over with Mr. Bannerman, who stated that two years ago his office had discussed [Page 591] a similar matter with a steamship company in New York and would be glad to take up the matter again. He said he felt confident that arrangements could be made informally with the steamship companies whereby such passengers would be furnished with a receipt on which would be printed a clause to the effect that purchase of tour did not guarantee permission to land and that if permission were not obtained the cost of the tour in the Soviet Union, i. e., the Intourist section, but not the visa application fee ($5), would be returned to the passenger.