Don't try to control everything

Matthew Taylor argues that ministers must encourage the public sector to take risks

Welcome to the evaluative state. Shortly before Christmas a white paper set out targets that must be met, both by government departments and by initiatives (such as crime prevention and family support) that cut across departments. Some of these Public Service Agreements (PSAs) are familiar: the manifesto pledges on class sizes and NHS waiting lists, for example. Others are more obscure. These range from the detailed and measurable - the Department for Culture is to ensure that 75 per cent of libraries are linked to the Internet - to the broad and intangible - the first Foreign Office objective is to "build a modern Nato, adapted to the needs of the new millennium".

Alongside them we have the growth in evaluative agencies: the best known is probably Ofsted, which enforces standards in education. Among the new agencies are the Commission for Health Improvement and the Best Value Inspectorates in the Audit Commission. Only last month Chris Smith, the Secretary of State for Culture, announced Quest, an agency that will measure value for money in the arts (ministers wisely decided against Ofart).

All this is certainly better than what came before. As Tony Blair wrote in the introduction to the white paper: "Too often in the past, governments have only made commitments for what they put into public services - money, manpower and policies - not what the public will get out in return." The Conservatives did not fundamentally challenge this "input culture"; instead, they privatised, introduced quasi-markets and steadily eroded local control. In contrast to the Tories' anti-state rhetoric, Labour aims to strengthen support for public expenditure by providing citizens with clear evidence of where their money is going and what it is achieving.

But accepting the idea of target-setting is one thing; setting the right targets is another. Doctors have argued that the numbers on waiting lists - which Labour has pledged to reduce - are less important for individual patients than waiting times. The waiting-list target does not tell us whether those in greatest need are being seen first. Again, the target for 50 per cent of pupils to achieve five A-C grades in GCSE gives schools every incentive to concentrate on those of middling ability (so that they get five rather than four A-C grades) but much less reason to bother with those at the lower levels of attainment. The target thus becomes a measure not of school performance but of the head's ability to direct resources ruthlessly to a particular group. Education ministers have now recognised this, and included a target to reduce the number of pupils leaving with no qualifications. But the reality of league tables means that schools will to continue to focus on improving the performance of the middle and top bands.

It is a characteristic of management by target that more and more measures have to be developed to correct the perverse incentives created by earlier ones, rather as the judge in the film What's Up Doc? took so many pills to deal with the side-effects of others that he forgot what was originally wrong with him.

Further, ministers and civil servants, knowing that they will be judged by outcomes, start to take stronger and stronger powers to shape those outcomes. They move further and further "upstream", trying to control the process by which targets are reached. In primary schools, for example, ministers have set targets for literacy and numeracy; now they are dictating time, content and method for these subjects.

And therein lie the dangers. If ministers try to extend their control to process as well as outcome, the scope for public managers, local councillors and public service volunteers to use their own initiative will become ever more circumscribed. Creative minds are hardly going to be attracted to public service by the financial rewards. People need to feel they can lead, respond to local circumstances and make a difference. Yet school governors, for example, find themselves acting as managerial assistants to head teachers, dealing with an ever-growing tide of regulations from the Department for Education and Employment or the town hall.

Labour's commitment to civic engagement and the renewal of communities is an important part of its new ideology. It is an area where the values of traditional liberalism and new social democracy are complementary. But by exerting too much control from the centre Labour risks invalidating its commitment to active citizenship.

What is the answer? In championing the PSAs, Blair and Gordon Brown often speak of "money for modernisation". To this should be added the idea of "freedom for modernisation". As public services deliver on their targets, the reward should be not only more resources but also more autonomy over how targets are pursued. Ministers have already proposed "beacon councils", to be given special freedoms as a reward for meeting best-value targets, and even Ofsted - supposedly the big bad wolf of the evaluative state - is developing "light-touch" inspections for demonstrably successful schools.

Such ideas should be extended. But the government will have to do two things it sometimes finds difficult. First, it will have to resist the temptation to exert ever more detailed central control. The muted response to the idea of targets for the patients' charter being set locally is not a good sign. Second, as a thousand flowers bloom in the public sector, the government will have to be willing to take a hit when local innovators get it wrong or when their methods are viewed as too unconventional by Daily Mail standards.

In its recent white paper on competitiveness, the government argued that a greater tolerance of business failure was the price for encouraging risk-taking. It would be good to see a similar standard applied to the public sector. Who knows: it may convince people that ministers are not control freaks.

