All are concerned with industrial production of national importance. Note that the construction organization (Bratsk-

gesstroi) and the Rail and the Airway Boards are also involved

*Of course, the USSR Council of Ministers is the ultimate level

authority (excluding the Supreme Soviet); any dispute may be

pushed up the administrative chain to them. Hence, we use the

term "immediate" highest level authority to indicate substantive

authority in usual cases; e.g. the RSFSR Council of Ministers

approves Republic Ministry draft plans and forwards them to

GOSPLAN.

in the provision of infrastructure, both technical and social.

While formally subordinated through All-Union sectorial adminis- trative structures, the focus of their activity is specific to the TPC; they, and in particular Bratskgesstroi, are considered in a later section. Figure 6 illustrates the administrative structures for All-Union enterprises in the BITPC. The scheme portrays only lines of management authority and does not include planning interaction, which will be indicated in a later diagram.

It is interesting to note that lateral linkages among enter- prises and industries do not appear directly on the diagrams.

Linkages of these sorts are accomplished primarily through inter- action at the ministerial level, between All-Union Ministries, and between Republic and All-Union Ministries. At the present time, there is an informal Board of Directors operating at the TPC level, which provides some means of direct lateral communi- cation. The role of the Board of Directors is discussed more fully later in this paper.

The planning and preplanning processes for these complexes follow sectorial channels, with the exceptions that have been noted in earlier sections. In particular the oblast authorities have a significant input in siting decisions, and in the amount of funds allocated for infrastructure development.

Indicators for the complexes derive directly from the All- Union Ministries. Since the 1965 economic reform, the number and type of indicators shifted quite dramatically in many sectors.

However, in the case of the BITPC enterprises the level of con- trol exerted through the Ministries may have decreased to a less- er degree because of the importance of these particular complexes to national development objectives.

There are usually a total of nine main indicators which are part of the five-year plan. All of the nine, save one, are specified by Ministries for enterprises for both five-year and one-year plans. Below is a list of these nine indicators, which we will then compare briefly with those received by two of the main enterprises in the BITPC.

-

Volume of sales, paid for by customers;

-

Level of profit, specified in roubles/units;

-

Level of profits, specified as percent of costs;

-

Size of wage fund, specified as maximum rouble amount;

-

Capital investment, specified as budget allocation for specific objects;

-

Number of different products, nomenclature: specified as a minimum product-mix figure (one-year plan only);

council of Ministers Depart- Depart- ment ment

---

--- Oblast level ailw way Airway Construction Board Board level Figure 6. All-Union enterprises of the BITPC: administrative subordination.

-

Product innovation, specified for most important products only;

-

Increase in labor productivity, specified as a percent;

-

Contribution of the complex to the State budget.

The aluminium enterprise in Bratsk is one of the major in- dustrial complexes of this sector in the country. Our inter- views indicated that planning is heavily top-down from the Aluminium Department in Moscow. The major indicators for this enterprise include the level of capital investment, repair, vol- ume of production in both tons and roubles, and the number of workers employed. The enterprise reports daily on a few indi- cators to the Supervisory Department in Moscow, monthly on

others, and has its primary reporting cycle on a quarterly basis.

In Bratsk, enterprises contract directly with the construction enterprise in the BITPC, and these contracts are approved at the ministerial level in the course of the planning process.

The Timber Combinat also falls into the category of primary industries in national economic development and receives its output indicators and customers from the Ministry on a monthly basis. It, too, reports daily to the Ministry's computer center on some indicators.

The Bratsk Hydroelectric Power Station (HEPS), as another example, is part of a nationwide power system. It interacts with other regional power stations and is subordinated to the Siberian Power Grid.

Republic Industries

Republic industries include clothing factories, agricultural enterprises, and other enterprises which contribute to a local economy designed to support the population of the region. These support or secondary industries are often referred to as complet- ing industries in the context of TPC formation and development.

Planning and coordinating the set of industries for the BITPC which complement one another in terms of life support for the population and the provision of adequate employment for family members is a complex task. It is the responsibility of the oblast planning committee to carry out this task, in which it can be supported by planning institutes subordinated to GOSSTROI. The Institute of Industrial Planning (PROMSTROI), and the Town Planning Institute (GIPROGOR), both interacted with the OBPLAN in developing plans for Bratsk. At the same time, suggestions for new industries have been initiated at the oblast level and approved by the Russian Federation. This occurred, for example, in the case of the clothing factory. We have no examples of actual indicators received by these enterprises;

however, we do know that the structure at the national level has its parallel within the Russian Federation.

