3.2.1 Stalin Becomes General Secretary
The 8th Congress of the Bolshevik Party (March, 1919) agreed to Zinoviev’s proposal, made on Lenin’s behalf, that the CC should establish a Politburo (also known as the Political Committee) and an Orgburo. The former was intended to be the real leadership in the Party and because of its relatively small membership could decide all issues that mattered quickly and efficiently. The latter would allocate resources to carry out CC decisions. With Lenin’s strong support, the 8th Party Congress also endorsed Stalin’s appointment as Commissar of the newly created Rabkrin (Workers’ and Peasants’ Inspectorate).[1]
Before 1920 Stalin had played no direct role in leading the party machinery but from now on his attention was on party affairs, and via these three posts Stalin participated in making policy decisions, was responsible for allocating party resources to implement them, and then in charge of the Commissariat which assessed how well he had done.[2] Lenin’s promotion of Stalin to such a decisive position may have been the advancement of an efficient functionary but it betrayed a calamitous misappraisal of the man.
By the 10th Congress (March 1921), Stalin was sufficiently powerful to have his supporters elected to the CC and its Secretariat in place of those friendly to Trotsky. The Orgburo was expanded to seven members to give Stalin an in-built majority.[3] The first plenum of the CC two days after the 10th Congress (March 1921) unanimously accepted the proposal of Kamenev naming Stalin as the General Secretary who could direct the work of the Secretariat of the CC. This included the selection and allocation of cadres to Party posts. With this extension of Stalin’s power, the office of General Secretary became the de-facto control centre of Party activities and the hub for the emerging Party hierarchy.[4]
There is no doubt that Stalin was able to point to a number of successes in streamlining Party organisation and making the Party more effective in carrying out Politburo and CC decisions. However, Stalin began to use the resources of the Party to strengthen a clique personally loyal to him. This unprincipled grouping began as all such groups do, based on gossip and backstabbing, with the principal target Leon Trotsky. Stalin’s undoubted organisational abilities were changing from a positive force for building the Party to a destructive force, making the Party apparatus a factor which would eventually destroy the Bolshevik Party and the Soviet Union. By the 13th Party Conference (16-18 January 1924), Stalin was the real power within the Party.
3.2.2 Ban on Political Parties and War Communism
Prior to October 1917, no leader within the Bolsheviks had ever suggested that after the revolution there would be a one-Party political system, and in the period immediately after the insurrection even the bourgeois Cadet Party remained legal. The only political organisation which was suppressed was the neo-fascist Black Hundreds, infamous for inciting pogroms. This was to be expected since the Bolsheviks had, until 1917, the governmental goal of “a freely convened constituent assembly of the whole people” to which “every class of the population” would turn.[5] In such a schema only die-hard Tsarists and landed aristocrats would seriously oppose the revolution, so the notion of banning political parties had never arisen.
But, contrary to expectations, the October Revolution had been a socialist revolution which meant that the urban middle class allies anticipated by Lenin in 1905[6] now opposed the Bolshevik insurrection. The initial response, on 9 November 1917, was a decree banning hostile newspapers, but the decree specifically stated that the ban was of a temporary nature, and would be rescinded as soon as normal conditions were re-established.[7]
However, under the protection of the Whites who were resourced mainly by England and France, and no fewer than thirteen armies of intervention which included Americans, French, Czech, and Japanese, the Right Socialist Revolutionaries (SRs) and some Mensheviks, with support from Cadets were proclaiming their own governments in a number of places such as Archangel, Omsk, Samara, and Ufa. These people spoke in the name of democracy but, in fact, ceded real power to the counter-revolutionary armies. This made it impossible for these parties to have freedom of propaganda and agitation within Soviet-controlled areas. A sharp polarisation took place in the Soviets. The civil war gave the Bolsheviks no choice but to exclude Right SRs and Mensheviks from the Soviets.
By November 1918, of the 950 delegates at the 6th All-Russian Congress of Soviets, 933 were Communists.[8] But with Party monopoly of power, the separation of Party and state became unrealisable; whatever was determined in a Party caucus was binding on all Party members attending the Soviets. Generally, by 1921, at local level the Party branch secretary had replaced the chairperson of the Soviet as the leading official.[9] This situation posed a serious problem because less and less distinction between Party and state could only lead to a weakening of Soviet democracy and a bureaucratisation of the Party.
