Unity,” which closed down discussion and made personal dictatorship highly likely. Alternatively, others argue that a Stalin figure was not inevitable, that there were a number of other possible lines of development available to the party, and that a series of conjunctural developments (including the personality of Stalin) were central to the outcome that emerged. Certainly the authoritarian legacy left by Lenin may have increased the chances of such an outcome, especially in a situation of danger and underdevelopment like that faced by the Bolsheviks, but it was not inevitable. The balance of opinion now favors the second position. Under Stalin, the party’s leading organs were not active bodies; they met when he decided they would meet rather than according to a set timetable, and they exercised little independent initiative. During World War II, important decisions were more often made in the State Defense Committee than in Party bodies, and in the initial seven years of the postwar period, informal groups of leaders organized by Stalin dominated national policy making. When Stalin died, the Party’s leading organs became rejuvenated, and for the remainder of the life of the Party, generally they met as scheduled and made most important decisions. At no time during these last almost four decades were these institutions arenas of public contestation, although the publication of some of the Central Committee proceedings under Khrushchev and Gorbachev did provide some sense that there were real differences being aired in some Party forums at some times. Particularly under Gorbachev, and especially from the beginning of 1987, leading Party bodies were often the scene of significant differences of opinion within the elite, with the result that, at least in this regard, leading elite organs returned to something like their Leninist forebears. The return to this situation of a divided elite playing out some of their politics in the leading organs of the Party was one factor contributing to the demise of the USSR and, with it, the CPSU.
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
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.
COMMUNIST PARTY OF THE SOVIET UNION
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
