Congress of People's Deputies of Russia

The Congress of People's Deputies of Russia was the highest organ of state authority in the Russian Soviet Federative Socialist Republic and later in the Russian Federation during the final years of the Soviet Union and the first period of post-Soviet state building. Created through constitutional amendments adopted in October 1989, it was elected in Russia's first competitive parliamentary election of the late Soviet period on 4 March 1990 and first convened on 16 May 1990. The body remained in existence until President Boris Yeltsin dissolved it by decree on 21 September 1993. The dissolution had no clear constitutional basis under the legal order then in force and triggered the Russian constitutional crisis of 1993, which ended when pro-presidential forces attacked and captured the White House in Moscow on 4 October. The Congress was a large, indirectly structured legislature of up to 1,068 deputies. Most seats represented territorial constituencies, while a further group represented national-territorial units, including autonomous republics, autonomous regions, autonomous areas, krais, oblasts, and the cities of Moscow and Leningrad. The number of deputies present changed over time because of repeat elections, vacancies, and political developments. A two-thirds attendance threshold was required for a quorum. Although the institution was formally designed to meet periodically, the political turbulence of 1990–1993 led it to convene ten sessions, generally two or three times each year. The Congress possessed broad constitutional and political authority. It could adopt and amend the constitution, pass laws, approve the head of government and other senior officials, select the body responsible for constitutional supervision, call referendums, and initiate impeachment proceedings against the president. Between Congress sessions, much of the legislative work was carried out by the Supreme Soviet, a 252-member body elected by the Congress and divided between the Council of the Republic and the Council of Nationalities. The Supreme Soviet passed hundreds of federal laws and exercised powers involving treaties, cabinet appointments, judges, amnesties, presidential decrees, and other matters. The Congress became a central arena for the struggle between reformist, nationalist, communist, and conservative forces. Boris Yeltsin emerged from its ranks as a leading opponent of the Soviet Communist Party establishment and was elected chairman of the Supreme Soviet on 29 May 1990. On 12 June 1990, the Congress adopted the Declaration of State Sovereignty of the Russian SFSR, asserting the priority of Russian law and institutions within the Soviet constitutional framework. It subsequently helped establish the presidency of the RSFSR, and Yeltsin won the first Russian presidential election on 12 June 1991. After the Soviet Union's collapse, the Congress and Yeltsin increasingly disagreed over economic reform, the distribution of executive and legislative authority, constitutional change, and the president's extraordinary powers. In 1991 the Congress granted Yeltsin temporary additional authority, but relations deteriorated sharply in 1992 and 1993. The Congress refused to confirm Yegor Gaidar as head of government, later cancelled a planned referendum and revoked extraordinary presidential powers, and unsuccessfully attempted to impeach Yeltsin in March 1993. A nationwide referendum in April 1993 gave Yeltsin political support, but did not resolve the constitutional conflict. Yeltsin's Decree No. 1400 of 21 September 1993 sought to terminate the Congress and the Supreme Soviet and replace the existing arrangement with a new legislature, the Federal Assembly. The Congress declared the decree invalid, recognized Vice President Alexander Rutskoy as acting head of state, and appointed a rival government. The resulting dual-power confrontation culminated in armed conflict around the White House. Following the building's capture on 4 October, the Congress ceased to operate. A new constitution was approved by referendum on 12 December 1993, creating the modern Federal Assembly and ending the institutional framework associated with the Congress.

