The Transfer of Crimea from Soviet Russia to

Soviet Ukraine, 1954

Mark Kramer
Crimea was part of Russia from 1783, when the Tsarist Empire annexed it a decade after
defeating Ottoman forces in the Battle of Kozludzha, until 1954, when the Soviet
government transferred Crimea from the Russian Soviet Federation of Socialist Republics
(RSFSR) to the Ukrainian Soviet Socialist Republic (UkrSSR). The transfer was
announced in the Soviet press in late February 1954, eight days after the Presidium of the
USSR Supreme Soviet adopted a resolution authorizing the move on 19 February. The
text of the resolution and some anodyne excerpts from the proceedings of the Presidium
of the USSR Supreme Soviet meeting on 19 February were published along with the very
brief announcement.[1] Nothing else about the transfer was disclosed at the time, and no
further information was made available during the remainder of the Soviet era.

Not until 1992, just after the Soviet Union was dissolved, did additional material about this
episode emerge. A historical-archival journal, Istoricheskii arkhiv (Historical Archive),
which had been published in the USSR from 1955 until 1962, began appearing again in
1992 with transcriptions of declassified documents from the former Soviet archives. The
first issue of the revived Istoricheskii arkhiv in 1992 contained a section about the transfer
of Crimea that featured documents from the Russian Presidential Archive and from a few
other archives whose collections are now housed at the State Archive of the Russian
Federation (GARF). Unfortunately, these documents do not add anything of substance to
what was published in the Soviet press 38 years earlier; indeed, they are mostly identical
to what was published in 1954. (Apparently, the editors of Istoricheskii arkhiv were
unaware that the scripted proceedings of the USSR Supreme Soviet Presidium
meeting had already been published in 1954.) The documents do confirm that the move
was originally approved by the Presidium of the Communist Party of the Soviet Union
(CPSU) on 25 January 1954, paving the way for the authorizing resolution of the
Presidium of the USSR Supreme Soviet three weeks later. But the declassified files reveal
nothing more about the motives for the transfer, leaving us with just the two official
rationales that were published in 1954:

(1) the cession of Crimea was a “noble act on the part of the Russian people” to
commemorate the 300th anniversary of the “reunification of Ukraine with Russia” (a
reference to the Treaty of Pereyaslav signed in 1654 by representatives of the
Ukrainian Cossack Hetmanate and Tsar Aleksei I of Muscovy) and to “evince the
boundless trust and love the Russian people feel toward the Ukrainian people”;
and

(2) the transfer was a natural outgrowth of the “territorial proximity of Crimea to
Ukraine, the commonalities of their economies, and the close agricultural and
cultural ties between the Crimean oblast and the UkrSSS.”

Neither of these ostensible justifications holds up to scrutiny. Even though 1954 was the
300th anniversary of the Treaty of Pereyaslav, there is no connection between that treaty
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and the Crimean peninsula. Pereyaslav, in central Ukraine not far from Kyiv, is nowhere
near Crimea, and the treaty had nothing to do with the peninsula, which did not come
under Russian control until 130 years later. Moreover, the description of the treaty as
having produced the “unification of Russia and Ukraine” is hyperbolic. The treaty did
provide an important step in that direction, but years of further struggling and warfare had
to take place before full unification occurred. In retrospect the Treaty of Pereyaslav is
often associated (inaccurately) with Russian-Ukrainian unity, but it is hard to see why
anyone in the USSR would have proposed celebrating the 300th anniversary of the
document by transferring Crimea from the RSFSR to the UkrSSR.

The notion that the transfer was justified solely by Crimea’s cultural and economic
affinities with Ukraine is also far-fetched. In the 1950s, the population of Crimea —
approximately 1.1 million — was roughly 75 percent ethnic Russian and 25 percent
Ukrainian. A sizable population of Tatars had lived in Crimea for centuries until May 1944,
when they were deported en masse by the Stalinist regime to barren sites in Central Asia,
where they were compelled to live for more than four decades and were prohibited from
returning to their homeland. Stalin also forcibly deported smaller populations of
Armenians, Bulgarians, and Greeks from Crimea, completing the ethnic cleansing of the
peninsula. Hence, in 1954, Crimea was more “Russian” than it had been for centuries.
Although Crimea is briefly contiguous with southern Ukraine via the Isthmus of Perekop,
the large eastern Kerch region of Crimea is very close to Russia. The peninsula did have
important economic and infrastructural ties with Ukraine, but cultural ties were much
stronger overall with Russia than with Ukraine, and Crimea was the site of major military
bases from Tsarist times on, having become a symbol of Imperial Russian military power
against the Ottoman Turks.

