Conventional wisdom in the West says that post-Cold War Russia has been a disastrous failure. The facts say otherwise. Aspects of Russia's performance over the last decade may have been disappointing, but the notion that the country has gone through an economic cataclysm and political relapse is wrong--more a comment on overblown expectations than on Russia's actual experience. Compared to other countries at a similar level of economic and political development, Russia looks more the norm than the exception.
Andrei Shleifer is Whipple V.N. Jones Professor of Economics at Harvard University. Daniel Treisman is Associate Professor of Political Science at the University of California, Los Angeles. For full references and data sources see http://papers.nber.org/papers/w10057.
RETHINKING RUSSIA
During the last 15 years, Russia has undergone an extraordinary transformation. It has changed from a communist dictatorship to a multiparty democracy in which officials are chosen in regular elections. Its centrally planned economy has been reshaped into a capitalist order based on markets and private property. Its army has withdrawn peacefully from both eastern Europe and the other former Soviet republics, allowing the latter to become independent countries. In place of a belligerent adversary with thousands of nuclear missiles pointed at it, the West finds a partner ready to cooperate on disarmament, fighting terrorism, and containing civil wars.
Russia's reinvention would seem cause for celebration. Twenty years ago, only the most naive idealist could have imagined such a metamorphosis. Yet the mood among Western observers has been anything but celebratory. Russia has come to be viewed as a disastrous failure and the 1990s as a decade of catastrophe for its people. Journalists, politicians, and academics have described Russia not as a middle-income country struggling to overcome its communist past and find its place in the world, but as a collapsed state inhabited by criminals and threatening other countries with multiple contagions.
As the 1990s drew to a close, the left and the right in the United States were united in this view. To Republican Dick Armey, then House majority leader, Russia had by 1999 become "a looted and bankrupt zone of nuclearized anarchy." To his colleague, House banking committee chairman James Leach, Russia was "the world's most virulent kleptocracy," more corrupt even than Mobutu Sese Seko's Zaire. From the left, Bernard Sanders, the socialist member of Congress from Vermont, described Russia's economic performance in the 1990s as a "tragedy of historic proportions." A decade of reform had earned the country only "economic collapse," "mass unemployment," and "grinding poverty."
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The neoliberal economic and political models used by Western analysts to explain Russia's recent transformation ignore the interrelationship between the economy and politics. Russia is in the midst of a social revolution. Economic reform without political reform-as attempted by Yegor Gaidar-will fail. Prime Minister Viktor Chernomyrdin's policies have met with some success because of accompanying political changes. This interrelated pattern of reform must continue.
Will Russia be run by democrats or oligarchs? The signs are worrying. The West would rather not dwell on the extent to which Russia's market is dominated by robber barons and permeated by crime and corruption. Russia's democracy is weak, with unfair election campaigns, a compromised media, and few checks on the presidency. The West cannot afford to let Russia descend into chaos, which might mean losing control of Russia's arsenal of weapons of mass destruction, but its two-faced NATO expansion policy hurts the democrats' chances.
What enthusiasts took for a global rush to democracy may be reversing direction, with backsliding and stalled transitions in the former Soviet Union, Africa, the Middle East. So far, one sees disarray or new strongmen much like the old; no competing ideologies seem to be beckoning. Market reforms have not been the cause in most cases. More affluent countries with Western ties seem to be sticking the course better. However the trend plays out, it should lead the administration to rethink democracy promotion. The truth is that U.S. policy is not significantly responsible for democracy's advance or retreat in the world.
