by James Millar
Following the attempted putsch in 1991, which discredited the Party even more widely in the people’s eyes than it had been in the years leading up to it (see below), General Secretary Gorbachev resigned from the Party and Russian president Boris Yeltsin banned it on the territory of Russia. Although this blanket ban was later overturned in the Constitutional Court, the reversal could not save the CPSU; it was, however, a life giver to the Party’s chief successor, the Communist Party of the Russian Federation.
PARTY STRUCTURE
The lowest level of Party organization was the Primary Party organization (PPO), until 1934 called a cell. This was the body that every party member joined. Such an organization had to be established in any institution where there were three Communist Party members. Consequently there were PPOs organized in every institution in the USSR; every factory, farm, university, school, shop, organizational division in the armed forces had their own PPO comprising the members of the Party who worked in that institution. The PPO was thus
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the principal representative of the Party throughout the institutional structure of the USSR. The structure of the PPO differed depending upon the size, but all PPOs were to meet regularly and involve the Party membership in Party and public life. In 1986, there were 440,363 PPOs.
Above the PPO, the Party structure followed the administrative structure of the Soviet state. Each republic of the USSR had its own republican-level Party organization, except the RSFSR, which, until 1990, was served by the national Soviet-level. Between the republican and PPO levels, there was a hierarchy of Party organizations shadowing the administrative divisions of the country (e.g., region, city, district). At each of these levels there was an assembly, called a conference (congress at the republican level), with the membership notionally elected by the assembly of the level next down; district bodies were elected by the PPOs. The conference at each level would meet at set times, designed to enable it to elect delegates to the conference at the next level. The timing of these was thus set at the national level by the regularity of national congresses. At each level, the conference/congress would elect a committee that, in turn, would elect a bureau. This structure was also to be found at the national, Soviet level.
At the national level, the congress was held annually until the mid-1920s, at which time the frequency and regularity decreased; there were congresses in 1930, 1934, 1939, and 1952. From the Twenty-Second Congress in 1961, congresses occurred every five years. During the early period Party conferences were also often held. These were national-level meetings, usually smaller and with less authority than the congress, but they, too, became much less frequent after the 1920s; the eighteenth conference was held in 1941 and the nineteenth in 1988. The congress was formally the sovereign body of the Party. It adopted resolutions that constituted the Party’s policy on particular issues, and it elected its executive body, the Central Committee (CC), to run the Party in the period between congresses. It also formed the central auditing apparatus, responsible for keeping a check on Party finances and procedures, and until 1939 the Party control apparatus, which exercised disciplinary functions. In practice, after the 1920s the congress was too big to debate issues (there were some five thousand delegates at the last, the Twenty-Eighth Congress held in 1990) and in any case that was not its function. Under Stalin it had been transformed from an assembly in which vigorous debate occurred into a tame body that did little except hear reports and ritually vote to confirm them. Even the voting for membership of the CC was nothing more than ratifying a list handed down by the leadership.
The CC began as a relatively small body. In 1922, there were twenty-seven full and nineteen candidate members, but by 1986 this had grown to 307 full and 170 candidate members, so this body, too, became too big to act as an effective forum for the discussion of ideas, although like the congress, discussion was no longer its function after Stalin gained power. Generally CC plena were held twice per year, with each meeting devoted to a particular area of concern, such as agriculture, ideology, industrial development, education, and so forth. The proceedings were stylized and standardized, with usually the Party general secretary presenting a keynote report and then other speakers presenting set-piece speeches. There was no real debate, merely a presentation of views that rarely provided evidence of much difference between the speakers, or at least of much difference from the position taken by the general secretary. This model was, however, disrupted under Gorbachev when, particularly toward the end of the period, such meetings could see quite significant criticism of the general secretary and the course he was following. The CC formed a series of standing executive organs: the Politburo, Secretariat, until 1952 the Org-buro, and from 1939 the central control apparatus; from 1966, the CC formally elected the general secretary. As with the congress election of the CC, election of these bodies simply constituted the formal ratification of lists of candidates passed down by the leadership. Membership of the CC was of two sorts: full and candidate, with the former having the vote while the latter did not.
The most important of the bodies elected by the CC were the Politburo (1952-1966 the Presidium) and the Secretariat. Simply put, these were respectively the political decision-making center of the Party and the organization that was meant to ensure that those decisions were carried out. The Politburo was a small body, divided like the CC into full and candidate members. It generally had up to twenty members, although nonmembers were often present when something pertaining to their area of responsibility was being discussed. The Politburo met weekly and was the body in which all of the most important decisions were meant to be made. The CC also elected people called CC secretaries who, collectively, formed the Secretariat.
