One of the means for monitoring suspicious persons in the areas of state security. While monitoring their own subjects and arriving foreigners, the authorities may require identification from them, as well as proof that they are not a danger to public peace. These requirements, which are easily met in the person’s place of permanent residence, become difficult for travelers, as well as for foreigners. To enable them to prove their identity, states introduce passports that indicate occupation, age, place of residence, facial features, as well as duration, purpose and place of travel. At the same time, a passport is also a permission to leave a person; a prohibition is established to travel without taking a passport, as well as the obligation to register a passport at the place of stay; Strict police measures are being introduced against travelers without legalized passports. The set of such laws is called passport system.

On December 27, 1932, by resolution of the Central Executive Committee and the Council of People's Commissars of the USSR No. 57/1917, a unified passport system was established. Simultaneously with the resolution of the Central Executive Committee and the Council of People's Commissars of the USSR, the Main Directorate of the Workers' and Peasants' Militia was formed under the OGPU of the USSR, which was entrusted with the functions of introducing a unified passport system throughout the Soviet Union, registering passports and for direct management of this matter.

On the establishment of a unified passport system throughout the USSR and mandatory registration of passports

In order to better account for the population of cities, workers' settlements and new buildings and to relieve these populated areas from persons not associated with production and work in institutions or schools and not engaged in socially useful labor (with the exception of the disabled and pensioners), as well as for the purpose of clearing these populated areas places from hiding kulak, criminal and other antisocial elements, the Central Executive Committee and the Council of People's Commissars of the USSR DECIDE:

1. Establish a unified passport system throughout the USSR based on the regulations on passports.
2. Introduce a unified passport system with mandatory registration throughout the USSR during 1933, primarily covering the population of Moscow, Leningrad, Kharkov, Kiev, Odessa, Minsk, Rostov-on-Don, Vladivostok...
4. Instruct the governments of the union republics to bring their legislation into conformity with this resolution and the regulations on passports.

Chairman of the Central Executive Committee of the USSR M. Kalinin Chairman of the Council of People's Commissars of the USSR V. Molotov (Scriabin) Secretary of the Central Executive Committee of the USSR A. Enukidze

A collection of laws and orders of the workers' and peasants' government of the USSR, published by the Office of the Council of People's Commissars of the USSR and the SRT. M., 1932. Dep. 1. N 84. Art. 516. pp. 821-822. 279

Russian history. 1917 - 1940. Reader / Comp. V.A. Mazur et al.;
edited by M.E. Glavatsky. Ekaterinburg, 1993

Passport system and registration system in Russia

On June 25, 1993, President Boris Yeltsin signed the law “On the right of citizens of the Russian Federation to freedom of movement, choice of place of stay and residence within the Russian Federation,” adopted by the Supreme Council of the Russian Federation. Article 1 of this law states:
“In accordance with the Constitution of the Russian Federation and international human rights acts, every citizen of the Russian Federation has the right to freedom of movement, choice of place of stay and residence within the Russian Federation.
Restrictions on the right of citizens of the Russian Federation to freedom of movement, choice of place of stay and residence within the Russian Federation are permitted only on the basis of law.
Persons who are not citizens of the Russian Federation and are legally located on its territory have the right to freedom of movement and choice of place of residence within the Russian Federation in accordance with the Constitution and laws of the Russian Federation and international treaties of the Russian Federation."
This means that the registration regime that has existed for such a long time, which was in sharp contradiction with the UN Covenant on Civil and Political Rights ratified by the Soviet Union (Article 12), is being abolished in the Russian Federation.
More precisely, propiska - registration at the place of residence - as in most European countries, remains, but it is now not of a permissive, but of a notification nature: “Registration or the absence thereof cannot serve as a basis for restriction or a condition for the exercise of the rights and freedoms of citizens provided for by the Constitution of the Russian Federation , laws of the Russian Federation, Constitutions and laws of the republics within the Russian Federation" (Article 3).
No one has the right to refuse a citizen registration at his freely chosen place of residence. A citizen, in accordance with Article 9 of the Law, has the right to appeal such a refusal in court:
"Actions or inactions of state and other bodies, enterprises, institutions, organizations, officials and other legal entities and individuals affecting the right of citizens of the Russian Federation to freedom of movement, choice of place of stay and residence within the Russian Federation may be appealed by citizens to a higher authority in the manner subordination body, a higher-ranking official in the order of subordination, or directly to the court.”
This law was supposed to come into force on October 1, 1993. Since no legislation has been published to repeal this, it must be assumed that this law has been in effect since October 1, 1993.
Of course, certain restrictions on the operation of the Law were established as a result of the introduction of a state of emergency in Moscow from October 7 to October 18, 1993. However, this was precisely about limiting the operation of the law in a certain territory and for a limited time. With the termination of the emergency decree, these restrictions automatically ceased to apply.
In fact, however, this Law does not apply in the Russian Federation. Throughout Russia, police continue to demand that citizens comply with permitting rules for registration.
The situation has become especially aggravated in Moscow, where the mayor of Moscow, Yu. Luzhkov, signed a decree introducing the “Temporary Regulations on the Special Procedure for the Stay in the City of Moscow, the capital of the Russian Federation, for citizens permanently residing outside of Russia.”
According to this order, which consisted of 27 points, a “special stay regime” was introduced in the city from November 15: all citizens of neighboring countries who arrived in the capital for more than a day are required to register and pay a fee based on 10% of the Russian minimum wage. Those who evade registration are promised a fine of 3-5 times the minimum salary, a second fine of 50 times the minimum salary, and expulsion from Moscow - either at their own expense or at the expense of the capital's police department.
Similar measures were introduced by the mayor of St. Petersburg A. Sobchak and the administration of a number of other administrative units. All these orders were in conflict not only with the federal law on freedom of movement, but also with Art. 27 of the new Constitution of the Russian Federation (at the time the mayors’ decrees were issued, it still existed in the form of a draft, but there was a month left before voting on this Constitution):
“Everyone who is legally present on the territory of the Russian Federation has the right to move freely, choose their place of stay and residence.”
Since CIS citizens are subject to an agreement providing for visa-free entry into Russia, the orders of both mayors are not only illegal, but also unconstitutional.
We can only hope that with the restoration of normal law and order in the Russian Federation after December 12, 1993, the law “On the right to freedom of movement, choice of place of stay and residence” will begin to operate without hindrance throughout the country.
In the meantime, it is useful to take a look at the history of Russian passporting and restrictions on the freedom of movement of Russian citizens.

Passport and legitimation systems

The “credit” for the invention of the passport system belongs to Germany, where it originated in the 15th century. It was necessary to somehow separate honest travelers - traders and artisans from the huge number of vagabonds, robbers and beggars wandering around Europe. A special document served this purpose - a passport, which a tramp, naturally, could not have. As time passed, states became more and more aware of the convenience created by passports. In the 17th century military passports (Militrpass) appeared to prevent desertion, plague passports (Pestpass) for travelers from plague-ridden countries, special passports for Jews, apprentice craftsmen, etc.
The passport system reached its apogee at the end of the 18th - beginning of the 19th centuries, especially in France, where it was introduced during the era of the revolution. It was with the strengthening of the passport system that the concept of a “police state” arose, in which passports are used both to control the movement of citizens and to supervise “unreliable” people.
It took European states less than a century to understand that the passport system is not a benefit, but a hindrance to development, primarily economic. Therefore, already in the middle of the 19th century. The restrictions of the passport system begin to be relaxed and then completely abolished. In 1850, at the Dresden Conference, passport rules on the territory of the German states were sharply simplified, and in 1859 Austria joined this agreement. In 1865 and 1867, passport restrictions in Germany were practically abolished. Passport restrictions were also abolished in stages in Denmark - in 1862 and 1875, in Spain - in 1862 and 1878, in Italy - in 1865 and 1873. The further development of almost all other European states went in the same direction.
Thus, in the 19th century (and in England even earlier) in European countries, instead of the passport system, the so-called legitimation system arose, according to which the citizen’s obligation to have any specific type of document was not established, but if necessary, his identity could be verified in any way . Under a legitimation system, possessing a passport is a right, not an obligation (it becomes an obligation only when a citizen travels abroad).
In the United States, a passport system has never existed, let alone registration. US citizens only know a foreign passport. Within the country, a citizen’s identity can be verified by any document, most often a driver’s license. This is a classic example of a legitimation system.