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Even though the publicly enunciated rationales for the transfer of Crimea to the UkrSSR
were of little credibility, some of the comments published in 1954 and other information
that has come to light since then do allow us to gauge why the Soviet authorities decided
on this action. Of particular importance were the role of Nikita Khrushchev, the recent
traumas inflicted on Ukraine, and the ongoing power struggle in the USSR.

Khrushchev had been elevated to the post of CPSU First Secretary in September 1953
but was still consolidating his leading position in early 1954. He had earlier served as the
head of the Communist Party of Ukraine from the late 1930s through the end of 1949
(apart from a year-and-a-half during World War II when he was assigned as a political
commissar to the front). During the last several years of Khrushchev’s tenure in the
UkrSSR, he had overseen the Soviet government’s side of a fierce civil war in the newly
annexed western regions of Ukraine, especially Volynia and Galicia. The civil war was
marked by high levels of casualties and gruesome atrocities on both sides. Despite
Khrushchev’s later role in denouncing Stalinism and implementing reforms in the USSR,
he had relied on ruthless, unstinting violence to establish and enforce Soviet control over
western Ukraine. Occasional armed clashes were still occurring in the mid-1950s, but the
war was over by the time Crimea was transferred in February 1954. The repeated
references at the meeting of the USSR Supreme Soviet Presidium on 19 February to the
“unity of Russians and Ukrainians” and to the “great and indissoluble friendship” between
the two peoples, and the affirmation that the transfer would demonstrate how wise it was
to have Ukraine “under the leadership of the Communist Party and the Soviet
government,” indicate that Khrushchev saw the transfer as a way of fortifying and
perpetuating Soviet control over Ukraine now that the civil war had finally been won.
Some 860,000 ethnic Russians would be joining the already large Russian minority in
Ukraine.

A somewhat similar approach was used in the three newly annexed Baltic republics,
especially Latvia and Estonia, both of which had had very few Russian inhabitants prior to
the 1940s. The Stalinist regime encouraged ethnic Russians to settle in those republics
from the late 1940s on, and this policy continued under Khrushchev and Leonid Brezhnev.
Proportionally, the transfer of Russians to the Baltic republics was greater than in Ukraine,
but in absolute numbers the transfer of Crimea brought into Ukraine much larger numbers
of Russians and a region closely identified with Russia, bolstering Soviet control.

The transfer of Crimea to the UkrSSR also was politically useful for Khrushchev as he
sought to firm up the support he needed in his ongoing power struggle with Soviet Prime
Minister Georgii Malenkov, who had initially emerged as the preeminent leader in the
USSR in 1953 after Joseph Stalin’s death. Having been at a disadvantage right after
Stalin’s death, Khrushchev had steadily whittled away at Malenkov’s position and had
gained a major edge with his elevation to the post of CPSU First Secretary in September
1953. Nevertheless, the post-Stalin power struggle was by no means over in early 1954,
and Khrushchev was trying to line up as much support as he could on the CPSU
Presidium for a bid to remove Malenkov from the prime minister’s spot (a feat he
accomplished in January 1955). Among those whose support Khrushchev was hoping to
enlist was Oleksiy Kyrychenko, who had become first secretary of the Communist Party of
Ukraine in early June 1953 (displacing Leonid Mel’nykov, who had succeeded

