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should be heartening to the host society, for Soviet Jewry: Perspectives on about their vocational and economic future they indicate that this will not be a problematic and feel that they have made a definite the "Dropout" Issue* population, and, yet, for a while at least, it will improvement in their standard of living. They Gaynor I. Jacobson retain a healthy critical perspective which are surprised and disappointed at the provin­ should benefit both immigrants and host Executive Vice President, HIAS, New York cialism of Detroit life, at what they see as its population. low cultural levels. They are disappointed also . . . the bulk of HIAS assisted Soviet migrants to the U.S. are the noshrim or "breakoffs." in the social styles of Americans, their But many important questions are as yet unanswered. We need to know much more Whether we approve of their having changed destination or not, the fact is that, for whatever tendency to live their social lives not on the reasons, be they good, bad, or indifferent from our point of view, they are human beings and streets, but in the home. They are frightened about the immigrants' expectations of America, their expectations and evaluations of fellow Jews who have exercised their right to determine their own destiny and to select a and angered—as are the great majority of destination where they wish to fashion their own future. Americans—by crime on the streets, and they the resettlement agencies, their socialization— are dismayed at the relative lack of public or lack thereof—into the general American While world Jewish concern for Soviet Jews transport, despite the fact that most of them community and its Jewish sub-culture. Re­ saying, would openly declare his preference mounts in reaction to what has been termed have their own cars. There is some hesitancy search into these questions is needed both to for a life of exile and uncertainty over the "the smell of pogrom" in the USSR, one and ambivalence about American individual make absorption efforts more efficient and happy existence of a Soviet intellectual. This visible end result to which the worldwide pretense was observed even in the case of and social freedom, and a minority would like effective, as well as to serve the larger interests Soviet Jewry movement has contributed several Russian Orthodox leaders who were to see some more public order and discipline— of the American Jewish and general com­ signally is the mini-exodus of more than munities. forced to leave Russia a few years ago, in as would many Americans. Both their basic 150,000 Jews in the ten years between 1968 and effect, deported abroad, as Solzhenitsyn was adjustment combined with their criticisms 1977. 123,180 found new homes in Israel. The in 1974. Needless to say, these Russian priests remaining 28,332 were assisted by HIAS to did not regard themselves as Jews and had no resettle in the United States, Canada, Aus­ intention of settling in the Jewish Homeland, anymore than did a number of other de facto tralia, New Zealand, Latin America and deportees I was to meet later on in Paris, Western Europe. Of the latter, the prepon­ some of whom came from very old Russian derant number (23,582) were assisted to the families, and bore names that had been made United States. famous in the novels of Tolstoy . . . For a better understanding of these figures, Exit visas are occasionally issued to non- one must also perceive the process by which Jews as well as to Jews . . . The submission of Soviet Jews receive permission to emigrate. A a vyzov (an invitation from a relative of the very small number, ranging between 500 and applicant) is of course no guarantee that the 700, is given permission to leave with U.S. applicant will get his visa; it merely sets in end-destination visas. Most are permitted to motion certain bureaucratic processes that leave the Soviet Union with Israel end- may, if he is lucky, ultimately bring about that result. If he is not lucky, it may lead to a destination visas. Kafkaesque situation wherein the applicant's In this context, Dr. Maurice Friedberg, a request is turned down—say, on grounds of widely respected Kremlinologist and Head of his having had access to "classified" infor­ the Department of Slavic Languages at the mation while serving in the army years University of Illinois at Urbana-Champaign, ago—while the "crime" of having applied points out that brings about a series of retributions—loss of The distinction between 'Russian' and job, expulsion from school, etc. 'Jewish' is of some importance here, if only Nevertheless, in spite of the risks involved, because Soviet authorities insist on main­ the number of applications for exit visas taining the fiction that anyone who chooses continues to grow. For some, the reasons for wishing to leave are "positive"—bona-fide to leave the USSR must be both a Zionist and Zionism, or a genuine desire to join relatives a Jew. Only a Jewish Zionist, they seem to be in other countries. Others entertain rather * Presented at the Annual Meeting of the Con­ unrealistic notions about the economic ference of Jewish Communal Service, Grossinger, opportunities awaiting them in the West, and New York, May 30, 1978.

