Communist State Administrative Structures

Abstract

Communist models of state administration constitute a type or “family” whose core logic and design differ fundamentally from Western standards of rule-bound, impartial, and transparent administration, at arm’s length from political control. The most significant feature of communist-type administration is the Communist Party’s aspiration to merge politics and administration in all spheres of society. The so-called nomenclature system of cadre appointment ensures that politically reliable administrators occupy the influential positions within state and local administration, the military and security sector, state-owned enterprises, associations, media, cultural life—and the Communist Party organization itself. The central nomenclature system branches out into new pyramids at lower levels, where local managers appoint cadre. The linchpin of this system is the personnel dossier, which collects the individual administrator’s political and professional evaluations and follows the individual throughout their career. A second distinguishing feature of communist administrative structures is their web-shaped complexity. Under the principle of democratic centralism, communist administration is shaped like a sheaf of hierarchical strings of command, which are all controlled from the center and monitor and influence each other. At each level, hierarchical steering takes precedence, but horizontal controls are encompassing. Administrative managers—including regional and local governors, company directors, media heads, and university chancellors—are appointed by and under their superiors’ command. Simultaneously, they are under supervision by regional and internal Communist Party organizations. A third key feature of the communist administrative model is the practice of wide-ranging secrecy. In communist administration, vital rules, decrees, and instructions can be secret, for the eyes of security-screened cadre only. For example, throughout history, the structure of nomenclature systems has been kept secret. Little is known about how they function. An important exception is the former East Germany, where historical research on many aspects of communist administration has made singular progress based on the archives, which were opened for research after democratization in 1989–1990.