The 12th All-Russian Party Conference (4-7 August 1922) formalised the actual situation, and the resolution on The Registration of Associations and Unions meant the prohibition of all parties but the Bolsheviks.[10] The ban was necessary because of the counter-revolutionary activities of all the so-called socialist parties, but it was a signal warning of the effects of imperialist pressure on a socialist revolution in a backward country.
During the civil war the Bolsheviks were forced to adopt the policy of War Communism with intense centralisation and Party control of virtually every aspect of society, nationalisation of industries necessary to maintain supplies to the armies, and the removal of decision-making authority from state institutions and non-Party organisations.[11]
War Communism included the forced requisitioning of grain. However, once the Whites were defeated and they considered their land safe, the mass of peasants vigorously resisted requisitioning which they viewed as theft by the state. The peasants responded by planting only what they needed for themselves. This meant there was little or no grain to requisition.[12] The food situation in the towns went from bad to worse, to near starvation. On 1 March 1921, the sailors at the giant Kronstadt naval base rose in revolt – a reflection that the relations between the Soviet state and the peasant masses had reached an all-time low.[13] The mutiny was the final straw in demonstrating War Communism as unsustainable and at the 10th Congress of the All-Russian Communist Party (ARCP(B)) (8-16 March) it was agreed to move towards a New Economic Policy (NEP).[14]
However, War Communism had adverse long-term consequences: the replacement of internal Party democracy by top-down command, and the introduction of a system of appointment rather than election of local Party leaders. That these changes occurred in parallel with the banning of opposition parties meant War Communism brought into existence a hierarchical social system based on the Bolshevik Party which simultaneously became the gateway to a secure job.[15]
3.2.3 The New Economic Policy and Character of the New Members
The NEP meant that the peasants paid a tax on what they produced and sold their surplus on the open market. This move to a market economy satisfied the immediate demands of the peasantry but represented a turn by the Communist Party to the middle peasants and kulaks who were the most efficient and biggest producers of foodstuffs. With the adoption of the NEP by the Soviet regime, the process of equalisation of land-holdings that had taken place after October and intensified during War Communism was reversed.[16]
The NEP with its reliance on the market, strengthened the kulaks and NEPmen (capitalist speculators) to the detriment of the poor peasants and the proletariat. The kulaks had the largest and most fertile farms and the capital necessary for equipment, horses, and fertiliser; they made huge profits. Under the NEP the difference between the rich and poor in the villages began to grow at an alarming rate with the parallel danger of growing political opposition to the workers’ state.[17]
The NEP gave the Soviet regime the opportunity to catch its breath, but at the cost of increasing social differentiation. Production of goods and produce for a market economy led to the rapid enrichment not only of petty-bourgeois kulaks, shopkeepers and traders but also a number of sticky-fingered Party officials. Alongside the re-emergence of class divisions, the budding bureaucracies of the state, industry, and Party began to coalesce and flex their muscles.[18]
Material inequalities began to widen rapidly. In 1920, the government ruled that the highest-paid managers should earn no more than four times the minimum wage. With the advent of NEP that ratio was increased to eight times. A survey conducted in 1924 showed that more than 80,000 state officials admitted to earning more than the upper limit, 15,000 were on more than 15 times the minimum – to say nothing of corrupt and illegal earnings, which everyone believed were widespread.[19]
Private trade flourished but state enterprises were constrained by government policy to make good war damage while working without loss, and to fund any wage increases from higher productivity. This imposed considerable pressure on such revolutionary gains as the eight-hour day and women’s right to receive paid maternity leave or to take breaks to feed their babies being looked after in the factory nursery.[20] Factories reduced their costs by lay-offs, increasing the number of unemployed industrial workers from about 500,000 to 1,250,000 between autumn 1922 and summer 1923. Women were particularly hard hit.