83 82 or indifferent from our point of view, they are still others wish to pursue academic or Australia, and other western countries. B. Another part, though it does not deny its literary careers in countries where there is no To facilitate this objective, HIAS estab­ human beings and fellow Jews who have Jewishness, lacks the Zionist motivation anti-Semitism and no government censor­ lished a special "letter of invitation unit" exercised their right to determine their own to help it face the temptations of a rich ship. Finally, there are those who are driven which assisted American relatives in the destiny and to select a destination where they and comfortable life which, as it seems, by a purely "negative" impulse, the desire to preparation of such documents and in sending wish to fashion their own future. We feel that awaits it in the West, and similarly, not leave the USSR at all costs, whatever the them to their relatives in the USSR. In 1976 they must continue to have their freedom to to be influenced by messages and letters ultimate destination or the ultimate conse­ describing the social, economic and some 1,000 such letters of invitation were sent. choose their destination, even though many of quences. In all cases, some form of bureau- security situation in Israel in a negative In that year 713 Soviet Jews were given exit us would prefer that practically all Soviet Jews cratically acceptable documentary evidence light. permits with U.S. visas. In 1977 some 3,000 should choose to go to Israel. of Jewish origins—a parody, as it were, of The above two groups, if immigration such letters of invitation were sent. However, the Nazi Nuremberg laws—is said to be It should be noted that more than 80 percent possibilities to the West were not opened up helpful in winning permission to leave.' only 518 Soviet Jews received permission to of the Soviet Jews who choose to go to for them, and if they had to choose between leave with U.S. visas. Apparently the number The varied motivations for leaving noted by destinations other than Israel do so in order to staying in the U.S.S.R. or coming to Israel, of letters of invitation has little bearing upon be reunited with their families; others believe one can assume they would prefer the latter. Prof. Friedberg are important factors causing the seemingly fixed annual quota of 500-700 that they will have greater opportunity to work This does not include, however, those whose many Soviet Jews who leave with Israeli visas exit permits with U.S. visas. in their areas of expertise. Aside from HIAS, families are already in a Western country and to change their destinations upon reaching Further complicating the situation is a there are also non-Jewish migration agencies who want to join them. Vienna, their initial contact with the free report of a HIAS representative who was providing services to refugees. Were HIAS not world. These are the noshrim, or "dropouts," In my judgment, the Knesset Committee has invited to participate in a meeting of the U.S. to offer assistance, the latter would, and it is or to use a more appropriate state department not sufficiently appraised their own cogent consuls from Eastern Europe this past April. questionable whether such action would be term, "breakoffs." analysis, and the ineluctable consequences Among other things, he stated that the U.S. deemed advantageous to the refugees, Israel, The proportion of these has been rising which may be expected to follow such analysis, consular representative stationed in the USSR and the World Jewish community. I also wish steadily from less than one percent in 1971 to a namely the increase of noshrim. Thus they had pointed out that the OVIR, the office in to call attention to the fact that the HIAS little over 50 percent in 1977. The increasing point to the realities of Soviet anti-Semitism Soviet communities to which letters of board, after careful and extensive considera­ percentages of "breakoffs" have generated pushing some Jews to leave the USSR, and invitation or vyzovs were presented by tion of this very complex issue, has taken a considerable concern both in the United States they state that "even from the start they have applicants for permission to leave the USSR, position that HIAS will continue to offer and in Israel. To consider the situation, a no intention of immigrating to Israel and is: assistance to Soviet Jews in furtherance of "Committee of Eight," later increased to a leading a Jewish life." their right to choose their destination. More­ refusing exit to two categories of people. The They also indicate the lack of Zionist and "Committee of Ten," comprising the leader­ over, the HIAS position is supported by first are those who present a letter of ship of the Jewish Agency, the Israel Jewish motivations on the part of others. invitation from a relative in the United Jewish organizations in the United States and government, the Prime Minister's office, the Indeed, most of the committed Zionists have States, who upon examination in their own Canada. Council of Jewish Federations and Welfare already left. Many of the others are, perforce, files, turns out to be someone who left the Funds, HIAS, the National Conference on However, some voices have been raised so unequipped with the Jewish background Soviet Union for Israel and dropped out in accusing HIAS of encouraging Soviet Jews to and heritage that they do not have the Jewish Soviet Jewry, the United Jewish Appeal, the Vienna. This obviously applies to a larger and change destination in Vienna. Illustrative of spiritual capacity to perceive the negative Joint Distribution Committee, the National