LETTER OF TRANSMITTAL 
U.S. SENATE, 
CoMMITTEE ON COMMERCE, 
December 10, 1976. 
Dear CoLteacuE: We are pleased to forward another in a series of 
reports for use of the National Ocean Policy Study and the Senate on 
issues relating to ocean policy. 
Soviet Oceans Development is the first attempt to analyze all aspects 
of Soviet ocean policy and put it together in one coherent volume. 
The study shows that during the past 20 years, the Soviet Union has 
made impressive gains in most areas of ocean activities, and in par- 
ticular in fisheries, oceanography, the merchant marine, and the Soviet 
navy. Those gains were to a large extent the result of understanding 
the potential the oceans held for the benefit of the Soviet Union. From 
the outset, the Soviet Union developed its ocean policy with the aim 
of integrating the functions of the merchant marine, navy, distant 
water fishing fleet, and oceanographic research capabilities into an 
interlocking system. The Soviets conceive that each element of sea- 
power must interact, complement, and reinforce the other. 
The United States may have no desire to copy Soviet policy struc- 
ture or goals in the oceans. It is important that as a Nation, however, 
we are cognizant of the progress made in ocean capability by the Soviet 
Union, and, where appropriate, benefit by the lessons it may provide. 
The study was conducted by the Congressional Research Service 
with the assistance of 13 outside consultants. We wish to emphasize 
that the conclusions which might be inferred from this report and 
which may prove to be controversial have neither been approved, dis- 
approved, nor considered by the Senate Committee on Commerce or 
the National Ocean Policy Study. 
Warren G. Macnuson, 
Chairman, Committee on Commerce. 
Ernest F. Hoixines, 
Chairman, National Ocean Policy Study. 
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