exercise of power; in other words, it could not let
them vote meaningfully. Thus, how to sustain
popular allegiance was a recurrent topic of discus-
sion among Soviet leaders, both in public and in
private. In the public discussion, Brezhnev took the
conventional Soviet stance that the Communist
Party could count on the allegiance of workers if
it continued its record of heroic accomplishment
manifested in the past by the overthrow of tsarism,
the industrialization of a backward country, and
victory over Germany. He proposed two new heroic
accomplishments that the leadership under his
guidance should pursue: the transformation of So-
viet agriculture through investment in modern
technology, and the building of a military power
second to none. Kosygin, by contrast, argued that
workers would respond to individual incentives in
the form of rewards for hard work. These incen-
tives were to be made available by an increase in
the production of consumer goods, to be achieved
by economic reforms that would decentralize the
decision-making process from Moscow ministries
to local enterprises, and, not coincidentally, freeing
those enterprises from the control of local party
secretaries assigned to supervise industrial activity,
as Brezhnev had done in his early career.
The contest between these competing visions
took almost four years to resolve. Although Kosy-
gin blundered early by interpreting the outcome of
the 1964 U.S. presidential election as a sign of
American restraint in the Vietnam conflict, Brezh-
nev equally blundered by underestimating the dif-
ficulty, or more likely impossibility, of resolving
the Sino-Soviet split. Kosygin sought to protect eco-
nomic reforms similar to the one he proposed for
the Soviet Union, then in progress in the five East
European states controlled by the Soviet Union. In
Czechoslovakia, economic reforms suddenly brought
about political changes at the top of the Commu-
nist Party, impelling its new leader, Alexander
Dubcek, to begin retreating from the party’s mo-
nopoly of power. Brezhnev took advantage of this
emergency to align himself with military com-
manders pressing for the occupation of Czecho-
slovakia and the restoration of an orthodox
communist dictatorship. Introduction of a large So-
viet army enabled Czechoslovak communists,
working under Brezhnev’s personal direction, to re-
move reformers from power, and the replacement
of leaders in Poland and East Germany ended eco-
nomic reforms there as well. By 1971 proponents
of economic reform in Moscow became discouraged
by the evident signs of Kosygin’s inability to pro-
tect adherents of their views, and Brezhnev emerged
for the first time as the clear victor in the Soviet
power struggle.
According to George Breslauer (1982), Brezh-
nev used his victory not only to assert his own pol-
icy priorities but to incorporate selected variants of
Kosygin’s proposals into his own programs, both
at home and abroad. At home he emerged as a
champion of improving standards of living not
only by increasing food supplies but also by ex-
panding the assortment and availability of con-
sumer goods. Abroad he now emerged as the
architect of U.S.-Soviet cooperation under the name
of relaxation of international tensions, known in
the West as the policy of détente. Yet Brezhnev rep-
resented each of these new initiatives as compati-
ble with sustaining his earlier commitments to a
vast expansion of agricultural output and military
might, as well as to continuing support for Third
World governments hostile to the United States.
His rejection of Kosygin’s decentralization propos-
als did nothing to address the growing complexity
of managing an expanding economy from a single
central office.
Although the policy of détente and the dou-
bling of world oil prices in 1973 and again by the
end of the decade made it financially possible for
Brezhnev to juggle the competing demands of agri-
culture, defense, and the consumer sector, there
was not enough left over to sustain industrial ex-
pansion, which slowed markedly in the last years
of his leadership. As the crucial criterion by which
communist officials had become accustomed to
judging their own success, the slowdown in in-
dustrial expansion undermined the self-confidence
of the Soviet elite. Brezhnev’s policy of cadre sta-
bility—gaining support from Communist Party of-
ficials by securing them in their positions—
developed a gerontocracy that blocked the upward
career mobility by which the loyalty of officials
had been purchased since Stalin instituted this
arrangement in the 1930s. Brezhnev therefore
made opportunities available for corruption, bribe-
taking, and misuse of official position at all levels
of the government, appointing his son-in-law as
chief of the national criminal police to assure that
these activities would not be investigated. His en-
couragement of corruption rewarded officials dur-
ing his lifetime, but it also further sapped their
collective morale, and made some of them respon-
sive to the proposals for change by his ultimate
successor, Mikhail Gorbachev.
In foreign policy his initially successful policy
of détente foundered as his military buildup lent
BREZHNEV, LEONID ILICH
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