larger number of applicants. This also means this position is a press release issued by the Jewish Community Relations Advisory Coun­ that such people will eventually seek and stereotypes and, strengthened by the Jewish Israel Knesset Committee on Immigration and cil, and the United Israel Appeal, was desig­ receive a visa to Israel. The second category perspective, to counter them. Absorption on April 3, 1978. This committee nated to study the issue and to make appro­ in trouble are Jews who, a long time ago and As the mini-exodus grows there are indeed pointed out, inter alia, that priate recommendations. in a different political climate, were desig­ increasing numbers of Soviet Jews who do One of these recommendations was to nated on their internal documents as The Factors for the Great Extent of Dropping have relatives in Western countries. In "Russians." Such people are having great Out in Vienna (are) attempt to arrange, insofar as possible, that addition to the very cogent reasons listed by trouble in trying to establish that they are A. Historical circumstances created the fact Soviet Jews in the USSR desiring to go to the committee, several other reasons for the Jews and are not being given exit until they that a substantial part of the Jews who Israel should seek Israeli visas, i.e. to arrange growing number of breakoffs in Vienna succeed first in making this change. leave the U.S.S.R. lack Jewish con­ should be noted. The preponderant number of to receive letters of invitation from relatives in sciousness and many of them even deny I should like to underscore that, as indicated Soviet Jews who break off in Vienna are from Israel. Those wishing to go to destinations their Jewishness. The anti-Semitism in other than Israel should seek letters of invita­ above, the bulk of HIAS assisted Soviet the U.S.S.R. pushes such Jews to leave the heartland of the Soviet Union, which tion from relatives in the United States, migrants to the U.S. are the noshrim or Russia, but even from the start they have includes such cities as Leningrad, Moscow and 1 Maurice Friedberg, "From Moscow to "breakoffs." Whether we approve of their no intention of immigrating to Israel and Odessa. Particularly from the last-named over 90 percent change destination. Jerusalem—and Points West," Commentary, having changed destination or not, the fact is leading a Jewish life. Volume 65, Number 5 (1978), p. 63. that, for whatever reasons, be they good, bad,

84 85 United Sates. Consequently, they seek Israeli Moreover, the Soviet authorities appear to the press, radio, television, public meetings choose their destinations. letters of invitation, not to go to the Jewish be fully aware that Soviet Jews from certain and other media. This calculated assault has Question: What are the facts relating to the State but rather as a lifeline to help them leave geographic areas, e.g. large cities such as continued for some 60 years. accusation that "the committee is convinced the USSR. Moscow, Leningrad and Odessa, will more Soviet Jews are bombarded with the hostile that the activities of the HIAS and AJDC When considering the situation of noshrim, likely end up in countries other than Israel image of Israel as an aggressor nation whose offices in Vienna which deal with the it is important to bear these elements in mind than from cities such as Tbilisi in the Georgian inhabitants are conscripted for military ser­ drop-outs are a direct factor encouraging as well. But to return to the press release cited SSR, most of whom would probably go to vice, a nation beset by terrorism, riven by dropping-out?" earlier, it stresses that: Israel. Thus they tend to issue more exit internal conflict, plagued with economic, Quite coincidentally, about a month before The committee is convinced that the activities permits to the former than to the latter. Many security and social problems. When presented the Israeli committee issued its press release, of the HIAS and ADJC offices in Vienna of the Jews in the large urban centers are often on a daily basis, these notions cumulatively an investigation of this very issue, i.e., the which deal with the drop-outs are a direct and insidiously tend to generate negative relationship of HIAS and the "breakoffs" was assimilated into the secular Soviet culture. factor encouraging dropping-out. The com­ perceptions of Israel, particularly since there made by Congressman Joshua Eilberg's They tend to be urbane, non-ideological, mittee thinks that it is extremely vital to Committee on Immigration, Citizenship and career-oriented, and interested in earning a are no Jewish schools or teachers or other terminate, as soon as possible, the discussions good living. Their ethnic and religious Jewish instrumentalities to counter such of the 'Committee of Eight' which was International Law. memories are not strong or fresh, and they feel distorted presentations and outright lies. For appointed to decide on the way to deal with Deserving of special note is the fact that this little cultural or emotional attachment to the some 60 years, as is known, Soviet Jews have the drop-outs. The immigration and absorp­ was a U.S. government investigation and had tion committee recommends that the decision Jewish State. They leave the Soviet Union not been deprived of institutions that provide the no input procedurally or otherwise from any to be made should clearly be in the direction out of love for Israel, but because life in the Jewish spiritual nourishment necessary for the Jewish organizational sources. Among other that Soviet Jews leaving the U.S.S.R. on the Soviet Union has become too difficult. Such a