The Battle over the Draft
By
Leon Aron
Posted: Thursday, July 28, 2005
RUSSIAN OUTLOOK
AEI Online
Publication Date: July 28, 2005
This essay is available here as an Adobe Acrobat PDF.
Summer 2005
On December 29, 2004, Russia's minister of defense, Sergei Ivanov, announced plans to eliminate draft deferments for college students. Predictably, the popular reaction was so uniformly negative and furious that the abolition of deferments has been postponed--but not eliminated from the Kremlin's agenda.
This confrontation between the state, determined to preserve the draft, and the society, which fears and detests it, is only the most recent clash over the three-century-old institution--and it will not be the last. For the draft is one of the last vestiges of the formerly omnipotent Soviet state, the epitome of the absolute command over society it wielded with mindless and often self-defeating cruelty.
Post-Soviet Russia's break with the past will not be complete without the shedding of the conscript armed forces. For that reason alone, the political battle over the draft is worth watching carefully as a weather vane of Russia's direction.
The Long Roots of the Draft
Until the late 1980s, the paramount goal of the Russian and Soviet states for almost three and a half centuries was expansion and defense of the empire. The very birth of a modern Russian state under Peter the Great (1698-1725) was in many respects an extension of Peter's principal goal of building a modern--by eighteenth-century standards--army. From the construction of St. Petersburg on the bones of countless serfs to forbidding male nobles to marry until they passed rudimentary arithmetic and geometry exams, Peter's reforms were ultimately aimed at winning wars. Over two centuries later, Stalin's even bloodier "revolution from above"--which robbed and enslaved the peasants and introduced breakneck industrialization--was also justified by war preparation.
Introduced by Peter in 1705, the conscription law required every twenty peasant households to provide one draftee who would serve in the tsar's army for thirty years. It was the first systematic military induction in Europe, where kings relied mostly on mercenary armies. Until the French Revolution almost a century later, Russia remained the only European country with compulsory military service. Even then, however, Russia's army continued to be the largest in the world.
The system survived unchanged until 1874 when, as part of the reforms of Alexander II, the length of service was drastically reduced and all male citizens, regardless of social class, became eligible for conscription.
After seizing power in 1917, the Bolsheviks were initially determined to rely on a "volunteer army of workers and peasants." Yet already a year later, amidst a raging civil war, the chairman of the Revolutionary Military Council, Leon Trotsky, introduced universal conscription--buttressed by instant executions of deserters (sometimes entire platoons, companies, or even regiments), draft evaders, and violators of discipline. Thus secured, the seemingly inexhaustible supply of poorly trained, poorly fed, poorly armed but multitudinous conscripts made the complete disregard for soldiers' lives a cornerstone of Soviet military doctrine. In the "human wave" strategy, the enemy was to be overwhelmed by relentless attacks until victory was achieved--regardless of the casualties.
Because of conscription the Soviet Union survived the disastrous first two years of the war with Nazi Germany, when up to 5 million Soviet soldiers were estimated to be killed or captured in 1941 and 1942. (According to various estimates, the Soviet troops lost between five and ten soldiers for each German casualty.)
Thus, just as the victory over Napoleon in 1812-1814 appeared to the tsarist court and the generals to have vindicated Peter's century-old rekrutchina (military conscription), so did the vanquishing of Nazi Germany confirm to the Soviet leadership the essential soundness of the social organization in which the glory of the country was equated with the might of its army; the society's key reason for existence was to supply the armed forces with whatever was necessary in blood and treasure; and conscription was the backbone of the army.