A wave of strikes and disturbances swept the country sometimes led by stalwart Party members who, as active trade unionists, felt a responsibility to their workmates.[21] The response of the Party machine was to have the secret police (GPU) step in and arrest a number of such activists who were then summarily expelled. Felix Dzerzhinsky, head of the GPU and a devout supporter of Stalin, demanded the members of the Politburo inform the GPU of any known oppositional activity.[22] This was the first time the GPU had been openly used against Party members, though it would soon be normal practice to spy on activists in the factories.[23]
The NEP generated a mood of personal aggrandisement, which often contaminated proletarian Party members returning home from the Red Army. Most of these would be given administrative jobs in the new state apparatus or factory management, cut off from the factory floors from which they had come. During this period, Party functionaries particularly the new influx, were finding their feet and beginning to forge relationships across and within government organisations, industrial management and the state apparatus. In part they were coalescing into an elite that would become the rulers of the Soviet Union.[24]
Over the period of the NEP, the majority of rank and file Party members went from supporting the actions of the factory workers in defence of wages and conditions to – under pressure from the local Party secretaries – siding with the factory managers against the workforce, supporting cuts in pay and working conditions and increased workloads. In many cases this led to disillusion and demoralisation of the rank and file who quit the Party. Those who remained had to develop a tough skin – and all too often these were the most politically backward members.[25]
The continued failure of a revolution to take place in a technologically advanced country left Russia isolated and provided the conditions for the growth of both alien class forces and internal bureaucratic degeneration.
The membership of the Bolshevik Party had been overwhelmingly proletarian in October 1917 and the early days of the civil war when capture by the Whites meant a certain and cruel death. During this period there was an open door policy towards recruitment. However, at the 8th Party Congress it was recognised that many of the enthusiasts who had joined did not have the necessary integrity, honesty, commitment or political understanding.[26] The decision was taken to sift out those who were ‘unworthy’, and within six months Party membership was reduced from about 250,000 to about 150,000.
However, by the autumn of 1919 the situation had changed again and the regime had its back to the wall, threatened by a ring of White armies. In such a situation the doors were again thrown open and between October and December 1919 nearly 200,000 new recruits entered the Party. By the 9th Congress in March 1920, the membership was over 600,000, and by the 10th Congress in March 1921, almost three-quarters of a million.[27] The large numbers flooding into the Party mean that by the 10th Congress only about 10% of members predated 1917. The new members were in their vast majority honest Communists, prepared to risk life and limb for the revolution, but their political education was more military manual than Marxist text. “It was a Party literally steeled on the fields of battle”[28] where some 200,000 lost their lives.[29]
In the civil war the resolution and solution of problems had to be immediate, with centralisation of decision-making and a non-elected command structure. The very purpose of the Red Army and the central role of the Party within it had enhanced the fusion of state and Party and increased centralisation of decision making within the Party itself. After 1920, the demobilised Communist soldiers who became administrators in the local soviets and the economy everywhere enhanced the trend towards expecting submission to one’s superiors and expecting obedience of one’s own orders.[30]
The need for Communists in senior positions in government and industry meant that on demobilisation, a large proportion of Party members were directly appointed to administrative posts. Pirani gives figures for the latter half of 1922 when in Moscow alone nearly 2,000 Party members were appointed to local and central state bodies.[31] By the end of 1921 the proportion of members who were still factory workers was no more than 20% while the proportion of members in peasant cells was 30%.[32]
From the Party Congress of 1922 to the Party Congress of 1923, gigantic strides were made in increasing the domination of the Russian Communist Party (RCP) over all aspects of Russian life: the proportion of regional leaders of trade unions who were members of the Party increased from 27% to 57%, the proportion of commanding staffs in the army from 16% to 24%, the proportion of managers of co-operatives from 5% to 50%, and so on in all important institutions of public life.[33] To marshal its forces, the Party Secretariat now had a Personnel Department with branches spread throughout the country and which kept detailed files on all members. It had the power to order members to change their occupation and place of residence at short notice, and this was used not only for promotion but also for maintaining discipline: a shift from the capital to the wilderness of Siberia could be the punishment for voicing dissent.