continuance of the Jewish heritage. things, this government study indicates the strength of affidavits sent from Israel should Within this ambience, Soviet Jews receive important series of steps which finally lead selective visa policy enables the Soviet author­ be sent to Israel only. ities to accomplish several objectives. By negative letters from relatives and friends in Soviet Jewish arrivals to HIAS. The investiga­ There have also been other voices insisting tion clearly establishes that: manipulating such issuance they demonstrate Israel, especially in their first year or two in the that all Soviet Jews should go to Israel only, to the world that they are humanitarian in Jewish Homeland. These early periods are 1) Soviet Jews made up their minds as to regardless of their personal wishes to go to permitting numbers of Soviet Jews to leave. generally years of struggle in which they have their end-destination while still in the USSR other destinations. Should some later decide to Concurrently, they indicate to the Arabs that to learn a new and difficult language, enter a and long before they arrive in Vienna. leave Israel, the argument continues, then they by their selective visa policy they are not new culture radically different from that in 2) Jewish Agency representatives are the could do so. However, should such a situation helping to increase Israel's military potential which they had lived, and adjust their lives to a only ones who meet arriving Soviet Jews in actually eventuate, then Israel would in effect or to strengthen its economy. totally different lifestyle. Understandably, Vienna. No other organizations, including become a place to which Jews would be forced there are complaints about the difficulties of HIAS, has information about whether any While many Soviet Jews who have in the to go—and might be regarded by some adjustment, the bureaucracy, the hostility on Soviet Jews have arrived, the number who past continued on to Israel—mostly from unwilling arrivals as a virtual prison. Imagine the part of some elements of the population, arrived, or their names. Georgia, the Baltic Republics, and the the protests and demonstrations which some employment problems, housing, etc. 3) Those who wish to continue to Israel are mountain areas—the number of Jews in these Soviet Jews, experienced in such open protests It is this larger picture which tends to shape flown there within 36 to 72 hours, depending have been decreasing. Consequently the in the USSR, might hold—and the negative certain perceptions of Israel which cause some upon availability of plane space. likelihood is that the continuing movement of public image which would be created for to decide to go to countries other than 4) Those who insist upon destinations other the Soviet Jews from the heartland of the Israel. Indeed, central to the Zionist dream Israel—especially the United States. While than Israel are taken to a small hotel in Vienna Soviet Union, and the drying up of numbers was the attraction of Zion. Israel was built and there are adjustment problems here also, the where Jewish Agency representatives explain from areas where Jews were largely committed will continue to be built by those who go there Soviet media generate the perception that in some detail the benefits awaiting them in to Israel, will probably result in substantially voluntarily with commitment and devotion. increased numbers assisted by HIAS in the America is a superpower, that although it is Israel, including housing, job assistance, Moreover, those Jews who would refuse to future. afflicted with the "evils of capitalism," language training, etc. Since as indicated, most leave the Soviet Union rather than go to Israel However, there are additional important nevertheless it is desirable for the USSR, have already opted for destinations other than would constitute a very serious onus upon factors to be considered in the complex because of the economic, industrial and Israel, the Jewish Agency representatives refer Israel since it would be responsible for their situation of the noshrim. Among these are the military power of the U.S., to seek detente them to the office of HIAS and to the fate. perceptions of many Soviet Jews themselves. with it, to establish trade relations, etc. Thus American Joint Distribution Committee, both Consider further that Dr. Kreisky, the It must be borne in mind that they live in the the ambience of this country is presented as located at the same address in Vienna. Chancellor of Austria, has categorically stated matrix of a rigidly controlled society whose different from that of Israel. 5) In the HIAS office in Vienna, a staff that he would not permit Soviet Jews to transit governmental arms continue to disseminate Further, many are aware that more Soviet member of the Jewish Agency makes yet Austria unless they have the full freedom to vituperation and vilification of Israel through Jews receive exit visas to Israel than to the another attempt to persuade the newcomers to

