COMMUNISM ORGANIZATION OF A NATIONAL COMMUNIST PARTY

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• Document Number (FOIA) /ESDN (CREST): CIA-RDP78-00915R000200170001-0
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• Document Creation Date: November 11, 2016
• Document Release Date: July 9, 1998
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COMMUNISM
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ORGANIZATION OF A
NATIONAL COMMUNIST PARTY
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WARNING
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ORGANIZATION
OFA
NATIONAL COMMUNIST PARTY
INTRODUCTION
I. PRINCIPLES OF ORGANIZATION
A. Democratic Centralism
B. Party Discipline
II. ASPECTS OF ORGANIZATION
A. Member ship
B. The Cadre
C. Front Organizations
D. Fractions
E. Finances
III, PARTY STRUCTURE
A. National Level
1. The National :Party Congress
2. The Central Committee
3. The Political Bur eau
4. The Organization Bureau
5. The Central Control Commission
6. The Secretariat
7. The Administrative Departments
a. Organization
b. Cadre
c. Agitation and Propaganda
d. Finance
e. Labor
f. Youth
g. Women
h. Colonial Affairs
i. Agriculture
j. Political Affairs
B. Territorial Levels
1. Regions
2. Districts
3. Cells
CHARTS
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INTRODUCTION:
The purpose of this paper is to present a preliminary study of the
organizational pattern of a typical national Communist Party.
The first part deals broadly with a few significant functions of the
party, followed by a more detailed treatment of party structure. The
appendix contains charts outlining the organization of a few national
parties. More obscure considerations including the many delicate
problems connected with clandestine party activity, have been ommitted;
they will be discussed more fully in a later paper.
Heading the national party is a National Congress, elected by sub-
ordinate Regional Congresses. Depending from the National Congress
are a series of territorial organizations with descending powers (Regions,
Districts, Cells) and a group of national executive organs directing the
myriad affairs of party life:
1. Central Committee (CC) -- elected by the National Congress; the
controlling body between sessions of the Congress.
2. Political Bureau (Politburo) -- elected by the Central Committee
from among its own membership; directs the party between plenary ses-
sions of the CC.
3. Central Control Commission -- elected by the National Congress
in most countries, charged with the maintenance of party discipline.
4. Secretariat -- elected by the Central Committee and headed by a
Secretary-General; responsible for the day-to-day business of adminis-
tration through a group of subordinate departments.
5. Organization Bureau (Ore aro) -- responsible for the broad organi-
zational policies and decisions of the party.
Similar executive organs, with descending powers and competence,
and with variations to meet local conditions, are reproduced on each of
the territorial levels.
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I. PRINCIPLES OF ORGANIZATION
Communists have always put great emphasis on organization. To
achieve the overthrow of capitalist society and to establish the dictator-
ship of the proletariat requires a powerful, united political machine:
"A working class without a revolutionary party is like an army
without a general staff. The Party is the military staff of the
pr oletariat. " (Stalin)
Until 1943, all national Communist Parties as "sections" of the Third
International, had a common purpose with it:
"The Communist International is not a sports club which registers
records gained in this or that game. The Communist Internation-
al is a fighting organization of the proletariat which has for its
task the overthrow of bourgeois rule Il (Vassiliev)
At its Fifth World Congress is 1924, the Comintern decided to recon-
stitute the national "sections," making use of the experience gained by
the Communist Party in the Soviet Union (CPSU), the mentor and source
of inspiration of all other Communist Parties. The subsequent
"Bolshevization," along the lines set forth by the Comintern Executive
Committee in the 1925 "model statutes" for party organization, achieved
a basic uniformity of pattern, the outlines of which are still strikingly
evident in the structure of the party in all countries.
When the Comintern was dissolved in 1943, peculiar national needs and
leadership of a few parties caused some minor structural changes. The
basic design, however, of a series of territorial echelons under the central
complex of national administrative organis, has remained similar.
A. Democratic Centralism
Communists believe that their party is based fundamentally on the
principle of "Democratic Centralism." This doctrine, expounded by Lenin
when the party was still an underground, revolutionary organization, em-
phasized the necessity for centralized control, democracy being envisaged
by Lenin as evolving when the party became legal and free elections by
secret ballot could determine the policy of the National Party Congress.
This, however, is as far as the "democratic process" goes: the decision
of the majority of the members of the National Party Congress is binding
upon all; no question can be, nor is, entertained. It can be seen that free
election, as it is understood in the West, is easily subverted within the
party through the power of executive organs to co-opt additional members
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who have submitted to no elective process whatever. The Central Com-
mittee prescribes the methods to be followed in elections, and probably
restricts the voting to a single list of "approved" nominees, even in the
election by the congress of members for the Central Committee.
As is true of most well-oiled political machines, the most potent
restriction on democracy within the party is the purely personal power
of its leaders. Their word, when delivered to the type of mentality in-
evitably produced by a system of "iron discipline," is the law, and no
quantity of democratic forms can amend it.
The centralization of power within the party will become apparent as
this paper progresses. Its purpose is summarized by the following
statement:
"In order to function properly and to guide the masses system-
atically, the Party must be organized on the principle of
centralism, having one set of rules and uniform Party discipline,
one leading organ--the Party Congress, and in the intervals
between congresses--the Central Committee of the Party; the
minority must submit to the majority, and various organizations
must submit to the centre, and lower organizations to higher
organizations. Failing these conditions, the party of the working
class cannot be a real party and cannot carry out its task in
guiding the class." (Short History:CPSU)
B. Party Discipline
The party can be an effective instrument for the winning of the
proletarian revolution only if its members practise an "iron discipline. "
"Unity of will" and "united action" depend on the observance of a
"common proletarian discipline, equally binding on all party members,
both rank and file." It "does nct preclude but presupposes criticism and
conflicts of opinion.., does not preclude but presupposes conscious and
voluntary submission, for only conscious discipline can be truly iron
discipline." The religious flavor is unmistakable.
Discipline is maintained in its simplest, most direct form by means
of specific punishments for particular infractions of party statutes and
directives. For such breaches, for nonpayment of dues, mishandling of
funds, or for conduct reflecting adversely on the party, a member may be
punished by reprimand, suspension from office or membership, or expul-
sion.
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The executive authority of the organization concerned decides
such cases, but convicted members may appeal to the next higher echelon.
Only the Central Committee can order expulsion, and its decision may be
appealed to the Control Commission or to the National Congress.
More important and altogether more pervasive is the disciplinary
influence exerted by those agencies that keep up a constant surveillance
of all the activities, associations, ethics, and ideological attitudes of
all members, Such work, whether it be done by regularly constituted
party organs as the Control Commissions, or by informal agents as the
militants, "watchers," traveling inspectors, etc., serves to preserve
the party's purity against "deviationism" and its integrity against dis-
ruptive factionalism. The effective use of patronage and rewards supple-
ments the work of the surveillance agencies.
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II. ASPECTS OF ORGANIZATION
A. Member ship
In general, the party will accept into membership anyone 18 or more
years old, so long as he agrees to submit to the program and the disci-
pline, to pay his dues regularly, and to work actively within one of the
primary party organizations. It: is usually required that he be introduced
by one or more members in good standing to vouch for his reliability,
and that he serve a probationary period of six months to a year. Depend-
ing on their political status, some parties demand a longer probationary
period, and most statutes exclude known troublemakers, habitual
drunkards, ex-Fascist functionaries, etc. In practice, however, parties
are not as discriminating as their statutes. Some do not even demand
complete acceptance of Marxist ideology so long as the recruit agrees not
to try to subvert other member E. to his own errors. Wrong thinking is
the result of ignorance, which the party confidently believes it may remedy
by intensive instruction.
Following enrollment as a candidate, for which the examination into
his background may be more or less complete, the recruit is systematical-
ly and thoroughly indoctrinated with party ideals and practices by means
of regular schools, discussion groups, libraries, lectures, and by the
example set by older members as they lead him into the activities of his
organization.
B. The Cadre
The basic function of the party as "the vanguard of the proletariat"
leading the "ignorant" or "misled" masses of workers and sympathizers
toward the final end of revolutio:ri by strategems of attack or retreat, re-
flects itself in the Communist attitude toward the leadership problem.
Obviously, the party can discharge its basic function only if it has at its
disposal a maximum of trained professionals--party officers, organizers,
agitators, propagandists, technicians, strong-arm men, etc. --who are
skilled enough to translate the party program into action terms. In Com-
munist parlance, the party, in order to be effective as a political instru-
ment, must have a "cadre" of trained action personnel. The term "cadre"
has been frequently encountered in Communist literature since the Comin-
tern urged its sections to develop into "cadre parties." The general
meaning of the term has been described by an Austrian Socialist as follows:
"Cadre, in the French language, means frame. In military
language, cadre means a permanent stock of commissioned and
non-commissioned officers whose task it is to organize and
assign the mobilized reserves in case of war. The military cadre
must be composed of of:Eicers and non-corns trained in such a
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"fashion as to be able to direct and organize the mobilized
reserves. It (the cadre) must prepare the mobilization of
reserves already in times of peace; it keeps constant track of
the reservists slated to be drafted in case of war. It registers
them, and advises them where to report in case of mobiliza-
tion, and what functions to assume in such case. It calls the
reserves for maneuvers. Only by the fact that the cadre is in
constant touch with the masses of reservists during times of
peace, is it able to discharge its duty in times of war."
This military concept, then, underlies the term "cadre"
whenever used by Communists, Roughly speaking, the "officers" of the
military cadre are equivalent to functionaries of the party, and the"non-
corns" to such party personnel which are assigned specific party jobs
(organization, recruitments, training, etc.) The "reservists" accord-
ingly are constituted by the rank and file membership and by the sympa-
thizers who are called to action by the "cadre".
The development of an emotionally and intellectually well-suited
cadre is a prime function of the party. The party is in constant search
of such personnel, and selects them from among a type of members
commonly referred to as "Activists" or "Militants": i. e. , men or women
of the action type who are willing and able to "do something for the party."
The importance of an efficient cadre is overriding and expresses itself in
various ways. The higher cadre of party functionaries gets on the party
pay roll in order to be freed from the necessity of making a living, and
has, especially under the Comintern, frequently received training in the
USSR. In an emergency?e. g? , when the party is declared illegal--the
higher cadre receives special protection and usually manages to escape
the police. Special training schools ensure the development of lower
cadres into the functionary type. Special machinery exists in order to
keep the cadre ideologically secure and to prevent penetration of the cadre
by hostile elements.
The cadre system has its problems, especially when the party
develops into a "mass party" and absorbs a great number of ideologically
insecure members who must be efficiently controlled. Such problems
have been recently encountered by the French and Italian parties.
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C. Front Organizations
Lenin early became convinced that the party must have general
popular support to achieve a successful revolution. The party itself
should be kept "pure," but should organize the masses, who were in-
capable of submitting to the rigors of party discipline, into Fronts and
Auxiliary groups:
"We must create a whole solar system of organizations around
the Communist Party, minor committees which would be
under the actual influence of our party, (but) not under its
mechanical leader ship .(Kuusinen)
There have been established, therefore, in all countries, Fronts
for labor, women, youth, students, artists, writers, musicians,
scientists, hobbyists of every description?all under actual control of
the party, but carefully divorced from any official connection. The
influence of the party, which in any country is greater than its mere
numerical strength deserves, is due in no small degree to the broadcast
spread of its ideas through the Front system.
True Fronts are distinguished from Auxiliary organizations by
being ostensibly non-partisan. No matter how well the fact may be dis-
guised, however, they serve the interests of the party through the domin-
ating influence of their Communist leaders.