Passport system in pre-revolutionary Russia

The first rudiments of the passport system in Russia began to appear in the Time of Troubles - in the form of “travel certificates”, introduced mainly for police purposes. However, the true creator of this system in Russia was Peter I, who, by decree of October 30, 1719, introduced “travel letters” into the general rule in connection with the recruitment duty and poll tax he established. Persons who did not have a passport or “travel certificate” were recognized as “unkind people” or even “outright thieves.” In 1763, passports also acquired fiscal significance as a means of collecting passport duties (for an annual passport, 1 ruble 45 kopecks was charged - a considerable amount at that time).
The bondage of the passport system, which had only become more complicated and “improved” since Peter the Great’s time, was felt more and more heavily, especially after the abolition of serfdom and other reforms of Alexander II. However, only on June 3, 1884, at the initiative of the State Council, a new “Regulation on residence permits” was adopted. It somewhat eased the restrictions of the passport system.
At the place of residence, no one was required to have a passport, and it was necessary to obtain one only when traveling further than 50 miles and longer than 6 months (an exception was made only for factory workers and residents of areas declared under a state of emergency or enhanced security ; for them passports were absolutely mandatory). Although in practice it was not difficult to obtain a passport for travel, the very need to ask for prior permission to leave and the fundamental possibility of refusal were, of course, burdensome and humiliating. In 1897, this “Regulation” was extended to the entire Russian Empire, except Poland and Finland.
It was this undoubtedly undemocratic “Regulation” that provoked sharp criticism from V. Lenin. In the article “To the Village Poor” (1903) he wrote:
"The Social Democrats demand complete freedom of movement and trade for the people. What does this mean: freedom of movement? the boss did not dare to prevent any peasant from settling and working wherever he wanted. The Russian peasant is still so enslaved by the official that he cannot freely transfer to the city, cannot freely go to new lands. The minister orders that governors do not allow unauthorized relocations: the governor is better than the peasant knows where a peasant should go! A peasant is a small child, he doesn’t dare move without a boss! Isn’t this serfdom? Isn’t this an outrage against the people?.."
Significant changes towards liberalization were made to the passport system only after the 1905 revolution. The decree of October 8, 1906 abolished a number of restrictions that existed for peasants and other persons of the former tax-paying classes. The place of permanent residence for them began to be considered not the place of registration, but the place where they live. It became possible to elect this seat freely.

Legitimation period in the RSFSR and the USSR

The human right to freely choose a place of residence is one of the fundamental ones and should be recognized as a natural right. This right is enshrined in Article 13, paragraph 1, of the Universal Declaration of Human Rights and in Article 12, paragraph 1, of the International Covenant on Civil and Political Rights, which came into force in 1976 and, therefore, had the status of law on the territory of the Soviet Union. In the latest document, this right is formulated as follows: “Everyone who is lawfully present in the territory of any state has, within that territory, the right to free movement and freedom to choose his place of residence.”
It would be in vain, however, to look for any Soviet legislative act that would, if not guarantee, then at least declare this right. There was no right to freely choose a place of residence in the last Constitution of the USSR of October 7, 1977, where even the “right to enjoy cultural achievements” was not forgotten, although this Constitution was adopted after the aforementioned Pact came into force and should have been agreed upon with it.
Moreover, there was no mention of this right in previous Soviet constitutions: the USSR Constitution of December 5, 1936 and the RSFSR Constitution of July 10, 1918. In the Constitution of the USSR of January 31, 1924, there is no section at all on any rights of citizens, although, for example, an entire chapter (not even an article!) is devoted to the activities of the OGPU.
Such forgetfulness of Soviet constitutions is, of course, not accidental. Let's see how the above-cited demand of the “Social Democrats” - Leninists to provide “complete freedom of movement and trade for the people” was implemented in practice.
Immediately after the establishment of Soviet power, the passport system was abolished, but very soon the first attempt was made to restore it. By decree of the All-Russian Central Executive Committee and the Council of People's Commissars of the RSFSR of June 25, 1919, mandatory “Labor Books” were introduced, which, without being called that, were actually passports. This was part of the policy of combating the so-called “labor desertion”, inevitable in conditions of complete devastation and famine on the territory of the RSFSR. The IX Congress of the RCP(b), held in March-April 1920, frankly explained this policy in its resolution:
“In view of the fact that a significant part of the workers, in search of better food conditions... independently leave enterprises, move from place to place... the congress sees one of the urgent tasks of the Soviet government... in a planned, systematic, persistent, severe fight against labor desertion, in particular, through the publication of penal lists of deserters, the creation of penal work teams from deserters and, finally, their imprisonment in a concentration camp."
Work books were a particularly powerful means of attaching workers to a place also because they were the only ones that gave the right to receive ration cards at the place of work, without which it was simply impossible to live.
The end of the civil war and the transition to the NEP could not but lead to a softening of the situation. In conditions of strict assignment of labor to enterprises, implementation of the new economic policy would be impossible. Therefore, starting from 1922, there was a sharp change in the attitude of the Soviet authorities towards the passport system, which made it possible to think that the program requirements stated by Lenin were indeed being taken seriously.
By the law of January 24, 1922, all citizens of the Russian Federation were granted the right of free movement throughout the territory of the RSFSR. The right of free movement and settlement was also confirmed in Article 5 of the Civil Code of the RSFSR. From here, the transition to a legitimation system was quite natural, which was done by the decree of the All-Russian Central Executive Committee and the Council of People's Commissars of the RSFSR of July 20, 1923 “On Identity Cards.” Article 1 of this decree prohibited requiring citizens of the RSFSR to present passports and other residence permits that would restrict their right to move and settle on the territory of the RSFSR. All these documents, as well as work books, were cancelled. Citizens, if necessary, could obtain an identity card, but this was their right, but not their obligation. No one could force a citizen to obtain such a certificate.
The provisions of the 1923 decree were concretized in the resolution of the Council of People's Commissars of the RSFSR dated April 27, 1925 "On the registration of citizens in urban settlements" and in the resolution of the All-Russian Central Executive Committee and the Council of People's Commissars of the USSR dated December 18, 1927. According to these resolutions, both registration, that is, registration with the authorities at the place of residence, and any other official act could be carried out upon presentation of a document of any type: a pay book from the place of service, a union card, a certificate of birth or marriage, etc. P. Although a system of registration at the place of residence (propiska) existed, the very multiplicity of documents suitable for this excluded the possibility of using propiska to assign a citizen to a specific place of residence. Thus, the legitimation system seemed to have triumphed on the territory of the USSR, and the Small Soviet Encyclopedia of 1930 could rightfully write in the article “Passport”:
“PASSPORT is a special document for identification and the right of its bearer to leave the place of permanent residence. The passport system was the most important instrument of police influence and taxation policy in the so-called police state... Soviet law does not know the passport system.”

Introduction of the passport system in the USSR

However, the “legitimation” period in Soviet history turned out to be as short as the period of NEP. Began at the turn of the 20s and 30s. industrialization and mass forced collectivization of the countryside were carried out with enormous resistance from the people. Particularly strong resistance was provided by the peasantry, who fled from the devastated and starving villages to the cities. The planned measures could only be carried out by the actual introduction of forced labor, which was impossible under the legitimation system. Therefore, on December 27, 1932, 20 years after the writing of Lenin’s words quoted above, the Central Executive Committee and the Council of People’s Commissars of the USSR issued a decree that introduced the passport system and mandatory registration of passports in the USSR. The resolution was signed by M. Kalinin, V. Molotov and A. Enukidze.
The police nature of the introduced system was already clear from the text of the resolution itself, where the reasons for introducing the passport system were explained as follows:
"In order to better account for the population of cities, workers' settlements, new buildings and to relieve these populated areas from persons not associated with production and work in institutions and schools and not engaged in socially useful labor... and also for the purpose of clearing these populated areas from hiding kulak, criminal and other antisocial elements...".
“The kulak elements taking refuge in the cities” are the “runaway” peasants, and the “unloading” of the cities from those “not engaged in socially useful labor” means forced assignments to places where there is an acute shortage of labor.
The main feature of the 1932 passport system was that passports were introduced only for residents of cities, workers' settlements, state farms and new buildings. The collective farmers were deprived of their passports, and this circumstance immediately placed them in the position of being attached to their place of residence, to their collective farm. They could not go to the city and live there without a passport: according to paragraph 11 of the resolution on passports, such “passportless” are subject to a fine of up to 100 rubles and “removal by order of the police.” Repeated violation entailed criminal liability. Article 192a, introduced on July 1, 1934, into the 1926 Criminal Code of the RSFSR, provided for imprisonment for up to two years.
Thus, for the collective farmer, the restriction of freedom of residence became absolute. Without a passport, he could not only choose where to live, but even leave the place where the passport system caught him. “Without a passport,” he could easily have been detained anywhere, even in a vehicle taking him away from the village.
The situation of "passported" city residents was somewhat better, but not much. They could move around the country, but the choice of permanent residence was limited by the need for registration, and a passport became the only document acceptable for this. Upon arrival at the chosen place of residence, even if the address changed within the same locality, the passport had to be submitted for registration within 24 hours. A registered passport was also required when applying for a job. Thus, the registration mechanism became a powerful tool for regulating the resettlement of citizens throughout the territory of the USSR. By allowing or refusing registration, you can effectively influence the choice of place of residence. Living without registration was punishable by a fine, and in case of relapse - by correctional labor for up to 6 months (the already mentioned Article 192a of the Criminal Code of the RSFSR).
At the same time, the possibilities of monitoring citizens also increased enormously, the mechanism of police investigation was sharply simplified: a system of “all-Union search” arose through a network of “passport offices” - special reference centers created in populated areas. The state was preparing for the “great terror”.
The Great Soviet Encyclopedia of 1939, “forgetting” that the small encyclopedia had written 9 years earlier, already stated quite frankly:
"PASSPORT SYSTEM, the procedure for administrative registration, control and regulation of the movement of the population through the introduction of passports for the latter. Soviet legislation, unlike bourgeois legislation, never veiled the class essence of its P.S., using the latter in accordance with the conditions of the class struggle and with the objectives of the dictatorship of the working class at different stages of the construction of socialism."
The passport system began to be introduced in Moscow, Leningrad, Kharkov, Kiev, Minsk, Rostov-on-Don, Vladivostok and during 1933 it was extended to the entire territory of the USSR. In subsequent years, it was repeatedly supplemented and improved, most significantly in 1940.

