Power, as conceived by totalitarianism, lies exclusively in the force produced through organization. Just as Stalin saw every institution, independent of its actual function, only as a “transmission belt connecting the party with the people”82 and honestly believed that the most precious treasures of the Soviet Union were not the riches of its soil or the productive capacity of its huge manpower, but the “cadres” of the party83 (i.e., the police), so Hitler, as early as 1929, saw the “great thing” of the movement in the fact that sixty thousand men “have outwardly become almost a unit, that actually these members are uniform not only in ideas, but that even the facial expression is almost the same. Look at these laughing eyes, this fanatical enthusiasm and you will discover ...how a hundred thousand men in a movement become a single type.”84 Whatever connection power had in the minds of Western man with earthly possessions, with wealth, treasures, and riches, has been dissolved into a kind of dematerialized mechanism whose every move generates power as friction or galvanic currents generate electricity. The totalitarian division of states into Have and Have-not countries is more than a demagogic device; those who make it are actually convinced that the power of material possessions is negligible and only stands in the way of the development of organizational power. To Stalin constant growth and development of police cadres were incomparably more important than the oil in Baku, the coal and ore in the Urals, the granaries in the Ukraine, or the potential treasures of Siberia—in short the development of Russia’s full power arsenal. The same mentality led Hitler to sacrifice all Germany to the cadres of the SS; he did not consider the war lost when German cities lay in rubble and industrial capacity was destroyed, but only when he learned that the SS troops were no longer reliable.85 To a man who believed in organizational omnipotence against all mere material factors, military or economic, and who, moreover, calculated the eventual victory of his enterprise in centuries, defeat was not military catastrophe or threatened starvation of the population, but only the destruction of the elite formations which were supposed to carry the conspiracy for world rule through a line of generations to its eventual end.
The structurelessness of the totalitarian state, its neglect of material interests, its emancipation from the profit motive, and its nonutilitarian attitudes in general have more than anything else contributed to making contemporary politics well-nigh unpredictable. The inability of the non-totalitarian world to grasp a mentality which functions independently of all calculable action in terms of men and material, and is completely indifferent to national interest and the well-being of its people, shows itself in a curious dilemma of judgment: those who rightly understand the terrible efficiency of totalitarian organization and police are likely to overestimate the material force of totalitarian countries, while those who understand the wasteful incompetence of totalitarian economics are likely to underestimate the power potential which can be created in disregard of all material factors.
II: The Secret Police
UP TO NOW we know only two authentic forms of totalitarian domination: the dictatorship of National Socialism after 1938, and the dictatorship of Bolshevism since 1930. These forms of domination differ basically from other kinds of dictatorial, despotic or tyrannical rule; and even though they have developed, with a certain continuity, from party dictatorships, their essentially totalitarian features are new and cannot be derived from one-party systems. The goal of one-party systems is not only to seize the government administration but, by filling all offices with party members, to achieve a complete amalgamation of state and party, so that after the seizure of power the party becomes a kind of propaganda organization for the government. This system is “total” only in a negative sense, namely, in that the ruling party will tolerate no other parties, no opposition and no freedom of political opinion. Once a party dictatorship has come to power, it leaves the original power relationship between state and party intact; the government and the army exercise the same power as before, and the “revolution” consists only in the fact that all government positions are now occupied by party members. In all these cases the power of the party rests on a monopoly guaranteed by the state and the party no longer possesses its own power center.
The revolution initiated by the totalitarian movements after they have seized power is of a considerably more radical nature. From the start, they consciously strive to maintain the essential differences between state and movement and to prevent the “revolutionary” institutions of the movement from being absorbed by the government.86 The problem of seizing the state machine without amalgamating with it is solved by permitting only those party members whose importance for the movement is secondary to rise in the state hierarchy. All real power is vested in the institutions of the movement, and outside the state and military apparatuses. It is inside the movement, which remains the center of action of the country, that all decisions are made; the official civil services are often not even informed of what is going on, and party members with the ambition to rise to the rank of ministers have in all cases paid for such “bourgeois” wishes with the loss of their influence on the movement and of the confidence of its leaders.
Totalitarianism in power uses the state as its outward façade, to represent the country in the nontotalitarian world. As such, the totalitarian state is the logical heir of the totalitarian movement from which it borrows its organizational structure. Totalitarian rulers deal with nontotalitarian governments in the same way they dealt with parliamentary parties or intra-party factions before their rise to power and, though on an enlarged international scene, are again faced with the double problem of shielding the fictitious world of the movement (or the totalitarian country) from the impact of factuality and of presenting a semblance of normality and common sense to the normal outside world.
