226 
enterprise is owned and operated by the state. The Government has 
primary responsibility for the bureaucratic routine of economic ad- 
ministration and takes decisions on technical matters, resource alloca- 
tion, and implementation of higher policy directives—the mundane 
tasks of noncrisis management.**? These tasks involve both the imple- 
mentation and initiation of policy since Government agencies prepare 
studies, formulate recommendations, in many cases, participate in the 
selection of a choice between options and, then, implement the deci- 
sion. 
The component elements of the government include the Supreme 
Soviet, the Presidium of the Supreme Soviet, the Council of Ministers 
and its Presidium, ministries and state committees, and the lower 
level government administrative subdivisions and enterprises. The main 
focus of this section will be on the responsibilities and powers of 
ministries and state committees under the Council of Ministers that 
have a role in ocean policy. But first, a quick look at the other 
government sectors that may participate in ocean policymaking and 
management. 
THE SUPREME SOVIET 
The Supreme Soviet meets twice a year from 3 to 5 days at a 
time and in 1970 had 1,517 members. It has two chambers, the 
Soviet of the Union and the Soviet of the Nationalities. The Supreme 
Soviet is designated the highest organ of state power and has the 
exclusive right to legislate. Its powers are more ceremonial than real, 
and the sessions are used to appraise government activity, explain 
actions, and promulgate legal decisions. The Supreme Soviet has 
passed legislation on the environment and oceans. 
The Presidium of the Supreme Soviet consists of a Chairman, 
Deputy Chairmen and other members, and has highly overlapping. 
membership with the Communist Party Central Committee. Politburo 
member Nikolai Podgornyi is the Chairman, and he serves as the 
titular head of state. The Presidium is to act as a continuously operat- 
ing body at the summit of the Soviet structure and frequently serves 
as a legislative organ between sessions of the Supreme Soviet.*? 
Much of the Supreme Soviet work in the ocean field may take 
place in the Permanent (also referred to as Standing) and Ad Hoc 
Commissions established to assist in legislation and investigation. The 
Permanent Commissions are assigned the role of monitoring com- 
pliance with the laws of the U.S.S.R. and Supreme Soviet decisions 
and examining draft legislation. They meet regularly between Supreme 
Soviet sessions, prepare summaries of draft plans and their amend- 
ments, as well as other items to be discussed by the Soviet session.”* 
They can call for public discussions of pending legislation, request 
documents, data and policy statements from all levels of ministries 
and departments, and oblige their directors to appear at commission 
4°The primary purpose of the 1957 industrial reform was to increase the party’s operational role in 
economic management. It did not work. See Conyngham for a description of Khruschev’s attempts to 
extend party control over the managerial bureaucracy. William J. Conyngham, “Industrial Manage- 
ment in the Soviet Union: The Role of the CPSU in Industrial Decision-Making, 1917-1970” 
(Stanford, California: Hoover Institution Press, 1973), p. 113 ff. 
5° Robert Conquest, ed., ““The Soviet Political System”’ (London: Bodley Head Ltd., 1968), p. 67. 
51““Supreme Soviet Commissions to Study 1976 Plan,’’ Domestic Service in Russian. In FBIS, 
November 10, 1975, p. R. 1. 
