The Comprehensive Program for Socialist Economic Integration was set up in 1971, laying the guidelines for Comecon activity until 1990. The distinction between "market" relations and "planned" relations, made in the discussions within Comecon before the adoption of the 1971 Comprehensive Program, is still a useful approach to understanding Comecon activities. Comecon remained in fact a mixed system, combining elements of both plan and market economies. Although official rhetoric emphasized regional planning, it must be remembered that intra-Comecon relations continued to be conducted among national entities not governed by any supranational authority. They thus interacted on a decentralized basis according to terms negotiated in bilateral and multilateral agreements on trade and co-operation.
Market relations and instruments It is not surprising, given the size of the Soviet economy, that intra-Comecon trade was dominated by exchanges between the Soviet Union and the other members. Exchanges of Soviet fuels and raw materials for capital goods and manufactured items for consumer consumption had characterized trade, particularly among the original members. The liquidity shortage in the early 1980s forced the European Comecon countries to work to strengthen the importance of intraregional trade. In the early 1980s, intraregional trade rose to 60% of foreign trade of Comecon countries as a whole; for individual members it ranged from 45 to 50% in the case of Hungary, Romania, and the Soviet Union, to 83% for Cuba and 96% for Mongolia.
Trade among the members was negotiated on an annual basis and in considerable detail at the governmental level and was then followed up by interenterprise contracts. Early Comecon efforts to facilitate trade among members concentrated on development of uniform technical, legal, and statistical standards and on encouragement of long-term trade agreements. The 1971 Comprehensive Program sought to liberalize the system somewhat by recommending broad limits to "fixed-quota" trade among members (trade subject to quantitative or value targets set by bilateral trade agreements). Section VI, Paragraph 19 of the Comprehensive Program affirms that "mutual trade in commodities for which no quotas were established shall be carried on beginning in 1971 with a view to stimulating the development of trade turnover, through expansion of the range and assortment of traded commodities, and to making trade in these commodities more brisk." Later in the same paragraph the Comprehensive Program called on members to "seek opportunities to develop the export and import of quota-free commodities and to create conditions essential for trade in such commodities." There was no evidence, however, that this appeal has had significant effect or that quota-free trade has grown in importance under the program.
Prices
The 1971 Comprehensive Program also called for improvement in the Comecon system of foreign trade prices. Administratively set prices, such as those used in intra-Comecon trade, did not reflect costs or relative scarcities of inputs and outputs. For this reason, intra-comecon trade has been based on world market prices. By 1971 a price system governing exchanges among members had developed, under which prices agreed on through negotiation were fixed for five-year periods (corresponding to those of the synchronized, five-year plans of the members). These contract prices were based on adjusted world market prices averaged over the immediately preceding five years; that is, a world-price base was used as the starting point for negotiation. Under this system, therefore, intra-Comecon prices could and did depart substantially from relative prices on world markets.
Although the possibility of breaking this tenuous link with world prices and developing an indigenous system of prices for the Comecon market had been discussed in the 1960s, the evolution of Comecon prices after 1971 went in the opposite direction. Far from a technical or academic matter, the question of prices underlaid vital issues of the terms of, and hence gains from, intra-Comecon trade. In particular, relative to actual world prices, intra-Comecon prices in the early 1970s penalized raw materials exporters and benefited exporters of manufacturers. After the oil price explosion of 1973, Comecon foreign trade prices swung still further away from world prices to the disadvantage of Comecon suppliers of raw materials, in particular the Soviet Union. In view of the extraregional opportunities opened up by the expansion of east–west trade, this yawning gap between Comecon and world prices could no longer be ignored. Hence in 1975, at Soviet instigation, the system of intra-Comecon pricing was reformed.
The reform involved a substantial modification of existing procedures (known as the "Bucharest formula," from the location of the 9th Council Session in 1958 at which it was adopted), but not their abandonment. Under the modified Bucharest formula (which remained in effect in the late 1980s), prices were fixed every year and were based on a moving average of world prices for the preceding five years. The world-price base of the Bucharest formula was thus retained and still represented an average (although now moving) of adjusted world prices for the preceding five years. For 1975 alone, however, the average was for the preceding three years. Under these arrangements, intra-Comecon prices were more closely linked with world prices than before and throughout the remainder of the 1970s rose with world prices, although with a lag. Until the early 1980s, this new system benefited both the Soviet Union and the other Comecon countries since Soviet oil, priced with the lagged formula, was considerably cheaper than Organization of Petroleum Exporting Countries (OPEC) oil, the price of which increased drastically in the 1970s. By 1983-84 this system turned to the Soviet Union's advantage because world market oil prices began to fall, whereas the lagged Soviet oil prices continued to rise.