Assignment to a place of work

However, even such a passport system did not provide the same strong security for workers and employees as for collective farmers. Undesirable staff turnover continued. Therefore, in the same 1940, the passport system was supplemented by a whole series of legislative acts that also assigned workers and employees to their place of work.
By the Decree of the Presidium of the Supreme Soviet of the USSR of June 26, 1940, the unauthorized departure of workers and employees from state, cooperative and public enterprises, as well as the unauthorized transition from one enterprise or institution to another, was prohibited. For unauthorized leaving, criminal punishment was established: from 2 to 4 years in prison. To create mutual responsibility, directors of enterprises and heads of institutions who hired such an “unauthorized” employee were also brought to trial.
A month later, on July 17, 1940, by Decree of the Presidium of the Supreme Council, criminal liability for unauthorized leaving from work was also extended to MTS tractor drivers and combine operators. The Decree of the Presidium of the USSR Armed Forces of October 19, 1940 established criminal liability for engineers, technicians, craftsmen and skilled workers for refusing to obey the administration’s decision to transfer them from one enterprise to another: now these categories of persons could at any time be forcibly resettled to any place and assigned for any job (within the limits of their qualifications). In the last days of the same year, on December 28, the Decree of the PVS of the USSR attached their students to FZO schools, vocational and railway schools, establishing imprisonment in a labor colony for up to 1 year for unauthorized departure from school. Even the childish trick of behaving badly so that the director himself would expel you did not help. Such behavior was also punishable by 1 year of labor imprisonment.
Now the consolidation was complete. Almost no one in the USSR could no longer choose at will either their place of residence or their place of work (remember Lenin’s “travel and trade”). The only exceptions were a few people in the “free” professions and the party-state elite (although, perhaps, for them, consolidation was sometimes even more complete: through party discipline).
The listed decrees were by no means dead. Judicial statistics have not been published, but various unofficial estimates place the number of people convicted under these decrees from 8 to 22 million. Even if the minimum figure is correct, the number is still impressive.
It is especially worth noting the following detail: according to the first of this series of decrees, the initiative to adopt a law securing workers belonged to the All-Union Central Council of Trade Unions, an organization that was supposed to guard the interests of workers.
Criminal liability for unauthorized leaving from work was abolished only 16 years later, by the Decree of the PVS of the USSR dated April 25, 1956, although after the death of I. Stalin, the laws listed above were practically little applied. It is known, however, that these laws have been reapplied in connection with the forced relocation of citizens to virgin lands.

Passport system after Stalin's death

If attachment to a place through such a unique system of “labor legislation” weakened after the death of I. Stalin, then no fundamental changes occurred with regard to the passport system. The new “Regulation on Passports” was approved by the Council of Ministers of the USSR by decree of October 21, 1953, but in all its main features it confirmed the already established passport system, differing from it only in details.
The list of areas where citizens were required to have passports was somewhat expanded. In addition to cities, regional centers and urban-type settlements, passports were introduced throughout the Baltic republics, the Moscow region, a number of districts of the Leningrad region and in the border areas of the USSR. Residents of most rural areas were still deprived of passports and could not leave their place of residence for more than 30 days without them. But even for a short-term trip, for example, a business trip, it was necessary to obtain a special certificate from the village council.
The registration regime was maintained for passported citizens. All persons who changed their place of residence at least temporarily, for a period of more than 3 days, were subject to registration. The concept of temporary registration was introduced (while maintaining a permanent residence permit). In all cases, the passport had to be submitted for registration within 24 hours and registered in cities no later than 3 days from the date of arrival, and in rural areas no later than 7 days. It was possible to register permanently only if you had an extract stamp from your previous place of residence.
An important new restriction was the introduction into the text of the “Regulations” of the so-called “sanitary norm”, when a necessary condition for registration was the presence in a given dwelling of a certain minimum living space for each resident. This norm was different in different cities. So, in the RSFSR and in a number of other republics it was equal to 9 square meters. m., in Georgia and Azerbaijan - 12 sq. m., in Ukraine - 13.65 sq. m. There were differences within the same republic. Thus, in Vilnius the norm was higher than in the whole of Lithuania and amounted to 12 square meters. m. In Moscow, on the contrary, the norm was lowered: 7 sq. m. m. If the area was below the specified standards, registration was not permitted.
It is curious that the standards for registration and for registering a citizen for “improvement of living space” were different. Thus, a citizen could ask for a new living space in Moscow only if there was no more than 5 square meters for each resident. m., in Leningrad - 4.5 sq. m., in Kyiv - 4 sq. m.
In conditions of chronic lack of living space, the “sanitary standard” has become an effective tool for regulating the distribution of the population. There was always a shortage of housing, and it was very easy to refuse registration. Persons who were denied registration were required to leave the locality within three days. This was announced to them at the police station against a receipt.
Of course, criminal liability for violation of the passport regime was also retained. Article 192a of the Criminal Code of the RSFSR has not undergone any changes. Administrative penalties were also introduced for officials for hiring persons without registration (fine up to 10 rubles), building managers, hostel commandants, homeowners, etc. for allowing residence without registration (fine up to 100 rubles, and in Moscow - up to 200 rubles), etc. All these persons, in case of repeated violations, also fell under Article 192a of the Criminal Code of the RSFSR.
Later, with the introduction of new criminal codes (in 1959-1962 in different republics), the penalty for violating the passport regime was changed. Living without a passport or without registration is now punishable by imprisonment for up to 1 year, or correctional labor for the same period, or a fine. At the same time, a necessary condition was no less than a three-time violation of passport rules (the first and second time violations were punishable administratively with a fine). Some mitigation was expressed in the fact that persons who condone violations of the passport regime are now subject to only an administratively imposed fine. Criminal liability for them was abolished.
Because these types of charges were easy to fabricate, they were often used to persecute dissidents, especially former political prisoners whose legal status was particularly vulnerable. The most famous examples include the conviction of Anatoly Marchenko to 2 years in the camps in 1968 and Joseph Begun to 3 years of exile in 1978. The first was arrested immediately after he wrote an open letter in support of the Prague Spring, the second was arrested near the building where the trial of Yu. Orlov was taking place. Both of these former political prisoners were formally convicted of violating the passport regime.

"Regime cities"

In addition to the main provisions contained in the “Regulations on Passports,” numerous decrees were adopted limiting the freedom of settlement. The concept of so-called restricted cities appeared, where registration was regulated especially strictly. These included Moscow, Leningrad, the capitals of the union republics, large industrial and port centers (Kharkov, Sverdlovsk, Odessa, etc.). A decree was adopted to stop the construction of new factories and factories in these cities in order, in addition to administrative measures, to reduce the pull of the population to large centers. But the main regulatory method remained administrative restrictions.
In Moscow, for example, the executive committee of the Moscow City Council adopted on March 23, 1956, a month after the 20th Congress of the CPSU, Resolution No. 16/1 on strengthening the passport regime in Moscow. Two years later, in June 1958, a new resolution was adopted on the same topic. It demanded that the Ministry of Internal Affairs authorities intensify the criminal prosecution of violators of the passport regime, identify and expel them to Moscow, canceling their registration, not allow persons “evading socially useful work”, even within Moscow, to live outside their place of permanent registration, etc. . The Ministry of Defense was required not to send demobilized military personnel to Moscow. From the Ministry of Higher and Secondary Specialized Education of the USSR - to distribute young specialists to Moscow only from among those already living in Moscow. A number of other measures were also envisaged.
Similar resolutions were adopted in other cities. On June 25, 1964, the special status of Moscow was even secured by a special resolution of the Council of Ministers of the USSR No. 585, on the basis of which the “Regulations on registration and deregistration of the population in Moscow” were approved.
Secret instructions sent in pursuance of these resolutions to the bodies in charge of registration of the Ministry of Internal Affairs practically prohibited the registration of new persons in regime cities. However, since the natural development of these cities soon led to a discrepancy between the demand and supply of labor, a system of “registration limits” was introduced. Individual enterprises received the right to register a certain number of persons in a given city (for example, Moscow) during the year within the established quota. The vast majority of these were military industry enterprises or simply of military importance, but there were also funny exceptions to this pattern. Thus, construction workers began to be registered in Moscow due to the shortage of workers at construction sites in the capital. Another unexpected exception was the wipers. Looking ahead, we note that during perestroika they tried to abolish the system of “limits” (without abolishing the restrictions on registration themselves). The result was predictable: “limits” slowly appeared again, first for Metrostroy, and then for other organizations.
The transfer of Moscow and other large cities to the category of “regime” quickly led to a pathological distortion of the structure of the labor force not only in these centers themselves, but also in the periphery, where there were no such restrictions. Muscovites-specialists, especially young specialists - university graduates, began to try by any means to stay in Moscow, realizing that once they left, they would not return there again. Article 306 of the Civil Code established that when a person leaves his place of permanent registration for a period of more than 6 months, he automatically loses the right to this registration (with the exception of cases of so-called “reservation” of space when traveling abroad or for recruitment to the Far North). As a result, the periphery quickly began to feel the lack of qualified specialists who could come there if they were not constrained by the fear of forever losing Moscow or another major center.
The purpose of introducing the system of “regime cities” was, apparently, primarily the strategic dispersion of the population and the prevention of the emergence of megacities. The second goal was to deal with the severe housing crisis in the cities. Third - last but not least - was the establishment of control over undesirable elements in the "showcase" cities visited by foreigners.
Such control was first introduced back in the Stalinist period, in the 30s, when unpublished instructions introduced restrictions for persons who had served imprisonment under the notorious Article 58 of the Criminal Code of the RSFSR (and in some cases for members of their families), as well as for those who had served their sentences for serious crimes (even if not political). However, the main target to which these instructions were directed were still the victims of Article 58. The concept of the 101st or 105th kilometer, which is still preserved in the Russian language, arose (remember, in Akhmatova’s “Poem without a Hero”: “stopyatnitsy”): closer than this distance to Moscow and other large centers, the mentioned persons were forbidden to settle. Since the natural attraction to relatives who remained in the cities, and simply to cultural centers, encouraged people to settle as close to them as possible, soon entire belts formed around Moscow, Leningrad and other cities, populated by former camp prisoners, who at that time were numbered in the USSR millions.
Those released from the camps received passports like all other citizens, and it was necessary to somehow separate them from the general population in order to control their resettlement. This was done using a cipher system. The passport had a two-letter series and a numeric number. The letters of the series constituted a special code, well known to employees of passport offices and human resources departments of enterprises, although the owner of the passport himself had no idea about anything (the encryption system was secret). Based on the code, one could judge not only whether the owner of the passport was imprisoned or not, but also the reason for imprisonment (political, economic, criminal, etc.).
Instructions from the 50s. expanded and improved the system of control over unwanted elements. These included new categories of citizens, among them the so-called “parasites” occupied a special place.