Matthew Taylor is the new director of the Institute for Public Policy Research

Matthew Taylor became Chief Executive of the RSA in November 2006. Prior to this appointment, he was Chief Adviser on Political Strategy to the Prime Minister.

This article first appeared in the 15 January 1999 issue of the New Statesman, A slight and delicate minister?

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What caused the Russian revolution? Look to the powder keg of Petrograd

How unrest exploded in 1917 – with help from Russia’s Terrible Twins.

Nineteen seventeen is a year that resonated through the 20th century. But place matters here as much as time – “place” meaning not just Russia, but Petrograd, as the imperial capital became known after “St Petersburg” was de-Germanised on the outbreak of war in 1914. Though in due course 1917 was touted as a universal model for revolution, it cannot be detached from the impact of the Great War in a distinctive country and a uniquely combustible city. Nor can it be separated from the intertwined stories of two almost incomprehensible men, a failed autocrat and a ruthless dictator: Tsar Nicholas II and Vladimir Lenin, Russia’s Terrible Twins.

The Great War may as well have been called the Great Killing. In 1916, the London Annual Register offered this elegant summary of the callous calculus that passed for Grand Strategy: “[T]he number of men possessed by the Entente Powers was much greater than the number that the Central Powers could command. The war was therefore to be a crude process of sheer killing. And then, assuming that each side killed equally effectively, the Entente would reach victory in an inevitable manner through the working of a simple mathematical law.”

But each side did not kill “equally effectively”. Not only were the Germans more efficient killers than their opponents, but the homicidal potency of each country on the battle front depended on its industrial efficiency on the home front. Despite frequent strikes, Britain and France “worked” as societies and economies; the main member of the Entente, Russia, did not. Its Achilles heel was the supply of fuel and food by a broken transport system during the coldest winter in years. In early 1917 bread riots broke out in many cities. But only one of those cities was the crucible of revolution.

Petrograd was unusual, by Russian standards and those of the modern world. The fifth-largest metropolis in Europe, it was an industrial sweatshop of 2.4 million people in a predominantly rural country. Seventy per cent of the city’s workers were employed in factories with a staff of over 1,000, a proportion unmatched even in the conurbations of Germany and the US. Sucked in by the war boom, they lived amid squalor: more than three people on average to every cellar or single room, double the figure for Berlin or Paris. About half the homes lacked water supply or a sewage system; a quarter of all babies died in their first year.

Yet wealth and privilege were staring these workers in the face: the main factory district, on the Vyborg Side of the Neva, lay just across the water from the imperial palace and the fashionable Nevsky Prospekt. This cheek-by-jowl polarisation contrasted with more suburbanised industrial centres such as Berlin, London and Paris. Equally important, Petrograd was a large garrison, with over 300,000 soldiers in and around the city. That, an eyewitness said, was like placing “kindling wood near a powder keg”.

Today the barracks and the sweatshops are gone. But even in modern St Petersburg one can see why Petrograd literally walked into revolution in 1917. A 90-minute hike will take you from the Finland Station on the Vyborg Side, across the Liteiny Bridge, west along the embankment to Palace Square and then left down Nevsky Prospekt to the Moscow Station. Maybe an hour, if you cross the Liteiny Bridge and turn east to the Tauride Palace and Smolny Convent. Along these axes, within the space of a few square miles, the drama of 1917 played out.

Thousands of spectators looked on and many recorded what they saw. Some were foreign residents and journalists, whose impressions are the stuff of Helen Rappaport’s lively narrative Caught in the Revolution. Sticking closer to raw sources is John Pinfold’s Petrograd, 1917, which is lavishly illustrated with postcards and prints from the Bodleian Library’s collections. Some of the city’s biggest factories were British-owned and British-managed: the Thornton Woollen Mill, employing 3,000 workers, belonged to three brothers from Yorkshire. Many of the luxury stores along Nevsky Prospekt – tailors, dressmakers, food emporiums, bookshops – were British or French, catering for expatriates and wealthy Russians in the days when French was still the lingua franca of the elite.

For months it had been clear that trouble was brewing. “If salvation does not come from above,” one Russian duchess warned the French ambassador, “there will be revo­lution from below.” Yet few anticipated how Petrograd would stumble into a new era.

