Committee at the time when Gorbachev became party leader, but who by the summer of 1987 was both a secretary of the Central Committee and a full member of the Politburo. Yakovlev owed this extraordinarily speedy promotion entirely to the backing of Gorbachev. He, in turn, was to be an influential figure on the reformist wing of the Politburo during the second half of the 1980s.
Other appointments were less successful. Yegor Ligachev, a secretary of the Central Committee who had backed Gorbachev strongly for the leadership, was rapidly elevated to full membership in the
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Politburo and for a time was de facto second secretary within the leadership. But as early as 1986 it was clear that his reformism was within very strict limits. Already he was objecting to intellectuals reexamining the Soviet past and taking advantage of the new policy of glasnost (openness or transparency) that Gorbachev had enunciated. Successive heads of the KGB and of the Ministry of Defense were still more conservative than Ligachev, and the technocrat, Nikolai Ryzhkov, as chairman of the Council of Ministers, was reluctant to abandon the economic planning system in which, as a factory manager and, subsequently, state official, he had made his career.
Gorbachev embraced the concept of demokrati-zatsiya (democratization) from the beginning of his General Secretaryship, although the term he used most often was perestroika (reconstruction). Initially, the first of these terms was not intended to be an endorsement of pluralist democracy, but signified rather a liberalization of the system, while perestroika was a useful synonym for reform, since the very term reform had been taboo in Soviet politics for many years. Between 1985 and 1988, however, the scope of these concepts broadened. democratization began to be linked to contested elections. Some local elections with more than one candidate had already taken place before Gorbachev persuaded the Nineteenth Party Conference of the Communist Party during the summer of 1988 to accept competitive elections for a new legislature, the Congress of People’s Deputies, to be set up the following year. That decision, which filled many of the regional party officials with well-founded foreboding, was to make the Soviet system different. Even though the elections were not multiparty (the first multiparty elections were in 1993), the electoral campaigns were in many regions and cities keenly contested. It became plain just how wide a spectrum of political views lay behind the monolithic facade the Communist Party had traditionally projected to the outside world and to Soviet citizens.
While glasnost had brought into the open a constituency favorably disposed to such reforms, no such radical departure from Soviet democratic centralism could have occurred without the strong backing of Gorbachev. Up until the last two years of the existence of the Soviet Union the hierarchical nature of the system worked to Gorbachev’s advantage, even when he was pursuing policies that were undermining the party hierarchy and, in that sense, his own power base. While there had been a great deal of socioeconomic change during the decades that separated Stalin’s death from Gorbachev’s coming to power, there was one important institutional continuity that, paradoxically, facilitated reforms that went beyond the wildest dreams of Soviet dissidents and surpassed the worst nightmares of the KGB. That was the power and authority of the general secretaryship of the Central Committee of the Soviet Communist Party, the post Gorbachev held from March 1985 until the dissolution of the CPSU in August 1991 and which-in particular, for the first four of his six and one-half years at the top of the Soviet political system-made him the principal policy maker within the country. Perestroika, which had originally meant economic restructuring and limited reform, came to stand for transformative change of the Soviet system. Both the ambiguity of the concept and traditional party norms kept many officials from revolting openly against perestroika until it was too late to close the floodgates of change.
A major impetus to Gorbachev’s initial reforms had been the long-term decline in the rate of economic growth. Indeed, the closest thing to a consensus in the Soviet Union in 1985-1986 was the need to get the country moving again economically. A number of economic reforms introduced by Gorbachev and Ryzhkov succeeded in breaking down the excessive centralization that had been a problem of the unreformed Soviet economic system. For example, the Law on the State Enterprise of 1987 strengthened the authority of factory managers at the expense of economic ministries, but it did nothing to raise the quantity or quality of production. The Enterprise Law fostered inflation, promoted inter-enterprise debt, and facilitated failure to pay taxes to the central budget.