Revolutionary Demilitarization
One of the most palpable results of the democratic anti-Communist revolution of 1991 was an unprecedented demilitarization for a country not defeated on the battlefield or occupied by the victors. Under Russia's first post-Soviet president, Boris Yeltsin, defense spending was slashed by 90 percent, from at least 30 percent of the GDP to between 2 to 3 percent. Between 1992 and 2001, the 2.7 million troops that Russia inherited from the Soviet Union's 5-million-strong armed forces were reduced by half to 1,365,000.[1]
Throughout the Yeltsin era, the end of the draft and the creation of professional armed forces were among the reformers' main objectives. Volunteer ("contract") service by privates and sergeants was introduced on December 1, 1992. Adopted by a referendum a year later, the new constitution recognized the right of conscientious objection and guaranteed the objectors alternative (nonmilitary) service. In May 1996, Yeltsin signed a decree ordering the transition to all-volunteer armed forces and the abolition of draft by the spring of 2000.
Yet every attempt to switch to a professional army was scuttled by the lack of funds to pay competitive salaries to volunteer soldiers2 and by the fierce resistance of the generals and their supporters among the leftist "popular-patriotic" plurality in the 1995-1999 Duma, who viewed the abolition of the draft as treason. Unable to collect taxes--and thus impoverished like every revolutionary government before it--and unwilling to take on yet another battle against the "patriots" amidst the endless economic and political crises, the Kremlin failed again and again to dispose of the draft.
Why the Brass ResistsThe Prison and the Torture Chamber
Russia's new military doctrine no longer views the United States and NATO as the enemy. Gone, too, are the commissars (
politruks), and with them the indoctrination sessions in communist ideology and the evils of imperialism, conducted in the ubiquitous "Lenin's rooms" at every military base. Yet the Soviet-style draft still daily reproduces the Soviet-style army, which humiliates and torments the conscripts.
The unbridgeable gap in status and education between officers and the conscripts in the tsarist army, so vividly portrayed in the stories and novels about the Russian imperial army by Leo Tolstoy and Alexander Kuprin, did not diminish in the Soviet Union. In the absence of professional noncommissioned officers (especially veteran sergeants who play such a central role in the U.S. Army's socialization of the men, the inculcation of skills, and respect for authority and regulations), the Russian army barracks are ruled by the second-year draftees, known as
dedy, or "grandfathers."
The result is a monstrous routine called
dedovshchina--the word that strikes terror in the hearts of millions of Russian parents and their draft-age sons and forces them to seek any and all means to avoid conscription. Entirely at the
dedy's mercy, the draftees are brutally hazed, forced to perform meaningless and degrading tasks, and robbed of their personal possessions, money, and food parcels. The daily humiliation and often savage beatings of first-year recruits have been recorded in harrowing detail in letters smuggled out of bases and given to kind civilians to mail. Sometimes they reach the aggrieved and outraged parents after the sender has already died from abuse, committed suicide, or disappeared without a trace.
According to Defense Minister Ivanov, during a ten-month period in 2002, 531 soldiers were killed in noncombat situations,[6] including one-third by suicide.[7] Yet the national anti-draft organization, the Committee of Soldiers' Mothers, estimated the total number of
dedovshchinadedy, while the officers routinely cover up these crimes. A leading advocate of military reform, former first deputy prime minister Boris Nemtsov, has claimed that the total number of abused every year is closer to 20,000.[10]
Desertion is rampant. According to the deputy chief of General Staff, 2,270 servicemen fled their units between January and June 2002. The Soldiers' Mothers estimate that 40,000 soldiers per year desert or attempt to desert--a number which represents about one in fifteen of all conscripts serving at the time.[11] In August 2002, two soldiers deserted in Chechnya after murdering eight comrades in retaliation for systematic hazing. In another case that attracted national attention three years ago, fifty-four soldiers left their units' firing ranges and marched thirty-five miles to a Soldiers' Mothers chapter in the southern city of Volgograd in order to protest regular beatings by the officers.
Resistance and Draft Dodging
Along with airing many other dirty secrets of the Soviet regime, the liberalization of the late 1980s resulted not only in public awareness of the horrors of
dedovshchina, but the emergence of informal support groups of the mothers of conscripts who were killed, maimed, vanished, or deserted from their units. Soon, the Committee of Soldiers' Mothers became one of the largest, best-organized, and most active civic organizations, now consisting of nearly three hundred local branches throughout the Russian Federation. By publicizing the abuse, the organization seeks to force the authorities to abide by the laws and to reform the armed forces. The Soldiers' Mothers also provide legal services and counseling on deferments, arrange medical consultations in the cases where exemptions were not granted despite illness or deformity, as well as bring lawsuits against the Ministry of Defense.