The Congress originated in constitutional changes adopted on 27 October 1989, when the Russian Soviet Federative Socialist Republic created a new supreme representative organ modeled on the broader Congress of People's Deputies of the Soviet Union. Deputies were elected on 4 March 1990. The first session opened on 16 May 1990 in the Grand Kremlin Palace, marking one of the most consequential moments in the political transformation of late Soviet Russia. The body combined territorial and national-territorial representation. Of the intended 1,068 seats, 900 were allocated through territorial constituencies according to population, while 168 represented autonomous republics, autonomous regions, autonomous areas, krais, oblasts, and the major cities of Moscow and Leningrad. A total of 1,059 deputies had been elected by the first session. Attendance changed during the Congress's existence, and two-thirds of deputies were required for a quorum. The Congress had authority over constitutional amendments, major legislation, referendums, senior appointments, constitutional oversight, and presidential impeachment. It elected the Supreme Soviet to act as the standing legislature between sessions. The Supreme Soviet contained 252 deputies divided equally between the Council of the Republic and the Council of Nationalities. Before July 1991, the parliamentary leadership had no presidential veto power over legislation; later constitutional changes gave the president a delaying veto that the Supreme Soviet could override by a simple majority. Political divisions developed quickly. The Communist Party remained dominant at the opening, but reformist, democratic, nationalist, and conservative groupings grew as the Soviet political system weakened. The Democratic Russia bloc initially helped Yeltsin secure the chairmanship of the Supreme Soviet. On 12 June 1990, the Congress passed the Declaration of State Sovereignty, making the Russian republic a principal political actor in the struggle with Soviet central institutions. The Congress also helped establish Russia's presidency. A referendum on 17 March 1991 supported creating the office, and the constitution was amended accordingly. Yeltsin won the presidential election on 12 June and took office on 10 July. The legislature then struggled to choose a new permanent parliamentary chair; Ruslan Khasbulatov served as acting chairman before being elected on 29 October 1991. The post-Soviet period brought increasingly difficult disputes over economic policy, constitutional reform, and the balance between parliament and president. The Congress granted Yeltsin extraordinary powers in November 1991, but these concessions were later contested. In December 1992 it refused to approve Yegor Gaidar as head of government and opposed extending presidential powers. In March 1993, an extraordinary session cancelled a proposed referendum and revoked the extraordinary authority previously granted to Yeltsin. The Congress then voted on impeachment, but the measure failed to secure the required supermajority. A subsequent referendum in April expressed support for Yeltsin and his policies, without settling the constitutional question. In September 1993, the conflict became irreconcilable. Yeltsin's decree dissolving the Congress was rejected by the legislature, which recognized Vice President Alexander Rutskoy as acting head of state and formed a rival executive structure. The standoff produced street violence and culminated in the military assault on the White House on 4 October. The Congress ceased to function after the building was captured. The constitutional order created by referendum on 12 December 1993 replaced it with the Federal Assembly, consisting of the State Duma and Federation Council. The Congress therefore became a transitional institution connecting late Soviet representative politics with the centralized presidential system of post-Soviet Russia.

• 1993

  Impeachment attempt fails

  [1]Congress of People's Deputies of Russiaen.wikipedia.org

  The Congress voted to impeach Yeltsin on 28 March, but the motion fell short of the required two-thirds majority.

• 1993

  Congress dissolved

  [1]Congress of People's Deputies of Russiaen.wikipedia.org

  Yeltsin issued Decree No. 1400 on 21 September, ordering the Congress and Supreme Soviet to cease operating.

• 1993

  White House confrontation ends the institution

  [1]Congress of People's Deputies of Russiaen.wikipedia.org

  The Congress ended de facto on 4 October after pro-presidential forces captured the White House.

• 1993

  Federal Assembly replaces the Congress

  [1]Congress of People's Deputies of Russiaen.wikipedia.org

  A new constitution approved on 12 December established the Federal Assembly as Russia's national legislature.

• 1991

  Russian presidency introduced

  [1]Congress of People's Deputies of Russiaen.wikipedia.org

  A March referendum and subsequent constitutional amendments created the office of President of the RSFSR.

• 1991

  Yeltsin becomes Russia's first president

  [1]Congress of People's Deputies of Russiaen.wikipedia.org

  Yeltsin won the presidential election on 12 June and assumed office on 10 July.

• 1991

  Khasbulatov elected parliamentary chairman

  [1]Congress of People's Deputies of Russiaen.wikipedia.org

  Ruslan Khasbulatov was elected chairman of the Supreme Soviet on 29 October.

• 1990

  First nationwide election

  [1]Congress of People's Deputies of Russiaen.wikipedia.org

  The election on 4 March determined the Congress's initial composition.

• 1990

  First session opens

  [1]Congress of People's Deputies of Russiaen.wikipedia.org

  The first session began on 16 May in Moscow.

• 1990

  Declaration of State Sovereignty adopted

  [1]Congress of People's Deputies of Russiaen.wikipedia.org

  On 12 June, the Congress asserted Russian sovereignty within the Soviet constitutional system.

• 1989

  Congress established by constitutional amendment

  [1]Congress of People's Deputies of Russiaen.wikipedia.org

  Amendments to the constitution of the Russian SFSR created the Congress as the republic's supreme representative organ.

A national legislative and constitutional institution rather than a commercial brand; it served as Russia's supreme representative organ during the transition from late Soviet rule to the post-Soviet constitutional order.

• 1993

  Withdrawal of extraordinary presidential powersStrategy

  Background

  The Congress opposed the continuation of Yeltsin's expanded authority and rejected the proposed arrangement for a confidence referendum.

