CONFIDENTIAL
Circular 'O' 14/74
Foreign and Commonwealth Office London SW1A 2AH
22 January 1974
VISAS FOR HONG KONG
1. Problems have arisen over the last few years about the issue of Hong Kong visas to Soviet and East European diplomats and others. It is important that you should understand the motives behind the Hong Kong Government's wish (which we fully support) to keep to an absolute minimum the number of East Europeans (and particularly Russians) permitted to enter Hong Kong, even for short periods.
2.
Certain factors cause us to be deliberately ungenerous in our attitude to such visa applications. We have a considerable body of evidence that the main Soviet aim in seeking to establish a presence in Hong Kong is political, ie that they hope to use the Colony as a base not only for observation of Chinese events and to supply material for their propaganda about Peking tolerating an imperialist outpost on its doorstep, but also for actual intelligence operations against the Chinese mainland. Over the last few years the Russians have attempted by various means to establish a pattern of visits, in order to break down the reluctance of the Hong Kong authorities and of ourselves to see them gain à foothold in the Colony. They have approached their target from all conceivable angles: dance troupes, a poet, ship repairs, a liner service, visits by hydrographic vessels, diplomats from Peking, journalists, an Aeroflot office, a shipping office, a Consulate, a trade office etc. In some cases (eg the poet, the dance troupe and ship repairs) special factors led the Hong Kong authorities to make exceptions. But by and large the rule regarding Russians is still to keep them out of Hong Kong as far as possible.
3.
Similar attempts to establish a presence in Hong Kong have been made by some East European countries. In some cases, it has been quite clear that they were acting at Soviet behest or instigation. If we were to be liberal with East Europeans we should find it increasingly difficult to exclude the Russians. For historical reasons the Cubans have a consulate in Hong Kong, but there is no intention of extending this anomaly to other Socialist countries.
4.
The first reason for a firm line is thus the questionable motives of many Soviet and East European applicants and the impossibility of distinguishing these from the innocent minority, if there is one. Another reason is the clear hostility of the Chinese Govemment to the establishment of a Soviet or East European foothold in the Colony. This is a most important factor. The relationship of Hong Kong with China is a delicate balance of interests. The Chinese are neurotically sensitive to Soviet activities against them. It is not in our interests to irritate them unnecessarily in a matter to which they attach considerable importance. Relaxation of the limits imposed on the entry of Eastern Europeans to Hong Kong would furthermore put an increased strain on the ability of the Royal Hong Kong Police to exercise adequate surveillance upon the visitors.
5.
The embarrassment a refusal of a visa might cause will not normally be treated as sufficient grounds for granting one. There may nevertheless be some exceptions, for
xample:
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