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Soviet Union [USSR] Provincial and District Levels
Below the union-republic level of territorial administration,
subdivisions were complex, varied with each republic, and included
the following categories: autonomous oblast, autonomous
okrug, autonomous republics, krai, oblast, and
raion. Only the Russian Republic had all categories of
subdivision. Western specialists often termed the administrations
of the autonomous subdivisions, kraia, and oblasts
generically as provincial and that of the raion as district.
Provincial and district governments shared the same structure. For
example, oblast and district soviets--single chambers elected for
two and one-half years--exercised all legislative authority. These
soviets met up to four times a year for one-day sessions. Between
sessions, each soviet delegated its authority to an executive
committee (ispolnitel'nyi komitet--ispolkom), which
combined the functions of a council of ministers and a presidium.
Ispolkom chairmen were the chief executives in the oblast
and in the district. These officials normally sat on the party
bureaus at these respective hierarchical levels
(see Soviet Union USSR -
Oblast-Level Organization;
Soviet Union USSR -
District- and City-Level Organization
, ch. 7).
The ispolkom lacked decision-making authority. Although
members of the ispolkom headed departments that managed
oblast and district services such as education, health, and
culture, the central government controlled the more important tasks
of the administration of justice, the budget, and economic planning
and heavy industry. In addition, a substantial number of other
social services were controlled by industrial enterprises and were
thus beyond the control of local governments. Finally, the party
first secretaries exercised power at both the oblast and the
district levels. These officials, not the ispolkom chairmen,
were obliged to answer to the party for the economic performance of
their domain of authority.
The approximately 52,500 soviets at the provincial and urban
and rural district levels had little power. These soviets, however,
were important as vehicles for large-scale citizen participation in
the government. The size of these soviets ranged from 200 deputies
in rural areas to more than 1,000 in large cities. Thus, more than
2.3 million people served on local soviets at any one time, and,
given the high turnover rate, more than 5 million citizens served
on the local soviets each decade.
Although sessions of the full soviets at the provincial and
district levels were strictly ceremonial, their commissions had
some influence. The constituencies of these commissions were small,
enabling them to respond to the needs of the people. Practical
expertise often determined assignment to these commissions. For
example, a teacher could serve on an education commission. Deputies
served as channels for criticism and suggestions from constituents,
and the deputies' expertise could qualify them as problem solvers
on issues that confronted the commission.
Data as of May 1989
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