Agriculture is managed by the oblast Agricultural Depart- ment, as the output of agricultural production is consumed in a broader region than the BITPC. We have learned, however, that the oblast considers the BITPC as a unit, and in its planning process sometimes directs production in other districts to sup- port the consumption needs of the TPC.

Figure 7 presents the administrative structure of the Republic and local enterprises represented in the BITPC.

C o u n c i l o f M i n i s t e r s

Meat P a c k i n g , D a i r y P l a n t s

>

Moorages

Figure 7. Republic enterprises of the BITPC: administrative subordination.

XSFSR

C o u n c i l o f M i n i s t e r s GOSPLAN

Territorial Organizational Actors

R e p u b l i c M i n i s t r i e s

In addition to the sectorial actors, there are those who operate within the structure of territorial administration. In the case of the BITPC, they involve the following: the Russian Federation (RSFSR), the Irkutsk Oblast, the three districts that make up the BITPC--Bratsk, st-Ilimsk, and Nishne-Ilimsk, and the City of Bratsk (Figure 8).

>

Of particular importance to us are the RSFSR Council of Ministers GOSPLAN RSFSR, and the Irkutsk Oblast whose internal structure is presented in the following diagram.

O b l a s t E x e c u t i v e Committee

S e c t i o n s and Departments

Figure 9 sketches the internal administrative structure for the Irkutsk Oblast. The Oblast administration is made up of an elected Soviet which convenes three to four times a year. These Soviet Deputies then elect an Executive Committee which meets regularly and exercises administrative responsibility for the

D e p t . Dept. Dept.

OBPLAN

D i s t r i c t ( C i t y )

"

E x e c u t i v e ~ e p t . Committee

/

S t a t e Farms

Figure 8. Scheme of territorial authorities.

Bakeries

Irkutsk

1 ^Soviet

Education

dl

Oblast Executive Committee

Health Utilities llunicipal

Services Services

Culture

I

^OBPLAN

1

^{50 Staff}

Social Departments: ( 4 - 7 s t a f f )

Security

d

Financial Bodie s

Industry

Capital investment Material supply Labor

Culture .5 medical care Perspective territorial

planning Agriculture

Figure 9. Irkutsk Oblast: internal administrative structure.

region of the Oblast. The Executive Committee is supported by a staff and departments. At this time, we have limited informa- tion on the Executive Committee. There is a planning committee, the OBPLAN, which provides support to the Executive Committee in the planning process. The titles of departments within OBPLAN are indicated in Figure 9. Each department has a staff of be- tween four and seven persons.

The Oblast Soviet and its administrative structure is com- plemented by the local Party organization. The members of the local Party in the Oblast elect an Oblast Party Committee, which interacts with the Oblast Soviet in the full spectrum of its

activities. The role of the local Party in Oblast administration and planning has been described as quite important. It is likely that some members of the Oblast Soviet, or the Soviet Executive Committee, are also members of the Oblast-Level Party Executive Committee

.

There is a similar structure in the City of Bratsk. The city elects a Soviet which then elects an Executive Committee, the head of which we refer to as the Mayor of Bratsk City. There is a good deal of overlap in the membership of the City Soviet and the City Party Committee, as well as with the Oblast Soviet.

Thus we can infer a level of communication and informal inter- action which is more concentrated in individuals, and which pro- vides more direct linkages than the formal structure of these various Soviets and Party committees might suggest.

The Bratsk City Soviet has ₃₅₀deputies and ₁₇standing committees. The committees are problem-oriented and although under the supervision of the Executive Committee of the Supreme Soviet, coordinate their work with the City Soviet as a whole.

Examples of the standing committees are: Budget, Planning, Industry, Construction, Parks Commission, Education, Health, Culture, Sports, Environment, Services, Water, Transport, Com- munications, and Social Services. The Planning Commission

parallels the work of the Irkutsk OBPLAN and works fairly closely with the OBPLAN. Indicators for planning come from GOSPLAN RSFSR, through the Irkutsk OBFLAN. Figure 10 shows both the planning and the management linkages for the activities in the BITPC, con- solidating Figures 6, 7, and 9. Details of the City Soviet and of other organizations whose focus is specific to the BITPC are not included.

Organizational Actors Specific to the BITPC

There are five organizations whose activities are primarily concerned with the development and management of the TPC. Three of these represent organizational innovations designed to meet the special management requirements of TPC development in Bratsk:

Bratskgesstroi--the construction organization; the Direction of Housing for Bratsk, and the Board of Directors. The other two, the Rail and the Airway Boards, are specific to the BITPC only because their respective purviews happen to coincide with the region of the TPC.

