Russian Bureaucracy and the State: Officialdom From Alexander III to Vladimir Putin

355 Pages·2009·1.836 MB·English

by  Don K. Rowney, Eugene Huskey (eds.)

Russian Bureaucracy and the State
AlsobyDonK.Rowney
RUSSIANOFFICIALDOM:TheBureaucratizationofRussianSocietyfromthe
SeventeenthtotheTwentiethCentury(co-editorwithWalterMcKenziePintner)
TRANSITIONTOTECHNOCRACY:TheStructuralFoundationsoftheSoviet
AdministrativeState
AlsobyEugeneHuskey
EXECUTIVEPOWERANDSOVIETPOLITICS:TheRiseandDeclineoftheSoviet
State(editor)
PRESIDENTIALPOWERINRUSSIA
RUSSIANLAWYERSANDTHESOVIETSTATE:TheOriginsandDevelopmentofthe
SovietBar,1917–1939
Russian Bureaucracy and
the State
Officialdom From Alexander III
to Vladimir Putin
Editedby
Don K. Rowney
ProfessorofHistoryandSeniorResearchFellow
BowlingGreenStateUniversity,USA
and
Eugene Huskey
WilliamR.Kenan,Jr.ProfessorofPoliticalScienceandDirectorofRussianStudies
StetsonUniversity,USA
Editorialmatter,selection,introductionandconclusion©DonK.Rowney
andEugeneHuskey2009
Allremainingchapters©respectiveauthors2009
Softcover reprint of the hardcover 1st edition 2009 978-0-230-22884-9
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Firstpublished2009by
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10 9 8 7 6 5 4 3 2 1
18 17 16 15 14 13 12 11 10 09
Contents
ListofTables vii
PrefaceandAcknowledgements viii
Contributors x
1 Introduction:RussianOfficialdomsince1881 1
DonK.RowneyandEugeneHuskey
Part I LateTsaristOfficialdom
2 TheInstitutionalStructureofLateTsaristOfficialdom:
AnIntroduction 19
DonK.Rowney
3 ImperialRussianOfficialdomduringModernization 26
DonK.Rowney
4 Identities,LoyaltiesandGovernmentServiceinTsarist
Ukraine 46
StephenVelychenko
5 Multi-ethnicityandEstonianTsaristStateOfficialsinEstland
Province,1881–1914 72
BradleyD.Woodworth
6 TheMilitaryBureaucracyintheSamarkandOblast’ofRussian
Turkestan 89
AlexanderMorrison
Part II SovietOfficialdom
7 AnIntroductiontoSovietOfficialdom 111
EugeneHuskeyandDonK.Rowney
8 TheCommunistPartyandtheWeaknessofBureaucratic
Norms 118
GraemeGill
9 White-CollarWorkersintheSecondRevolutionandPostwar
Reconstruction 135
DanielOrlovsky
v
vi Contents
10 SurvivalStrategiesintheSovietBureaucracy:TheCaseofthe
StatisticsAdministration 152
MartineMespoulet
11 CorruptionamongOfficialsandAnticorruptionDrivesinthe
USSR,1945–1964 169
JamesHeinzen
12 SovietForeignPolicyfromthe1970sthroughtheGorbachev
Era:TheRoleoftheMinistryofForeignAffairsandthe
CommunistPartyInternationalDepartment 189
Marie-PierreRey
Part III Post-communistOfficialdom
13 AnIntroductiontoPost-communistOfficialdom 215
EugeneHuskey
14 HiringandPromotingYoungCivilServants:WeberianIdeals
versusRussianReality 231
VladimirGimpelson,VladimirMagun,andRobertJ.Brym
15 ThePolitics–AdministrationNexusinPost-communistRussia 253
EugeneHuskey
16 DeliveringStateServicestothePopulation:TheDevelopment
ofStateWelfareAgenciesinPost-SovietRussia 273
CecileLefevre
17 TheFateofRussianOfficialdom:FundamentalReformor
TechnicalImprovements? 290
AlexeiBarabashev,MikhailKrasnov,AlexanderObolonsky,and
TatianaZaitseva
18 WhyIsItSoDifficulttoReformRussianOfficialdom? 301
AlexanderObolonsky
19 Conclusion 317
EugeneHuskeyandDonK.Rowney
SelectBibliography 334
Index 338
List of Tables
4.1 Populationandestimatednumberofadministratorsby
province1897 50
4.2 Estimatednumberofadministratorsandauxiliary
personnelingovernment,civilcouncils,andprivate
organizationsin1897 50
4.3 Rail,communicationsandlegalpersonnelin1897 51
4.4 DeclaredUkrainiansandJewsliterateinRussian,1897 53
6.1 EducationofmilitaryofficersservinginTurkestan,1874 93
6.2 Comparativeeducationfigures 102
A6.1 ReligiousandeducationalprofileoftheOfficerCorpsofthe
Russianarmyin1867 104
A6.2 AnalysisofMilitaryRecordsofofficersservingas
administratorsinSamarkand1868–c.1890 105
14.1 Formalrecruitmentproceduresbyrank 235
14.2 Formalrecruitmentproceduresbyadministrativelevel 236
14.3 Socialandinstitutionalnetworkrecruitmentproceduresby
administrativelevel 237
14.4 ‘Whoistherefereewhodirectlyrecommendedyouforthis
job?’byadministrativelevel 238
14.5 ‘Imagineayoungprofessionalwhoenteredanorganization
throughoneofthelowestposts.Uptowhichpositionwill
s/hebeabletoadvance?’byadministrativelevel 241
14.6 Perceivedpromotioncriteria 242
14.7 Factorsunderlyingperceivedpromotioncriteria 244
14.8 Probitregressionfordesiretochangeemployer 247
14.9 Coefficientsforwageregression,OLS 249
15.1 Thecareersofdeputyministersafterstateservice
1995–2004 264
vii
Preface and Acknowledgements
It has been 30 years since the appearance of the forerunner to this
work, Russian Officialdom: The Bureaucratization of Russian Society from the
SeventeenthtotheTwentiethCenturies.Intheyearssinceitspublication,three