3.2.4 Ban on Factions and Authority Within the Party
After the civil war a Party card was almost a guarantee of a secure job, and careerists flooded in.[34] Lenin warned again and again against the dangers of careerist, capitalist, white-guard, Menshevik and SR infiltration of the Party, and was for their wholesale expulsion. Despite this, one estimate had former Mensheviks and SRs comprising about one quarter of the active higher cadres by 1927.[35]
One cannot properly understand the policies pursued by Lenin, and supported by Trotsky, in this period without remembering the actual situation in Russia: hunger, partial atomisation of the proletariat, economic catastrophe, very low cultural and technological levels of the population, and pressures from the petty-bourgeois peasant masses (which had doubled due to the NEP) – all consequences of the delay of the international revolution. In the face of such stresses how was the Soviet state to be maintained? Lenin was convinced that class enemies who had entered the Party were consciously using the differences raised by genuine Bolsheviks (e.g. the Workers’ Opposition) to weaken the Party for counter-revolutionary purposes.[36] Lenin’s fear was that with one Party rule, the RCP would begin to reflect the pressures of alien classes, which if allowed to express themselves as factions, would eventually split the Party on class lines. This would mean the overthrow of the workers’ state, since it was the Communist Party that held it together and guaranteed its continued existence.
Hence, the 10th Party Congress in early 1921 – with the Kronstadt revolt taking place almost at its door – banned factions within the Party. Lenin made it clear that this was a temporary measure brought in to deal with an exceptional situation and, moreover, favoured a flexible interpretation of this rule, rejecting attempts to make it definitive.[37]
This emergency measure which circumscribed the democratic rights of Party members strengthened the bureaucratic tendencies within the Party. As a ‘necessary evil’ imposed upon the Party it should have been lifted and full democratic rights restored as soon as conditions eased. But in fact, after Lenin’s death this temporary measure was made permanent as part of the manoeuvres by the Troika of Kamenev, Stalin, and Zinoviev in their struggle against Trotsky.[38] Ultimately, the ban on factions would be extended internationally and be a major weapon in defeating oppositionists in, e.g., China.
The Party had leapt from the underground to the heights of power and as times changed so too did people. More and more, Stalin was using his increasing domination of the Party organisation to recruit to important posts, people who were personally obligated and loyal to him. In his position of General Secretary as he dispensed favours and fortune, he was losing his moral integrity. The foundations were being laid for an inevitable conflict with Bolshevism.
With the ban on internal factions, power within the Party became progressively centralised in the Politburo and CC. This centralisation inevitably had its organisational form: the Secretariat (under Stalin) increasingly supervised (i.e. controlled) the appointment and allocation of Party personnel. As Kremlin files have become public, much attention has been concentrated on the details of the growth of a centralised system of Party functionaries effectively appointed by, and beholden to, the General Secretary. The wealth of detail now available only confirms the essential analysis made at the time by opposition currents within the RCP. The major difference is that the bureaucracy proved more servile and self-seeking than the Oppositionists ever dreamed.
By the time of the 9th Party Congress of September 1920, the appointment of secretaries of provincial committees was well established, though at that time, local recommendations for the posts were still preferred. Serge described how by the winter of 1920/21, a “state of siege had now entered the Party itself, which was increasingly run from the top, by Secretaries. We were at a loss to find a remedy for this bureaucratization.”[39]
Most leading members of the Stalin group were Old Bolsheviks with numerous personal links going back, in many cases, to before 1903. They were efficient capable organisers, hard-working, often patient and prudent, creatures of the apparatus and well aware of their own importance. They shared a common conservative outlook. Stalin, as General Secretary, embodied this new group, united them and brought them together. It was around him that they formed a growing freemasonry. To these ‘practical’ men, these ‘realists’, these ‘committee men’, the time and energy spent reaching a democratic decision was a waste of effort that delayed – even threatened – necessary work.[40]
At the 10th Congress (March 1921) it was reported that the Party Secretariat had been responsible for the transfer and/or appointment of 42,000 members to their posts. It can be argued that from this Congress, Stalin was in such a strong position in the Party that only Lenin’s direct opposition could have removed him because of the mechanisms he had in place for controlling who attended the decision-making conferences, ensuring the ‘right’ people became branch officers, etc.
The 10th Congress had sanctioned a purge of careerists whose behaviour was too gross and blatant to tolerate, but after the 11th Congress (March/April 1922), which placed great emphasis on unity and Party discipline, the purge was also directed at crushing criticism and dissent.[41] The 11th Party Congress was the last Congress in which Lenin participated and the first at which appointment rather than election of Congress delegates was practised on a mass scale.[42] After the 11th Congress, from the summer of 1922 the Secretariat rapidly increased its control over the Party and state apparatuses, and extended the selection and imposition of elements loyal to Stalin.[43]
The practice of appointments had become so widespread by the 12th Congress (April 1923) that Preobrazhensky protested that some 30% of the secretaries of local committees had been recommended for their position by the Secretariat.[44] In fact, Preobrazhensky seriously underestimated the extent of the appointments, recent data shows 94 of the 191 secretaries of provincial committees had been recommended or directly appointed.[45] Soon all secretaries of district and provincial committees would acquire their positions in this way.