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Each secretary had a particular sphere of responsibility, and to assist them in this task they had at their disposal departments of varying sizes. These departments were organized not only so that they could administer the Party’s internal affairs (e.g., departments for personnel and ideology), but also so that they could shadow the Soviet government; so, for example, there could be departments for agriculture, industry, and foreign affairs. The personnel within those departments constituted the central machinery of the Party. Some secretaries were generally members of the Politburo, and the leading secretary, the general secretary (1953-1966 the first secretary), was acknowledged as the leader of the Party.
It is clear from the above that the electoral principle was central to the Party’s formal procedures with each level being elected by those below. However in practice, electoral democracy was little more than a formality throughout most of the Party’s life. From early in the Party’s life, this principle was undermined by what was to become the chief power axis in the Party, the nomenklatura system. The nomenklatura was first regularized in 1923. Its essence was a list of responsible positions that needed to be filled and another list (or lists) of names of people who were thought to be competent to fill them. Committees at each level of the Party had their own list of positions to be filled and people who could fill them, but by far the biggest list and the one containing all of the crucial positions was lodged in the Party’s central organs. Originally justified as a way of ensuring competence and loyalty in the uncertain times of the regime’s early years, under Stalin’s control it became a weapon of political conflict, enabling him to fill Party bodies with his supporters. This sort of political loyalty remained a consideration in the operation of the nomenklatura throughout its life, but in terms of running the Party, its importance lay in the power it gave to the leadership to fill positions throughout the structure with people acceptable to them. Thus, when elective positions had to be filled, the nomination would come down from above and Party members would ratify it. Only under Gorbachev was there an attempt to change this system and introduce real competition for Party posts, although even then the changes he sought to make had their limitations.
This power over person
nel, and therefore power over people’s careers, was a crucial mechanism for maintaining loyalty and orthodoxy and for discouraging heterodox and independent thought. It was consistent with the principle that, from 1906, officially governed discussion in the Party, “democratic centralism.” Democratic centralism as originally envisaged provided for full and free discussion of an issue until a decision was reached, and then all were expected to fall in behind that decision and support it regardless of their own personal views about it. The problem with this principle is that, in a situation like the mid-late 1920s where the political leadership was keen to close down discussion, it could announce a decision and then invoke the principle to prevent any debate from taking place. This could be backed up by the exercise of Party discipline. Party members found guilty of breaching Party rules were subject to discipline procedures that could include expulsion from the Party and, in the 1930s, loss of life. In the Soviet Union expulsion from the Party was a significant penalty because it could lead to the person losing his job and housing, making it very difficult to survive.
Formally the Party was governed by a set of rules. These rules prescribed the formal structures and processes of Party life. They were adopted by Party congresses and constituted the effective constitution of the Party. Over the Party’s life the rules were changed and modified on a large number of occasions, and although they were an expression of the formal rather than the actual way in which the Party worked, they were not a complete fiction. They did prescribe the rhythms of Party life, when congresses were to be held and so forth, and for much of the Party’s existence these formal aspects were adhered to. But the rules do not give an accurate picture of the internal dynamics of the Party; they were formal and legitimizing rather than normative.
PARTY IDEOLOGY
The Party was formally guided by an ideology, a structure of ideas that purports to explain the course of historical development and thereby gives the follower the capacity to make decisions consistent with that understanding. This is a basis for legitimacy since it constitutes the claim to be able to make appropriate decisions for the furtherance of the common aim. Arising from Marxism, which constituted the core of the Soviet ideological belief system, that aim was the achievement of communism. Thus the Party seized power in 1917 in the name of achieving the communist utopia. During its life, the Party continually based itself on its
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claimed adherence to those ideological tenets, variously called Marxism, Marxism-Leninism, Marxism-Leninism-Stalinism, and Leninism at different times. The content of that ideology also underwent modification and change over time. The role of ideology is complex. Ideally it should enthuse its believers and persuade them to commit to the achievement of the ultimate ends, and there clearly were very many people for whom the ideology acted in this way. However, there were also many less enthusiastic members, and their numbers grew markedly during the last three decades of the regime’s life. These people were cynical of the ideology and its claims, and rather than being true believers hid their lack of belief in a stance of public commitment. For the Soviet system, the ideology was central to its own conception of legitimacy, and for this to remain unimpaired it was important that even if people did not believe, they should not be able openly to proclaim this. This is one of the major reasons why all dissent was harshly dealt with.
The ideology was related to the Party’s activities through the Party program. This was a document that purported to lay out the long-term aims of the Party. Party programs were adopted in 1919, 1961, and 1986; the attempt to adopt a new program in 1990 failed because there was too much disagreement, although a draft was adopted for discussion by the CC in June 1991 just before the attempted coup. The 1961 program, adopted at the height of Khrushchev’s enthusiasm for the great leap into communism, was the most optimistic of these documents, envisaging the imminent approach of communism within the USSR. But all programs should be seen much more as a set of ideals rather than a specific guide to policy, because in none of them was there a clear indication of policy lines that the political leadership then followed. But the programs were an important stone in the basis of the Party’s ideologically based quest for legitimacy.
