Leonid Brezhnev
Agricultural policy

Brezhnev's agricultural policy reinforced traditional ways of organizing collective farms and enforced output quotas centrally. Although there was a record-high state investment in farming during the 1970s, the evaluation of agricultural output continued to focus on the grain harvest. Despite some improvement, there were still problems such as insufficient domestic production of fodder crops and a declining sugar beet harvest. Brezhnev attempted to address these issues by increasing state investment and allowing privately owned plots to be larger. However, these actions were not effective in solving fundamental problems like a shortage of skilled workers, a ruined rural culture, and inappropriate farm machinery for small collective farms. A significant reform was necessary, but it was not supported due to ideological and political considerations.

Brezhnev's agricultural policy reinforced the conventional methods for organizing the collective farms. Output quotas continued to be imposed centrally. Khrushchev's policy of amalgamating farms was continued by Brezhnev, because he shared Khrushchev's belief that bigger kolkhozes would increase productivity. Brezhnev pushed for an increase in state investments in farming, which amounted to an all-time high in the 1970s of 27% of all state investment – this figure did not include investments in farm equipment. In 1981 alone, 33 billion U.S. dollars (by contemporary exchange rate) was invested into agriculture.

Agricultural output in 1980 was 21% higher than the average production rate between 1966 and 1970. Cereal crop output increased by 18%. These improved results were not encouraging. In the Soviet Union the criterion for assessing agricultural output was the grain harvest. The import of cereal, which began under Khrushchev, had in fact become a normal phenomenon by Soviet standards. When Brezhnev had difficulties sealing commercial trade agreements with the United States, he went elsewhere, such as to Argentina. Trade was necessary because the Soviet Union's domestic production of fodder crops was severely deficient. Another sector that was hitting the wall was the sugar beet harvest, which had declined by 2% in the 1970s. Brezhnev's way of resolving these issues was to increase state investment. Politburo member Gennady Voronov advocated for the division of each farm's workforce into what he called "links". These "links" would be entrusted with specific functions, such as to run a farm's dairy unit. His argument was that the larger the work force, the less responsible they felt. This program had been proposed to Joseph Stalin by Andrey Andreyev in the 1940s and had been opposed by Khrushchev before and after Stalin's death. Voronov was also unsuccessful; Brezhnev turned him down, and in 1973 he was removed from the Politburo.

Experimentation with "links" was not disallowed on a local basis, with Mikhail Gorbachev, the then First Secretary of the Stavropol Regional Committee, experimenting with links in his region. In the meantime, the Soviet government's involvement in agriculture was, according to Robert Service, otherwise "unimaginative" and "incompetent". Facing mounting problems with agriculture, the Politburo issued a resolution titled, "On the Further Development of Specialisation and Concentration of Agricultural Production on the Basis of Inter-Farm Co-operation and Agro-Industrial Integration". The resolution ordered kolkhozes close to each other to collaborate in their efforts to increase production. In the meantime, the state's subsidies to the food-and-agriculture sector did not prevent bankrupt farms from operating and rises in the price of produce were offset by rises in the cost of oil and other resources. By 1977, oil cost 84% more than it did in the late 1960s. The cost of other resources had also climbed by the late 1970s.

Brezhnev's answer to these problems was to issue two decrees, one in 1977 and one in 1981, which called for an increase in the maximum size of privately owned plots within the Soviet Union to half a hectare. These measures removed important obstacles for the expansion of agricultural output but did not solve the problem. Under Brezhnev, private plots yielded 30% of the national agricultural production when they cultivated only 4% of the land. This was seen by some as proof that de-collectivization was necessary to prevent Soviet agriculture from collapsing, but leading Soviet politicians shrank from supporting such drastic measures due to ideological and political interests. The underlying problems were the growing shortage of skilled workers, a wrecked rural culture, the payment of workers in proportion to the quantity rather than the quality of their work, and too large farm machinery for the small collective farms and the roadless countryside. In the face of this, Brezhnev's only options were schemes such as large land reclamation and irrigation projects, or of course, radical reform.
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