Above the state and behind the façades of ostensible power, in a maze of multiplied offices, underlying all shifts of authority and in a chaos of inefficiency, lies the power nucleus of the country, the superefficient and super-competent services of the secret police.86a” The emphasis on the police as the sole organ of power, and the corresponding neglect of the seemingly greater power arsenal of the army, which is characteristic of all totalitarian regimes, can still be partially explained by the totalitarian aspiration to world rule and its conscious abolition of the distinction between a foreign country and a home country, between foreign and domestic affairs. The military forces, trained to fight a foreign aggressor, have always been a dubious instrument for civil-war purposes; even under totalitarian conditions they find it difficult to regard their own people with the eyes of a foreign conqueror.87 More important in this respect, however, is that their value becomes dubious even in time of war. Since the totalitarian ruler conducts his policies on the assumption of an eventual world government, he treats the victims of his aggression as though they were rebels, guilty of high treason, and consequently prefers to rule occupied territories with police, and not with military forces.
Even before the movement seizes power, it possesses a secret police and spy service with branches in various countries. Later its agents receive more money and authority than the regular military intelligence service and are frequently the secret chiefs of embassies and consulates abroad.88 Its main tasks consist in forming fifth columns, directing the branches of the movement, influencing the domestic policies of the respective countries, and generally preparing for the time when the totalitarian ruler—after overthrow of the government or military victory—can openly feel at home. In other words, the international branches of the secret police are the transmission belts which constantly transform the ostensibly foreign policy of the totalitarian state into the potentially domestic business of the totalitarian movement.
These functions, however, which the secret police fulfill in order to prepare the totalitarian Utopia of world rule, are secondary to those required for the present realization of the totalitarian fiction in one country. The dominant role of the secret police in the domestic politics of tota
litarian countries has naturally contributed much to the common misconception of totalitarianism. All despotisms rely heavily on secret services and feel more threatened by their own than by any foreign people. However, this analogy between totalitarianism and despotism holds only for the first stages of totalitarian rule, when there is still a political opposition. In this as in other respects totalitarianism takes advantage of, and gives conscious support to, nontotalitarian misconceptions, no matter how uncomplimentary they may be. Himmler, in his famous speech to the Reichswehr staff in 1937, assumed the role of an ordinary tyrant when he explained the constant expansion of the police forces by assuming the existence of a “fourth theater in case of war, internal Germany.”89 Similarly, Stalin at almost the same moment half succeeded in convincing the old Bolshevik guard, whose “confessions” he needed, of a war threat against the Soviet Union and, consequently, an emergency in which the country must remain united even behind a despot. The most striking aspect of these statements was that both were made after all political opposition had been extinguished, that the secret services were expanded when actually no opponents were left to be spied upon. When war came, Himmler neither needed nor used his SS troops in Germany itself, except for the running of concentration camps and policing of foreign slave labor; the bulk of the armed SS served at the Eastern front where they were used for “special assignments”—usually mass murder—and the enforcement of policy which frequently ran counter to the military as well as the Nazi civilian hierarchy. Like the secret police of the Soviet Union, the SS formations usually arrived after the military forces had pacified the conquered territory and had dealt with outright political opposition.
In the first stages of a totalitarian regime, however, the secret police and the party’s elite formations still play a role similar to that in other forms of dictatorship and the well-known terror regimes of the past; and the excessive cruelty of their methods is unparalleled only in the history of modern Western countries. The first stage of ferreting out secret enemies and hunting down former opponents is usually combined with drafting the entire population into front organizations and re-educating old party members for voluntary espionage services, so that the rather dubious sympathies of the drafted sympathizers need not worry the specially trained cadres of the police. It is during this stage that a neighbor gradually becomes a more dangerous enemy to one who happens to harbor “dangerous thoughts” than are the officially appointed police agents. The end of the first stage comes with the liquidation of open and secret resistance in any organized form; it can be set at about 1935 in Germany and approximately 1930 in Soviet Russia.
Only after the extermination of real enemies has been completed and the hunt for “objective enemies” begun does terror become the actual content of totalitarian regimes. Under the pretext of building socialism in one country, or using a given territory as a laboratory for a revolutionary experiment, or realizing the Volksgemeinschaft, the second claim of totalitarianism, the claim to total domination, is carried out. And although theoretically total domination is possible only under the conditions of world rule, the totalitarian regimes have proved that this part of the totalitarian Utopia can be realized almost to perfection, because it is temporarily independent of defeat or victory. Thus Hitler could rejoice even in the midst of military setbacks over the extermination of Jews and the establishment of death factories; no matter what the final outcome, without the war it would never have been possible “to burn the bridges” and to realize some of the goals of the totalitarian movement.90
The elite formations of the Nazi movement and the “cadres” of the Bolshevik movement serve the goal of total domination rather than the security of the regime in power. Just as the totalitarian claim to world rule is only in appearance the same as imperialist expansion, so the claim to total domination only seems familiar to the student of despotism. If the chief difference between totalitarian and imperialist expansion is that the former recognizes no difference between a home and a foreign country, then the chief difference between a despotic and a totalitarian secret police is that the latter does not hunt secret thoughts and does not use the old method of secret services, the method of provocation.91
Since the totalitarian secret police begins its career after the pacification of the country, it always appears entirely superfluous to all outside observers—or, on the contrary, misleads them into thinking that there is some secret resistance.92 The superfluousness of secret services is nothing new; they have always been haunted by the need to prove their usefulness and keep their jobs after their original task had been completed. The methods used for this purpose have made the study of the history of revolutions a rather difficult enterprise. It appears, for example, that there was not a single anti-government action under the reign of Louis Napoleon which had not been inspired by the police itself.93 Similarly, the role of secret agents in all revolutionary parties in Czarist Russia strongly suggests that without their “inspiring” provocative actions the course of the Russian revolutionary movement would have been far less successful.94 Provocation, in other words, helped as much to maintain the continuity of tradition as it did to disrupt time and again the organization of the revolution.