PARTY FUNCTIONS
According to the 1977 State Constitution, the Party was the “leading and guiding force” of Soviet society, and it, in fact, played this role from the founding of the Soviet state in 1917. In essence, this meant that the Party was the institution in which all major decisions about all aspects of life were to be made. In theory, this is why there were Party bodies in all collectives within Soviet society and why the Party shadowed the state structure at all levels; if an issue was coming up in a non-Party body, the corresponding Party organ could meet and make a decision that its members, subject to Party discipline and therefore bound to implement that decision, could carry into the non-Party forum. However, in practice, because at all levels all of the chief figures were Party members, separate Party and non-Party meetings were not always needed. Party members were the dominant figures, and, through them, the Party dominated the decision-making process.
This was most important at the central level, where the Party Politburo was the chief decision-making body in the country. It made decisions on all of the major issues of national policy, and, as a result of Party discipline, these decisions were carried forward by Party members at all levels in the institutions within which they worked. In this way, the Party constituted not just the chief decision-making organization, but also the major means of ensuring the enforcement of central decisions. The Party played a crucial role in the way the system as a whole functioned; as both a decision-making organ and the organization that was ultimately responsible for ensuring that policy was carried out by state and other organizations, it was the key to the way the system functioned.
The omnipresence of Party organizations also enabled it to exercise significant control functions throughout society. Through its members, the Party was able to maintain a watching brief on what went on in all parts of Soviet society. One of the tasks of Party members, more important in the early years than later, was to act as the Party’s eyes and ears to ensure that any manifestations of oppositionist sentiment were nipped in the bud. The reverse side of this control function was that of education. In principle, this remained a key responsibility of Party organizations and members at all levels, the education of non-Party members in the ethos of the Party and the principles for which it stood. Ideally Party members and organizations were meant to proselytize the Party’s ideology and its message, but more realistically they were expected to act as models of appropriate behavior to their non-Party peers. In this sense, the Party was a major educative actor in Soviet society, projecting an idealized image of how good communists should behave and thereby playing a part in the socialization of the Soviet populace with the accepted values.
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The all-pervasive nature of the Party plus the highly centralized personnel system means that the Party was the most important element in the staffing of the whole Soviet system. The nomenklatura extended not simply to Party posts, but to all of the leading posts in all of the major institutions of the society. In other words, Party bodies determined who would fill the leading posts in all parts of the Soviet system. The Party was therefore the single most important determinant of the filling of all offices throughout the Soviet Union. In this way the Party not only controlled the filling of office, but was also the primary agent of recruitment in the USSR; no one could gain leading office without approval at higher levels of the Party.
It is clear that the Party was the leading institution in the USSR: it made the most important decisions, it ensured that those decisions were carried out, it selected all leading office-bearers, and it played a significant educational/socialization role in the society. Its control was not complete, because it could never overcome both personal idiosyncra
sy and the constraints stemming from the combination of large distances and communication deficiencies, but it was probably the most extensive experienced in any political system.
PARTY MEMBERSHIP
The Party was never a body that one could join at a whim; members had to be nominated, their backgrounds checked and, once they had been admitted, serve a candidate stage before being accepted into full membership. In the early years, class background was crucial for entry, but from 1939 the formal preference given to members of the working class was dropped and people were admitted regardless of the class to which they belonged; from 1961, the Party was officially a Party of “all the people.” Members were always a minority within Soviet society. In 1986, before membership began to plummet in the late 1980s, there were 18,309,693 full and 728,253 candidate members, constituting 9.7 percent of the adult population. The Party remained heavily male; in 1986 only 28.8 percent of members were women. Members were subject to Party discipline, had to attend regular Party meetings, obey all Party instructions, pay membership dues, and continually conduct themselves according to the rules of the Party and the principles of what it meant to be a good communist. While the tasks were not onerous for non-office bearers, at various times they did impinge on individuals’ lives. This was especially the case if someone became subject to Party discipline, when such an entry on someone’s personnel file could have significant future consequences for career advancement; being expelled from the Party was worse than never having been a member.
Party members generally gained few advantages over non-Party citizens. Officeholders were more fortunate in this regard. Just as there was a graduated scale of the power to fill office, there was a similar scale regarding access to privileges and to goods that were not widely available. In a deficit economy like that of the Soviet Union, access to scarce goods was a real bonus, and those who held official positions gained such access. The level and range of availability differed according to the level of position one occupied, but because all of the leading positions were determined by the Party, it was the Party that determined who got access to such goods. The Party was thus the key to access to privilege in the Soviet Union.
