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This from the Kiev Post.  Do you suppose it will include all types of tour groups:

Ukraine's tourism administration hopes to drop visa requirements for Western tourists
The Associated Press

KYIV, July 22 - Ukraine's official tourism body has asked the government to drop visa requirements for tour groups from the European Union, the United States, Canada, Japan and Australia in an effort to attract visitors, an official said Friday.  If the request from the Tourism Adminstration is approved, tourists who coke in groups from those countries will no longer need visas, said Pavlo Prylypko, an official in the administration's regional policy section. He said he did not know how long the approval process would take.

Last year, about six million foreign tourists visited Ukraine, the Interfax news agency said, citing Tourism Adminstration chief Valery Tsybukh. Ukraine's economy has declined since the France-sized nation of 48 million became independent when the Soviet Union collapsed in 1991. Authorities hope to increase tourism revenue by drawing more foreigners to resorts on the Black Sea peninsula of Crimea and mineral waters in the Carpathian mountains.

... in response to Visa not needed for tour groups in Ukrai..., posted by John F on Jul 23, 2002

Just a thought...
Maybe the consulate people do not want to relenquish revenues derived from visa processing. Thus.. foot dragging on their part. As Gordon Grecco put it...Greed is good?
Again...just a thought.
Karl