Thursday 23 February (tsarist Russia still followed the Julian calendar, 13 days behind the Gregorian calendar used in the West) was International Women’s Day, a red-letter date for socialists. Thousands flocked across the bridges and the frozen river from the Vyborg Side and other industrial areas and marched down Nevsky Prospekt demanding bread. Trams and other obstacles were pushed aside. “I have heard the Marseillaise sung many times,” wrote Florence Harper, an intrepid American journalist, “but that day for the first time I heard it sung as it should be” – with raw class hatred.

Marchons! Marchons! All day the tide surged along and around Nevsky. Across the river, strikes spread violently through the factory districts. More demonstrations followed on Friday, and clashes escalated with the hated mounted police. Yet life still went on: the Alexandrinsky Theatre, one block off Nevsky, was packed that evening for a performance of Nikolai Gogol’s classic comedy The Government Inspector, its tale of official corruption, incompetence and self-delusion from the era of Nicholas I still richly apt in the dog-days of Nicholas II. By the weekend, however, trams had shut down, most shops were closed and looting was rife. Troops and policemen massed around the main squares. But when the police started sabring the crowds, Cossack troops and even crack Guards regiments sided with the protesters.

On Monday 27 February, with temperatures rising literally as well as figuratively, thousands of mutinous soldiers joined the milling crowds, which were now armed with booty looted from military arsenals. Army officers were particular targets. One of them, bemedalled and swaggering, was pursued along Nevsky by a crowd of women who stripped him of his weapons. A grey-haired woman screaming abuse broke the officer’s sword over her knee and tossed the bits into a canal. By nightfall, the tsarist regime had lost control of most of the city, except the Winter Palace and a few government buildings nearby. It was “a revolution carried on by chance”, Bert Hall, an American aviator attached to the Russian Air Service, wrote in his diary – “no organisation, no particular leader, just a city full of hungry people who have stood enough and are ready to die if necessary before they will put up with any more tsarism”.

Although Hall’s account was rather simplistic, this was indeed a revolution in search of a leader. On 2 March the tsar abdicated, but plans for a constitutional monarchy evaporated when his brother Mikhail refused the throne, leaving Russia headless. A rump of the parliament dithered and bickered in one wing of the Tauride Palace, while a heaving jumble of soldiers, workers and activists in the other wing congealed into the “Petrograd Soviet”. Aptly, they were on the left of the palace and the politicians were on the right, with little to connect the two sides. The politicians became the Provisional Government but the soviet had authority over the army. “Dual power” signalled a duel for power.

The duel proved painfully protracted. Four coalitions ensued in less than nine months, not to mention seven major reshuffles. Meanwhile the country slipped towards civil war – a process well documented by Stephen Smith in Russia in Revolution, based on a deft synthesis of recent research. Peasants with guns and pitchforks looted the big houses and seized the estates. Workers’ committees took control of much of the defence industry. In the army, “all discipline has vanished”, the French ambassador told Paris. “Deserters are wandering over Russia.” Smith emphasises that February aroused idealism as well as anarchy: a yearning for political rights, decent living standards and, above all, peace. Yet the leader of the Provisional Government, Alexander Kerensky, decided to mount a summer offensive against the Germans, which quickly became a disaster, with vast losses of troops and territory. The people were turning against the government but the indecisive duel dragged on.

Enter Lenin. Contrary to Soviet mythology, he was not a “man of the people”. His father belonged to the provincial establishment – a reformist inspector of schools in the Simbirsk region, south-east of Moscow. Lenin’s pedigree was also hushed up by the Soviet authorities: his maternal grandfather was Jewish and his paternal grandmother was a Kalmyk from central Asia, hence those “Mongol eyes” and high cheekbones. Most of all, he was a man who had been going nowhere for years, or, rather, had been going round in circles. Yet when finally he went for the jugular it proved decisive for him – and fatal for Russia.

Victor Sebestyen brings the man’s complexities to life in Lenin the Dictator, balancing personality with politics in succinct and readable prose. Like other biographers, Sebestyen roots young Vladimir’s revolutionary turn in the double trauma in 1886-87 of his father’s sudden death and his elder brother’s execution for plotting to kill the tsar. From now on Lenin’s one-track, control-freak mind was fixed on the goal of a Russian revolution, in defiance of Karl Marx’s insistence that this would be impossible until feudal peasant Russia had first become a bourgeois society.

