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But the greatest potential market is Russia. Khrushchev has told U.S. Agriculture Secretary Orville Freeman, Roving Diplomat Averell Harriman and just about every other visiting businessman and journalist in Moscow that he is eager to buy not fertilizer but entire fertilizer plants from the U.S. Whether or not to sell him plants is a high-policy decision now facing President Johnson and Congress. One sticker is the Export Control Act, which bars the shipment of anything that would significantly help the Communist bloc's economy. Farmer Khrushchev would be the first to hope that U.S. fertilizer plants would do just that.