It had been Stalin who drew up the decrees recognising the Soviet republics in Estonia, Latvia and Lithuania in December 1918.5 He accepted them as a temporary expedient; later he referred to this as a policy of ‘national liberalism’.6 Practical implementation was tricky. There was a shortage of local Bolshevik leaders and activists, and often those Bolsheviks who came from the locality were Jewish rather than of the titular nationality. Stalin was brought into the discussion even when he could not attend sessions in the capital. He was given the right of personal veto over whether to designate the Hümmet organisation as the new Communist Party of Azerbaijan. Only Stalin was thought to know whether the Hümmetists could be trusted as the territorial power.7 As the Civil War drew to an end, the question arose of the permanent constitutional future. Stalin had no doubt. Until then there had been bilateral treaties between the RSFSR and the Soviet republics. These had been tilted in favour of the RSFSR’s hegemony; and in any case the Party Central Committee controlled the communist parties in those other republics.8 A centralised state run from Moscow was already a reality. Stalin wished to bring the governmental structures into line with those of the party by incorporating the Soviet republics in the RSFSR.
Initially he got his way. The ‘union treaty’ negotiated between the RSFSR and the Ukrainian Soviet Socialist Republic after the Civil War unified their People’s Commissariats in military, economic and transport affairs — and the RSFSR People’s Commissariats were given authority over the Ukrainian ones. Yet the Central Committee stopped short of approving his fundamental objective of comprehensive incorporation.9 Kamenev was his chief opponent on that occasion. But Lenin too became a critic. A fault-line in their long-lasting collaboration was being disclosed. Lenin had drawn the conclusion from the history of the Civil War that the formal constitutional concessions to the borderlands had to be maintained. Soviet republics in Ukraine and elsewhere had to be preserved. What Stalin desired was to expand the RSFSR and turn Ukraine into one of its internal ‘autonomous republics’. An immense dispute was in the making.
The establishment of autonomous republics had begun in the Civil War, and the policy was widely implemented from 1920 as the nationalterritorial principle of local government was extended to the Bashkirs, the Tatars, the Kirgiz, the Chuvash, the Mari, the Kalmyks, the Vots and the Karelian Finns.10 This was not achieved without controversy. The granting of authority to indigenous national and ethnic groups annoyed the Russian inhabitants of autonomous regions and provinces who felt they were being reduced to second-class status as citizens of the RSFSR. Yet the Politburo bent over backwards to be seen to enhance conditions for non-Russians. Not a few towns with a mainly Russian population were included in an autonomous republic specifically so that the republic might become economically and administratively self-standing.11 All this made for complex discussions in Moscow, and easy answers were seldom on offer. The Bolsheviks were trying to de-imperialise an old empire without allowing its disintegration into separate nation-states. There were no models to copy. They were setting the precedent, and Stalin was the Politburo’s acknowledged specialist in this matter.
His involvement was often a troubled one. The Tatar–Bashkir Republic, installed in the RSFSR in 1919, had quickly come to grief. The Tatars and the Bashkirs were not the best of friends, and the local Russian residents disliked feeling excluded from influence. Inter-ethnic violence scarred the entire region. The Red Army had to be deployed to restore order and Stalin reasonably decided that the Tatars and Bashkirs should have separate national-territorial units. The basic orientation of policy was maintained. Stalin went on establishing autonomous republics even if this meant offending the local Russians.12