This dubious role of provocation might have been one reason why the totalitarian rulers discarded it. Provocation, moreover, is clearly necessary only on the assumption that suspicion is not sufficient for arrest and punishment. None of the totalitarian rulers, of course, ever dreamed of conditions in which he would have to resort to provocation in order to trap somebody he thought to be an enemy. More important than these technical considerations is the fact that totalitarianism defined its enemies ideologically before it seized power, so that categories of the “suspects” were not established through police information. Thus the Jews in Nazi Germany or the descendants of the former ruling classes in Soviet Russia were not really suspected of any hostile action; they had been declared “objective” enemies of the regime in accordance with its ideology.
The chief difference between the despotic and the totalitarian secret police lies in the difference between the “suspect” and the “objective enemy.” The latter is defined by the policy of the government and not by his own desire to overthrow it.95 He is never an individual whose dangerous thoughts must be provoked or whose past justifies suspicion, but a “carrier of tendencies” like the carrier of a disease.96 Practically speaking, the totalitarian ruler proceeds like a man who persistently insults another man until everybody knows that the latter is his enemy, so that he can, with some plausibility, go and kill him in self-defense. This certainly is a little crude, but it works—as everybody will know who ever watched how certain successful careerists eliminate competitors.
The introduction of the notion of “objective enemy” is much more decisive for the functioning of totalitarian regimes than the ideological definition of the respective categories. If it were only a matter of hating Jews or bourgeois, the totalitarian regimes could, after the commission of one gigantic crime, return, as it were, to the rules of normal life and government. As we know, the opposite is the case. The category of objective enemies outlives the first ideologically determined foes of the movement; new objective enemies are discovered according to changing circumstances: the Nazis, foreseeing the completion of Jewish extermination, had already taken the necessary preliminary steps for the liquidation of the Polish people, while Hitler even planned the decimation of certain categories of Germans;97 the Bolsheviks, having started with descendants of the former ruling classes, directed their full terror against the kulaks (in the early thirties), who in turn were followed by Russians of Polish origin (between 1936 and 1938), the Tartars and the Volga Germans during the war, former prisoners of war and units of the occupational forces of the Red Army after the war, and Russian Jewry after the establishment of a Jewish state. The choice of such categories is never entirely arbitrary; since they are publicized and used for propaganda purposes of the movement abroad, they must appear plausibl
e as possible enemies; the choice of a particular category may even be due to certain propaganda needs of the movement at large—as for instance the sudden entirely unprecedented emergence of governmental antisemitism in the Soviet Union, which may be calculated to win sympathies for the Soviet Union in the European satellite countries. The show trials which require subjective confessions of guilt from “objectively” identified enemies are meant for these purposes; they can best be staged with those who have received a totalitarian indoctrination that enables them “subjectively” to understand their own “objective” harmfulness and to confess “for the sake of the cause.”98 The concept of the “objective opponent,” whose identity changes according to the prevailing circumstances—so that, as soon as one category is liquidated, war may be declared on another—corresponds exactly to the factual situation reiterated time and again by totalitarian rulers: namely, that their regime is not a government in any traditional sense, but a movement, whose advance constantly meets with new obstacles that have to be eliminated. So far as one may speak at all of any legal thinking within the totalitarian system, the “objective opponent” is its central idea.
Closely connected with this transformation of the suspect into the objective enemy is the change of position of the secret police in the totalitarian state. The secret services have rightly been called a state within the state, and this not only in despotisms but also under constitutional or semiconstitutional governments. The mere possession of secret information has always given this branch a decisive superiority over all other branches of the civil services and constituted an open threat to members of the government.99 The totalitarian police, on the contrary, is totally subject to the will of the Leader, who alone can decide who the next potential enemy will be and who, as Stalin did, can also single out cadres of the secret police for liquidation. Since the police are no longer permitted to use provocation, they have been deprived of the only available means of perpetuating themselves independently of the government and have become entirely dependent on the higher authorities for the safeguarding of their jobs. Like the army in a nontotalitarian state, the police in totalitarian countries merely execute political policy and have lost all the prerogatives which they held under despotic bureaucracies.100