Federalism and Local Politics in Russia
Federalism and Local Politics in Russia
Federalism and Local Politics in Russia
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2 Vladimir Gel'manconclusions on the mean<strong>in</strong>g <strong>and</strong> significance of recentralization for the<strong>Russia</strong>n political system. 1Federal Reform: the sw<strong>in</strong>g of the pendulumDecentralization <strong>in</strong> <strong>Russia</strong> dur<strong>in</strong>g the 1990s was anyth<strong>in</strong>g but the result of aconsidered policy from the federal Centre. It was more a side-effect of thetransformational processes that <strong>in</strong> <strong>Russia</strong> were accompanied by sharp <strong>in</strong>tereliteconflict, a severe <strong>and</strong> susta<strong>in</strong>ed economic collapse, <strong>and</strong> a serious fall<strong>in</strong>gaway of state capacity. These processes did have their effects on <strong>Russia</strong>’sregions, not directly, but rather through two closely related trends.First, the decades of soviet (<strong>and</strong> pre-soviet) development had left theirlegacy <strong>in</strong> terms of centre–regional relations <strong>and</strong> <strong>in</strong> the development of theregions themselves. The soviet model of regional adm<strong>in</strong>istration was strongly<strong>in</strong>cl<strong>in</strong>ed towards hierarchical centralization of power <strong>and</strong> resources, heldtogether by the vertically <strong>in</strong>tegrated structures of the CPSU <strong>and</strong> the USSRlevelm<strong>in</strong>istries <strong>and</strong> agencies, <strong>in</strong>clud<strong>in</strong>g the security sector (army, police <strong>and</strong>KGB). In the regions, depend<strong>in</strong>g on adm<strong>in</strong>istrative status (republic, krai,oblast'), level of socio-economic modernization, pattern of settlement, sectoraleconomic profile <strong>and</strong> a number of other historically acquired factors,the conditions were created for particular types pf political <strong>and</strong> economicrelation <strong>in</strong> the post-soviet period. Therefore the decentralization of the 1990s<strong>and</strong> the recentralization of the 2000s were path-depend.Second, different critical junctures <strong>in</strong> the process of <strong>Russia</strong>n transformationopened up different ‘w<strong>in</strong>dows of opportunity’ for political actors, thebalance of forces between whom, <strong>and</strong> their motives, were to <strong>in</strong>fluence thecharacter of Centre–regional relations.This ‘legacy’ bequeathed a constra<strong>in</strong><strong>in</strong>g framework which set limits to thechanges that could occur <strong>in</strong> Centre–regional relations, but did not determ<strong>in</strong>ethem: the vector of these changes was largely the result of specific steps takenby <strong>Russia</strong>n politicians. 2The effects of path dependency <strong>and</strong> the <strong>in</strong>fluence of political actors onCentre–regional relations <strong>in</strong> the 1990s have been described <strong>in</strong> some detail <strong>in</strong>the literature. Commentators have noted the role of the ethnic model offederalism, established by the Soviet regime, 3 of disparities <strong>in</strong> socioeconomicdevelopment between regions, 4 of the un<strong>in</strong>tended consequences ofthe fall of the Soviet Union, which left <strong>in</strong> its wake ethno-political conflicts <strong>in</strong><strong>Russia</strong>’s regions, 5 <strong>and</strong> of the serious weaken<strong>in</strong>g of the adm<strong>in</strong>istrative capacityof the Centre <strong>in</strong> its relations with the regions. 6 The struggle between elites atfederal <strong>and</strong> regional levels for resources <strong>and</strong> spheres of <strong>in</strong>fluence, the Centre’sattempts to w<strong>in</strong> over the regions to its side <strong>in</strong> electoral campaigns, 7 <strong>and</strong>similarly the vary<strong>in</strong>g constellations of elites at the level of each region 8 haveall left their stamp on these processes. In summariz<strong>in</strong>g the evaluations ofdifferent commentators on Centre–regional relations <strong>in</strong> <strong>Russia</strong> <strong>in</strong> 1991–8,one may identify the follow<strong>in</strong>g trends: