PROVISIONAL INTELLIGENCE REPORT SOCIALIZATION OF AGRICULTURE IN BULGARIA
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RT
-PROVISIONAL INTELLIGENCE EPO 11
SOCIALIZATION OF AGRICULTURE IN BULGARIA
/Y,LIG
`Y _ r y
C1A/RR PR-104
18 March 1955
0
1 DEGLARSIF
_
GLASS.. CHANGED TO.
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O
EVIEWER; 0_ 06514
CENTRAL IINTELLIGIENCE AGEN-CY
OFFICE OF RESEARCH AND REPORTS
IDENTIAL
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WARNING
This material contains information affecting
the National Defense of the United States
within the meaning of the espionage laws
Title 18, USC, Secs. 793 and 794, the trans
mission or revelation of which in any manner
to an unauthorized person is prohibited by law
RASA
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C I DA NT
PROVISIONAL INTELLIGENCE REPORT
SOCIALIZATION OF AGRICULTURE IN BULGARIA
CIA/RR PR-104+
(ORR Project 21.149)
The data and conclusions contained in this report
do not necessarily represent the final position of
ORR and should be regarded as provisional only and
subject to revision. Comments and data which may
be available to the user are solicited.
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a1tiL
CONTENTS
Summary . . . . . . . . . . . . . . . .
. . . . . . . . . . .
I. Pre-Socialization Period . . . . .
. . . . . . . . . . .
2
A. Land Reform
2
B . Cooperative Movement . . . . .
. . . . . . . . . . .
3
4
C. From Cooperative to Collective Farms . . . . . . . .
II. Administrative Structure . . . . . . . . . . . . . . . .
if
III. Development of Socialization of AgriculturE
under the Communists . . . . . . . . . . . . . . . . . .
5
Steps in Socialization . . . . . . . . . . . . . . .
A
5
.
B. Policies, Plans, and Progress of Socialization,
6
1947-48 ? ? . . . . . . . . . . . . .
C. Policies, Plans, and Progress of Socialization,
1949-53 . . . . . . . . . . . . . . . . . . . . . .
12
IV. Effects of Socialization . . . . . . . . . . . . . . . . 20
A. Peasants . . . . . . . . . . . . . . . . . . . . . 20
B. Agricultural Production . . . . . . . . . . . . . . . 22
V. Future Developments of Collectivization in Bulgaria . . . 33
VI. Capabilities, Vulnerabilities, and Intentions . . . . . . 35
A. Capabilities . . . . . . . . . . . . . . . . . . . . 35
B. Vulnerabilities . . . . . . . . . . . . . . . . . . . 35
C. Intentions . . . . . . . . . . . . . . . . . . . . . 36
Appendixes
Appendix A. Administrative Structure . . . . . . . . . . . . 37
Appendix B. Brief Description of a Bulgarian Collective
Farm . . . . . . . . . . . . . . . . . . . . . 43
Appendix C. Statistical Tables . . . . . . . . . . . . . . . 47
- iii -
C 0 r L!' Lam. ``rr
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Appendix D.
Methodology . . . . . . . . . . . . . . . . .
~l
Appendix E.
Gaps in Intelligence . . . . . . . . . . . . . .
53
Appendix F.
Source References . . . . . . . . . . . . . . . .
55
Tables
1. Progress of Formation of State Farms in: Bulgaria,
194-7-53 . . . . . . . . . . . .
2. Machine Tractor Stations and Equipment in Bulgaria,
1945-53 . . . . . . . . . . . .
3. Livestock Numbers in Bulgaria, 1935-39 Average, 1939,
1948, and 1955 . . . . . . . . . . .. . . . . . . . . . . 26
4. Per Capita Production of Selected Food Commodities
in Bulgaria, 1935-39 Average, 1948, 1.952, and 1953 29
Gross per Capita Availability of SelectedL Food Commodities
for Human Consumption in Bulgaria, 1933-37 Average,
1948/49 1952/53, and 1953/54 . . . . . . . . . .... . . 30
6. Progress of the Social_zaton of Agriculture in Bulgaria,
L944-53 . . . . . . . . . .
7. Area of Selected Crops in Bulgaria, 1935=39 Average,
i99-53 Average, and Annual 1948-53 . . . . . . . . . . . 48
8. Yields of Selected Crops in. Bulgaria, 1935-39 Average,
1949-53 Average, and Annual 1948-53 . . . . . . . . . . . 4,c)
9. Production of Selected Crops in Bulgaria, 1935-39
Average, 1949-53 Average, and Annual 1948-53 50
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Figure 1. Bulgaria: Growth of Collective and State 14
Farms, 1944-53 . . . . . . . . . . . . . .
Figure 2. Bulgaria: Distribution of Households 16
under Communist Domination, 1945-53 ? ?
Figure 3. Bulgaria: Distribution of Agricultural
Land under Communist Domination,
1945-53 . . . . . . . . . . . . . . . . . . 16
Figure 4. Bulgaria: Index of Area, Yield, Production,
and Per Capita Production of Selected
Commodities, 1948 and 1949-53 Average . . . 22
Figure 5. Bulgaria: Administrative Organization
of Agriculture, 1954 . . . . . . . . . . . . 38
Figure 6. Bulgaria: Cooperative Movement
before 1951 . . . . . . . . . . . . . . . . 40
Figure 7. Bulgaria: Cooperative Movement
since 1951 . . . . . . . . . . . . . . . . . 40
Figure 8. Bulgaria: Collective Farm Organization . . . 40
Figure 9. Bulgaria: Administrative Organization
of State Farms . . . . . . . . . . . . . . . 42
Figure 10. Bulgaria: Functional Organization
of State Farms . . . . . . . . . . . . . . . 42
Figure 11. Bulgaria: Administrative Organization
of Machine Tractor Stations . . . . . . . . 42
Figure 12. Bulgaria: Functional Organization
of Machine Tractor Stations . . . . . . . . 42
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Figure 13. Bulgaria: Dist^ibution of Collective
Farms, May 1949 Inside Back Cover
Figure 14. Bulgaria: Distribution of Machine
Tractor Stations, May 1949 . . . . . Inside Back Cover
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CONFIDENTIAL
CIA/RR PR-lo4
(ORR Project 21.149)
SOCIALIZATION OF AGRICULTURE IN BULGARIA*
Summary
When the Communist Party gained control of the Bulgarian govern-
ment in 1947, land reform, which is the first step in the usual
pattern of socialization of agriculture, had already been accomplished.
A series of land reforms before World War II had resulted in a more
nearly equal distribution of land than existed in any other Balkan
country. About 94 percent of the land was owned by individual
peasants. The earlier land reforms may have enabled the Communists
to proceed more rapidly with the socialization of agriculture, but
the principal factors making for peasant acceptance of socialization
were the long-established cooperative movement in Bulgaria and the
Communist promise of assistance to landless and poor peasants, who
were ready to support the Communist regime for the sake of getting
a piece of land or a favored position for credit and aid.
A forced collectivization program, carried out between 1947 and
1953, resulted in the collectivization of over half of Bulgaria's
agricultural land and the incorporation of over half of the farm
households. State farms accounted for only 3 percent of the agri-
cultural land, a percentage smaller than in any of the other
Satellites. Although the collectivization program was successful,
it had a depressing effect on agricultural productivity, as it had in
the USSR.
The effects of collectivization on agricultural production in
Bulgaria are difficult to separate quantitatively from the effects of
other variables. Peasants' incentives to increase crop production
and animal productivity declined as collectivization was intensified.
Only through increases and shifts in crop acreages, not,through
improvement in yields, was over-all agricultural production maintained
throughout the First Five Year Plan at approximately pre-collectivity
zation levels. An increasing population between 1948 and 1953 thus
was provided, with a diet inferior both in quality and quantity. Per
capita production of major foods and per capita food availability
declined 14 percent and 9 percent, respectively.
* The estimates and conclusions contained in this report represent
the best judgment of ORR as of 1 October 1954.
CONFIDENTIAL
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Bulgaria's "new course," which was incorporated in the Second
Five Year Plan (1953-57),favors the collective sector of agriculture,
as did past policy. Although the government insists that further
collectivization is voluntary, the basic philosophy of nationalizing
the land still persists. Ir.. an attempt to raise the standard of
living, the "new course" aims at greater crop and livestock production,
increased mechanization of agriculture, expansion of state farms, and
increased investments in agriculture.
There is evidence that some of the provisions of the "new course"
are being implemented, but it is not likely that agricultural pro-
duction will increase as a ri~sult? It is unlikely that the peasants
will be won over by the "new course," and peasant resistance will
continue to be a serious obstacle to any short-term increase in
agricultural production.
I. Pre-Socialization Period.
A. Land Reform.
When the Communists gained control of the government of
Bulgaria in 1947, the first phase of Communist socialization of agri-
culture -- land reform (redistribution of land.) -- had already been
accomplished. Under the lea ,.~rsh_ip of Alexander Stamboliiski, the
peasant administration had carried out a 3-year (1921-23) land"
program unequaled anywhere in the :Balkan area. ~* As a result,
Bulgaria emerged with a distr'Lbut'ion of land more nearly equal than in
any other Balkan country. Subsequent land adjustments followed, and by
1934** 94 percent of the cultivated land was in the hands of individual
proprietors; 5 percent belonged, to the state and communes; and 1 per-
cent belonged to monasteries and schools. 2/ Only 1 percent of the
agricultural units contained more than 30 hectares*** of land. 3/
*
**
For serially numbered source references, see Appendix F.
Bulgaria's last prewar census was taken in 1934.
One hectare is equal to 2.47 acres.
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This system of owner-operated farms characterized Bulgaria's
agriculture until the collectivization drives were begun by the Com-
munists in 1948. The last effort at land reform was conducted by a
coalition government in 1946, when the Southern Dobrudja area of
Rumania was annexed to Bulgaria. The size of landholdings was limited
to 20 hectares in all parts of Bulgaria except in the Dobrudja, where
the maximum was set at 30 hectares. 4/
The continuous division of the land through land reform and
the division of existing farms under Bulgaria's inheritance law had
resulted in a greatly increased number of uneconomic holdings. An
attempt by the government in 1933 to consolidate all the small strips
and plots owned by one person into one contiguous farm met with little
success. 5/ Prior to World War II, only 2.25 percent of the farms,
or 0.1 percent of the farm area, were operated by tenants. 6/ These
small uneconomic holdings resulted in a subsistence type oCagri-
culture.
B. Cooperative Movement.
Before World War II, Bulgaria had become the leader of the
cooperative movement in the Balkans. This movement was carried on
under the guidance of the peasant (Agrarian) party, which had been
the leading advocate for land reforms during the 1920's. Patterned
after Western cooperatives and superimposed on the culture of the
Bulgarian village, the movement filled the greatest needs of the
peasants. It provided the necessary credit for farming operations
each year and guaranteed assistance through financial crises.
Before World War II, there was hardly a Bulgarian village without
a cooperative credit association. Many of these associations had
production and consumption affiliates. These cooperatives were
free and voluntary associations. The more than 3,000 credit
associations provided a basis for the joint effort of numerous
small landholders to pool their machines, tools, fertilizers, and
other inputs in an effort to overcome cooperatively the dis-
advantages of inadequate landholdings and to provide the means
to secure proper equipment for individual households.* 8/
* Approximately 1,677 peasants with small holdings had formed 28
free agriculture producer cooperatives on the basis of retaining
the private ownership of the land, inventories, and livestock con-.
tributed to the cooperative effort, which in case of withdrawal of
the peasant from the cooperative were to be restored to him. 7/
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In villages in which there was no formally organized production
cooperative, it was the custom for the peasants to band together and
cooperate in such activities as cultivating and harvesting crops and
husking corn.
In the Bulgarian villages, there was developed a type of
village rotation of crops wherein all the wheat was planted in a
single area of the village lands, all the corn in another area, and
so on with other crops. An extension service modeled on that of the
US was developed to assist. peasants. An American College of Agri-
cuLture had been established in Bulgaria to offer instruction in
the science and art of agriculture.
C. From Cooperative to Collective Farms.
The growing Communist influence during and after the war
spurred the Agrarian Party of the new Fatherland Front Coalition
into increased agitation for further land reform. During the
.reform of -1.946 the party played into the hands of the Communists,
who won the support of the peasants to their so-called cooperative
plan. By the time the Party carne into full. power in the fall of
1947, a few LCAF's, patterned closely after the collective farms
of the USSR, had been organized.* It was not until after the
harvest in 1948, however, that the first campaign to socialize
agriculture by means of the collective farm system was initiated
under Communist supervision..
II . Administrative Structure.
The socialization of agriculture in Bulgaria is under the
direction and control of the Ministry of Agriculture, presently
headed by Stanko Todorov. 9/ Decrees and directives emanate from
the central. government and filter down through the regional and
local levels. The structure and operation of the related agencies
(collective farms, state farms, and machine tractor stations --
MTS's) do not add directly to this report but are nevertheless an
important and essential part of socialization. Their structural
* The terms collective and cooperative are used interchangeably in
Bulgaria. Collective is the proper word, but the Communists also
use cooperative because it is more acceptable to the peasant. The
English equivalent of the official Bulgarian collective is "Labor
Cooperative Agricultural Farm" (LCAF).
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organization and a description of their relationship to the central
government as well as of their functions are shown in Appendix A.
III. Development of Socialization of Agriculture under the Communists.
A. Steps in Socialization.
Steps taken by the Communists in the socialization of agri-
culture in Bulgaria are as follows:
1. Land Reform.
The remaining large estates, plus church lands and the
excess amount of land (over the allowable legal amount -- 30 hectares),
were confiscated and turned over to the landless peasants as well as
to peasants with small landholdings. A considerable area of con-
fiscated land was reserved for state farms.
2. Establishment of State Farms.
Most of the state farms were established before the
collectivization drive was launched. State farms are owned by the
government and operated by paid labor, and they serve as model farms
and service units to collective farms. In the initial stages of
collectivization the state depends largely upon state farms as a
means of penetrating the countryside politically and as a means of
sustaining production. The state farms also perform the function
of providing the collective farms with selected superior seed and
high-grade breeding stock, introducing improved agrotechniques, and
giving general guidance in the use and development of new crops and
techniques.
3. Establishment of MTS's.
The MTS's were established for the purpose of controlling
and regulating the use of the agricultural machinery of the country,
a principal requisite of socialized agriculture. Few collectives
were organized until after the MTS's were fairly well organized. The
MTS personnel, in addition to operating the machines, act as a van-
guard in publicity and in recruitment of members for the collectives.
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Establishment of Collective Farms.
Collective farms were establish,=d ostensibly on the basis
of free and voluntary membership but, as in the other Satellites,
peasants were coerced into joining by the government. After the
1950-51 collectivization drive, the government strengthened its
position economically and politically by setting up the operation of
collective farms according to the provisions of the 1951 model
statute for LCAF's,*
The collective farms are operated under state supervision,
although there is an important difference in the legal basis of
collectives between Bulgaria and the USSR. It is that in Bulgaria,
members of a, collective farm re-:;ain title to the land they have con-
tributed, whereas in the US313 the government has the title to the
Land which it leases in perpetuity to the collective farm.
B. Policies, Plans and Progress of Socialization, 1947-48.
1.. Policies and Plans.
The Two Year Plan. (1.94,,7-48) for the socialization of agri-
culture i.n Bulgaria was set up essentially to provide the necessary
facilities for the first collectivization drive and to introduce the
economic measures by which the established collective farms could
advance and develop.
Objectives of the plan included 10/:
50 in 1948.
a. Expanding state farms.
b. Increasing number of MTS's to 30 in 1947 and to
C. Increasing nimber of tractors to 740 in 1947 and to
2,057 in 1948.
d.. Importing 20 combines in 1947 and 30 in 1948.
This organization is called in Bulgarian TKZS -- Trudovo
Kooperativno Iemedelsko Stopan.stvo.
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e. Meeting the following targets for collectivization:
Number of
Collective Number of Number of
Year Farms Hectares Households*
1947 560 250,000 N.A.
1948 800 400,000** 60,000
f. Placing livestock breeding enterprises on 30 state
farms, 120 collective farms, and 150 municipals farms.
g. Extending various forms of economic aid to the
socialized sector, such as loans for the setting up of cooperative
facilities at greatly reduced rates (5.5 percent for independent
farmers and 3.5 percent for cooperatives); use of agricultural
machinery at reduced fees; exemption from taxes; free veterinary
services; provision for the use of superior seeds, vines, fruit,
and trees; and animal breeding stock.
During the progress of the Two Year Plan a legal
structure was set up which gave the government power to execute
the plans. In February 1948 a law was passed legalizing the com-
pulsory purchase of agricultural machinery by the government.
This law provided that all machinery -- including such equipment
as tractors, threshers, seeders, hay binders, and the like --
was subject to compulsory sale. This equipment was transferred
to the MTS's or diverted to state farm use. As a result of the
implementation of this act the government was able to strengthen
the MTS's and at the same time weaken the large landholder through
*_A house old is often referred to as a landowner, homestead,
estate, farm, or family.
** As explained below)this acreage apparently was reduced
although there appears to have been no formal announcement of the
reduction.
*** The main difference between a state farm and a municipal farm
is jurisdictional. The municipal farm is under the control of the
city or municipal governing body and not the state. The functions
of the two farms are primarily the same. A municipal farm supplies
only the city with which it is associated, whereas state farm
produce can be sent anywhere at the discretion of the government.
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destruction of his basic means of production. ll/ Half the indicated
(minimum) price was paid for the confiscated machinery immediately in
cash, and the remainder was deferred.
On 21 May 1948 the Council of Ministers issued the decree
for the compulsory sale of wheat, rye, barley, oats, and spelt.
Compulsory deliveries were set higher for independent peasants than
for those in collectives. 12/
Another law was passed for the establishment of a pro-
gressive system of taxation based on income and on property held by
individual peasants. The welL.-to?-do farmers -?- the independent
farmers, in this case -- were forced to bear the largest burden.
Small landholders (under 3 hectares) or farmers not returning a
prescribed amount of income were exempt from payment of taxes. In
1948 this law excused 50 percent of the small peasant farms from
paying taxes. Hence the weigat of taxation was on the middle and
wealthy classes of peasants. 13/
IcL December 1948 the government abolished tenant farming.
In this manner, production capabilities of the farmers with larger
holdings were reduced further.. 14/
In. 1948 the "law of state goods" was enacted, authorizing
the government, to dispossess ]p)easants so that the needs of collective
farms and state farms could be met. Land outside the collectivized
area was given the dispossessed peasant. This law served as a
vehicle for getting rid of recalcitrant and anti-Communist peasants.
The 1945 decree on cooperatives was further altered by
governmental action which permitted the Communists to establish
collective farms similar to the Soviet collective farms (kolkhozes) . 16/
Although this action modified the existing law, it failed to change
the provision granting private ownership of land and the "free and
voluntary association" of peasants. Because of these provisions in
the law, the Communists could not legally use force to establish
collective farms, and since the denial of the use of force was counter
to their plans, the law was conveniently overlooked. By deed as
well as by legislative action, the Communists had established by the
end of 1948 a legal basis upon which to carry out an intensive
collectivization program.
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The Two Year Plan in addition called for the recovery
by the end of 1948 of all segments of the economy to at least the
prewar level.
2. Progress.
During the Two Year Plan the main emphasis of the
socialization program was on setting up a base upon which collectivi-
zation was to be established. This included the organization of
state farms, MTS's,and the expansion of mechanized agriculture. In
1947, state farms had not increased in area or number since their
establishment in 1945. The majority of state farms were located in
Southern Dobrudja,* the area with the largest estates, and some were
created from confiscated church lands. Fifty-six state farms were
established in 1947. These were increased to 86 in 1948, accounting
for 77,500 hectares, an average of 901 hectares of land per farm
(see Table l**). 17/ Most of the state farms organized in 1948 were
on land which apparently had lain idle in the Dobrudja since before
the war. The small size of peasant holdings other than those in the
Dobrudja probably discouraged any large-scale campaign to increase the
number of state farms elsewhere. Instead, more attention was devoted
to increasing the size of the individual state farms.***
Organization of MTS's was not accelerated until 1948,
following the gaining of control of the government by the Communists.
The effect of the compulsory sale of machinery is shown by the rapid
increase in government-owned tractors during 1948.f**
Southern Dobrudja was acquired from Rumania in 1946.
Table 1 follows on p. 10.
The existence of state farms planned by the Communist Party of
Bulgaria did not become of major significance until the Land Reform
Law of 9 April 1946. 18/ At that time, 74,370 hectares 19/ of the
243,000 hectares 20/ in the state land fund were allocated by the
state for the development of state farms. There was no legal basis
for establishing state farms until the adoption of the new con-
stitution on 4 December 1947. 21/ There were a number of farms
organized before this date, but most of the farms were organized in
1948.
* * One source places the number of tractors appropriated at
3,600 by the end of 1949. This action accomplished two purposes.
First, it gave the Communists the tractors they needed at their own
price, and second, it made the private peasants dependent on the
government for tractor power. 22/
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Table 1
Progress of Format-'on c,,f State Farms in Bulgaria
1(9) 7-`~3
Number
of
Area
in
State Farms
Area
per
State Farm
Area
in State Farms
as
Percent
f T
'Y'ear a/
State Farms
(Hectares)
(Hectares)
o
otal
Agricultural La
d b/
n
1L947
56
24/
20,700
370
0.4
1948
86
7/
77,500
901
1.6
1949
91
27/
85 , 000 ,7Ca/
934
1
7
1950
91
30
85,000 ;i/
934
.
1.7
1-951
103
32/
'
154,500
1,500
33/
3.1
1952
108
3T+/
'
16o,000 :E /
1,481
3.3
1-953
108
3
16o,000 77/
1,)+81
3.3
1.953
(Plan)
120,000
a. End-of-year figures. '~ -
b. Agricultural land includes arable ].and, meadows, vineyards, orchards,
and gardens. The estimated agricultural land in Bulgaria is 4.9 million
hectares. 23/
The number of MTS's increased from 30 in 1947, 38/
with 14o tractors,39/ to 71 in 1948, 4o/ with 3,526 tractors. 47 The
plan for MTS's in 1948 was exce:,ded by 42 percent, and the plan for
tractors by 7.1 percent (see Table 2*). During the year, sizable im-
ports of tractors came from the USSR.
Collectivization j.ot off to a slow start in 1947, but,
by the end of L9 8, 1,100 collective farms comprising 78,900 house-
.Lclds and controlling 292,380 he?ctares of agricultural land had been
Table 2 follows on p. 11.
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