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Disagreements on management procedures and policy arise at the 
various levels of the Soviet structure. Conflict can develop between 
government and party leaders, between the ministries and the Central 
Government, between different ministries, and within ministries over 
the allocation of resources and policy choices. The Soviet political 
system “. . . is a huge bureaucratic arena in which bureaus compete, 
bargain, and negotiate to such a degree that although all are officially 
subordinate to one central leadership there is virtually no sphere of 
administration immune from bureaucratic politics.”’”° 
One can refer again to the case of the 1955 dismissal of Admiral 
Kuznetsov, whose views on naval development differed sharply with 
Khrushchev’s and, perhaps, those of other Politburo members. There 
is also the well-documented case of Soviet Minister of Agriculture 
Matskevich deliberately and openly opposing and blocking some of 
Khrushchev’s agricultural programs. Matskevich had contact with and 
the support of some other party leaders. The struggle he waged with 
Khruschev went on for several years until Matskevich was dumped 
in 1961. He was again restored to office after Khrushchev’s deposal.”! 
Disagreements and debates between top party leaders and central 
planners over policy and resource allocation have been occurring since 
the beginning of Soviet rule. 
There are substantial examples in the Soviet press of criticism of 
administrative inefficiency or production problems and _ disputes 
between ministries. Most of these are simply problems of management. 
Many of the disputes, however, indicate strained operating relations 
that have direct policy implications. In the case of water pollution, 
which will be discussed in greater detail in a further study, fisheries, 
conservation, and recreation interests frequently clash with polluters, 
such as offshore drilling facilities, shipping, and industrial and public 
facilities that dump wastes and do not observe legal provisions for 
installing water purification equipment. And, while some fishery sec- 
tors strongly promote increased controls over polluting activities, 
others are criticized by conservationists for their laxness. 
Another case of ministerial dispute is displayed by an argument 
that erupted in the technical press in 1972 over allegations of the 
superior status of the Ministry of Maritime Fleet. The merchant 
marine’s contempt toward other maritime services, and the emotions 
aroused by the problem of who has the right to wear the seaman’s 
uniform may well run across the board on other topics. A series 
of articles was published in almost every issue of the journal of the 
Ministry of Maritime Fleet under the heading ‘“‘Your Uniform Sailor.” ” 
The series began by proclaiming the exclusive privilege and rights 
of merchant fleet seamen to wear the distinctive and popular uniforms. 
This view elicited angry objections from fishery and other maritime 
workers. The editors noted that letters came from seamen and shore 
workers of the Ministry of Maritime Fleet and the Ministry of Fisheries 
expressing various points of view on this subject and other related 
questions. The letters presented different points of view but agreed 
7 William Taubman, “Governing Soviet Cities Bureaucratic Politics and Urban Development in the 
U.S.S.R.” (New York: Praeger, 1973), pp. 5-6. 
™ This incident, and the remainder of the agricultural debate is well documented in Hahn; and Sid- 
ney I. Ploss, ‘‘Conflict and Decision Making in Soviet Russia: A Case Study of Agricultural Policy 
1953-1963” (Princeton: Princeton University Press, 1965). 
7 The series appeared in Morskoi Flot, 1972. 
