This chapter covers the negotiation's final months. The breakup of the Soviet Union created a new Russian delegation, which initially caused some confusion, but the negotiations quickly hit their stride. During this ‘endgame’ period, as the delegates began looking seriously at how the regime would work in practice, it became clear that the adversarial approach first advocated by the NATO countries, which sought short-notice overflights for intelligence-gathering purposes, would not have worked, that these flights require a cooperative approach. Also during this period the increasing changes in Europe necessitated a new approach to the question of how neutral countries would be admitted to the regime. It was thus necessary to devise a more complex set of temporary fixes to allow neutrals to participate in the discussions. While the Treaty was completed on time, several issues had to be deferred to the implementation phase in order to accomplish this.
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