Auxiliary organizations like the Youth Leagues and Communist
women's groups are openly partisan, and are usually built in the image of
the party.
D. Fractions
In addition to Fronts and Auxiliary groups, which the party sets
up itself, it also attempts to penetrate, and ultimately to dominate, other
mass political organizations. Communists who have succeeded in pene-
trating such a group constitute its party Fraction. Sometimes--e.g. ,
members elected on a party ticket to the national legislature--the exist-
ence of the Fraction is no secret; more often, it is carefully concealed
(as it is in the case of most trade-union Fractions).
The party controls its Fractions by any one of several different
connections. Probably the most usual is the dominating personal
presence of top pa.rty officials on the governing bodies of a particular
union or federation of unions.
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Control is sometimes more formalized through the agency of the
party's Labor (or Syndical) Secretary. The latter, for example, directs
the activities of Fractions within several industry-wide unions in Peru
and Paraguay through three-man "boards." The boards are responsible
in Fraction matters, not to their respective territorial echelons, but
directly to Regional Syndical Secretaries, who pass on to them the
instructions received from the national Syndical Secretary.
E. Finances
Each echelon within the party administers its own finances and
designates a functionary for its supervision. Over-all direction is
exercised by a national treasurer and finance department, sometimes
supplemented by the auditing functions of the Control Commission or an
Audit Commission.
Initiation fees, dues, and extra levies on members are the chief
sources of party revenue. Dues are scaled according to the income of
the individual. .In this connection, it is interesting to note that the
Venezuelan party, at least, follows the thoroughly communistic practice
of requiring that members holding public office contribute their entire
salary to the party' s treasury. They are rewarded with a stipend for
expenses.
Other sources of income include: donations from sympathizers;
subisdies paid by businessmen and others in the hope of avoiding strikes
and other party-inspired embarrassments; profits from party enterprises,
such as co-operatives and publishing houses; receipts from the sale of
literature and admission fees to party lectures, movies, concerts, dances,
etc.
Revenues are divided as follows; part is retained by the collecting
organization (usually the Cell) for its own expenses; part goes to the next
higher echelon; a portion (as much as 50 per cent in some instances)
goes to the national headquarters.
Expenses of each organization depend, of course, on the importance
of its activities, and include such items as salaries for permanent em-
ployees and careerists, printing and distribution expenses incident to
propaganda, rental and other housekeeping charges, license fees for
meetings and public entertainments, and losses incurred in the operation
of party co-operatives, etc.
Financial difficulties present a frequent source of party weakness,
although some parties, such as the Italian, are quite prosperous. The
seemingly endless fund-raising campaigns carried on by all parties
serves not only a monetary purpose, but also gives them a fine chance
for agitation.
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III. PARTY STRUCTURE
The basic pattern of organization resulting from the "Bolshevization"
of 1925 has survived in its essentials to the present day. Modifications
were forced into the pattern in some countries to counter Fascist suppres-
sion and to meet the needs of postwar dislocations; nevertheless, the
forms laid down in the model statutes are still those to which most
parties aspire, and to which they revert whenever political conditions
permit them to do so.
The pattern persists because it is efficient, adaptable to changing
circumstances, and because it provides a skeleton which may be
quickly elaborated to take over all the necessary supervision of govern-
ment whenever that happy need arises. The organization of the party
in the Soviet Union, for example, includes within the standard pattern
all the departments, committees and commissions necessary to direct
the entire machinery of the USSR. Under the Secretariat of the Central
Committee, the CPSU maintains departments for coal, nonferrous
metallurgy, electrical industry, transport, agriculture, finance, per-
sonnel administration, and many others.
The activities (and, therefore, the organizational establishment) of
parties not yet in power are more limited, of course. They center on
building and strengthening the party and on breaking down the power of
bourgeois institutions and traditions; they therefore concentrate on
agitation and propaganda activities.
The party that is being, or is about to be, suppressed, modifies its
organization- decentralizing, emphasizing security and disciplinary
controls, and shortening its communications channels. Once suppressive
measures are lifted, however, it tends to revert to the familiar forms.
An outline of the forms on the national territorial levels follows.
A. National Level
The leading organs of the national party include the National Party
Congress, Central Committee, Control Commission, Politburo,
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sometimes an Organization BuTeau, and a Secretariat controlling the
activities of a group of administrative Departments.1
1. The National Party Congress is the "supreme organ" of the party.
It comprises delegates elected by Regional Congresses in proportion to
the numerical and strategic importance of each region according to
rules and methods prescribed by the Central Committee. The statutes
of most parties provide for a congress every two years, but actual con-
vocation by the Central Committee is usually much less frequent. The
last All-Union Congress of the CPSU was in 1939.
Nonvoting guests to the Congress almost invariably include repre-
sentatives of foreign Communist parties, members of Auxiliary organiza-
tions, and representatives sent by territorial units in addition to their
regular, voting delegations.
Broadly policy-making, the functions of the congress involve
review and criticism of past and proposed party programs. The agenda
for the debate on programs, political line, and statutes is determined by
the Central Committee, which also makes "suggestions" for any revisions.
A meeting of the party congress is always made the occasion for
a showy display of Communist "democracy" and solidarity, but its real
power is vague; the All-Union Congress of the CPSU has never been
known to reject any proposal put to it by the Central Committee.
The really effective authorities of the party--the Central Committee
and Control Commision?are elected by the congress, which delegates to
them its executive and policy-making power.
2. The Central Committee (CC)2 is the leading organ of the party in
the intervals between congresses. Numbering between 25 and 60 members,
1/ The National Congress is elected. In addition, the Central Committee
may occasionally call together the administrative officials of the
national and regional levels in a National Conference. Special confer -
ences may also be called whenever the need arises. The Italian party
recently held an "Organizational Conference" of all functionaries who had
anything to do with the work of party organization. Similar conferences,
general or special, are often held on other territorial levels of the party.
