Left Bolshevik (and Left-SR) irritations were at least partly salved by a second, truly revolutionary aspect of the new army: the appointment of so-called military commissars to all units. Although this office was based on the far-distant precedent of a similarly named institution at the time of the French revolutionary wars, and while the Provisional Government of 1917 had also named its special plenipotentiaries at the front and in the regions “commissars,” the military (or political) commissar of the Red forces was an original phenomenon. It was, in fact, one of the key martial innovations of the Reds during the civil war. According to an order signed by Trotsky on 6 April 1918:
The military commissar is the direct political organ of Soviet power in the army. . . . Commissars are appointed from among irreproachable revolutionaries, capable of remaining under the most difficult circumstances, the embodiment of revolutionary duty. . . . [They] must see to it that the army does not become disassociated from the Soviet system as a whole and that particular military institutions do not become centers of conspiracy or instruments to be used against the workers and peasants. The commissar takes part in all the work of the military leaders, receives reports and dispatches along with them, and counter-signs orders. War Councils will give effect only to such orders as have been signed not only by military leaders but also by at least one military commissar.
He was equally insistent, though, that “the commissar is not responsible for the expediency of purely military, operational, combat orders.”101
In terms of army administration, the aforementioned Supreme Military Council was at the apex of a still nebulous command hierarchy of what was becoming, in the first half of 1918, the “Worker-Peasant Red Army.” This new, revolutionary armed force had been first mentioned by (a similar) name in a Sovnarkom decree of 3 January 1918 (“On the Formation of Workers’ and Peasants’ Red Army”), but did not begin to become a living reality until its founding units were mustered from 23 February of that year (a date subsequently celebrated as “Red Army Day” in Soviet Russia). The Supreme Military Council itself replaced the improvised Revolutionary Field Staff and was given the tasks of providing strategic leadership to the armed forces of the Soviet Republic and overseeing the building of the Red Army.102 Following the setbacks on the Volga during the summer of 1918, however, it was abolished on 6 September 1918 and was replaced by the Revvoensovet (Revolutionary Military Soviet, or Council) of the Republic (RVSR), which restored some of the influence of senior commissars. In the midst of these events, on 2 September 1918, Vācietis was promoted to main commander in chief (Glavkom) of the Red Army (his predecessor, M. D. Bonch-Bruevich, who had failed to recognize the crucial importance of the Eastern Front, was quietly shunted aside).103 On 11 September 1918, the RVSR then devised a formal structure for the entire Red Army, which was divided (initially) into five armies, each with 11 divisions of between six and nine regiments (plus reserve units), grouped around three fronts (the Northern Front, the Eastern Front, and the Southern Front) and the Western Fortified Area.104 Revvoensovets were then established for each army (from 12 December 1918), military commissars were assigned to shadow commanders and to offer ideological guidance and motivation to Red forces, and regular units finally displaced almost all irregular (“partisan”) formations. The structure of the Red Army that would eventually emerge victorious from the wars was thus essentially in place before the end of the first year of serious struggle. Moreover, with control of the heartland of the old empire firmly established, the Soviet regime was able to draw upon the stocks of supplies meant for the old army—supplies that had had to be stretched to breaking point in 1916–1917 to maintain the Imperial Russian Army of some 10,000,000 men, but which would provide rich pickings for a Red Army that would never put in the field more than 5 percent of such a figure.
Thus, the new Red Army (unlike the Whites) had some central, strategic direction (greatly aided by the fact that the Soviet government had inherited, wholesale, the central administrative apparatus and personnel of the old army—from telegraphists to typewriters).105 The Whites were far less fortunate in this respect, having to rely on the meager resources of the outlying military districts of tsarist times to which they had been confined. The coordinating organs of the Red Army were then topped off, following a VTsIK decree of 30 November 1918, with the formation of the Council of Workers’ and Peasants’ Defense (from April 1920, the Council of Labor and Defense, the STO).106 This body, which was chaired (ex officio) by Lenin and included Trotsky (as chair of the RVSR, although he was rarely available to attend its meetings), Stalin (as the representative of VTsIK), and several people’s commissars of the most interested commissariats, was created by Sovnarkom but was coequal to it, as STO directives were considered to be the equivalent of state laws.107 It played no part in the formation of military strategy, but STO sought instead to direct and coordinate the work of all economic commissariats with all institutions having a stake in the defense of Soviet Russia. In the circumstances of a confusion of civil wars, it managed that task with relative success. Again, the Whites had nothing to compare with it.
From May 1918, the nascent Red Army could also begin to draw on a steadier stream of recruits, as a general mobilization was instituted and the volunteer principle was abandoned, although the registration of those eligible was rudimentary and the nonappearance and desertion of mobilized men remained a problem. By late 1918, the Red Army was still a long way from resolving this issue, but it was much closer to doing so than were its rivals, and signs were apparent that a solution acceptable to both sides of this bargaining process—the citizens and the state—was achievable. Back in June 1918, the Bolsheviks had attempted to mobilize all workers and all “nonexploiting” peasants aged 21–25 years in 51 districts of the Volga and the Urals, but in the absence of a functioning central draft organization, impromptu and usually unsuccessful local levées had had to be attempted. Hardly more was achieved by a countrywide draft on 11 September 1918, while even by early 1919 drafts were widely evaded; for example, in May 1919, a month after a draft was initiated, Tambov had produced precisely 24 recruits of the 5,165 anticipated, and by the time this round of mobilizations was called off (in June 1919) just 24,364 of 140,000 expected recruits had been mustered.108 In his examination of this phenomenon, Erik Landis describes “hundreds of thousands” of deserters taking up arms in the Red rear and this “green army” severely compromising the stability of Red fronts from around April to September 1919 (just as Denikin was preparing his advance).109 According to one pioneering Western study of the phenomenon of desertion, the rate of flight was so great throughout the civil wars that ultimately the Reds were only able to triumph over their enemies by dint of the larger pool of men they could draw upon.110