After the Congress, Lenin asked Stalin to secure the control of Lenin’s group over the central party apparatus. Because of his other obligations — in the Politburo, the Orgburo, the People’s Commissariat for Nationalities’ Affairs and the Workers’ and Peasants’ Inspectorate — this was not going to be his prime task but would add substantially to his heavy workload. It was with some reluctance that he agreed to supervise the Department of Agitation and Propaganda in the Central Committee Secretariat.3
This aspect of political activity, though, was vital for a ruling party in a state dedicated to imposing a single ideology. Among the problems was the large number of institutions involved. The most influential was the People’s Commissariat of Enlightenment, whose deputy leader was Lenin’s wife Nadezhda Krupskaya. Resenting Stalin’s attempt to assert the party’s authority, she appealed to Lenin. Stalin wrote bluntly to Lenin:4
What we are dealing with here is either a misunderstanding or a casual approach… I have interpreted today’s note from you to my name (to the Politburo) as you posing the question of my departure from the Agitprop Department. You will recall that this job in agitation and propaganda was imposed on me (I was not looking for it). It follows that I ought not be objecting to my own departure. But if you pose the question precisely now, in connection with the misunderstandings sketched above, you’ll put both yourself and me in an awkward position — Trotski and others will think that you’re doing this ‘for Krupskaya’s sake’ and that you’re demanding a ‘victim’, that I’m willing to be a ‘victim’, etc. — which is undesirable.
Stalin’s patience had snapped. This was obvious in his simultaneous request to step down from the People’s Commissariat for Nationalities’ Affairs.5 He wanted and needed to be appreciated. Asking to resign was his usual way of signalling this. Lenin understood the code and backed down. Stalin was too important a member of his team to be allowed to leave.
Lenin distrusted Trotski after the trade union dispute. What also worried him was that Trotski wished to raise the influence of state economic planning in the NEP. Trotski was not the only problem for Lenin; the entire central leadership made life difficult for him. When even the head of the Soviet trade union movement Mikhail Tomski refused to toe the party line, Lenin called for his expulsion from the Central Committee.6 The leading group had not been so fissiparous since 1918. When Lenin’s request was turned down, he was at his wits’ end and did not mind saying so. The ill health of several of his comrades, as the immense physical strain of recent years took its toll, aggravated the situation. Zinoviev had two heart attacks. Kamenev had a chronic cardiac condition. Bukharin had been very poorly and Stalin had suffered from appendicitis. In the absence of these strong supporters of the NEP, Lenin alone had had to implement the measures decided by the Politburo.7 He was eager to have Stalin back at his side. Having recruited him to the Leninist cause in the trade union dispute, Lenin supported a proposal to make him General Secretary of the Russian Communist Party.
Molotov’s year in charge of the Secretariat had not been a success;8 indeed no one since Sverdlov’s death in March 1919 had got on top of the job.9 Lenin was disappointed. He and Molotov had regularly conspired at Central Committee meetings. Passing a message to Molotov, he ordered: ‘You’re going to make a speech — well, speak out as sharply as possible against Trotski!’ He added: ‘Rip up this note!’ A furious row followed between Molotov and Trotski, who knew that Molotov had been put up to it.10 Lenin’s own health gave him trouble in 1921. He doubted Molotov’s ability to rein back Trotski in his absence. Lenin concluded that a firmer grip should be applied in the Party Orgburo and Secretariat.
It was in this atmosphere that Stalin’s candidature as Party General Secretary with Vyacheslav Molotov and Valeryan Kuibyshev as his Assistant Secretaries was informally canvassed at the Eleventh Party Congress in March–April 1922. Yevgeni Preobrazhenski, one of Trotski’s allies, saw what was coming. Taking the platform, he took exception to Stalin’s multiplicity of posts.11 Preobrazhenski was complaining about the way that Stalin was accumulating excessive central power; but above all he was arguing that someone with so many posts could not carry out all his functions effectively. At any rate there was no formal decision at the Congress about the General Secretaryship; and when the matter was discussed at the next Central Committee plenum, on 3 April, the complaint was made that Lenin and his close associates had preempted debate by agreeing to pick Stalin for the job. Apparently Lenin had written ‘General Secretary’ next to Stalin’s name in the list of candidates he put forward for election to the Central Committee.12 But Kamenev smoothed things over and Stalin’s appointment was confirmed on condition that he delegated much more to his deputies in the Workers’ and Peasants’ Inspectorate (or Rabkrin) and the Nationalities’ Affairs Commissariat. The party had to come first.13
Conventionally it has been supposed that Stalin was put in office because he was an experienced bureaucrat with an unusual capacity for not being bored by administrative work. The facts do not bear this out. He was an editor of Pravda in 1917 and a policy-making intimate of Lenin immediately after the October Revolution. He had spent most of the Civil War as a political commissar. He went on military campaign in Ukraine and Poland in 1920; and although he had posts in Moscow in the Party Orgburo, the People’s Commissariat for Nationalities’ Affairs and Rabkrin, he had never had much time to devote to them. What is more, Stalin was known for his restlessness when administrative meetings in the capital were dragged out. But of course he had to sit through a lot of them, as did Lenin, Kamenev, Zinoviev, Trotski and the other leaders. They headed a state that had yet to be consolidated. Unless they saw to implementation and supervision of administrative decisions as much as to the making of policy, the state would fall apart before it was made. The reason why Lenin chose Stalin was less administrative than political. He wanted one of his allies in a post crucial to the maintenance of his policies.
Lenin stressed that the General Secretaryship was not equivalent to the supreme party leadership and that the party had never had a chairman.14 He was being mealy-mouthed. What he meant was that he himself would remain the one dominant leader. Lenin and Stalin had fallen out many times before, during and after the October Revolution.15 This was the norm in the Central Committee. Lenin had confidence that he would not lose control of things.
Stalin agreed with the broad lines of the NEP. He did not see himself as a mere administrator and freely offered his opinions across the range of debates within the leadership; and, contrary to later depictions of him, his caution in foreign policy did not reconcile him to total abstention from taking risks abroad. Even after the Anglo-Soviet Treaty of March 1921, he favoured sending military instructors and supplies to Afghanistan with the objective of undermining the British Empire.16 He also continued to regard the new Baltic states — especially Latvia and Estonia — as territories illegitimately torn away from Russia ‘which enter our arsenal as integral elements vital for the restoration of Russia’s economy’.17 The idea is false that Stalin could hardly care less if the Soviet state remained permanently isolated. He accepted isolation as a fact of political and military life that could not yet be altered. In such a situation, he considered, it behoved the Politburo to get on with post-war reconstruction as best it could until such time as fresh revolutionary opportunities abroad arose. This remained his attitude in subsequent years.