2/ The CC is usually so-named. It may also be called, as it is in the
United States and Brazil, the ''National Committee."
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plus alternates (or candidates), who have a "consultive" vote only, the
CC is responsible for the elaboration of the party policy, the enforcement
of the statutes, and the execution of the program; in short, for the whole
operation of the party. It directs its political and organizational work,
controls its finances, and represents the party in its dealings with non-
Communist organizations.
The CC comprises most of the important leaders of the country,
and is hence the arena in which significant personal struggles and
clashes on policy occur. Factions developing from such differences often
operate as a chief source of party weakness.
Because of its size, the CC is called into plenary session by the
Politburo only two or three times a year. Between sessions, the party
is run by the theoretically subordinate bodies of the Central Committee--
which elects them from its own membership?by the Politburo and the
Secretariat.
In addition to its general policy-making and executive functions,
the CC convokes national congresses and conferences and submits to the
congress the program which the Politburo has drafted. Finally, the CC is
responsible for the maintenance of discipline and the decision to expel any
party member. Most of the work put out in the name of the Central Com-
mittee is actually done by other bodies, such as the Politburo, Secretariat,
and Orgburo.
3. The Political Bureau (Politburo)3 consists of the handful of top
leaders who really direct the party.
Specifically, the Politburo is charged by the CC with the direction
of party affairs in the intervals between sessions of the larger body. It
is responsible for the preparation and supervision of the political line.
3/ Called variously:
Political Bureau .....
Executive Committee
Directorate ....
..... ... Most countries
Argentina and Brazil
..... ...... 0 ? ? ? ? 0 Italy
National Board
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Members of the Politburo habitually assume direct supervision over the
most important administrative department of the Secretariat.
Occasionally, as in China, Japan, and Yugoslavia, smaller bodies
have grown up within the Politburo. These are organic, if highly secret,
institutions, and should not be confused with the cliques that are common
to most parties.
4. The Organization Bureau (Orgburo), when it exists (as it does in
the USSR, Bulgaria, and Italy, 4 is technically a subcommittee of the
Central Committee. It is responsible for the elaboration and promulga-
tion of the party's organizational policies. The "Organizational Com-
mission" of the Italian Directorate, for example, has recently developed
the new statutes of the party and publishes its "Organizational Guide," a
handbook prescribing principles and techniques to be used by party
organizers at all levels. The most important function of the Orgburo is
to supervise the selection, training, and distribution of functionaries
throughout the party.
Many countries apparently omit the Orgburo, in which case
policies affecting organization are probably determined by the Politburo.
The current business of organization is handled by the Organization De-
partment of the Secretariat.
5. The Central Control Commission5, elected in most countries by
the National Congress, supervises the maintenance of discipline and the
execution of the party line. Its importance is traditionally very great.
4/ The Italian party apparently has two "Organization Commissions, one
of them being responsible to the Directorate and the other, a "Work Com-
mission" of the Secretariat. [t is the former which we treat as corres-
ponding to the Orgburo of the CPSU.
5/ Organs thought to have some of the functions of the Control Commis-
sion are the following:
National Commission Argentina
High Control Commission Italy
Supreme Disciplinary Tribunal Chile
Central Commission for Political Control .. ? . ? ? ? ? ? France
The party in the Western zones of Germany apparently has no control
commission. It is thought that the "Personal Policies" department of
the Landesvorstand controls party discipline.
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In the CPSU the Control Commission operates through boards on the top
levels of all party and governmental interests: it has groups for heavy
industry, light industry, naval affairs, food and trade, education and
public health, foreign relations, and many others. The boards ensure
the enforcement of party decisions, investigate the work of all party
organizations, and prosecute those accused of violations of party
statutes and discipline.
In some parties the power of the Control Commission is apparent-
ly limited. It may be charged merely with financial supervision; in
Italy, it seems to serve as a court of appeals from decisions of lower
party organizations. In any event, the problem of security being so
delicate, and an internal security system being so generally unpopular,
the work of the Control Commission is always well screened.
6. The Secretariat, comprising a Secretary-General and one or two
Vice-Secretaries elected by the National Congress, directs the current
administrative business of the party.
For the administration of specific areas of party interest, the
Secretariat maintains various departments, which fall broadly into two
categories: (a) those which are concerned with the internal affairs of
the party, such as finance, organization, etc.:; and (b) those which
administer party affairs touching the life of the country, such as labor,
agriculture, agitation-propaganda, etc.
The Secretary-General, by his close supervision of all party
activities, is usually the most powerful of its leaders. Stalin drew his
initial authority from this very source. The Secretary, as well as the
heads of the most important administrative departments, is inevitably a
member of the Politburo.
7. The Administrative Departments, 6which are most obviously
essential to the operation of the party machine and the achievement of
its political program, are the following: Organization, Agitation and
Propaganda, Finance, Labor, Youth, Women's, and sometimes Cadre
(Per sonnel) .
6/ Called variously: "Section," "Committee," Commission," Bureau,"
and "Department." Many parties are not consistent in the nomenclature
of even their own Secretariat.
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a. Organization. This department is responsible for administrative
questions surrounding the establishing, reorganizing, reallocating, de-
activating, and regrouping of party organizations; also; for the machinery
and techniques of recruitment, selection, distribution, and promotion of
functionaries. When a party has no cadre department, as is often the
case, the organization department also handles personnel matters.
The great importance attaching to the work of organization has
already been mentioned. It is probably effected in the following
sequence:
(1) the Orgburo, consulting with the Politubro, determines
the needs of the party and issues necessary directives and plans;
(2) the organization department, which probably helped to devise
the plans and which provided the necessary background statistics
for their formulation, elaborates them and reduces them to work-
ing instructions;
(3) organization functionaries on lower party levels receive the
instructions, correlate them with existing local conditions, and
ensure their execution.