developmentsoccurredthatinvitedathoroughreassessmentoftheRussian
bureaucracy, past and present. First, new methods in the social sciences,
most notably neo-institutionalism, revolutionized the study of organiza-
tions.Second,publicadministrationmovedbeyonditsWeberianconceptual
roots toward a new understanding of relations among politicians, state
employees,andtheprivatesector,embodiedintheNewPublicManagement
(NPM)andrelatedmovements.Finally,andmostsignificantly,Russiaexpe-
riencedaregimetransitionthathasreshapedstate-societalrelationsandthe
roleofthestatebureaucracyinpubliclife.
Thechallengesposedbytoday’sreformshaveopenedupnewperspectives
on bureaucratic change in earlier episodes of regime transition in Russian
history. In response to these parallel revolutions in methodologies and in
theRussianstateitself,thisvolumebringstogetheraninternationalteamof
scholars who offer empirically rich and conceptually innovative studies of
Russianstateadministrationsincethelate19thcentury.
Modernstatesrelyonmarkets,politics,law,andadministrationtoallocate
goods. In Russia, the particular mix of these decision-making mechanisms
has been skewed heavily toward administration, whether in the tsarist,
Soviet, or post-communist eras. Given the importance of state administra-
tion for an understanding of Russian political and economic development,
oneofthegoalsofthisworkistomovetheanalysisofthestatebureaucracy
fromthefringesofRussianstudiestoitsrightfulplaceamongthecorecon-
cernsofthediscipline.WhetherinscholarlyworkonRussia,suchasStephen
Solnick’s Stealing the State, or in the attempts to construct state institutions
incountrieslikeAfghanistanandIraq,onefindsinrecentyearsanewappre-
ciationofthesignificanceofthemachineryofstateforgovernance,political
changeandeconomicdevelopment.
This volume is not only designed to bring the study of state adminis-
tration center stage in the Imperial, Soviet and post-communist fields but
to provide students of comparative state and bureaucracy analyses of how
the organization, personnel, and practices of Russian officialdom relate to
bureaucratic norms and behavior elsewhere. The topical chapters that fol-
lowfocusontheperennialtensionsinstateadministrationastheyapplyto
Russia—tensions between center and periphery, formal rules and informal
practices, professional and legal versus political loyalties, and a reliance on
public or private purveyors of services. Framing these chapters are editors’
viii
PrefaceandAcknowledgements ix
introductions to Russian officialdom in each of the three periods under
study—tsarist,Soviet,andpost-communist.Wealsoprovideextendedessays
in the Introduction and Conclusion that locate the Russian experience in
thecomparativeliteratureonbureaucracyandthestate.
In common with its predecessor, this work is the result of a lengthy
intellectual collaboration and exchange that is rare for edited volumes.
In this case, however, collaboration has extended to authors from diverse
disciplinary and geo-political backgrounds. Conceived at the American
Association for the Advancement of Slavic Studies (AAASS) 2002 confer-
ence in Pittsburgh, this project brought together contributors at several
subsequentAAASSconferencesandattheInternationalCouncilforCentral
and East European Studies Congress in Berlin in July 2005. A concluding
conference took place in March 2008 at the CNRS institute, Cultures et
sociétés urbaines (CSU) in Paris. We are grateful to our French hosts, Mar-
tineMespouletandtheDirectorofCSU,Anne-MarieDevreux,forarranging
thistwo-daycolloquium.
Numerous individuals and organizations were instrumental in shaping
and supporting this project. Our home institutions, Bowling Green State
University and Stetson University, provided travel funds and other assis-
tance. The National Council for Eurasian and East European Research
supported the work of Eugene Huskey and Alexander Obolonsky during
theinitialstagesofresearch.TheKennanInstituteoftheWoodrowWilson
International Center for Scholars, Washington, DC, provided a forum in
which to discuss research findings. To John Armstrong, Alena Ledeneva,
Barbara Lehmbruch, Joel Moses,Walter Pintner, William Tompson, Michael
Urban,andPeterSolomonweexpressourgratitudeforhelpingustothink
moreclearlyabouttheroleofofficialdominRussia.
∗ ∗ ∗
DonK.RowneytranslatedChapter10fromtheFrenchandEugeneHuskey
translatedChapters12and16fromtheFrenchandChapters17and18from
theRussian.Chapter6,whichisarevisedandshortenedversionofachapter
from A. S. Morrison, Russian Rule in Samarkand, 1868–1910. A Comparison
withBritishIndia(Oxford:OxfordUniversityPress,2008),126–171,appears
bykindpermissionofOxfordUniversityPress.
DKR
EEH