For three decades, however, the would-be revolutionary was a failure, spending much of his time in exile flitting between Munich, London, Paris and various “holes” in Switzerland – Geneva, Bern, Zurich – endlessly plotting revolution, frenziedly writing revolution, but not actually doing revolution. In fact, Lenin seemed to have a knack of being in the wrong place at the right time: outside Russia in the upheavals of 1905, likewise when war broke out in ­August 1914, and again when tsarism was toppled in February 1917. It was almost as if he was so obsessed with revolution that he could never see it coming.

This life of frustrated waiting took an enormous toll on nerves and health. Sebestyen describes particularly keenly how this ruthless, domineering, often vicious man depended on three women to sustain him. There was Maria Ulyanova, his mother, who provided financial and emotional support until her death in 1916. Then his wife, Nadezhda (“Nadya”) Krupskaya – written off in Soviet times as a mere cook and amanuensis, but who Sebestyen and other biographers show to be an intelligent and devoted partner in the revolutionary project and one with whom Lenin talked out his ideas before writing them down. And Inessa Armand, a chic French divorcee for whom Lenin fell, passionately, in the only real “affair” of his life. A superb linguist and accomplished pianist, Inessa was not only his sharpest intellectual critic but also an intrepid party organiser, undertaking dangerous missions in Russia. Nadya accepted the ménage à trois with remarkable equanimity and the two women seem to have become good friends. Nadya, who was childless, was especially fond of Inessa’s two young daughters.

Lenin might have gone to his grave playing out this pointless life of head and heart but for the accident of the February revolution. Now frantic to get back to Petrograd, he could not see how to travel from Zurich across or around war-torn Europe. His plans to do so became increasingly surreal. A wig to conceal his giveaway bald pate? Maybe a Swedish passport? (Forgeries were easily obtained.) “Find a Swede who looks like me,” he instructed a Bolshevik in Stockholm. “But as I know no Swedish, he will have to be a deaf mute.”

In the end, the kaiser’s Germany came to his rescue, eager to undermine Russia’s home front. To quote Winston Churchill’s celebrated one-liner, “They transported Lenin in a sealed truck like a plague bacillus from Switzerland into Russia.”

In Lenin on the Train, Catherine Merridale tells the famous story with colour and detail, setting it in the crucible of a Europe at war. Her introduction relates how she faithfully retraced his 2,000-mile journey to Petrograd, even leaving Zurich on the same date as Lenin, though this personal odyssey is not then woven into the body of the book. And because her account does not extend as far as the October revolution, we finish the book on a slight sense of anticlimax. But Merridale offers an engrossing account of the physical train ride – in a single wooden carriage, painted green, consisting of three second-class and five third-class compartments plus a baggage room. German guards sat at the back behind a chalk line on the floor, to preserve the fiction that Lenin had no contact with Russia’s enemy.

A martinet as ever, he imposed specific sleeping hours on his Bolshevik fellow travellers, banned smoking in the compartments and corridor, and instituted a pass system to regulate use of the toilet between smokers and those answering the call of nature. After a tense delay in Berlin, the train chugged on to Germany’s Baltic coast, from where a ferry and then more train journeys through Sweden and Finland brought Lenin to the Finland Station in Petrograd on Easter Monday, 3 April.

That night he delivered a tub-thumping, two-hour speech to his socialist comrades explaining that the first phase of Russia’s revolution was over and the second was beginning. Not for him a coalition of the left, let alone the British/French staging post of liberal democracy: the Russian bourgeoisie was locked in to capitalism and wedded to the war. No, the second stage was quite simply to “place power in the hands of the proletariat and the poorest sections of the peasantry”. To most of his listeners, Merridale remarks, “this was not just bad Marxist theory; it was an invitation to political suicide”. Even Nadya was overheard telling a friend, “I am afraid it looks as if Lenin has gone crazy.”

Once home again, Lenin seemed to succumb to the Petrograd paralysis. He hectored large crowds and churned out endless articles, insisting, “No great question . . . has yet been resolved in history other than by force.” But in June he warned key aides not to let anti-war demonstrations get out of hand: “Even if we were now able to seize power, we’re in no position to hold it.” When the protests did escalate and the government cracked down, he fled to Finland, provoking bitter accusations of cowardice from many of his jailed supporters.

But finally he went for broke. After three months in exile again, he slipped back into Petrograd on the night of 10 October to browbeat the Bolshevik Central Committee into affirming that the time was “perfectly ripe” for “an armed uprising” against Ker­ensky and the Provisional Government, rejecting arguments that they should work for a peaceful transfer of power at the Second Congress of Soviets 15 days later. As Sebestyen observes, “If anything disproves the Marxist idea that it is not individuals who make history but broad social and economic forces it is Lenin’s revolution.”