(4) Initially, and throughout the process, the cadre department
(or the Org department, if the party omits the former) supplies
personnel information 'without which organizational work could
be neither devised nor carried through.
Ultimately, all such work is completed by the activities of the party
organizers, whose chief task, aside from such specific orders as they
may receive,
"consists of seeing that every party member as well as sympa-
thizer should be constantly drawn into day-to-day work, atten-
tion being concentrated upon the most important sectors of the
class struggle." (Vas siliev)
Clearly, organizational matters involve, not only the party itself,
but the structure and activities of Auxiliaries, Fronts, and Fractions, as
well. Some of the aspects of organizational work so far as it concerns
structural matters are illustrated by the duties of a lower (a district)
organization:
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"The...committee must systematically check the
expediency of the organization of the cell, carrying out regrouping
of the members of the cell in order, in each separate case and at
each concrete moment, to concentrate the best forces of the party
around the most important sectors of the class struggle."
(Vassilieve)
Selection of "the most important sectors," is, of course, a policy
decision, and is taken by the Organization Bureau. The latter, then,
works out the strategy in the face of certain conditions and in view of the
desired objectives; the organization department obtains its execution
through the tactics of organizers.
The organization department must work very closely with other
administrative departments (e. g., Youth, Women's, Labor, and Agit-
prop) occupied with various party Front and Auxiliary groups in order to
carry out the party program and to draw as many sympathizers into the
party orbit as possible.
It is interesting to note that the organization department sometimes
devotes itself to considerable detail. A recent directive of the Organiza-
tion Commission of the Italian party exhaustively prescribes personnel
methods to be followed by lower levels in the compilation and reporting
of statistics. The purpose of organizational research it stated thus:
"In order to make use of all the energies of the party, it is import-
ant first of all to know its composition--the number of women,
young girls; how many are partisans, (the) social and professional
categories they belong to, what categories they are assigned to,
(the) number of members in each syndical union, mass organiza-
tion, club; number of voters in the party, etc...In this manner it
is possible to study concretely the organizational problems, to
correct the defects of our organization......
"Political battles cannot be fought without knowing the aim or
scope of these battles. A party is not well organized without
knowing its organization."
b. Cadre. This department, when it exists, has two general
functions:
(1) it is responsible for the collection and collation of personnel
statistics of the party;
(2) it plays a large part in the selection, training, and promotion
of functionaries and in the maintenance of party esprit.
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Most parties have no cadre department. The Cadre Administration of
the CPSU is responsible for the selection and deployment of personnel,
and maintains departments for industrial personnel, personnel of Soviet
organs, a department for the training of party organizers, and several
others with unknown functions. The Italian cadre department is ap-
parently concerned solely with (2), above, leaving personnel administra-
tive matters to the organization department. The two "abteilungen" for
organization and personal policies of the party in the Western zones of
Germany are familiarly and collectively known as the "Kaderabteilung."
The Kaderabteilung" of the joint Socialist-Communist Party (SED) in
the Russian zone is thought to be in charge of the inter-zonal party
courier system.
c. Agitation and Propaganda (Agitprop)7. "Agitation" refers to
activities directed io non-Communists for their recruitment and to gain
their support. "Propaganda" refers to activities directed to party mem-
bers as a part of the continuous indoctrination and inspiriting program.
The department is responsible for the preparation and dissemina-
tion of agitprop materials and programs on a national scale (such as the
national party newspapers) and to lower party organs, whose agitprop
work the national department supervises. Its activities include the
organizing and supervision of the party school system, and the publica-
tion of various party newspapers and other literature. In some countries
(Western zones of Germany, Japan, U.S.), its work is supplemented by
a "cultural" departinent which sets up various cultural Fronts, "people's"
schools, libraries, workingmen's centers, etc. The "Culture and
People's Education" department of the Bavarian party, for example? is
organized into subsections to supervise the following activities:8
7/ Called variously:
Education and Propaganda Brazil
Education and Recruitment Germany/West
a work commission for Agitprop and one for
Press and Propaganda. Italy
a section for Education and a committee for
Control of the Press France
National Education, Agitation and Publications
Department U.S.
8/ It is not clear whether this is merely a list of responsibilities, or
whether it represents a breakdown of the department into specific sub-
sections.
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(1) Training, propaganda, and information
(a) ?Party schools, party and mass indoctrination
(b) Agitation among the masses
(c) Archives and library
(d) Press and radio
(2) Culture and education
(a) Schools and education
(b) Universities and science
(c) Art
(d) Cultural organizations
The fields of interest of party agitprop are illustrated by the follow-
ing instructions issued by a leading organizer of the old Comintern:
II.. the Communist parties of all countries should, in carrying out
the united front from below, make use of the discontent which
exists among employed and unemployed workers, organize this
discontent, creating all kinds of committees of action, strengthen-
ing the revolutionary trade unions, strengthening the ranks of the
Communist parties with new members, and carry on the struggle
for partial economic demands to the higher stage of mass political
strikes, combining them with mass demonstrations 11
(Vas siliev)
d. Finance.9 This department is responsible for the day-to-day super-
vision of party financial policies and practices. It may be supplemented
in this work by the Control Commission in countries where the latter has
a supervisory interest in finances. Sources of revenue and objects of
expenditure are reviewed elsewhere in this paper.
e. Labor10. The labor department supervises the vital work of the
party connected with the country's organized labor. It directs the pene-
tration of non-party unions, the organization of party labor Fronts and.
9/ Called variously:
National Finance Commission Brazil
(Some reports indicate that there may be a separate treasurer).
Central Commission for Control of Finances France
Treasury Germany/West
10/ Sometimes referred to as "Syndicaln department.