Publicly Stalin called for the free election of regional and provincial Party leaders but behind the scenes he was busy ensuring the domination of the centre and appointment from above. Any remaining element of internal democracy in the Party was strangled when the Secretariat appointed unelected provincial bureaux to oversee the work of the elected committees.[46]
The final organisational requirement for the bureaucratisation of the Party was the Secretariat’s take-over of the Control Commissions. These bodies, initially composed of independently-minded Party members, could act to protect the rank and file from overbearing and bureaucratic officials. At the 11th Party Congress, however, it was agreed that the Central Control Commission should play a much greater role in guiding the work of local Commissions. Of course, a majority of the seven members elected to the Central Control Commission were strong supporters of Stalin. In this way the Control Commission was made a parallel mechanism to the Party secretaries for control of the members. The function of the Commission was turned on its head; from defending the rights of the membership it became a mechanism for tighter control.[47]
Even the pre-revolution Old Guard was now coming under attack; a 1922 Secretariat report on cadre distribution harangues the ‘old boys’ as not being sufficiently ‘malleable’ and argued that post-civil war recruits were much more amenable and therefore preferable:
“the young, active worker, elected at some All-Russian Congress, meeting or conference, having attended and got the hang of things there, already has a great advantage over an authoritative, respected old cadre.”[48]
The dissatisfaction with Old Bolsheviks was precisely because of their independence of mind which inevitably brought them into conflict with the practices of the Stalin faction.
3.2.5 Privileges and Their Enshrinement
In 1920, some tens of thousands of Bolshevik Party members were attempting to bring order to Soviet society. Grossly overworked and with few, if any, material privileges, these Party officials were trying to lay the foundations of Soviet rule. Serge, who was one of these, described the situation:
Our salaries were limited to the ‘Communist maximum’, equal to the average wage of a skilled worker … I would have died of hunger without the sordid manipulation of the black market, where I traded the petty possessions I had brought from France. The eldest son of my friend Yonov, Zinoviev’s brother-in-law, an Executive member of the Soviet … died of hunger before our very eyes. All this while we were looking after considerable stocks and even riches.[49]
After 1921, one-Party rule was assured, and these same Party members together with specialists inherited from the Tsarist regime (industrial managers and technical intelligentsia), now directed the administrative machinery of both state and industry. As this layer exercised its authority it began to accumulate material benefits, first surreptitiously and then legitimised by the Party.
As Lenin talked of the proletarian nature of the Bolshevik Party being determined by the thin layer forming the Old Guard,[50] he was agreeing to take a step that would later be corrupted and used to legitimise material privileges in a way that broke with Bolshevik tradition and advanced the development of the bureaucratic elite. The 11th Congress instructed the CC to examine the material conditions of active comrades and “at all costs ensure them tolerable living conditions.”
The CC formed a commission, headed by Molotov (a close ally of Stalin), which reported back to the 12th Party Conference in August 1922 with a resolution providing for about 15,000 senior Party officials to receive: (i) salaries equivalent to middle and senior management grades plus 50%, (ii) guaranteed housing and medical support, and (iii) child care and education for their children. The conference, many of whose delegates would have qualified for the benefits, enthusiastically endorsed the proposals and then called on the CC to work out a similar system for Party officials in rural sub-districts who had not been included.[51]
Before the 12th Conference there was a strong material dis-incentive preventing factory managers from joining the Communist Party, but afterwards membership of the Communist Party provided substantial additional benefits. Carr considered the data for industrial managers who gave their background as non-worker, finding two trends: that the number of such managers almost doubled between 1922 and 1923, and the proportion of such managers who joined the Communist Party increased seven-fold.[52] Managers now saw joining the Communist Party as a means of protecting their material interests.