"Reforms" of the 70s

In this form, the passport system and the registration system existed until the 70s. In 1970, a small loophole arose for unpassported collective farmers assigned to the land. In the “Instructions on the procedure for registration and discharge of citizens by the executive committees of rural and town Councils of Working People’s Deputies” adopted this year, approved by order of the USSR Ministry of Internal Affairs, an apparently insignificant clause was made: “As an exception, it is permitted to issue passports to residents of rural areas working in enterprises and institutions , as well as citizens who, due to the nature of the work performed, require identification documents."
This clause was used by all those - especially young people - who were ready to flee from devastated villages to more or less prosperous cities by any means necessary. But only in 1974 did the gradual legal abolition of serfdom in the USSR begin.
The new “Regulations on the passport system in the USSR” was approved by Resolution of the Council of Ministers of the USSR dated August 28, 1974, No. 677. Its most significant difference from all previous resolutions is that passports began to be issued to all citizens of the USSR from the age of 16, for the first time including village residents and collective farmers. Full certification began, however, only on January 1, 1976 and ended on December 31, 1981. In six years, 50 million passports were issued in rural areas.
Thus, collective farmers were at least equal in rights with city residents. However, the new “Regulations on Passports” left the registration regime itself practically unchanged. The terms have become a little more liberal. Thus, when settling for a period of less than 1.5 months, it became possible to live without registration, but with a mandatory entry in the house register (kept in the USSR for each residential building). The difference here was that such recording did not require special permission from the authorities. The deadline for submitting documents for registration has increased from 1 to 3 days. Persons who were denied registration now had to leave the given locality not in 3, but in 7 days.
Everything else remained unchanged, including criminal liability for violating registration rules. The “Regulations” also openly recorded for the first time previously existing instructions on the special regime of border areas: in order to register in them, it became necessary to obtain a special permit from the Ministry of Internal Affairs even before entering this area. This, however, was practiced before, but was not announced in the open press.
Simultaneously with the new “Regulations on the passport system,” the Council of Ministers of the USSR adopted a resolution “On some rules for registration of citizens” (No. 678 of August 28, 1974). The first four paragraphs of this resolution were published, the next six were marked “not for publication.”
In the published part of the resolution, the main point was the first paragraph, which somewhat softens the restrictions on registration. In this part, the resolution allowed registration in cities and urban-type settlements of an entire category of citizens, regardless of whether the area met the sanitary standard or not. Thus, it was allowed to register a husband to his wife and vice versa, children to their parents and vice versa, brothers and sisters to each other, those demobilized from the army to the living space where they lived before being drafted into the army, those who served their sentences to the living space where they lived before arrest, etc. These mitigations were dictated by the need to eliminate at least the most barbaric restrictions, which led time after time to the direct destruction of family ties. Such mitigating clauses already had to be introduced retroactively even into the text of the previous, 1953, “Regulations on Passports” (Resolution of the Council of Ministers of the USSR No. 1347 of December 3, 1959). Here they were introduced into the main text from the very beginning.

Cleaning from "undesirable elements"

However, the main point of the unpublished part, paragraph 5, immediately established exceptions from this “liberal” resolution, excluding, in particular, the possibility for former political prisoners to return to their previous place of residence if, for one reason or another, it should be cleared of “undesirables.” elements":
“To establish that persons recognized by the court as especially dangerous recidivists, and persons who have served a sentence of imprisonment or exile for especially dangerous state crimes, banditry, actions disrupting the work of correctional labor institutions, mass riots, violation of the rules on currency transactions in aggravating circumstances , theft of state and public property on an especially large scale, robbery under aggravating circumstances, premeditated murder under aggravating circumstances, rape committed by a group of persons or leading to particularly grave consequences, as well as rape of a minor, encroachment on the life of a police officer or people's vigilante, dissemination of knowingly false fabrications discrediting the Soviet state and social system are not subject to registration until the criminal record is expunged or removed in accordance with the established procedure in cities, districts and localities, the list of which is determined by decisions of the Government of the USSR."
It is noteworthy that this clause covered not only the so-called “especially dangerous state criminals,” but also persons who had served their sentence under Article 190-1 of the Criminal Code of the RSFSR (before this resolution, no such restrictions were formally imposed on them).
The list of places closed to former political prisoners, of course, was not published. It is known, however, that it included Moscow and the Moscow region, Leningrad and a number of districts of the Leningrad region, the capitals of the union republics and a number of large industrial centers, border regions of the USSR and, apparently, a whole series of areas not clearly defined (as far as can be judged). in practice, the decision to ban the residence of former political prisoners could be made by local authorities).
This resolution confirmed and finally formalized the previously existing practice of expelling dissidents from large cultural centers in order to reduce their influence, as well as to prevent their possible contacts with foreign citizens, who, in turn, were not allowed to visit the deep regions of the USSR without special permission. The expulsion of dissidents from major centers who still have family and friends there has also become an important tool of extrajudicial repression.
The ban on registration in Moscow and other large cities for those released from prison continued later. Moreover, new restrictions were introduced for this category of persons. So, in August 1985, the Council of Ministers of the USSR adopted a new resolution (No. 736) on introducing changes and additions to the already mentioned old 1964 resolution on registration in Moscow (No. 585). In it, in paragraph 27, it was stated: “The following are not subject to registration in Moscow: a) citizens who have served imprisonment, exile or deportation for crimes provided for in articles...” Next was a list of articles of the Criminal Code, sharply expanded in comparison with that , which is given above. Moreover, it became impossible for former prisoners not only to live in Moscow, but even to visit it: “Persons who, in accordance with paragraph 27 of this Resolution, are not subject to registration in Moscow, are allowed to enter Moscow, if there are valid reasons, for a period of no more than 3 days if they have a residence permit in another area. The conditions and procedure for issuing permission to enter Moscow for these persons are determined by the USSR Ministry of Internal Affairs."
Since the publication of this decree in Moscow, more than 60 thousand people have fallen under passport restrictions. But Moscow is only one of the cities closed to former prisoners. The same (or slightly relaxed) restrictions were introduced in more than 70 cities and towns across the country.

End of registration?

The first mitigation in this regard was made on February 10, 1988, when the Moscow Council adopted a resolution according to which persons who had served a prison term “for serious crimes,” if they were convicted for the first time, could now be registered in Moscow with their spouses or parents. Then mitigations began in person, in connection with the increasingly developing paralysis of power in the country. Although the ban on former prisoners visiting Moscow was not lifted, no one caught them in Moscow anymore, and many even lived permanently without registration. All this ended with the adoption by the Council of Ministers of the USSR on September 8, 1990 of Resolution No. 907 “On invalidating certain decisions of the USSR Government on issues of registration of citizens,” which lifted all restrictions on registration at the previous place of residence for those returning from places of imprisonment.
Later, several cosmetic relaxations were made in the Moscow registration regime. On January 11, 1990, the Council of Ministers of the USSR allowed registration in Moscow of military personnel discharged into the reserve if they had housing in the capital before conscription. In the mentioned resolution No. 907, as many as 30 restrictive decisions of previous years on registration in Moscow and other cities were canceled. The secrecy was lifted from the by-laws on registration (after the Constitutional Oversight Committee prepared an opinion “On the inconsistency of prohibitions on the publication of rules on registration with the provisions of the international Covenants on Human Rights”).
On October 26, 1990, the conclusion of the Committee on Constitutional Supervision of the Supreme Soviet of the USSR finally appeared. The conclusion recognized that “the registration function of propiska does not contradict the laws of the USSR and generally recognized international norms, but its licensing procedure prevents citizens from realizing their fundamental rights - freedom of movement, work and education.” At the same time, as committee member Mikhail Piskotin emphasized, it was not possible to immediately abolish the institution of registration as a whole due to the huge shortage of housing in the country. The transition from the permitting to the registration procedure for registration, according to M. Piskotin, should have occurred “gradually, as the housing and labor markets are formed.”
This market was formed faster than the members of the Constitutional Oversight Committee expected. Formally not cancelled, registration quickly began to die out de facto. The police have actually lost the ability to exercise control over the registration regime. New market relations no longer needed this.
The process finally ended with a formal act - the adoption of the Law on Freedom of Movement. One can only hope that the current convulsive measures of the capital’s authorities and other resistance from local municipal authorities are only the latest relapses of the totalitarian regime.
Citizens of the Russian Federation are advised not to comply with unconstitutional decisions on the registration regime of any municipal authorities. In cases of conflicts, it is necessary to go to court.
According to Article 18 of the new Constitution of the Russian Federation, “the rights and freedoms of man and citizen are directly applicable.” They must be directly protected by the court.