Bratskgesstroi

Bratskgesstroi is a construction agglomeration formally sub- ordinate to the Ministry of Power. Orginally responsible for the construction of the dam and the HEPS at Bratsk, its respon- sibilities were formally extended to include the majority of construction of both technical and social infrastructure require- ments in the BITPC. In this capacity, Bratskgesstroi has been

Figure 10. Organization of planning and management of BITPC activities.

(See below and next page for key.) Source: [4]

Supreme Soviet; 1 5 . Administrative Subordination; 1 6 . Planning Connections; 1 7 . All-Union Ministries;

Head Departments; 1 8 . USSR Council of Ministers; 1 9 .

GOSPLAN; 2 0 .

RSFSR Council of Ministers; 2 1 .

GOSPLAN ; 22.

Republic Ministries; 2 3 . Head Departments; 2 4 .

Department; 2 5 .

Department; 2 6 .

Department; 27.

Association;

Sections and Departments;

Irkutsk Oblast Executive Committee;

Planning Committee;

Department;

Oblast Level;

Railroad Board;

Aircraft Works;

Construction Department;

Integrated Plant;

District (City) Executive 40. tion for the Ministry of Power and 6 5 percent for other Ministries and local bodies. Preparation of a composite plan for all these

/ ⁴

-

Bratskgesstroi

Enterprise under Construction

Other

- - -

- - - - - -

- Enterprises

'

Figure 11. Bratskgesstroi: yearly planning process.

An example provided was the interaction between Bratskgesstroi and the Ministry of Pulp and Paper, for whom Bratskgesstroi is presently constructing the Timber Combinat. The local complex director has a deputy for capital construction who is the liaison with Bratskgesstroi for construction work. This deputy and the appropriate office within Bratskgesstroi set output on a monthly basis and report formally to the national statistics networks and Ministries involved.

The level of o p e r a t i o n a l d i s c r e t i o n which Bratskgesstroi exercises varies from project to project. General design speci- fications and finance are provided by the customer Ministry.

The Ministry is responsible for both the purchase of equipment to be installed in its complex and the preparation of general specifications which are provided to the organization's design office for elaboration. Bratskgesstroi is responsible for the detailed specification, construction, and equipment installation;

however, the level of discretion involved in this responsibility varies according to the importance of a particular project in the achievement of national objectives.

In fact, the design process for projects of All-Union im- portance are fairly closely controlled within the All-Union Ministries. For all projects, Bratskgesstroi must operate within the standards set by GOSSTROI. In addition, for major pro-

jects like the Timber Combinat, ministry-subordinated design institutes often work out detailed specifications. In this case the Leningrad Design Office of the Ministry of Pulp and Paper worked out specifications.

In the case of the Ust-Ilimsk HEPS planning and design oc- cured in several distinct phases, and control is being maintained at the All-Union level. A special decree of the USSR Council of Ministers requested that the Planning Commission for the East

Siberia Region develop main guidelines for developing cities and industries in connection with the construction of the Ust-Ilimsk

HEPS. The Commission in turn engaged a number of research insti- tutes to investigate major aspects of the construction activities, including environmental impacts. Once the design was completed GOSPLAN appointed an expert commission to review the design; once construction is completed a second commission will be appointed by the USSR Council of Ministers to investigate the implementation of the plans.

After design questions are settled, distribution of imple- mentation responsibility is at the discretion of the Head Office of Bratskgesstroi. The Planning Department within the Head Office makes personnel and task assignments for quarterly and yearly periods for the organizations that comprise Bratskgesstroi. These enterprises report monthly to the organization's departments.

Distribution of resources, and redistribution if there is a shortage of resources, is also at the discretion of Bratsk- gesstroi. In the event of the need for a tradeoff among activi- ties, priority is usually given to projects approaching comple- tion. Should an enterprise director whose project was delayed disagree with the trade-off, the customer can complain to the Ministry and seek a reallocation of resources. There have been cases where such enterprise appeals have been successful.

Bratskgesstroi is responsible to the customer Ministry for its construction activity and also to a separate organization structure within the Soviet management system which monitors the fulfillment of plans. The People's Control Organization is an authority whose structure parallels the territorial organizational structure. On projects of All-Union importance a group from this organization, which would report directly to the USSR Council of Ministers can review a situation and make recommendations.

Figure 12 presents an overview of the general organizational structure of Bratskgesstroi. As can be seen from the diagram, the diversity of Bratskgesstroi's activities is quite dramatic.