The central budget also suffered severely from one of the earliest policy initiatives supported by Gorbachev and urged upon him by Ligachev. This was the anti-alcohol campaign, which went beyond exhortation and involved concrete measures to limit the production, sale, and distribution of alcohol. By 1988 this policy was being relaxed. In the meantime, it had some measure of success in cutting down the consumption of alcohol. Alcohol-related accidents declined, and some health problems were alleviated. Economically, however, the policy was extremely damaging. The huge profits on which the state had relied from the sale of alcohol, on which it had a monopoly, were cut drastically not only because of a fall in consumption but also because,
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under conditions of semi-prohibition, moonshine took the place of state-manufactured vodka. Since the launch of perestroika had also coincided with a drop in the world oil price, this was a loss of revenue the state and its political leadership could not afford.
Gorbachev had, early in his general secretaryship, been ready to contemplate market elements within the Soviet economy. By 1989-1990 he had increasingly come to believe that market forces should be the main engine of growth. Nevertheless, he favored what he first called a “socialist market economy” and later a “regulated market.” He was criticized by market fundamentalists for using the latter term, which they saw as an oxymoron. Although by 1993 Yegor Gaidar, a firm supporter of the market, was observing that “throughout the world the market is regulated.” Gorbachev initially endorsed, and then retreated from, a radical but (as its proponents were later to admit) unrealistic policy of moving the Soviet Union to a market economy within five hundred days. The Five- Hundred-Day Plan was drawn up by a group of economists, chosen in equal numbers by Gorbachev and Boris Yeltsin (the latter by this time a major player in Soviet and Russian politics), during the summer of 1990. In setting up the working group, in consultation with Yeltsin, Gorbachev completely bypassed the Communist Party. He had been elected president of the Soviet Union by the Congress of People’s Deputies of the USSR in March 1990 and was increasingly relying on his authority in that role. However, the presidency did not have the institutional underpinning that the party apparatus had provided for a General Secretary-until Gorbachev consciously loosened the rungs of the ladder on which he had climbed to the top. Ultimately, in the face of strong opposition from state and party authorities attempting to move to the market in a giant leap, Gorbachev sought a compromise between the views of the market enthusiasts, led by Stani-slav Shatalin and Grigory Yavlinsky, and those of the chairman of the Council of Ministers and his principal economic adviser, Leonid Abalkin.
Because radical democrats tended also to be in favor of speedy marketization, Gorbachev’s hesitation meant that he lost support in that constituency. People who had seen Gorbachev as the embodiment and driving force of change in and of the Soviet system increasingly in 1990-1991 transferred their support to Yeltsin, who in June 1991 was elected president of Russia in a convincing first-round victory. Since he had been directly elected, and Gorbachev indirectly, this gave Yeltsin a greater democratic legitimacy in the eyes of a majority of citizens, even though the very fact that contested elections had been introduced into the Soviet system was Gorbachev’s doing. If Gorbachev had taken the risk of calling a general election for the presidency of the Soviet Union a year earlier, rather than taking the safer route of election by the existing legislature, he might have enhanced his popular legitimacy, extended his own period in office, and extended the life of the Soviet Union (although, to the extent that it was democratic, it would have been a smaller union, with the Baltic states as the prime candidates for early exit). In March 1990, the point at which he became Soviet president, Gorbachev was still ahead of Yeltsin in the opinion polls of the most reliable of survey research institutes, the All-Union (subsequently All-Russian) Center for the Study of Public Opinion. It was during the early summer of that year that Yeltsin moved ahead of him.
By positing the interests of Russia against those of the Union, Yeltsin played a major role in making the continuation of a smaller Soviet Union an impossibility. By first liberalizing and then democratizing, Gorbachev had taken the lid off the nationalities problem. Almost every nation in the country had a long list of grievances and, when East European countries achieved full independence during the course of 1989, this emboldened a number of the Soviet nationalities to demand no less. Gorbachev, by this time, was committed to turning the Soviet system into something different- indeed, he was well advanced in the task of dismantling the traditional Soviet edifice-but he strove to keep together a multinational union by attempting to turn a pseudo-federal system into a genuine federation or, as a last resort, a looser confederation.