It is no surprise that at this time there was the gradual abolition of all those activities in and around the Party where free discussion on political matters took place. The first to go were the Party discussion clubs and study circles but later all free discussion, even pre-Congress, would be discouraged and then disappear.[53] In an organisation where votes are cast on the basis of factional loyalty and material interests, an objective, free discussion is not something that can be tolerated. The Party press had to be tightly controlled, Pravda and Izvestia, became a means of hiding the very sharp struggles taking place inside the Central Committee and the Politburo. The exceptions were those occasions when the Party machine mobilised to launch an attack on an opposition current, as occurred in the New Course debate against the Trotskyist opposition’s demands for greater internal Party democracy. The CC soon extended such control nationally and after 1925 regularly sent instructions to local newspaper editors about what should and what could not be published.[54]
3.2.6 International Setbacks
The period before and immediately after the 1st Congress of the Communist International was hugely optimistic.[55] A wave of mass strikes and street fighting swept across Europe and many of the sections of the CI transformed themselves into mass organisations – by the end of 1920 the German, Czech, and Italian CPs each claimed membership of over 300,000, the French section had 140,000, and the Bulgarian section over 21,000.
But the revolutionary wave was beaten back. The most decisive defeats were in Germany and Hungary. On 5 January 1919, the German CP (KPD) allowed itself to be provoked into premature armed conflict. The result was a catastrophe, right-wing army units ran riot, killing hundreds of working class militants including Rosa Luxemburg and Karl Liebknecht. In Hungary, a soviet regime existed from 21 March to 1 August 1919 but collapsed in a mix of opportunism (agreeing to share power with the Social Democratic Party, which promptly betrayed the revolution) and ultra-leftism (refusing to distribute the landlords’ estates among the peasantry, giving them no reason to defend the Soviet regime).[56] In response to provocation, the Red Army had advanced into Poland generating enormous expectations of revolution in Poland or even Germany, only to retreat in confusion. These events strengthened every conservative and inward-looking trend in the Soviet Union.
By 1923, the situation in Germany was again rapidly approaching revolution due largely to the total collapse of the Deutschmark. In 1923 a barrow load of notes was needed to buy a cup of coffee with the resulting pauperisation of the working class and the ruin of the petty-bourgeoisie but with the export industries making fabulous profits. The trade union apparatus collapsed, belief in the parliamentary system evaporated, mass strikes led by factory committees erupted throughout the country, support for the KPD grew at an enormous rate – particularly amongst factory workers – largely because the Party had adopted a united front strategy.[57]
The ECCI assessed the situation as rapidly heading towards a revolution and approved an overly complex plan for the revolutionary seizure of power. Incredibly, despite the example of Hungary, the plan was based on the premise that the left SD governments of the central German states of ‘Red’ Saxony and Thuringia could be transformed into bastions of revolution. In many factories the KPD military organisation, the M-Apparat, began openly organising armed defence squads known as the Proletarian Hundreds. The central government moved quickly to demand they surrender their arms within three days. The ultimatum was ignored. On 21 October troops entered Saxony.[58]
In Saxony the left SD government refused to back armed resistance and rather than call for a general strike, abandoned office. The KPD hastily called a trade union conference in the great workers’ city of Chemnitz to launch the call for a national general strike. Invited to sit on the platform was SD Minister of Labour Georg Graupe who, when time came to vote for the strike, opposed the proposal on the grounds that it was unconstitutional! A poorly supported general strike simply petered out, the KPD leaders abandoned the plans for an insurrection, and the German October ended not with a bang but a hic-cup.[59]
The consequences had a much bigger impact on the political situation in Russia than in Germany. During the summer and early autumn of 1923, an internationalist, revolutionary fervour had shaken the Party. Meetings, banners and articles celebrated the approach of the German October and the end of the isolation of the Soviet Union. The younger generation responded with revolutionary enthusiasm and under their stimulus the Party temporarily revived. But the shock of the defeat of the German Revolution without a struggle and the disillusion it provoked, reverberated through the discussions in the Russian Party. The disillusionment, all the deeper because the Russian leaders had presented the victory of the revolution as guaranteed, was to weigh heavy on the morale and confidence of the Bolsheviks, strengthening the isolationist and inward-looking tendencies, to the great benefit of Stalin.[60]
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Segal, R. The Tragedy of Leon Trotsky, Peregrine Books, 1983, p232/3.
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Souvarine, B. Stalin, a Critical Survey of Bolshevism. 1939, w.m.org.
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Daniels, R.V. The Conscience of the Revolution, Harvard U. P., 1965, p424.
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