(Discussion of Bratskgesstroi's role in social infrastructure follows shortly.) The enterprises within Bratskgesstroi cover the majority of infrastructure construction activities, many of which are organized on the basis of the territorial nodes of the TPC, e.g. the offices for Ust-Ilimsk and for Bratsk.

We learned that there are approximately 70,000 employees in Bratskgesstroi; Figure 13 shows the structure of the Head Office of the organization which has approximately 400 staff.

In addition to providing the technical infrastructure, Bratskgesstroi plays a central role in the provision of the s o c i a 2 i n f r a s t r u c t u r e working with the Direction of Housing in constructing housing, shops, and medical facilities. The impli- cation of the 1960 decision on infrastructure funding was that no new industry could be built on the territory without provision for the funding of the social infrastructure. The oblast partic- ipates in setting the rate for infrastructure investment, which

Bratskgesstroi Workers' Suppl Head Off ice I I I~eneral contract1 Industrial Auxiliary Special Offices

,

~rqanizations

1

Subcontract Enterprises and Other Services Ust-Ilimsk HEPS Road Construction Group Enterprises Motor Transport Ministry of Power and Electrification Ust-Ilimsk Timber Excavation "Zhelezebeton" RR Transport Ministry of Ust-Ilimsk Sanitary Engi- Timber Industry Hydro-Tech Construction and nering Sanitary and Services Timber Procurement Erection Mechanical Technical Wares Chief Power Korshu~ovo Ore-Dressing Other ini is tries Construction Mfg Engineer Bratsk i3ratsk Aluminium Bratsk Timber Industry and Agriculture Powerllnes and Substations Capital Repairs

Motor Repair Water Supply Central Mechanical and Sewage Repair Material and Technical Supply Chief Mechanic/ Parts Depot Housing and Municipal Services Communication Design Office Figure 12. Bratskgesstroi: general organization structure. Source: discussions at Bratskgesstroi.

is on the order of 3 5 to 4 0 percent for the social infrastructure.

Although the major portion of infrastructure funding is provided by the enterprises, some funds are also allocated through the territorial administrative structures. For example, funding for housing at the oblast level comes from four sources: the State budget, the local oblast budget, enterprise funds, and capital funds from Ministries. (A proportional breakdown of these funds was not available.)

In the early 1960s a special office for the Direction of Housing Construction for Bratsk was set up by the RSFSR Council of Ministers. The Direction of Housing is an office of 4 0 to

5 0 experts in housing construction who supervise housing design

and construction in the area. The office collects infrastructure funds from the Ministries, coordinates the work of the design institutes in preparing plans, and coordinates the construction of units, presumably through Bratskgesstroi. The Director is subordinate to the City Soviet and to the Department of Capital Construction of the Irkutsk Oblast Soviet; it is the second in- novation specific to the BITPC.

In populated regions, housing is usually distributed by the local soviet, and in pioneering regions it is distributed about 80 percent through Ministries. This implies that the industries of the TPC region distribute the housing among their workers themselves. In fact much of the distribution of housing for the BITPC is handled through Bratskgesstroi.

In much of the TPC, Bratskgesstroi handles most of the

"landlord" functions for housing, e.g. distribution of housing, and shop management. After the HEPS in Bratsk was completed, the head office of Bratskgesstroi was given landlord functions.

(This is true also for the housing in the central part of the city.) In Ust-Ilimsk where the HEPS is now under construction, Bratskgesstroi is handling the housing on the left bank of the city; housing on the right bank, which the organization is building for the Ministry of Pulp and Paper, is being run by the Ministry.

In addition, Bratskgesstroi has managed much of the trading infrastructure for the complex. As various industrial complexes were built, it extended its management activities to handle the workers' shops which each of the Ministries provides for workers in the various enterprises. Ordinarily the State Ministry of Trade establishes local offices to manage these worker supply shops; in this case Bratskgesstroi took over the role of the local office for Bratsk.

Bratskgesstroi also manages water supply and sewage facili- ties. As we spoke in the summer of 1976 with representatives of the organization, we learned that many of these functions will shortly be turned over to the local soviets. Until the present time, however, the major part of infrastructure manage- ment and construction has been carried out by the various

suborganizations within ~ratskgesstroi. In the context of a TPC where infrastructure investment is a major defining charac- teristic of the TPC concept, the effect of the organization's activities is to have had a major role in defining the boundaries and characteristics of the BITPC.

Transportation Boards

The other major infrastructure component is the system of transportation. While Bratskgesstroi has been handling road and automobile transport, there is both a Railroad Board and an Airway Board which operate on the geographic region of the TPC. These

Im Dokument The Bratsk-Ilimsk Territorial Production Complex: A Field Study Report (Seite 97-159)