  Action taken

  An extraordinary session cancelled the planned referendum and nullified the extraordinary powers previously granted to the president.

  Aftermath

  Yeltsin announced a unilateral special regime and the constitutional conflict moved toward an open institutional confrontation.

  Source

• 1993

  Attempted impeachment of Boris YeltsinOther

  Background

  The president and Congress disputed the legality of executive actions and the direction of Russia's political and economic transformation.

  Action taken

  On 28 March, 617 deputies voted to impeach Yeltsin.

  Aftermath

  The vote did not reach the constitutionally required two-thirds threshold, and Yeltsin remained in office.

  Source

• 1993

  Rejection of the dissolution decreeOther

  Background

  Yeltsin's Decree No. 1400 attempted to replace the existing legislative system with elections to a new Federal Assembly.

  Action taken

  The Congress declared the decree invalid, removed Yeltsin in its formal constitutional interpretation, and recognized Vice President Alexander Rutskoy as acting head of state.

  Aftermath

  The rival claims to authority produced dual power, armed clashes in Moscow, and the Congress's final suppression.

  Source

• 1991

  Creation of the Russian presidencyStrategy

  Background

  A nationwide referendum supported establishing a directly elected executive presidency in the RSFSR.

  Action taken

  The Congress amended the constitution to provide the legal framework for the presidency.

  Aftermath

  The office strengthened the executive branch and enabled the direct election of Boris Yeltsin as Russia's first president.

  Source

• 1991

  Delegation of extraordinary powers to the presidentStrategy

  Background

  The government faced severe economic and political instability after the collapse of the Soviet system.

  Action taken

  The Congress granted Yeltsin additional temporary authority, with the mandate intended to expire after a limited period.

  Aftermath

  The scope and continuation of these powers became a major point of dispute between the president and parliament.

  Source

• 1990

  Adoption of the Declaration of State SovereigntyStrategy

  Background

  The Congress operated amid an escalating struggle between republican institutions and the central Soviet government.

  Action taken

  It declared the sovereignty of the Russian SFSR and asserted the priority of Russian legal authority.

  Aftermath

  The declaration accelerated the transfer of political authority from Soviet central institutions to the Russian republic and contributed to the eventual dissolution of the USSR.

  Source

• 1993

  Congress cancels the planned referendum and withdraws extraordinary presidential powers[1]Congress of People's Deputies of Russiaen.wikipedia.org

  Regulation

  An extraordinary session reversed earlier concessions to Yeltsin and rejected the proposed referendum, deepening the constitutional confrontation.

• 1993

  Congress attempts to impeach President Yeltsin[1]Congress of People's Deputies of Russiaen.wikipedia.org

  Other

  On 28 March, 617 deputies voted for impeachment. The motion did not reach the required two-thirds majority.

• 1993

  Presidential decree dissolves the Congress[1]Congress of People's Deputies of Russiaen.wikipedia.org

  Regulation · Other

  Yeltsin's Decree No. 1400 declared the Congress and Supreme Soviet dissolved and called for elections to a new Federal Assembly. The Congress rejected the decree, producing rival claims to state authority.

• 1993

  White House assault ends the Congress[1]Congress of People's Deputies of Russiaen.wikipedia.org

  Other

  On 4 October, forces loyal to the president seized the Russian White House after an armed confrontation, ending the Congress's de facto operation.

• 1991

  Congress creates the legal framework for a Russian presidency[1]Congress of People's Deputies of Russiaen.wikipedia.org

  Other

  Following a March referendum, constitutional amendments established the office of President of the RSFSR. Yeltsin subsequently became the first holder of the office.

• 1991

  Congress grants Yeltsin temporary extraordinary powers[1]Congress of People's Deputies of Russiaen.wikipedia.org

  Other

  The Congress delegated additional powers to the president for a limited period, a decision that later became a major source of conflict between the executive and legislature.

• 1990

  Congress adopts the Declaration of State Sovereignty of the Russian SFSR[1]Congress of People's Deputies of Russiaen.wikipedia.org

  Other

  The Congress asserted the sovereignty and legal primacy of the Russian republic within the Soviet Union, intensifying the institutional conflict between Russian and Union authorities.

• 1990

  Boris Yeltsin elected chairman of the Supreme Soviet[1]Congress of People's Deputies of Russiaen.wikipedia.org

  Leadership change

  After two unsuccessful voting rounds, Yeltsin won election as chairman on 29 May, establishing himself as the leading political figure within the Russian legislature.

1. 1Congress of People's Deputies of Russiaen.wikipedia.org