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Auxiliary groups, of agitation among the working class, and the direction
of party Fractions in non-Communist labor organizations.
f. Youth. This department directs the work of the party among organi-
zations of the nation-1s youth and, like the labor department, is responsi-
ble for the establishment and direction of party youth Fronts and Auxili-
aries, and for Fractions within penetrated youth groups. The Auxiliary
youth organization--e. g. , any Young Communist League--is separate from
the party, but is built on the party model. The lack of organic connections
apes not in the least inhibit the party.s authority. It may be screened, but
is none the less real. The Mexican party has recently directed that the
Youth secretary at each level of the party would serve in an "honorary"
capacity on the corresponding executive body of the Youth organization.
g. Women. This department Tnana ge s the party's activities directed
to women Communists and to non-party women. Like the youth depart-
ment, it carries on agitation and propaganda work, attempts to penetrate
all sorts of women's organizations, and controls the work of Front and
Auxiliary groups arid Fractions. It agitates for the preservation and ex-
tension of women's "rights, " organizes schools and lecture groups, and
trains and supervises women cadres in all party organizations.
Special departments are sometimes established to meet specific
needs, such as those that follow.
h. Colonial Affairs. This department, reported to exist in the French
party, directs the work of the party as it affects the colonies and colonial
elements. Andre MARTY is thought to control the "autonomous" parties
of Morocco, Tunis, and Algeria through the agency of the department. A
similar purpose may be served by the "Korean Section" of the Japanese
party.
i. Agriculture. The National Farm Commission of the American
party, the Agriculture and Food department of the party in the Western
zones of Germany, and similar departments in other countries organize
and direct rural party Fronts, such as co-operatives and farmer&
leagues. They agitate for land and other economic reforms benefiting
peasants in order to enlist their support.
j. Political Affairs. The Politburo ordinarily directs the activities
of the party connected with the higher arms of the civil government, but
special departments are sometimes established to co-ordinate such work
(e.g. , the National Legislation Bureau of the CPUSA, the Electoral
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Campaigns department in Brazil, and the Parliamentary and Community
Politics department in Germany's Western zone). The American organ
publishes a periodical bulletin which discusses the line members should
take toward any particular piece of legislation before the national or
state governments.
A few other departments, whose general functions are apparent from
their titles and which have been established by particular parties to fit
their needs, are the following:
Labor and Social Welfare Policies Germany/West
Refugee and Prisoner-of-War Matters Germany/West
Sports Germany/West
Co-operatives Germany/West
Economics . Germany/West, Japan
Immigrant Workers France
Juridical France
Military Affairs France, China
Repatriation Japan
Veterans United States
Negro United States
Nationality Groups United States
Foreign Affairs United States
B. Territorial Levels
Beneath the central directing machinery, the party is organized suc-
cessively into Regions, Districts, and Cells.
1. Regions)"1 These are the largest territorial divisions of the party.
Usually, but not necessarily, they correspond to the largest political
divisions of the country. The more important metropolitan areas and the
national capital usually stand equal in competence to larger geographical
r egion 0.
lit 'Called 'variously:
Province Argentina
State Brazil
Federation Belginm, France, Italy
Province and Border Region China
Region Venezuela
The situation in Germany is complicated by the fact that the party in the
Western zones is organized on the basis of the Land, rather than the
nation. The territorial divisions are successively: Land, Bezirk, Kreis.
The largest division in the CPUSA is the "District," which may comprise
a state, part of a state, or more than one state. In the last case, it is
snerj.or to e state or_2,anz' ation.
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Regional structure follows closely that of the central machinery.
Thus, the Regional Congress is the lower-level counterpart of the
National Congress, with analogous functions and comprising delegates
elected by the Conferences of :Districts within the Region. The
administrative apparatus is also patterned after the national model, with
a Regional Committee, elected by the Regional Congress, a Secretary,
and various administrative departments suited to the needs of the par-
ticular regional organization. i2
Some countries (Italy, Japan, U.S.) maintain regular organiza-
tions between the national and the regional units. These Inter-Regional
organizations group together several Regions under their control to
shorten and strengthen the party's lines of communications.
2. Districts.13 These are the largest divisions within the Region, and
often correspond to actual civil divisions of the nation. A District may
comprehend a single-city- or a ratIler large area of scattered population.
The directing apparatus of the District is similar to that of the
Region, with an annual conference of delegates elected by assemblies of
the Cells, and with a District Committee and a Secretary elected by the
District Conference. The secretariat includes sections or "responsibles"
for the administration of current party affairs peculiar to the needs of
the District.
The usual subdivision of the District is the Cell. However,
several Cells are frequently grouped together into Sub-District organi-
zations (e. g. , the "Sections" of CPUSA), especially in large cities.
12/ The existence of smaller, more potent organizations within the
Regional Committee has been reported for Brazil ("Executive Commis-
sion") and China ("Standing Committee"). These bodies are presumably
analogous to the Politburo on the national level.
13/ Called variously:
Sections
Hsien (rural) and Muirteipal districts
Radio (area)
(City and county organizations)
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... China
Venezuela
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arawisiamm
3. Cells .14 The basic unit of the party is the Cell. There may
exist, in some countries, special types of Cells (e.g. , Women's, Youth,
Soldiers, Peasant, etc.), but none of them is as important as either the
Street or Factory Cell. The Sfreet Cell embraces members on a street,
or within a block or neighborhood, who cannot, for one reason or another,
join a Factory Cell.
The Factory Cell, based on a workshop, factory, minepit, office,
dock, etc., is the key party organization. According to Bolshevik dogma,
only the proletariat can achieve the revolution:
"The position of the factory worker in the general system of
capitalist relations makes him the sole fighter for the emanci-
pation of the working class (Lenin)
All others are secondary to the Factory Cell. They supplement, but
cannot supplant, its work. All members who can possibly do so, must
join a Factory Cell. They are expected to work with their residential
cells and to join the latter's activities, but they may belong to only one
organization at a time; if possible, a Factory Cell.