Yet tens of thousands of future conscripts and their relatives still choose to bypass the system rather than to challenge it. Bribery is pandemic, as parents and grandparents pool resources to pay off college officials in order to ensure college entry and the deferment. President Vladimir Putin's representative to the G-8, Igor Shuvalov, estimates that Russians spend some $7 billion a year on bribes to get their children into institutions of higher education,[12] much, if not most of the sum, going to shielding boys from the army. Members of medical commissions are routinely bribed to disqualify a draftee as physically unfit.
Some of the future conscripts' relatives have even called for a kind of a "draft tax"--with the price of deferral officially established and payable to the state instead of going to bribes--to help fund a professional army. Speaking in support of the scheme, the mother of a thirteen-year-old boy from Rostov-on-the-Don recently told a major Russian daily that her "buy-out" money could then be used to "pay [to feed, to house, and to equip] a boy who is in good health and wants to serve in the army."[13]
The Chechnya Factor. The first Chechen war (1994-1996) turned the dread and loathing of the draft into near hysteria. Assured by then-defense minister Pavel Grachev and his generals that a victory over the Chechen separatists could be achieved by "a battalion" of Russian troops, President Yeltsin ordered the December 1994 assault on the capital of the breakaway province, Grozny.
The result was a massacre of the raw, untrained draftees, thousands of whom were trapped in the streets and mowed down by machine guns and grenade launchers, as the Russian commanders kept sending more and more troops into the ambush. The official estimates of the casualties in the first Chechen war vary between 4,000 and 5,500. Independent observers put the number at 8,000 killed, and the Soldiers' Mothers, at 14,000.[14]
The prospect of dying in Chechnya increased draft avoidance many-fold, turning into resisters even those groups of youths that ordinarily served willingly (mostly from villages and smaller towns). With terror and fear--the key instruments of totalitarian control--having melted away, hiding from the draft was no longer impossible. Many of those who failed to obtain college deferments or medical disqualifications simply did not bother to reply to the summons; others "went underground" by moving in with distant relatives or friends; still others, who were served the summons, failed to present themselves at the collection points on the day of the draft.
Two months after Yeltsin's reelection in July 1996, Russia signed a peace agreement with the Chechen leaders. Chechnya was granted de facto independence, and by January 1997, not a single Russian soldier remained on its territory.
Yet the end of the war was not enough to diminish the fear of the draft. Today, an estimated 30,000 to 40,000 young men ignore the call-up letters.[15] In recent years, the military has managed to draft no more than 11 percent of all eligible men. The quality of the draftees, now virtually void of middle-class youths, has also deteriorated drastically, as the military is compelled to draft those who can barely read, have criminal records, or use drugs.[16]
Junior Officer Exodus. Just as importantly, the radical demilitarization of state and society, as well as the first signs of economic revival after the crisis inherited from the Soviet Union, resulted in an exodus of junior and mid-level officers. In contrast to the Soviet days, when their salaries were among the highest and they had priority in the allocation of scarce apartments, these officers were no longer part of Russia's most prestigious institution. They began leaving the army in droves. Almost one-third of all officers who retired from the armed forces in 2000 were under the age of thirty.[17] By 2002, nearly half of all platoons were without leaders.[18]
The already-limited involvement of junior officers in the daily life of the barracks diminished even further, and the reliance on
dedovshchinaThe Second Chechen War. Coinciding with Putin's appointment as prime minister of the Russian Federation in August 1999, the second Chechen war, which began with the invasion of the Russian province of Dagestan by Chechen militants seeking to establish the "Islamic Republic of Northern Caucasus," further highlighted the inadequacy of the draft-based system. Although, like Yeltsin before him, Putin had been told that the battle-ready troops stood by waiting for his command to attack, it took almost a month for the federal units to gather and drive at most 1,000 to 2,000 invaders back into Chechnya. As Putin's angrily acknowledged three years later, "There was nobody to send to war."[19]
Mindful of the bloody fiasco in December of 1994, the Ministry of Defense (MOD) sought to mollify public opinion by substituting volunteer contract soldiers (
kontraktniki) for some draftees in the battlefront units. Attracted by the promise of a monthly salary of nearly $1,000 (or, at the time, about three times the average national wage),
kontraktnikiPutin: A Familiar Trajectory
Regarding the draft, Putin's behavior fits the broader pattern of his regime: from the seemingly enthusiastic adoption and implementation of the key Yeltsin-era structural reforms, which had been blocked by political opposition or impeded by the state's empty coffers,[20] to a slowdown after the first two and a half years, followed by freeze and, in some areas, reversals after Putin's 2004 reelection.
