Certainly these provisions were designed to be used by a community of nations that were going to have similar goals and policies. One of the main things was they were not going to discriminate against each other. If the Soviet Union wishes to partake of the fruits of most favored nations trade they have to conduct their affairs so that they abide by the provisions of most favored nations. in that community of nations working for similar interests. Among those would be not to have a discriminatory policy based on charging a tribute which could amount to blackmail to allow someone to emigrate. That would not be in the spirit of the goal of the countries joining the most favored nations.
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emigrate