Additional material

The Tale of Bygone Years testifies to the origins of recording and documenting the population. Under Peter I, the word “passport” appeared in Russia. Then passport business becomes one of the most important for the police.

In the 19th century, the passport was already becoming an obvious sign of Russian life, not only for gentlemen traveling abroad or traveling for their own needs across the expanses of Russia, but also for the common people.

In 1918, the passport system was eliminated. Any officially issued document was recognized as an identity card - from a certificate from the volost executive committee to a union card.

On December 27, 1932, by a resolution of the Central Executive Committee and the Council of People's Commissars of the USSR, passports were returned in cities, urban settlements, regional centers, as well as in the Moscow region and a number of districts of the Leningrad region. Passports were not issued to military personnel, disabled people and residents of rural areas. The passports contained information about date of birth, nationality, social status, attitude to military service, marital status, and registration. In the 1960s, N.S. Khrushchev gave passports to peasants.

On August 28, 1974, the USSR Council of Ministers approved the Regulations on the passport system: the passport became unlimited. Certification extended to the entire population of the country, except military personnel. The passport fields remained the same, with the exception of social status.

For example, V. Borisenko in his article notes that after the victory of the Soviet regime, the passport system was abolished, but soon the first attempt was made to restore it. In June 1919, mandatory “work books” were introduced, which, without being called that, were actually passports. Metrics and various “mandates” were also used as identification documents. The present passport system was introduced in the USSR at the end of 1932, when, during industrialization, administrative accounting, control and regulation of the movement of the country's population from rural to industrial areas and back was required. In addition, the introduction of the passport system was directly determined by the intensification of the class struggle, the need to protect large industrial and political centers, including socialist new buildings, from criminal elements. (It should be noted that the famous “Poems about the Soviet Passport” by V. Mayakovsky, written in 1929, are dedicated to the international passport and have no relation to the passport system established in the early 30s) - in other words, passportization began in USSR, when a controlled labor force was needed for the construction of socialism... when slave labor was needed...

On March 13, 1997, the Decree of the President of the Russian Federation Boris Yeltsin “On the main document identifying the identity of a citizen of the Russian Federation on the territory of the Russian Federation” was issued. The regulations on the passport of a citizen of the Russian Federation, the sample form and description of the passport of a citizen of Russia were approved by Decree of the Government of the Russian Federation of July 8, 1997 No. 828. In accordance with the resolution, the new document has four pages less than in old-style passports and does not have a “nationality” column. The concept of “Personal code” was introduced. Registration at place of residence, attitude to military duty, and marital status have been preserved. The cover of the new Russian passport shows the embossed State Emblem of Russia, and on its inner side is the Moscow Kremlin.

The passport system in the Russian Federation is a set of legal norms governing the procedure for issuing, exchanging, and confiscating passports, as well as the rules for registering citizens at the place of stay and place of residence. The passport system plays a significant role in registering the population, in realizing the rights and responsibilities of citizens, in protecting public order and ensuring public safety. It is also necessary in the fight against crime, in the prevention of various offenses, in the search for persons, etc. D. N. Bakhrakh, B. V. Rossiysky, Yu. N. Starilov. Administrative law. Textbook. 2nd ed., - M., NORMA, 2005, - 152 pp..

The main subjects of the passport system in the Russian Federation are citizens and internal affairs bodies.

A passport of a citizen of the Russian Federation is the main document identifying a citizen of the Russian Federation on the territory of the Russian Federation (hereinafter referred to as a passport). All citizens of the Russian Federation (hereinafter referred to as citizens) who have reached the age of 14 and live on the territory of the Russian Federation are required to have a passport.

The legal basis of the passport system is the Federal Laws “On the right of citizens of the Russian Federation to freedom of movement, choice of place of stay and residence within the Russian Federation”, “On the procedure for leaving the Russian Federation and entering the Russian Federation”, “On citizenship of the Russian Federation”, Decree President of Russia “On the main document identifying the citizen of the Russian Federation on the territory of the Russian Federation”, approved by the Government “Regulations on the passport of a citizen of the Russian Federation”, “Regulations on the passport of a sailor”, “Rules for registration and deregistration of citizens of the Russian Federation”, a number orders and instructions of the Ministry of Internal Affairs.

In the last twenty years, the story about poor collective farmers turned into serfs by the bloody Stalinist regime has set teeth on edge. The cartoon about the good Khrushchev, who allowed the issuance of passports to peasants, also stuck in my teeth. They say that Stalin forbade peasants from leaving villages for cities without issuing them an identity card.

The talkers spreading this schizophrenic nonsense not only cannot show any legal or regulatory act that confirms their point of view, but they refuse to explain why the Soviet government, desperately in need of workers on great construction projects, should punish itself. (During the years of Soviet power, 1,300 cities were formed, that is, 200% of the pre-revolutionary number; meanwhile, over the same period, approximately 75 years, before the revolution, the increase was only 10%.

The scale of urbanization accounted for 60% of the total; by the time of the revolution, 20% lived in cities, 80% in villages, and by 1991, 80% in cities, 20% in villages.) How and when did 60% of the population of an entire country move from villages to cities if they were not allowed in , schizophrenics leave without an answer. Well, let's help them figure it out.

Council of People's Commissars of the USSR

Resolution

On the issuance of passports to citizens of the USSR on the territory of the USSR

Based on Article 3 of the Decree of the Central Executive Committee and the Council of People's Commissars of the USSR of December 27, 1932 on the establishment of a unified passport system throughout the USSR and mandatory registration of passports (S. Z. USSR, 1932, No. 84, Art. 516), the Council of People's Commissars of the USSR decides :

1. Introduce a passport system for the entire population of cities, workers’ settlements, settlements that are regional centers, as well as in all new buildings, industrial enterprises, transport, state farms, in settlements where MTS are located, and in settlements within 100-kilometer Western European border strip of the USSR.

2. Citizens permanently residing in rural areas (except for those provided for in Article 1 of this Resolution and the established zone around Moscow, Leningrad and Kharkov) do not receive passports. Population registration in these areas is carried out according to settlement lists by village and town councils under the supervision of district departments of the workers' and peasants' militia.

3. In cases where persons living in rural areas leave for long-term or permanent residence in an area where the passport system has been introduced, they receive passports from the district or city departments of the workers' and peasants' militia at the place of their previous residence for a period of 1 year.

After the expiration of the one-year period, persons who arrived for permanent residence receive passports at their new place of residence on a general basis.

Chairman of the Council of People's Commissars of the USSR

V. MOLOTOV (SKRYABIN)

Manager of the Council of People's Commissars of the USSR

I. MIROSHNIKOV

The above document regulates the receipt of a passport by a resident of a rural area when moving to the city. No obstacles are indicated. According to paragraph 3, village residents who decide to move to the city simply receive passports for their new place of residence. There is also another document introducing criminal liability for leaders who prevent peasants from leaving for the cities for temporary work.

Resolution of the Council of People's Commissars of the USSR dated March 16, 1930 on the elimination of obstacles to the free movement of peasants to latrine trades and seasonal work

206. On the removal of obstacles to the free movement of peasants to latrine trades and seasonal work.

In some areas of the USSR, local authorities, as well as collective farm organizations, prevent the free movement of peasants, especially collective farmers, to waste trades and seasonal work.

Such unauthorized actions, disrupting the implementation of the most important economic plans (construction, logging, etc.), cause great harm to the national economy of the USSR.

The Council of People's Commissars of the USSR decides:

1. Resolutely prohibit local authorities and collective farm organizations from in any way preventing the departure of peasants, including collective farmers, to waste trades and seasonal work (construction work, logging, fishing, etc.).

2. District and district executive committees, under the personal responsibility of their chairmen, are obliged to immediately establish strict monitoring of the implementation of this resolution, bringing its violators to criminal liability.

Chairman of the Council of People's Commissars of the USSR A. I. Rykov.

Manager of the Affairs of the Council of People's Commissars of the USSR and Service Station N. Gorbunov.

It should be noted that the Decree of the Central Executive Committee and the Council of People's Commissars of the USSR dated March 17, 1933 “On the procedure for otkhodnichestvo from collective farms” established that a collective farmer, without permission, without an agreement registered with the collective farm board with the “economic body” - the enterprise where he got a job, left the collective farm, subject to expulsion from the collective farm. That is, no one forcibly kept him on the collective farm, just as they didn’t keep him in the village. It is obvious that the passport system was considered by the Soviet authorities as a burden. The Soviet government wanted to get away from it, so it freed the main part from passports - the peasants. Not issuing them passports was a privilege, not an infringement.

Collective farmers did not need a passport to register. Moreover, peasants had the right to live without registration in cases where other categories of citizens were required to register. For example, Resolution of the Council of People's Commissars of the USSR dated September 10, 1940 No. 1667 “On approval of the Regulations on Passports” established that collective farmers, individual farmers and other persons living in rural areas where a passport system has not been introduced, arriving in the cities of their region for a period of up to 5 days, live without registration (other citizens, except military personnel, who also did not have passports, were required to register within 24 hours). The same resolution exempted collective farmers and individual farmers temporarily working during the sowing or harvesting campaign on state farms and MTS within their district, even if a passport system had been introduced there, from the obligation to reside with a passport.