The size of a Cell varies between and within countries. The usual
minimum membership is 3; the average, about 25; although very large
Cells with as many as 1, 000 members have been reported. The tradition-
alpreference is for small, tightly' knit Cells, but this depends upon
political conditions and the availability of reliable leaders. The mass-
party tendency of recent yearsmade it necessary for a time to distribute
the "militants" thinly over a few large cells, but most parties have since
reverted to the smaller size. Under adverse circumstances--for purposes
of more effective control and for security reasons?Cells of 3 to 5 members
is the average.
The Cell Assembly is the meeting of all members in good standing,
convoked by the Cell Secretary (who is sometimes called the "Political
Secretary") about twice a month. The assembly is a miniature replica
of the National Congress, but its competence is naturally limited. The
members discuss matters of past and future activities according to an
14/ The term is almost universal. They are sometimes referred to as
"Groups" (Europe), "Clubs" (U.S.), "Branch Party Organs" (China),
"Primary Organizations" (USSR).
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agenda prepared by the Cell Committee, and-elect their leaders and
delegates to the District Conference. If the cell contains less than 10
members, it usually has no committee, the secretary serving in its
place.
Between meetings of the Assembly, administration is effected by
the secretary and committee through "responsibles" for finance, organi-
zation, agitprop, training, women's and youths affairs, etc.
The Cell is the organization through which the life of the party is
strengthened by recruitment and training of new members and through
which the party exerts its influence on the life of the country. Most of
its energies are centered on agitation and propaganda. Some of its more
obvious activities include the following:
(a) to produce and distribute tarty literature e. g., newspapers,
handbills, pamphlets, posters, etc.);
(b) to establish and conduct classes and discussion groups in
order to attract recruits and to indoctrinate new members;
(c) to support and participate in the activities of party Fronts and
Auxiliary organizations and to penetrate and agitate within non-
Communist organizations, with special attention to labor unions;
(d) to organize and participate in active party agitation (e. g.,
parades, mass meetings, forums, protest rallies, lectures, etc.);
(e) to participate in civil politics according to party instructions
(e. g. , elections, protesting legislation, etc.);
(f) to collect party funds (e. g., membership fees and dues, con-
tributions from sympathizers, receipts from the sale of party
literature and admission fees to party-sponsored events?movies,
lectures, etc.).
A series of directives issued by the Central Committee of the
Paraguayan party to its regional ("Department") organizations illustrates
somc of the activities of Street Cells in supporting Factory Cells during
a strike and attempted coup. The inembers of the Street Cells were
instructed to:
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(a) persuade all workers :in their neighborhood and at the
factories to join in the str:ike;
(b) get the co-operation of sympathizers in joining demon-
strations supporting the strike;
(c) organize special "Action" groups, each with a specific
task:
(1) to agitate among and get the support of shopkeepers
in the neighborhood and to get them to close their shops;
(2) to paralyze local street traffic by putting streetcars
and automobiles out of commission;
(3) to hoid flash agitation meetings;
(4) to overpower and seize civil arsenals, police, militia,
and strikebreakers and to seize the latters' arms for tlitiiT
own "protection";
(5) to build platforms at the factories and to make speeches
from them.
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ORGANIZATION AND CHAIN OF COMMAND
OF
A TYPICAL COMMUNIST PARTY
CONTROL
COMMISSION
POLITBURO
CENTRAL
COMMITTEE
ORG -
BURO
SECRETARY GENERAL
SECRETARIAT
? DEPARTMENTS
Organi-
zation
Fin-
ance
Cadre
Agit- Youth
prop
Women
Labor
Agri-
culture
Others
REGIONAL
SECRETARY
REGIONAL
SECRETARY
REGIONAL
SECRETARY
REGIONAL
SECRETARY
REGIONAL
COMMITTEE
REGIONAL
COMMITTEE
REGIONAL
COMMITTEE
REGIONAL
COMMITTEE
SECRETARIES with staff for
Organi-
zation
Fin-
ance
Cadre
Agitprop
Women
Labor
Agri-
culture
Others
DISTRICT
SECRETARY
DISTRICT
SECRETARY
DISTRICT
SECRETARY
DISTRICT
SECRETARY
DISTRICT
SECRETARY
DISTRICT
SECRETARY
DISTRICT
COMMITTEE
DISTRICT
COMMITTEE
DISTRICT
COMMITTEE
DISTRICT
COMMITTEE
DISTRICT
COMMITTEE
DISTRICT
COMMITTEE
SECRETARIES for
Organization Youth
Finance Women
Cadre Labor
Agitprop Agriculture
Cell
Sec'y
Cell
Comm.
Cell
Sec'y
Cell
Comm.,
_L_ _LI _L_ _L L_ L_
Cell
Sec'y
Cell
Comm.
Cell
Sec'y
Cell
Comm.
Cell
Sec'y
Cell
Comm
-24-
Cell
Sec'y
Cell
Comm.
Cell
Sec'y
Cell
Comm.
Cell
Sec'y
Cell
Comm.
Sec'y
Cell
Comm
Officials responsible for finance,
personnel matters, agitprop, training,
youth, women's affairs, work in
factories or among farmers, etc.