On 24 October, Lenin’s comrades tried to keep him tucked away on the Vyborg Side because he was still on the government’s wanted list. But by the evening he could not endure to wait yet again in the wings. Crudely disguised with glasses, a grey wig and a worker’s peaked cap, he took off for the Smolny Institute where the Bolsheviks had their military headquarters. Without a car or tank for transport, he and one bodyguard got on a tram to the Liteiny Bridge and then tramped the rest of the way along the embankment, narrowly avoiding arrest. Like the protesters in their February revolution, Lenin walked into Red October – and finally into history.

Today Lenin’s mummified body still resides in its shrine in Red Square, in the heart of Moscow. But in fact, as Sebestyen writes, Tsar Nicholas “did as much as anyone, including Lenin, to bring about the destruction of the Romanov dynasty and to ensure the Communist takeover in Russia” – not just by setting his face against reforms that might have averted revolution, but also because he had “no understanding of the nature of power”. Russia in 1917 was “an ­autocracy without an autocrat”.

In The Last of the Tsars, Robert Service ­examines the mentality of this lost leader. He does so through the lens of Nicholas’s experiences and reflections during the 16 months between his abdication in March 1917 and his family’s grisly end in July 1918. The tsar’s limp surrender of the throne ­continues to amaze. Emotional exhaustion; pressure from the army command; concern for his haemophiliac son; the impossibility of squaring a constitutional monarchy with his coronation oath: one can intuit possible explanations. But it still seems astonishing that this proud scion of the Romanov dynasty, rulers of Russia for three centuries, signed away his throne on a provincial railway station with blank calm – as if, to quote one aide, “he were turning over command of a cavalry squadron”.

The abdication wasn’t something Nicholas discussed during his peripatetic house arrest in 1917-18 around western Siberia and the Urals. Nor did the eks-Imperator (as he was described on his ration card) express any regret about his record as a ruler: he blamed Russia’s woes on alien forces instead. Top of the list were the German invaders and the Bolshevik revolutionaries: he described the peace treaty that Lenin signed with the Kaiserreich, surrendering the Baltic states and the Ukraine, as a “nightmare”. The tsar may have been a devoted husband and father – romanticised in the movie based on Robert Massie’s 50th-anniversary encomium Nicholas and Alexandra – but, as Service writes: “In power and out of it, he was a nationalist extremist, a deluded nostalgist and a virulent anti-Semite.”

Originally the Bolsheviks had envisaged a show trial, like those of Charles I in England and Louis XVI in France. But by July 1918 the time had passed for political theatre: Russia was engulfed in civil war and hostile Czech troops were closing in on Ekaterinburg, where the Romanovs were now being held. Service has no doubt that Lenin authorised the killing but – as in 1917 when he was trying to cover up German help and money – any documentation was destroyed. Instead, conveniently in keeping with the Bolshevik slogan “All power to the soviets”, responsibility for the deed was ascribed to party leaders in Ekaterinburg.

Yet even after Nicholas’s death his regime lived on. “As a form of absolutist rule the Bolshevik regime was distinctly Russian,” Orlando Figes remarked in his 1996 classic, A People’s Tragedy. “It was a mirror-image of the tsarist state.” Lenin and Stalin replaced the Tsar-God, and the Cheka/NKVD/KGB continued (even more systematically) the brutal work of the tsarist police state. In a new introduction to a reprint of his book, Figes emphasises that Putinism is also rooted in this Russian past – in the enduring weakness of civil society and the scant experience of deep democracy.

Not that the West can easily point the finger at Russia. In the age of Trump and Brexit, with an ossified EU and a global refugee crisis, we should not be complacent about the sophistication of our own democracy, or about the thin screen that separates peace and civilisation from the law of the jungle.

The American diplomat and historian George Kennan described the Great War as “the seminal tragedy” of the 20th century – seedbed of so many horrors to come. The events of 1917 were its bitter first fruit. As Stephen Smith writes, “[T]here is a great deal to learn from the history of the Russian Revolution about how the thirst for power, the enthusiasm for violence, and contempt for law and ethics can corrupt projects that begin with the finest ideals.” 

David Reynolds is the author of “The Long Shadow: the Great War and the 20th Century” (Simon & Schuster)

This article first appeared in the 24 February 2017 issue of the New Statesman, The world after Brexit