Russian Bureaucracy and the State Also by Don K. Rowney RUSSIAN OFFICIALDOM: The Bureaucratization of Russian Society from the Seventeenth to the Twentieth Century (co-editor with Walter McKenzie Pintner) TRANSITION TO TECHNOCRACY: The Structural Foundations of the Soviet Administrative State Also by Eugene Huskey EXECUTIVE POWER AND SOVIET POLITICS: The Rise and Decline of the Soviet State (editor) PRESIDENTIAL POWER IN RUSSIA RUSSIAN LAWYERS AND THE SOVIET STATE: The Origins and Development of the Soviet Bar, 1917–1939 Russian Bureaucracy and the State Officialdom From Alexander III to Vladimir Putin Edited by Don K. Rowney Professor of History and Senior Research Fellow Bowling Green State University, USA and Eugene Huskey William R. Kenan, Jr. Professor of Political Science and Director of Russian Studies Stetson University, USA Editorial matter, selection, introduction and conclusion © Don K. Rowney and Eugene Huskey 2009 All remaining chapters © respective authors 2009 Softcover reprint of the hardcover 1st edition 2009 978-0-230-22884-9 All rights reserved. No reproduction, copy or transmission of this publication may be made without written permission. No portion of this publication may be reproduced, copied or transmitted save with written permission or in accordance with the provisions of the Copyright, Designs and Patents Act 1988, or under the terms of any licence permitting limited copying issued by the Copyright Licensing Agency, Saffron House, 6-10 Kirby Street, London EC1N 8TS. Any person who does any unauthorized act in relation to this publication may be liable to criminal prosecution and civil claims for damages. The authors have asserted their rights to be identified as the authors of this work in accordance with the Copyright, Designs and Patents Act 1988. 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A catalog record for this book is available from the Library of Congress. 10987654321 18 17 16 15 14 13 12 11 10 09 Contents List of Tables vii Preface and Acknowledgements viii Contributors x 1 Introduction: Russian Officialdom since 1881 1 Don K. Rowney and Eugene Huskey Part I Late Tsarist Officialdom 2 The Institutional Structure of Late Tsarist Officialdom: An Introduction 19 Don K. Rowney 3 Imperial Russian Officialdom during Modernization 26 Don K. Rowney 4 Identities, Loyalties and Government Service in Tsarist Ukraine 46 Stephen Velychenko 5 Multi-ethnicity and Estonian Tsarist State Officials in Estland Province, 1881–1914 72 Bradley D. Woodworth 6 The Military Bureaucracy in the Samarkand Oblast’ of Russian Turkestan 89 Alexander Morrison Part II Soviet Officialdom 7 An Introduction to Soviet Officialdom 111 Eugene Huskey and Don K. Rowney 8 The Communist Party and the Weakness of Bureaucratic Norms 118 Graeme Gill 9 White-Collar Workers in the Second Revolution and Postwar Reconstruction 135 Daniel Orlovsky v vi Contents 10 Survival Strategies in the Soviet Bureaucracy: The Case of the Statistics Administration 152 Martine Mespoulet 11 Corruption among Officials and Anticorruption Drives in the USSR, 1945–1964 169 James Heinzen 12 Soviet Foreign Policy from the 1970s through the Gorbachev Era: The Role of the Ministry of Foreign Affairs and the Communist Party International Department 189 Marie-Pierre Rey Part III Post-communist Officialdom 13 An Introduction to Post-communist Officialdom 215 Eugene Huskey 14 Hiring and Promoting Young Civil Servants: Weberian Ideals versus Russian Reality 231 Vladimir Gimpelson, Vladimir Magun, and Robert J. Brym 15 The Politics–Administration Nexus in Post-communist Russia 253 Eugene Huskey 16 Delivering State Services to the Population: The Development of State Welfare Agencies in Post-Soviet Russia 273 Cecile Lefevre 17 The Fate of Russian Officialdom: Fundamental Reform or Technical Improvements? 290 Alexei Barabashev, Mikhail Krasnov, Alexander Obolonsky, and Tatiana Zaitseva 18 Why Is It So Difficult to Reform Russian Officialdom? 301 Alexander Obolonsky 19 Conclusion 317 Eugene Huskey and Don K. Rowney Select Bibliography 334 Index 338 List of Tables 4.1 Population and estimated number of administrators by province 1897 50 4.2 Estimated number of administrators and auxiliary personnel in government, civil councils, and private organizations in 1897 50 4.3 Rail, communications and legal personnel in 1897 51 4.4 Declared Ukrainians and Jews literate in Russian, 1897 53 6.1 Education of military officers serving in Turkestan, 1874 93 6.2 Comparative education figures 102 A6.1 Religious and educational profile of the Officer Corps of the Russian army in 1867 104 A6.2 Analysis of Military Records of officers serving as administrators in Samarkand 1868–c.1890 105 14.1 Formal recruitment procedures by rank 235 14.2 Formal recruitment procedures by administrative level 236 14.3 Social and institutional network recruitment procedures by administrative level 237 14.4 ‘Who is the referee who directly recommended you for this job?’ by administrative level 238 14.5 ‘Imagine a young professional who entered an organization through one of the lowest posts. Up to which position will s/he be able to advance?’ by administrative level 241 14.6 Perceived promotion criteria 242 14.7 Factors underlying perceived promotion criteria 244 14.8 Probit regression for desire to change employer 247 14.9 Coefficients for wage regression, OLS 249 15.1 The careers of deputy ministers after state service 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 Seventeenth to the Twentieth Centuries. In the years since its publication, three developments occurred that invited a thorough reassessment of the Russian bureaucracy, past and present. First, new methods in the social sciences, most notably neo-institutionalism, revolutionized the study of organiza- tions. Second, public administration moved beyond its Weberian conceptual roots toward a new understanding of relations among politicians, state employees, and the private sector, embodied in the New Public Management (NPM) and related movements. Finally, and most significantly, Russia expe- rienced a regime transition that has reshaped state-societal relations and the role of the state bureaucracy in public life. The challenges posed by today’s reforms have opened up new perspectives on bureaucratic change in earlier episodes of regime transition in Russian history. In response to these parallel revolutions in methodologies and in the Russian state itself, this volume brings together an international team of scholars who offer empirically rich and conceptually innovative studies of Russian state administration since the late 19th century. Modern states rely on markets, politics, law, and administration to allocate 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, one of the goals of this work is to move the analysis of the state bureaucracy from the fringes of Russian studies to its rightful place among the core con- cerns of the discipline. Whether in scholarly work on Russia, such as Stephen Solnick’s Stealing the State, or in the attempts to construct state institutions in countries like Afghanistan and Iraq, one finds in recent years a new appre- ciation of the significance of the machinery of state for governance, political change and economic development. 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- low focus on the perennial tensions in state administration as they apply to 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 Preface and Acknowledgements ix introductions to Russian officialdom in each of the three periods under study—tsarist, Soviet, and post-communist. We also provide extended essays in the Introduction and Conclusion that locate the Russian experience in the comparative literature on bureaucracy and the state. In common with its predecessor, this work is the result