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 personnel, 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
310
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.
311
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 idiosyncrasy 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