87 86 reconsider and to take advantage of the such as the readiness of a particular com­ longer look at the situation. In this context, I moved in accordance with someone's strategy. benefits of going to Israel. When this effort is munity to receive the family, and other think it is important that the parties involved Rather, we must be mindful of the fact that as unsuccessful, the Soviet Jews are referred in elements. This processing may last from two to "cool it" rather than heat up differences to a responsible Jewish communal workers we writing to HIAS and the American Joint four months, depending upon a complex of confrontation level which would be a disser­ must perceive Soviet Jews as fellow Jews and Distribution Committee. It should be noted factors. While waiting, most heads of families vice to objectives we all hold in common, the human beings endowed with hopes, dreams, that this is the first time that HIAS sees the attend ORT classes where they learn English. welfare and well-being of Soviet Jews, Israel aspirations as to their future and desires to new arrival and learns of his desired end- In addition, special programs are conducted and the American and World Jewish Com­ shape their destinies in accordance with their destination. Incidentally, it should also be by JDC, the Jewish Agency and the Rome munity. own unique visions and goals, whether these noted that until this time the Jewish Agency is representatives of the Lubavitcher movement One hopes that ways will be found to further coincide with ours or not. To exercise these in possession of all documents which the to further Yiddishkeit of the waiting refugees. their Yiddishkeit and Jewish identification human attributes they must have freedom of Soviet Jew has upon arrival in Vienna, a 8) It should be stressed that the costs of the within the USSR which, among other things, choice as to destination, lifestyle and means to responsibility the Jewish Agency has taken in care and maintenance of Soviet refugees in will help counter the hostile image of Israel. achieve it. Thereby they also must assume agreement with Austrian authorities as a Austria and Italy are mainly borne by the Hopefully, also, the quality of life in Israel will responsibility for the consequences of their means of controlling transit through Austria. United States government, which makes the be improved, and further measures will be choices. However, we must do whatever Upon referral to HIAS these documents are funds available to the JDC, HIAS, and other taken to further the successful absorption of possible to make this freedom of choice returned to him. refugee help organizations. Soviet Jews there, so that the negative image available to them. Not part of the report, but to round out the I have dwelt at some length upon the various of Israel promulgated by hostile forces will be This is in accordance with our Jewish picture, there are the additional facts that: steps in this process because they indicate that, countered with a more positive one, which will tradition. Indeed, as the Talmud tells us, each 6) To avoid development of possible unde­ despite assertions of some people, HIAS attract increasing numbers of Jews to the Jew is responsible for the other. One of the sirable international problems which might cannot possibly contact any of the arrivals or Jewish State. consequences of this Jewish imperative is that eventuate with an extended stay in Austria of influence them in any way (and I add It is patent that the noshrim issue is very Jews have always helped one another without those opting for destinations other than Israel, parenthetically that practically the entire complex and not subject to simplistic solu­ conditioning such assistance upon choice of an agreement was reached among the Jewish HIAS official and unofficial family hopes that tions. Moreover, it is important to stress that, destination or other factors. As responsible Agency, the Israel Government and HIAS to most, if not all, Soviet Jews would go to Israel) regardless of some publicly expressed opin­ human beings and Jewish communal workers, move these refugees to Italy as quickly as prior to their referral by the Jewish Agency. ions by obviously well-meaning and dedicated we can do no less. This traditional Jewish possible. A maximum stay of 72 hours in I noted previously that there are a number sources, Soviet Jews must not be regarded as imperative must continue to guide our actions Austria was agreed upon. of refugee help organizations in Vienna other pawns on an international chessboard to be vis-a-vis the noshrim. 7) Thus, within three days after the referral than HIAS. These include: to HIAS/ADJC, following upon interviews CARITAS—the Catholic refugee help or­ with representatives of these two organiza­ ganization tions, almost all Soviet Jews opting for the Church World Service—the Protestant ref­ United States, Canada, Australia and other ugee help organization Western Countries, are sent to Rome, the Tolstoy—a Russian refugee help organiza­ central HIAS processing area for Jews from tion Eastern Europe. There, further interviews are International Rescue Committee—funded conducted by HIAS regarding the refugees' by the Philanthropic Fund of the American educational and occupational backgrounds; Council for Judaism arrivals undergo medical examinations; and, Rav Tov—the refugee help organization of for those opting for the United States, there the Satmar chassidim are also interviews and security screening by Should HIAS be unavailable for any reason, U.S. immigration authorities. Further, while these organizations would be of service to in Rome the community of settlement is refugees seeking assistance. determined, based upon a number of factors, Regarding the recent spate of public mainly family reunion, but also including the pronouncements about the breakoffs, I recall desire of the Soviet refugee, greater likelihood a statement by Israeli Prime Minister of securing employment in one's particular Menachem Begin who pointed out that there field of expertise or in a closely related field, are good and reasonable people on both sides religious, medical, and other considerations of the issue and that it is important to take a

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