This is how another vile bourgeois slander against Soviet society, upon contact with the facts, fell apart like a rotten stump.

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Ministry of Internal Affairs of the Russian Federation

University of Moscow

Department of History of State and Law

Essay on the topic of:

"The significance of the introduction of the passport system and registration of passports to ensure total control over the population of the USSR"

Moscow 2012

Content

• Introduction
• 6. General certification
• Conclusion
• Bibliography

Introduction

The main function of a passport is to legitimize, i.e. owner's ID card. However, from the moment passports appeared, they were used as a means of controlling the movement of the population; the potential of the passport system made it possible to solve issues of strengthening defense capability, state security, fighting crime, ensuring public safety (for example, in case of epidemics, disasters, etc.), under certain conditions - solve economic problems, ensure the fiscal interests of the state.

A passport is a document, the possession of which means certification of a special connection between a person and the state, evidence of vesting him with the corresponding set of rights.

Therefore, the totality (and correlation) of the tasks solved with the help of the passport system, the conditions and procedure for issuing passports and their registration quite fully reflect the existing political regime and the guarantee of declared rights and freedoms.

From this point of view, the study of the legal foundations of the passport system and the passport regime actually implemented in the 30s of the 20th century. seems very relevant, since it makes it possible to obtain additional arguments for characterizing the emerging administrative-command management system and totalitarian political regime.

Goals and objectives. The main goal is to study, on the basis of historical and legal analysis, the formation and development of the passport system of the Soviet state in the 30s. last century.

To achieve the goal, the following tasks are expected to be solved:

study the history of the development of the system of population registration and control over its movement in pre-revolutionary Russia and the Soviet state during the functioning of the unified passport system;

analyze the legal acts that regulated the passport system;

study the established passport regime;

1. Creation of a passport system in the USSR

On December 27, 1932 in Moscow, the chairman of the USSR Central Executive Committee M.I. Kalinin, Chairman of the Council of People's Commissars of the USSR V.M. Molotov and Secretary of the USSR Central Executive Committee A.S. Enukidze signed Resolution No. 57/1917 “On the establishment of a unified passport system in the USSR and mandatory registration of passports.” Korzan V.F. Soviet passport system. Minsk, 2005

In all passportized areas, the passport becomes the only document “identifying the owner.” Clause 10 prescribed: Passport books and forms should be produced according to a uniform model for the entire USSR. The text of passport books and forms for citizens of various union and autonomous republics should be printed in two languages; in Russian and in the language commonly used in the given union or autonomous republic.

The 1932 model passports contained the following information: first name, patronymic, last name, time and place of birth, nationality, social status, permanent residence and place of work, completion of compulsory military service and documents on the basis of which the passport was issued.

Simultaneously with the resolution of the Central Executive Committee and the Council of People's Commissars of the USSR (On the Establishment of a unified passport system in the USSR and mandatory registration of passports), on December 27, 1932, a resolution was issued "On the formation of the Main Directorate of the Workers' and Peasants' Militia under the OGPU of the USSR." This body was created for the general management of the work of the workers' and peasants' militia department of the union republics, as well as for the introduction throughout the Soviet Union of a unified passport system, registration of passports, and for the direct management of this matter. Ryabov Yu.S. Soviet passport system. M., 2008.

passportization Soviet passport system

Passport departments were formed in the regional and city departments of the RKM, and passport offices were established in police departments. Reorganization of address and information bureaus was also carried out.

2. Functions performed by the police during the implementation of the passport system

Responsibility for the implementation of the passport system and for the state of passport work was borne by the heads of city and district police departments. They organized this work and directed it through the passport apparatus (departments, desks) of subordinate police bodies.

The functions of the police authorities in implementing the passport system included:

· issuance, exchange and withdrawal (reception) of passports;

· registration and deregistration;

· issuing passes and permits to citizens to enter 1 border zone;

· organization of address-reference work (address-search);

· implementation of administrative supervision over compliance by citizens and officials with the rules of the passport regime;

· carrying out mass awareness-raising work among the population;

· identification in the process of passport work of persons hiding from Soviet authorities.

The implementation of the listed functions was the essence of organizing passport work. Deryuzhinsky V.F. Police law: A manual for students. 2nd ed. St. Petersburg, 1998

General management of the work of the management of the RKM of the union republics, including the implementation of the passport system, was entrusted to the GU RKM at the OGTU of the USSR. He was entrusted with:

a) operational management of all republican and local police departments allocated for passport certification;

b) appointment, removal of the entire leadership of the police passport apparatus;

c) publication of instructions and orders mandatory for all republican and local police authorities on issues related to the passport system and registration of passports. Deryuzhinsky V.F. Police law: A manual for students. 2nd ed. St. Petersburg, 1998

Special commissions were created under the district and city councils to oversee compliance with the law when issuing passports, which considered complaints from citizens about improper actions of officials. It should be noted that the immediate reason for introducing and tightening the requirements of the passport system in the USSR was a sharp increase in criminal crime, especially in large cities. This happened as a result of rapid industrialization in cities and collectivization in agriculture, and a shortage of food and industrial goods.

The introduction of the passport system acutely raised the issue of strengthening passport departments with sufficiently qualified personnel.

Graduates of educational institutions of the NKVD system of the USSR and other educational institutions were sent to work in the passport departments of the police, activists of enterprises and institutions were mobilized.

The unified passport system, introduced in 1932, was changed and improved in subsequent years in the interests of strengthening the state and improving services to the population.

A notable stage in the history of the formation and activities of the passport and visa service was the resolution of the Council of People's Commissars of the USSR of October 4, 1935 “On the transfer to the jurisdiction of the NKVD and its local bodies of foreign departments and desks of executive committees,” which until that time were subordinate to the OGPU bodies.

On the basis of the Resolution of the Council of People's Commissars of the USSR dated October 4, 1935, departments, departments and groups of visas and registration of foreigners (OViR) were created in the Main Police Directorate, police departments of republics, territories and regions.

These structures operated independently throughout the 30s and 40s. Subsequently, they were repeatedly united with the passport offices of the police into single structural units and separated from them. Ryabov Yu.S. Soviet passport system. M., 2008.

3. Development of the passport system

To improve the identification of a citizen of the USSR, from October 1937 they began to stick a photographic card into passports, the second copy of which was kept by the police at the place where the document was issued.

To avoid counterfeiting, GUM introduced special ink for filling out passport forms and special documents. mastic for seals, stamps for attaching photo cards.

In addition, it periodically sent out operational and methodological guidelines to all police departments on how to recognize counterfeit documents.

In cases where, when obtaining passports, birth certificates from other regions and republics were presented, the police were obliged to first request certificate issuing points so that the latter could confirm the authenticity of the documents.

Since August 8, 1936, in the passports of former prisoners “disenfranchised” and “defectors” (who crossed the border of the USSR “unauthorized”), the following note was made: “Issued on the basis of paragraph 11 of the Resolution of the Council of People's Commissars of the USSR No. 861 of April 28, 1933.”

The resolution of the Central Executive Committee and the Council of People's Commissars of the USSR dated June 27, 1936, as one of the measures to combat a frivolous attitude towards family and family responsibilities, established that upon marriage and divorce, the corresponding mark was made in passports by the registry office.

By 1937, the passportization of the population in the localities determined by the government was completed everywhere; the passport apparatus completed the tasks assigned to them.

In December 1936, the passport department of the Main Directorate of the RKM of the NKVD of the USSR was transferred to the external service department. In July 1937, local passport offices also became part of the departments and departments of the workers' and peasants' police departments. Their employees were responsible for the daily maintenance of the passport regime.

At the end of the 30s, significant changes were made to the passport system. Administrative and criminal liability for violating the rules of the passport regime has been tightened.

On September 1, 1939, the Supreme Soviet of the USSR adopted the Law “On Universal Military Duty,” and on June 5, 1940, by order of the People’s Commissar of Defense of the USSR, guidelines were announced that determined the tasks of the police in the field of military registration.

In the military registration desks of police departments (in rural areas and towns in the corresponding executive committees of the Soviets), primary records of all those liable for military service and conscripts, personal (qualitative) records of ordinary and junior commanding personnel of the reserve were kept. Ryabov Yu.S. Soviet passport system. M., 2008.

Military registration desks carried out their work in close contact with regional military commissariats. This work continued until the beginning of the Great Patriotic War (June 22, 1941).

Due to the internal and international situation that had developed by 1940, certain norms of the passport system of 1932 needed clarification and addition.

This problem was largely solved by the resolution of the Council of People's Commissars of September 10, 1940, which approved the new Regulations on Passports. This regulatory act significantly expanded the scope of application of the Regulations on Passports, extending it to border zones, employees and workers of a number of sectors of the national economy.

The Great Patriotic War (1941-1945) required additional efforts from the Soviet police to maintain the passport regime in the country.

Circular of the NKVD of the USSR No. 171 dated July 17, 1941 prescribed the People's Commissars of Internal Affairs of the republics and the heads of the NKVD Directorates of territories and regions the following procedure for documenting citizens arriving without passports to the rear in connection with military events: in case of loss of all documents, conduct a thorough interrogation and double-check everything indications. After this, issue a certificate with personal data (according to words).

This certificate could not serve as an identification document for the owner, but it facilitated his temporary registration and employment.

This circular was only repealed in 1949.

4. Passport system during the Second World War

From the first days of the war, all the activities of the police, its services and units changed significantly and expanded and were adapted to wartime conditions.