Exchange rates and currencies Basic features of the state trading systems of the Comecon countries were multiple exchange rates and comprehensive exchange controls that severely restricted the convertibility of members' currencies.
These features were rooted in the planned character of the members' economies and their systems of administered prices. Currency inconvertibility in turn dictated bilateral balancing of accounts, which has been one of the basic objectives of intergovernmental trade agreements among members. An earlier system of bilateral clearing accounts was replaced on January 1, 1964, by accounts with the International Bank for Economic Cooperation, using the transferable rouble as the unit of account. Although the bank provided a centralized mechanism of trade accounting and swing credits to cover temporary imbalances, it could not establish a system of multilateral clearing because of the centrally planned nature of the members' economies and the inconvertibility of their currencies. In 1987, the transferable rouble remained an artificial currency functioning as an accounting unit and was not a common instrument for multilateral settlement. For this reason, this currency continued to be termed "transferable" and not "convertible."
The member countries recognized that the multiplicity and inconsistency of their administered exchange rates, the separation of their domestic prices from foreign prices, and the inconvertibility of their currencies were significant obstacles to multilateral trade and cooperation. As of early 1987, Comecon lacked not only a flexible means of payment but also a meaningful, standard unit of account. Both problems have vastly complicated the already complex multilateral projects and programs envisaged by the Comprehensive Program. The creation in 1971 of the International Investment Bank provided a mechanism for joint investment financing, but, like the International Bank for Economic Cooperation, this institution could not by itself resolve these fundamental monetary problems.
Recognizing that money and credit should play a more active role in the Comecon system, the Comprehensive Program established a timetable for the improvement of monetary relations. According to the timetable, measures would be taken "to strengthen and extend" the functions of the "collective currency" (the transferable rouble), and the conditions would be studied and prepared "to make the transferable rouble convertible into national currencies and to make national currencies mutually convertible." To this end, steps would be taken to introduce "economically well-founded and mutually coordinated" rates of exchange between members' currencies and "between 1976 and 1979" to prepare the groundwork for the introduction by 1980 of a "single rate of exchange for the national currency of every country." This timetable was not met. Only in Hungary were the conditions for convertibility gradually being introduced by reforms intended to link domestic prices more directly to world prices.
Cooperation in planning If countries are to gain from trade, that trade must be based on rational production structures reflecting resource scarcities. Since the early 1960s, official Comecon documents have stressed the need to promote among members' economies a more cost-effective pattern of specialization in production. This "international socialist division of labor" would, especially in the manufacturing sector, involve specialization within major branches of industry. In the absence of significant, decentralized allocation of resources within these economies, however, production specialization can be brought about only through the mechanism of the national plan and the investment decisions incorporated in it. In the absence at the regional level of supranational planning bodies, a rational pattern of production specialization among members' economies required coordination of national economic plans, a process that was not merely technical but also posed inescapable political problems.
The coordination of national five-year economic plans was the most traditional form of cooperation among the members in the area of planning. Although the process of consultation underlying plan coordination remained essentially bilateral, Comecon organs were indirectly involved. The standing commissions drew up proposals for consideration by competent, national planning bodies; the Secretariat assembled information on the results of bilateral consultations; and the Council Committee for Cooperation in Planning (created by Comecon in 1971 at the same session at which the Comprehensive Program was adopted) reviewed the progress of plan coordination by members.
In principle, plan coordination covered all economic sectors. Effective and comprehensive plan coordination has, however, been significantly impeded by the continued momentum of earlier parallel development strategies and the desire of members to minimize the risks of mutual dependence (especially given the uncertainties of supply that were characteristic of the members' economies). Plan coordination in practice, therefore, remained for the most part limited to mutual adjustment, through bilateral consultation, of the foreign trade sectors of national five-year plans. Under the Comprehensive Program, there were efforts to extend plan coordination beyond foreign trade to the spheres of production, investment, science, and technology.
Plan coordination