Russian Bureaucracy and the State: Officialdom From Alexander III to Vladimir Putin PDF
Preview Russian Bureaucracy and the State: Officialdom From Alexander III to Vladimir Putin
Russian Bureaucracy and the State Officialdom From Alexander III to Vladimir Putin Edited by Don K. Rowney and Eugene Huskey Russian Bureaucracy and the State July17,2009 20:4 MAC/TRSA Page-i 9780230_228849_01_prexii AlsobyDonK.Rowney RUSSIANOFFICIALDOM:TheBureaucratizationofRussianSocietyfromthe SeventeenthtotheTwentiethCentury(co-editorwithWalterMcKenziePintner) TRANSITIONTOTECHNOCRACY:TheStructuralFoundationsoftheSoviet AdministrativeState AlsobyEugeneHuskey EXECUTIVEPOWERANDSOVIETPOLITICS:TheRiseandDeclineoftheSoviet State(editor) PRESIDENTIALPOWERINRUSSIA RUSSIANLAWYERSANDTHESOVIETSTATE:TheOriginsandDevelopmentofthe SovietBar,1917–1939 July17,2009 20:4 MAC/TRSA Page-ii 9780230_228849_01_prexii 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 July17,2009 20:4 MAC/TRSA Page-iii 9780230_228849_01_prexii Editorialmatter,selection,introductionandconclusion©DonK.Rowney andEugeneHuskey2009 Allremainingchapters©respectiveauthors2009 Allrightsreserved.Noreproduction,copyortransmissionofthis publicationmaybemadewithoutwrittenpermission. Noportionofthispublicationmaybereproduced,copiedortransmitted savewithwrittenpermissionorinaccordancewiththeprovisionsofthe Copyright,DesignsandPatentsAct1988,orunderthetermsofanylicence permittinglimitedcopyingissuedbytheCopyrightLicensingAgency, SaffronHouse,6-10KirbyStreet,LondonEC1N8TS. Anypersonwhodoesanyunauthorizedactinrelationtothispublication maybeliabletocriminalprosecutionandcivilclaimsfordamages. Theauthorshaveassertedtheirrightstobeidentified astheauthorsofthisworkinaccordancewiththeCopyright, DesignsandPatentsAct1988. Firstpublished2009by PALGRAVEMACMILLAN PalgraveMacmillanintheUKisanimprintofMacmillanPublishersLimited, registeredinEngland,companynumber785998,ofHoundmills,Basingstoke, HampshireRG216XS. PalgraveMacmillanintheUSisadivisionofStMartin’sPressLLC, 175FifthAvenue,NewYork,NY10010. PalgraveMacmillanistheglobalacademicimprintoftheabovecompanies andhascompaniesandrepresentativesthroughouttheworld. Palgrave®andMacmillan®areregisteredtrademarksintheUnitedStates, theUnitedKingdom,Europeandothercountries. ISBN-13:978–0–230–22884–9hardback Thisbookisprintedonpapersuitableforrecyclingandmadefromfully managedandsustainedforestsources.Logging,pulpingandmanufacturing processesareexpectedtoconformtotheenvironmentalregulationsofthe countryoforigin. AcataloguerecordforthisbookisavailablefromtheBritishLibrary. AcatalogrecordforthisbookisavailablefromtheLibraryofCongress. 10 9 8 7 6 5 4 3 2 1 18 17 16 15 14 13 12 11 10 09 PrintedandboundinGreatBritainby CPIAntonyRowe,ChippenhamandEastbourne July17,2009 20:4 MAC/TRSA Page-iv 9780230_228849_01_prexii 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 July17,2009 20:4 MAC/TRSA Page-v 9780230_228849_01_prexii 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 July17,2009 20:4 MAC/TRSA Page-vi 9780230_228849_01_prexii 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 July17,2009 20:4 MAC/TRSA Page-vii 9780230_228849_01_prexii 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 July17,2009 20:4 MAC/TRSA Page-viii 9780230_228849_01_prexii 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 July17,2009 20:4 MAC/TRSA Page-ix 9780230_228849_01_prexii
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