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COMMUNIST' PARTY OF THE SOVIET UNION: CPSU*
(VKP (B))
ALL-UNION CONGRESS
AUDIT COM-
COMMISSION
ALL-UNION
POLITBURO
ORGBURO
MISSION
OF PARTY
CENTRAL COMMIlltE
CONTROL
(TSK)
11 members
14 mem-
(KPK)
3 candidates
bers
71 members
68 candidates
SECRETARIAT (SEK TSK)
(16 Union Republics)
CONGRESS
CENTRAL
COMMITTEE
SECRETARIAT
Departments
Personnel
Agitprop
Organization
& Instruction
Military
Agriculture
Fuel Energy
Industry & Transport
Construction
Animal Husbandry
Schools
Trade & Public
Nutrition
Work among Women
OBLAST ORGANIZATION
(regional)
RAION ORGANIZATION
(District)
Primary Organization
(cell)
5 Secretaries
Departments
Upravleniya (Administrations)
Propaganda & Agitation
Personnel
Control of Party Organs
Managing
Otdely (sections--departments)
Work among Women
Arts
Political
Foreign
Industrial
Coal
Nonferrous Metallurgy
Electrical Industry
Building & Building Materials
Transport
Planning, Financial, & Trade
Agriculture
Stock Breeding
Military
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411141111iniumme
*Claimed membership, 1947
USSR: 6,000,000
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POLITICAL COMMISSION
(Politburo)
11 members
DEPARTMENT
(Regional)
ORGANIZATION
PROVINCIAL
(District)
ORGANIZATION
Cell
COMMUNIST PARTY OF PERU*
(Partldo Communista Peruana: PCP)
CONGRESS
CENTRAL COMMITTEE
22 members
(Municipal
organization)
CONTROL COMMISSION
3 members
SECRETARIAT
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dINIIIIIM
Secretaries for
Organization
Finance
Press & Propaganda
Indian & Peasant Affairs
Labor
Women
Youth
*Claimed membership, 1947
35,000
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CONTROL COMMISSION
(Tosei-Iin Kai)
9 members
JAPAN COMMUNIST PARTY*
(Nippon Kyosan-to)
CONGRESS
CENTRAL COMMITTEE
(Chuo-Iin Kai)
25 members
10 candidates
SECRETARIAT
(Shoki-Kyoku)
7 members
POLITICAL BUREAU
(Seiji Kyoku)
9 members
Organization
Labor Unions
Business
Repatriation
(Eikiage
Propaganda
DEPARTMENTS
(Soshikishido-Bu)
(RodoKumiai-Bu)
Affairs (Jimu-Bu)
Counter-Measures
Taisaku-Bu)
(Senden-Bu)
10 INTER-REGIONAL
ORGANIZATIONS
46 (?) REGIONS
(Prefectures)
Publishing (Shuppan-Bu)
Party journal (Kikanshi-Bu)
Finance -(Zaisei-Bu
REGIONAL COMMITTEE
(Chi-Ho Tin Kai)
TOKYO DISTRICT
COMMITTEE
"Vanguard" (Zenei-Bu)
Research (Chosa-Bu)
Cultural (Bunka-Bu)
Departments for--
Farmers (Nomin-Bu))
Business Affairs
Womens (Fujin-Bu)
Organization
Korean (Chosenjin-Bu)
Party journal
Agitprop (Aji Pro-Bu)
Korean affairs
Labor & Farmers
DISTRICT (Chiku)
COMMITTEE
Charges for--
Propaganda
Organization
Labor & Farmers
*Claimed membership
? October 1947: 16,000
-27-
gsgig
Sanitized - Approved For Release : CIA-RDP78-00915R000200170001-0
Sanitized - Approved For Release: CIA-RDP78-00915R000200170001-0
GIPPIP1mo
COMMUNIST PARTY OF GERMANY*
(Kommunistische Partei Deutschlands: KPD)
ORGANIZATION IN TEE BAVARIAN LAND
CONGRESS
(Parteitag)
LAND ORGANIZATION
(Landesvorstand)
Regional Organization
(Bezirksleitung)
District Organization
(Landkreis--rural)
(Stadtkreis--city)
11
DEPARTMENTS
(Abteilungen)
Organization (Abt. Organisation)
Personnel (Abt. Personalpolitik)
Treasury (Abt. Kasse)
Culture & People's Education (Abt. Kultur
u Volksbildung)
Women (Abt. Frauen)
Youth (Abt. Jugend)
Politics (Abt. Parlaments- u. Kommunal
politik)
Labor & Social Welfare Policies (Abt.
Arbeits- u. Sozialpolitik)
Refugee & POW Matters (Abt. Fluechtlings- u.
Kriegsgefangenfragen)
Economic Policies (Abt. Wirtschaftspolitik)
Agriculture & Food (Abt. Landwirtschaft u.
Ernaehrung)
Sub-District Organization
(Ortsgruppe--area)
(Stadtteile-section)
Cells
(Betriebsgruppe--factoryi
(Strassengruppe--street)
*Claimed mmbership, 1947
Western zones: 350,000
Russian zone : 1,576,000
-28-
mallanNOMM
Sanitized - Approved For Release: CIA-RDP78-00915R000200170001-0
anitized - Approved For Release : CIA-RDP78-00915R000200170001-0
COMMUNIST PARTY OF ITALY*
(PARTITO COMUNISTA ITALIANO: PCI)
CONGRESS
HIGH CONTROL
CENTRAL COMMITTEE
DIRECTORATE
ORGANI-
COMMISSION
ZATION
72 members
16 members
CCMMIS-
13 members
15 alternates
4 alternates
SION
INTER-REGIONAL
ORGANIZATIONS
FEDERATION
(Regional)
ORGANIZATION
SECTION
? (District)
ORGANIZATION
SECRETARIAT
6 members
WORK COMMISSIONS
Press and Propaganda
Press & Editorial Section
Cultural Section
Research Section
Press Distribution & Dissemination Section
Artistic Section
Agitprop
Syndical Activists (Attivisti Sindicali)
Cadre
Organization of the Masses (Lavoro di Massa)
SECTION COMMITTEE
3 Secretaries
Responsible for
Organization
Cadre
Syndical work
Press & Propaganda
C.A.R.S. (Committee for the
Aid of Veterans and
Soldiers)
Administration
Women's Political Work
Women's Mass Work
A.R.I. (Association of
Italian Girls)
Youth Political Work
Youth Mass Work
CELL
*Claimed membership, 1947
2,200,000
- 29 _
Sanitized - Approved For Release : CIA-RDP78-00915R000200170001-0
?Sanitized - Approved For Release : CIA-RDP78-00915R000200170001-0
Sanitized - Approved For Release : CIA-RDP78-00915R000200170001-0