One of the important means of strengthening the Soviet rear, maintaining public order and fighting crime was the passport system.

Thus, on August 9, 1941, a resolution of the Council of People's Commissars of the USSR approved the Regulations on the registration of citizens evacuated from the front line. All evacuees who arrived at the resettlement site, both in an organized and individual manner, were required to register their passports with the police within 24 hours.

Considering that along with the evacuated population, criminal elements also rushed into the interior of the country and tried to hide from the authorities, the NKVD of the USSR in September 1941 established a mandatory personal appearance at the police station for citizens to obtain permission to register.

The expansion of the tasks of passport offices in war conditions gave rise to new organizational forms for their implementation.

By order of the NKVD of the USSR dated June 5, 1942, the positions of inspector-experts were introduced into the staff of the passport departments of police departments, who were entrusted with:

a) research and giving conclusions on identified facts of passport forgery received from the police;

b) checking the passports of persons admitted to particularly important state documents, as well as to work in enterprises and institutions of defense significance;

c) checking the storage of passport forms in the police, etc. Kuskov G.S. Soviet passport system: Textbook. M., 2009

During the war, the problem of finding children who had lost contact with their parents became extremely important. On January 23, 1942, the Council of People's Commissars of the USSR adopted a resolution "On the placement of children left without parents." In accordance with this resolution, a Central Children's Address Desk and corresponding local units were formed at the GUM NKVD of the USSR. The central information center for children was located in the city of Buguruslan, Chkalovsk (now Orenburg) region.

Initially, children's address desks were part of the departments and combat training services of the police, and in 1944, by order of the NKVD of the USSR, they were transferred to passport offices.

By June 1, 1942, 41,107 requests for children were sent to the country's targeted children's centers, and the location of 13,414 children or 32.6% of the total number of those wanted was established.

In total, more than twenty thousand children were found during the war years.

Much work was done to establish the place of residence of evacuated citizens T.I. Zheludkova, A.P. Khobotov. From the history of the development of the passport system in the USSR (1917-1974): Textbook. M., 2002.

In March 1942, a Central Information Bureau was created at the passport department of the GUM NKVD of the USSR.

Similar bureaus were created at the passport departments of the police departments of the republics, territories and regions.

Every day the Central Information Bureau received 10-11 thousand applications to establish the place of residence of evacuees. The employees of this bureau identified over two million wanted persons.

Using materials for registering passports (completed address sheets), cluster address bureaus of cities also helped the country's population in establishing the place of residence of their relatives and friends.

5. Passports in the post-war years

In the post-war years, passport work was carried out on a large scale. Passport office workers set up records of the population of cities and workers' settlements, issued returning citizens a large number of various kinds of certificates and answers to requests for missing persons or those who had lost contact with relatives.

The legal basis for registering the post-war population was the Decree of the Council of People's Commissars of the USSR of October 4, 1945 "On Certification of the Population." It was aimed at determining the total number throughout the country, establishing the ratio of the rural and urban population.

Reliable data on the size, composition and distribution of the population served as the basis for public administration and planning for economic and social development.

In 1952, the Passport and Registration Department (PRO) was organized, its structure and staffing were approved. And on October 21, 1953, the Resolution of the Council of Ministers of the USSR approved a new Regulation on passports.

The regulation established a single passport model for the USSR with text in Russian and the language of the corresponding union or autonomous republic.

Instead of the previously issued five-year passports in most cases, unlimited, ten-year, five-year and short-term ones were established.

In 1955, the Regulations on the Passport and Registration Department were put into effect. This department was assigned the following functions:

a) organization and management of all activities related to the implementation of the passport system;

b) issuance and exchange of passports;

c) registration and deregistration of the population;

d) conducting address and reference work;

e) identification of criminals wanted by operational and judicial investigative bodies;

f) identification and removal from areas with a special passport regime of persons subject to passport restrictions;

g) issuing passes to citizens to enter the restricted border zone;

i) civil registration (births, deaths, marriages, divorces, adoptions, etc.). Zheludkova T.I., Khobotov A.P. From the history of the development of the passport system in the USSR (1917-1974): Textbook. M., 2002

The Passport and Registration Department, in addition, provided practical assistance to local passport offices, sending its employees there, developed and presented to the GUM management draft orders and other guidance documents on the implementation of the passport system and civil registration; provided the police with passport forms, civil registration certificates, passes, etc.; kept records of those wanted and took action on applications and complaints from citizens received by the department; resolved personnel issues.

In order to intensify address-reference work and increase its level, instead of cluster address bureaus, unified republican, regional, and regional address bureaus were created in most police departments.

On July 19, 1959, the Council of Ministers approved the Regulations on entry into the USSR and travel abroad. This Regulation was supplemented by a list of persons who were issued diplomatic and service passports, and were also allowed entry and exit not only with foreign passports, but also with documents replacing them (identities and internal passports).

In the subsequent period, for foreign trips to friendly countries on official and private business, special certificates were introduced (series "AB" and "NZH"), visa-free trips were made using internal USSR passports with a special insert.

In 1959, the Central Committee of the CPSU and the Council of Ministers of the USSR adopted the Resolution “On the participation of workers in the protection of public order in the country.” At this time, in our country, the tasks of strengthening organizational and ideological work among the population to strengthen socialist legality and order, preventing and suppressing crimes and violations of public order came to the forefront.

After the adoption of the Resolution, specialized groups and freelancers appeared to maintain the passport regime in large settlements and cities of the USSR. Great assistance to the passport apparatus was provided by house, street and block committees and the assets they united, which, as a rule, included employees of the building administrations of the given territory.

An important step aimed at improving the activities of the police was the approval by the Council of Ministers of the USSR on August 17, 1962 of the new Regulations on the Soviet police.

The Regulations enshrined the principles of the Soviet passport system and defined specific tasks for its implementation.

By the Decree of the Presidium of the Supreme Soviet of the USSR of April 8, 1968 “On the fundamental rights and responsibilities of rural and town Councils of Working People’s Deputies” (announced by Order of the USSR Ministry of Internal Affairs No. 1258-196Eg), new rules for registration and deregistration of citizens in rural areas were introduced.

The internal affairs bodies retained the function of registration in regional centers and villages in those areas where there are full-time passport officers, as well as in settlements classified as the border zone.

On September 22, 1970, the Council of Ministers of the USSR approved a new Regulation on entry into the USSR and exit from the USSR, to which significant changes and additions were made.

For the first time in the country's legislative practice, the grounds for refusing citizens permission to travel abroad on private matters were determined.

6. General certification

The Central Committee of the CPSU and the Council of Ministers of the USSR in August 1974 considered the issue “On measures to further improve the passport system in the USSR,” and on August 28, 1974, the Council of Ministers of the USSR approved a new Regulation “On the passport system in the USSR.”

This Regulation established a uniform procedure for the entire population of the country, providing for the obligation to have a passport for all citizens of the USSR who have reached the age of sixteen, regardless of place of residence (city or village).

The introduction of universal passportization has become the main responsibility of employees of all passport offices.

The validity of the new passport was not limited to any period. In order to take into account external changes in the facial features of the passport holder associated with age, it is planned to sequentially paste three photographs:

· First - upon receipt of a passport, having reached 16 years of age;

· Second - upon reaching 25 years of age;

· Third - upon reaching 45 years of age.

The new passport has reduced the number of columns containing information about the citizen’s identity and mandatory marks.

Information about social status is generally excluded from the passport, since social status constantly changes during life.

Information about hiring and dismissal is not recorded in the passport, since there is a work book.

The new Regulations came into force (with the exception of the issuance of passports themselves) from July 1, 1975.

Within six years (until December 31, 1981), passports had to be replaced and issued to millions of urban and rural residents.

The internal affairs bodies carried out a large complex of organizational and practical measures for modern passportization of the population.

In the 70s and 80s, the formation and activity of the passport and visa service was significantly influenced by the participation of the USSR in the Conference on Security and Cooperation in Europe (SBE - OSCE) and the beginning of the process of reconstruction.

After the signing of the Final Act of the CSCE in Helsinki in 1975, the service implemented a stop of the Council of Ministers, obliging the Ministry of Internal Affairs and the Ministry of Foreign Affairs of the USSR to liberalize the practice of considering citizens' applications for exit and entry.

Previously, our legal acts and instructions regulating the work of the passport service were drawn up for decades without taking into account international obligations. Over the course of the nineties, our country has been bringing its national legislation into full compliance with international obligations.

Taking into account the results of the Vienna CSCE meeting in 1986-1989. further changes were made in legislation and liberalization of rules relating to the procedure for exit and entry, and rules of stay for foreign citizens. In particular, the current regulation on entry into the USSR and exit from the USSR was supplemented by a decision of the Government with an open section on the procedure for considering applications for exit from the USSR and entry into the USSR on private matters. Since 1987, all existing restrictions on leaving the country to all countries of the world, including for permanent residence, have been practically abolished, with the exception of cases related to state security.

The Vienna Final Document (January 19, 1989) talks in detail (unlike the Helsinki Final Act of 1975) about civil and political rights, including religious freedoms, freedom of movement, the right to defense in court, etc.

The most difficult problem for Russia is to implement the free movement of citizens and choice of place of residence. Currently, in many countries there are no restrictions on this right. In exceptional cases, they can only be established by law.

Since 1925, the USSR has had a registration procedure that does not exist in other countries.

However, it is not so easy to abandon it, because it is a social problem that is tightly intertwined with economic problems. At the same time, its decision has great political significance.

