137. Editorial Note
On September 2, 1961, George F. Kennan, Ambassador to Yugoslavia, reported that as a follow-up to a previous conversation, he had discussed Laos and Berlin with his Soviet counterpart. The latter reported that he had received a personal communication from Khrushchev enthusiastically endorsing further conversations between the two Ambassadors. After discussing Laos, Kennan stated that he had no special authority to discuss Berlin, but that he wanted to say “with all earnestness” that recent Soviet moves in Berlin had made the situation very serious. The Soviet Ambassador, who appeared to be acting under instructions, then outlined the Soviet desiderata: 1) recognition of East German borders, 2) recognition of the existence of two German states, and 3) Soviet disinterest in the people of West Berlin. Kennan replied that this seemed reasonable and could be discussed if the right time and atmosphere were found, but that recent Soviet moves in Berlin made this unlikely. He concluded the discussion by stating that Soviet conduct had been so inexplicable that he could not help wondering if forces had come to the fore in the Soviet Union that placed no value on the peaceful resolution of disputes. Kennan then suggested to the Department of State that this contact be continued as a means of private communication with Khrushchev. (Telegram 359 from Belgrade; Department of State, Central Files, 396.1-BE/9-261)
In a cable on September 4 Kennan added that the Soviet Ambassador had left him a 10-page memorandum elaborating the Soviet positions on Berlin and Laos. Kennan suggested how he might reply and stated that he believed the United States was already in a zone of serious danger, should maintain the greatest military and diplomatic vigilance, and “be prepared to act in the great decisions primarily on our conscience and responsibility.” (Telegram 400 from Belgrade; ibid., 762.00/9-461)
On September 5 Secretary of State Rusk personally endorsed Kennan’s proposed reply on Berlin (telegram 274 to Belgrade; ibid.) and, in a second conversation on September 6, the Ambassador repeated that recent Soviet actions seemed to refute its desire to solve problems peacefully. After a further exchange, Kennan concluded that the Soviet Union had two irreducible demands: 1) signing a peace treaty and 2) de facto recognition of East Germany under a formula recognizing the two Germanies. (Telegram 438 from Belgrade, September 7; ibid., 762.00/9-761)