The newly elected president came out swinging in November 2000, when the Kremlin announced, without specifying the deadline, a reduction of the armed forces by 470,000 men and the retirement of 380 generals after the cuts were implemented.[21]
Half a year later, around the first anniversary of his presidency, Putin declared that a "professional army is the goal to which it is possible and necessary to strive. . . . I think we can gradually reduce the draft and bring it to the minimum . . . around 2010."[22]
The Kremlin's show of solidarity with the United States after the September 11, 2001, terrorist attacks highlighted a radical change in Russia's strategic environment and the need for an overhaul in the composition and structure of its armed forces. Overruling his generals (and the Ministry of Foreign Affairs), Putin declared support for the U.S.-led war on Islamic terrorism. He ordered intelligence and logistic cooperation in preparation for the U.S. war on the Taliban regime in Afghanistan and allowed the unprecedented overflight of Russia's territory by U.S. and NATO transport planes, as well as the deployment of U.S. and NATO troops at former Soviet bases in Central Asia. A month later, the president's press service announced that Putin had approved a plan to "phase out the conscription system" and "go to a contract army."[23]
In November of the same year, the president seemed to endorse the "fast track" program, advocated by the then co-chairmen of the Union of Rightist Forces (SPS), Boris Nemtsov and Yegor Gaidar,[24] when he invited them to take part in a Kremlin meeting with the leadership of the MOD and the General Staff. The president ordered the government to prepare a comprehensive reform program for his review no later than July 1, 2002. In April 2002, in his "State of Russia" address to the Federal Assembly, Putin for the first time presented the transition to an all-volunteer military as his top priority.
IraqApplying the Breaks. Lessons of Iraq notwithstanding, the Kremlin was already beating a retreat. When it was finally adopted in July 2003 (a year after Putin's original deadline), the "Special Federal Program to Transform the Staffing of the Armed Forces Primarily with Contract Servicemen" did call for the reduction of service from two years to one and for the introduction of the professional sergeants, yet the program set no date for the end of the draft. Instead, it envisioned fully replacing only 145,500 conscripts (or around 21 percent of the 700,000 drafted privates and sergeants currently in the army) with volunteers in eighty "combat ready" units by 2007.
A year before, the pro-Kremlin majority in the Duma made a mockery of the "Law on Alternative Service." Conscientious objectors were to serve three and a half years instead of two for conscripts. They would have no say in the choice of occupation and would most likely serve outside their home regions and possibly within military units--where they were certain to be brutally hazed.
Defying Public Opinion and Keeping the Draft. In refusing to eliminate the draft, the Kremlin defies the longstanding and strong preference of a vast majority of Russians. In a national poll a year ago, 87 percent of Russians thought that "youths today do not want to serve in the army."[26] Asked, in early 2005, if they wanted to see their son, brother, husband, or another close relative serve in the armed forces, 67 percent of Russian citizens said no, and only 28 percent answered in the affirmative.[27] In the same poll, 62 percent of the respondents supported the transition to contract armed forces, as compared with 31 percent who wished to preserve the draft.[28]
Yet so apparently determined is the regime not to allow any significant force reduction that it is willing to change the arrangement that has been in place for half a century. With the approaching 2007 deadline for reducing the term of conscription from two years to one year, Defense Minister Ivanov--who is President Putin's confidant and putative successor--announced that he intended to scrap college deferments in order to make up for the halving of the numbers of conscripts serving at any given moment.