In the process of building a rule of law state, the task of creating guarantees of legal and social security of a person became acute.

On September 5, 1991, the Declaration of Human Rights and Freedoms was adopted at the Congress of People's Deputies of the USSR. Article 21 of the Declaration states: “Everyone has the right to free movement within the country, to choose his place of residence and place of stay. Restrictions on this right can only be established by law.”

On December 22, 1991, the Resolution of the Supreme Council of the RSFSR approved the Declaration of Human and Civil Rights, where Article 12 enshrines the rights of citizens to free movement and choice of residence.

These rights are reflected in the Law of the Russian Federation of June 25, 1993 “On the right of citizens of the Russian Federation to freedom of movement, choice of place of stay and residence within the Russian Federation.” Dodin E.V., Golosnichenko I.P. Organization of the activities of internal affairs bodies to ensure the rules of the passport system in the USSR: Textbook. Kyiv, 2002

The Constitution of the Russian Federation (adopted by popular vote on December 12, 1993) states in Article 27: everyone who is legally present in the territory of the Russian Federation has the right to move freely, choose their place of stay and residence.

Everyone can freely travel outside the Russian Federation. A citizen of the Russian Federation can freely return to the Russian Federation.

With the adoption of the Russian Federation Law “On Citizenship of the Russian Federation” in 1991, the passport and visa service was also assigned responsibilities for resolving citizenship issues.

According to Decree of the Government of the Russian Federation of February 15, 1993 No. 124, the departments (departments) of visas, registration and passport work, as well as passport offices (passport offices) and departments (groups) of visas and police registration were reorganized into the passport and visa service of the internal affairs bodies Russian Federation, both in the center and locally.

The UPVS (OPVS) and their divisions are entrusted with the functions of issuing passports, passes to enter the border zone, registering citizens, addressing and reference work, registering foreign citizens and stateless persons (residing on the territory of Russia), issuing documents for the right of residence to them ; registration of documents and permits for entry into the Russian Federation and travel abroad, implementation of legislation on citizenship issues.

The passport and visa service, using its capabilities, takes an active part in the fight against crime, ensuring law and order and preventing crime.

In addition, insofar as it falls within its competence, it implements legislative acts in the field of ensuring human rights and freedoms.

In order to create the necessary conditions to ensure the constitutional rights and freedoms of citizens of the Russian Federation, pending the adoption of the corresponding federal law on the main document identifying the citizen of the Russian Federation, by Decree of the President of the Russian Federation of March 13, 1997 No. 232, a passport of a citizen of the Russian Federation was put into effect. In pursuance of this Decree, the Government of the Russian Federation on July 8, 1997 (No. 828) approved the Regulations on the passport of a citizen of the Russian Federation, a sample form and a description of the passport of a citizen of the Russian Federation. In the same Government Resolution the Ministry of Internal Affairs was instructed to:

a) begin issuing passports of citizens of the Russian Federation from October 1, 1997;

b) issue passports as a matter of priority to citizens who have reached 14-16 years of age, military personnel, as well as other citizens in cases determined by the Ministry of Internal Affairs of the Russian Federation;

c) carry out, by December 31, 2003, a phased replacement of the passport of a citizen of the USSR with a passport of a citizen of the Russian Federation.

The internal affairs bodies are currently carrying out a large complex of organizational and practical measures to implement the Presidential Decree of March 13, 1997 and the Government Resolution of July 8, 1997.

By Order of the Ministry of Internal Affairs of Russia dated October 7, 2003 No. 776, the Passport and Visa Directorate of the Ministry of Internal Affairs of Russia was transformed into the Main Passport and Visa Directorate of the Ministry of Internal Affairs of Russia, and the Center for Passport and Visa Information into the Center for Passport and Visa Information Resources of the Ministry of Internal Affairs of Russia, the Center for Citizens' Appeals on Passport and Visa Issues Ministry of Internal Affairs of Russia and the Center for issuing invitations to foreign citizens of the Ministry of Internal Affairs of Russia.

In accordance with clause 13 of Decree of the President of the Russian Federation dated March 9, 2004 No. 314, the Federal Migration Service of Russia was formed, to which law enforcement functions, control and supervision functions and functions for the provision of public services in the field of migration of the Ministry of Internal Affairs of Russia were transferred

Conclusion

Each society and state at a certain stage of development, in order to successfully solve a whole complex of heterogeneous problems, introduced a system of recording the population and monitoring its movement. In European feudal states this was solved through the establishment of passports. The development of capitalism, the expansion of trade turnover, when labor becomes a commodity, the passport system begins to have a restraining influence on the development of all areas of social and state life. And the more intensively bourgeois relations developed, the faster in certain countries they abandoned compulsory internal passports, moving to the so-called. legitimation system, when the presentation of any document was sufficient for identification.

In general, Russia followed exactly this path. However, a combination of special circumstances left its mark on the development of the passport system. First of all, these are deep feudal remnants that persisted even after the abolition of serfdom and did not allow for more than half a century to carry out a reform of the passport system, which came into obvious contradiction with the real situation.

The legislation on passports not only reinforced class and social inequality, but also contained discriminatory norms based on nationality and confession, and infringed on the rights of women and children. Therefore, it is quite natural that the programs of all (with the exception of the extreme right) political parties - including the Bolshevik, whose leader, V.I. Lenin, repeatedly sharply criticized the absence in pre-revolutionary Russia of a real possibility of free movement and choice of place of residence - they contained demands for, to a greater or lesser extent, fundamental reforms of the passport system.

For some time, the Soviet state adhered to the previous ideological and political guidelines. However, the aggravation of the civil war and the unclear prospects for military operations on the fronts in general, the growing anti-Soviet movement in the rear (and the whole complex of measures called “war communism”) forced the establishment of a system of accounting and control over the movement of primarily potential opponents of the new government, “non-working people.” ("former" in the terminology of later times). The first legal acts of the first Soviet identity documents were introduced according to the social class principle. In this regard, there are obvious coincidences with the principles of the pre-revolutionary passport system, with the difference, however, that the restrictions were now addressed precisely to those who enjoyed the greatest passport benefits before the revolution.

In the context of the civil war, during the implementation of universal labor service, attempts were made to introduce uniform identity documents for all citizens of the RSFSR, which were not implemented due to lack of resources. Local authorities, for the same reasons, began to introduce “their own” similar documents.

Moreover, an analysis of the entire complex of legal acts that regulated passportization in the USSR and their implementation shows that the main developer of projects and the main subject of implementation - the OGPU, then the NKVD - focused specifically on how to use the potential of the passport system in the interests of strengthening security.

Protective" interests came into conflict with economic ones. Clearing cities of "excess" population initially caused difficulties in the work of enterprises, whose managers, in order to make up for the shortage of workers, were forced to violate passport legislation and hire people who were denied passports or registration.Numerous complaints from business executives were one of the main reasons for the introduction of relaxations in the passport regime already in the 1930s.

With the beginning of passportization, the scope of application of extrajudicial repressions significantly expanded, since the OGPU, by a departmental act, allowed its Plenipotentiary Representatives to determine various types of punishment for violators of the passport regime, up to imprisonment in a concentration camp for up to three years.

The fact that the passport system is a very effective means of ensuring security, and its implementation (or changes in restrictions) is dictated by the actual situation in a particular country, is evidenced by recent steps taken by the governments of a number of states as part of the implementation of programs to combat international terrorism. An example is England, one of the first European countries to move to a legitimation system, which announced the introduction of domestic identity cards at the end of last year.

Bibliography

1. Personal decree given to the Senate, dated December 7, 1811 “On the designation in passports issued to merchants, townspeople and peasants who are married or single, and if widowed, then after which marriage” // PSZ. Collection 1. T. XXXI. No. 24902.

2. Code of statutes on passports and fugitives // Code of laws of the Russian Empire.T. XIV. - St. Petersburg, 1833.

3. Decree of the All-Russian Central Executive Committee and the Council of People's Commissars of the RSFSR of June 20, 1923 “On identity cards” // SU RSFSR. 1923. No. 61. Art. 575.

4. Resolution of the All-Russian Central Executive Committee and the Council of People's Commissars of the RSFSR of July 18, 1927 “On identity cards” // SU RSFSR. 1927. No. 75. Art. 514.

6. Legislative acts of the Russian state in the second half of the 16th and first half of the 17th centuries. Comments / Ed. NOT. Nosov and V.M. Panea-ha. L., 2007

7. Deryuzhinsky V.F. Police law: A manual for students. 2nd ed. St. Petersburg, 1998

9. Zheludkova T.I. Khobotov A.N. From the history of the formation and development of the passport system in the USSR (October 1917-1974): Educational and methodological materials. M., 2000

10. Zheludkova T.I., Khobotov A.P. From the history of the development of the passport system in the USSR (1917-1974): Textbook. M., 2002

11. Korzan V.F. Soviet passport system. Minsk, 2005

12. Kuritsyn V.M. Soviet state and law in 1929-1941. M., 2008.

13. Kuskov G.S. The main stages of the development of the Soviet passport system // Proceedings of the Higher School of the Ministry of Internal Affairs of the USSR. Vol. 20. M., 1998.

14. Kuskov G.S. Passport system in the USSR and its implementation. Management in the field of administrative and political activities. M. 1999.

15. Kuskov G.S. Soviet passport system: Textbook. M., 2009

16. Rybalchenko R.K. Passport system in the USSR. Kyiv, 1997.

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18. Savitsky S., Khudyakov A. New passport system of the USSR. Alma-Ata, 1976. -

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