Even leaving aside the waste and ineffectiveness associated with a mostly conscripted force, Ivanov's arithmetic is suspect. According to the July 2003 "Program," in the year 2007
kontraktniki are supposed to replace 145,000 conscripts and, a year later, the armed forces are to be reduced by 200,000,[29] thus making the increase in the call-up unnecessary.
Nor can the transition to a fully volunteer army be any longer excused by a lack of funds. Although the changeover is estimated to cost $4.3 billion,[30] with the prices of oil reaching $60 a barrel, Russia clearly can afford it. What better use could there be for some of the $33 billion "stabilization fund," built on oil superprofits, or for the record $149.6 billion in foreign currency and gold reserves in Russia's Central Bank?
Between 1999 and 2003, the defense budget more than doubled and grew again by 28 percent in 2005. Yet, the MOD has been stinting where increased spending was most needed: the salaries of the future
kontraktnik's are still below the minimum necessary to attract a sufficient number of volunteers.[31]
Retreat and Counterattack. It is hard to think of a more explosive social issue in today's Russia than the elimination of draft deferments, which could overnight turn millions of college students and their largely middle-class parents into political opposition and, perhaps, send them into the streets. When asked in February 2005 whether deferments should be granted to college students, 83 percent of those surveyed agreed.[32] Moreover, a plurality of Russian citizens (46 percent) believes that the changes in the draft exemptions must be decided not by a government decree, but by a national referendum.[33]
The Soldiers' Mothers, who in late 2004 forged a political party, quickly began collecting signatures for a national referendum on the draft, exemptions, and the transition to a professional army. Facing a nightmarish scenario of students and their parents joining the retirees, who at the time were demonstrating in every major city against the necessary but bungled monetization of in-kind social security benefits, the government retreated. Ivanov promised to keep deferments in place "for now."
On the principle of conscription, however, the government remains unyielding. Ivanov has already declared that conscription as such will never be completely phased out. Resuming the offensive in June of this year, the MOD declared that, instead of abolishing college deferments, the state will achieve the same objective by closing down the so-called "military departments" in 199 out of 229 Russian colleges and universities.[34] These "departments" conduct military training and confer the ranks of junior officers on graduates, thus shielding them from being drafted as privates.
A Battle for Democratic Control
With the government flaunting public opinion and all but goading the middle class and college students, Alexander Golts was right to surmise that "the contract army may be one of the hottest issues in the next presidential campaign."[35]
Yet the matter is much broader than a proximate political battle. After the radical demilitarization of post-Soviet Russia, the society and the economy are no longer mere resource appendages to the military-industrial complex at the service of an expansionist totalitarian state. The impoverished, abusive, and dehumanizing conscript army is too heavy a baggage to carry into a peaceful, democratic, and prosperous Russia in which most Russian people would like to live.
The draft is a symbol of the contest between the Russian state and the society for democratic control over a central institution: the armed forces. It is here that the Kremlin, now in the throes of counter-revolutionary restoration, has chosen to make a stand. The outcome of this clash will go a long way to defining Russia's path for years to come.
Leon Aron is a resident scholar and the director of Russian studies at AEI.
Notes
1. See, for example, Dale Herspring, "Putin and Military Reform," in
Putin's Russia, ed. Dale Herspring, 189 (New York: Roman & Littlefield, 2003).
2. In 1993-1995, some 50,000 contract soldiers left the army because of the low pay, with their salaries less than twice the national subsistence minimum. See, for example, Herspring, "Putin and Military Reform," 191-192.
3. Fred Weir, "In Russia, An Army of Deserters,"
Christian Science Monitor, September 30, 2002.
4. Alexander M. Golts and Tonya L. Putnam, "State Militarism and Its Legacies,"
International Security 29, no. 2 (Fall 2004): 154.
5. Alexander Golts, "Militaristy otstupili? Net, oni manevriruyu" [Have the militarist retreated? No, they are maneuvering]
Ezhenedel'nyi zhurnal, January 20, 2005.
6. Golts and Putnam, "State Militarism," 148.
7. Vladimir Isachenkov, "Russia Battles Hazings, Desertions in Military,"
Los Angeles Times, October 13, 2002.
8. Ibid.
9. Sharon LaFraniere, "Russia's Battered Military,"
Washington Post, May 20, 2001.
10. Vladimir Voronov, "Reforma: po generalski ili po umu" [The reform: according to the generals or according to logic] interview with Boris Nemtsov,
Novoe Vremya, August 3, 2003.
11. Weir, "In Russia, An Army of Deserters."
12. Judith Ingram, "Kremlin Adviser Says Russia is Vital to G8,"
Moscow Times, July 1, 2005.
13. "Vypusknikov vuzov zastavyat sluzhit' v armii" [College graduates will be forced to serve in the army]
Izvestia, June 10-12, 2005.
14. Diederik Lohman, "Russia,"
Human Rights Watch Report 14, no. 8 (November 2002): 6-7.
15. Golts and Putnam, "State Militarism," 136; and Lohman, "Russia," 7.
16. In 2003, Boris Nemtsov estimated that 15 percent of the draftees had difficulty reading and writing, while one-fourth experimented with drugs (Voronov, "Reforma," 9).
17. Leonid Polyakov, "Military Reforms in Russia,"
Toward Understanding of Russia, ed. Janusz Bugajski (New York: Council on Foreign Relations, 2002), 89.
18. Ibid.
19. As quoted in Golts and Putnam, "State Militarism," 135.
20. Among the measures backed by Putin's sky-high popularity because of economic revival, the rapidly growing Treasury revenues from rising oil prices, and the results the 1999 Duma elections that for first time since 1993 produced a pro-Kremlin and pro-reform plurality in the parliament, were the flat 13-percent income tax, privatization of urban and later agricultural land, the progressive Criminal Procedural Code, the creation of private pension accounts, and the laws on breaking up and privatizing the government electricity monopoly.
21. Maura Reynolds, "Putin Order Cuts Military by 600,000,"
Los Angeles TimesEuropean Security 12 (2004): 56.
24. The SPS program envisioned the abolition of the two-year conscription from spring 2002 and its replacement with a six to eight months training course. The transition to an all-volunteer force was to be finished by the fall 2002. The plan called for competitive salaries for the volunteers, private pensions, and free college education. "Voennaya reforma" [Military reform]
Vestnik (Institute of the Economies in Transition), November 8, 2002; and Voronov, "Reforma," 9-11.
25. Discussion between author and Russian pollster, March 25, 2003.
26. Public Opinion Foundation, "O sluzhbe v armii," [About the service in the army] national poll, July 3-4, 2004,
http://bd.fom.ru/report/cat/socieas/army/d042711 (accessed on February 4, 2005).
27. Levada Center, "Rossiyane ne khotyat, chtoby ikh blizkix prizyvay v armiyu" [The Russians don't want for their close relatives to be drafted into the army] nationwide poll, January 21-24, 2005,
http://www.levada.ru/press/2005020902.html (accessed on Feb. 4, 2005).
28. Ibid.
29. Golts, "Militaristy otstupili?"
30. Herspring, "Putin and Military Reform," 196.
31. "Voennaya reforma."
32. Public Opinion Foundation, "Armeyskaya sluzhba I otsrochki dlya studentov" [The army service and the deferments for students] February 10, 2005,
http://bd.fom.ru/report/cat/societas/army/d050616 (accessed on March 1, 2005).
33. Levada Center, "Rossiyane ne khotyat."
34. "Vypusknikov vuzov zastavyat sluzhit' v armii."
35. Golts, "The Russian Volunteer Army," 62.