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Khrushchev in that post in December 1949) and soon thereafter had been appointed a full
member of the CPSU Presidium. In 1944, when Khrushchev himself was still the
Communist Party leader in Ukraine, he reportedly had suggested to Stalin that
transferring Crimea to the UkrSSR would be a useful way of winning support from local
Ukrainian elites.[2] Regardless of whether Khrushchev actually did bring up this matter
with Stalin (the veracity of the secondhand retrospective account is uncertain), it most
likely reflects Khrushchev’s own sense as early as 1944 that expanding Ukraine’s territory
was a way of gaining elite support in the republic. In particular, Khrushchev almost
certainly regarded the transfer of Crimea as a means of securing Kyrychenko’s backing.
Khrushchev knew that he could not automatically count on Kyrychenko’s support because
the two of them had been sharply at odds as recently as June 1953, when Kyrychenko
endorsed Lavrentii Beria’s strong criticism of the situation in western Ukraine — criticism
that implicitly attacked a good deal of what Khrushchev had done when he was the leader
of the republic in the 1940s. Khrushchev hoped that the transfer of Crimea to Ukraine
would dispel the lingering tensions from this episode and thereby help to solidify
Kyrychenko’s support in the forthcoming showdown with Malenkov.

The earlier published documents, and materials that have emerged more recently, make
clear that the transfer of Crimea from the RSFSR to the UkrSSR was carried out in
accordance with the 1936 Soviet constitution, which in Article 18 stipulated that “the
territory of a Union Republic may not be altered without its consent.” The proceedings of
the USSR Supreme Soviet Presidium meeting indicate that both the RSFSR and
the UkrSSR had given their consent via their republic parliaments. One of the officials
present at the 19 February session, Otto Kuusinen, even boasted that“only in our country
[the USSR] is it possible that issues of the utmost importance such as the territorial
transfer of individual oblasts to a particular republic can be decided without any
difficulties.” One might argue that the process in 1954 would have been a lot better if
it had been complicated and difficult, but no matter how one judges the expeditiousness of
the territorial reconfiguration, the main point to stress here is that it is incorrect to say (as
some Russian commentators and government officials recently have) that Crimea was
transferred unconstitutionally or illegally. The legal system in the Soviet Union was mostly
a fiction, but the transfer did occur in accordance with the rules in effect at the time.
Moreover, regardless of how the transfer was carried out, the Russian Federation
expressly accepted Ukraine’s 1991 borders both in the December 1991 Belovezhskaya
Pushcha accords (the agreements that precipitated and codified the dissolution of the
Soviet Union) and in the December 1994 Budapest Memorandum that finalized Ukraine’s
status as a non-nuclear weapons state.

Crimea had originally been an “autonomous republic” (avtonomnaya respublika) in the

RSFSR, but its status was changed to that of an “oblast’” (province) in the RSFSR in
1945, ostensibly because the forced removal of the Crimean Tatars had eliminated the
need for autonomy. After the Crimean oblast was transferred to the UkSSR in 1954, it
retained the status of an oblast’ within Soviet Ukraine for 37 years. In early 1991, after a
referendum was held in the UkrSSR and a resolution was adopted a month later by the
UkrSSR parliament, the status of Crimea was upgraded to that of an “autonomous
republic.” Crimea retained that designation within Ukraine after the Soviet Union broke
apart. The category of “autonomous republic” does not exist in the Russian Federation. In

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the treaty of annexation signed by the Russian and Crimean governments on 18 March
2014, the status of the peninsula was changed to simply a “republic” (Respublika Krym),
joining 21 other “republics” of the Russian Federation’s now-84 federal “subjects.”[3]

One of the ironies of the transfer of Crimea to Ukraine in 1954 is that when the chairman
of the Presidium of the USSR Supreme Soviet, Kliment Voroshilov, offered his closing
remarks at the session on 19 February 1954, he declared that “enemies of Russia” had
“repeatedly tried to take the Crimean peninsula from Russia and use it to steal and ravage
Russian lands.” He praised the “joint battles” waged by “the Russian and Ukrainian
peoples” as they inflicted a “severe rebuff against the insolent usurpers.” Voroshilov’s
characterization of Russia’s past “enemies” seems eerily appropriate today in describing
Russia’s own actions vis-à-vis Ukraine. A further tragic irony of the Crimean transfer is
that an action of sixty years ago, taken by Moscow to strengthen its control over Ukraine,
has come back to haunt Ukraine today.

Mark Kramer is Director of the Cold War Studies Program at Harvard

University and a Senior Fellow of Harvard's Davis Center for Russian and
Eurasian Studies

[1] “V Prezidiume Verkhovnogo soveta RSFSR i Sovete Ministrov

RSFSR,” Izvestiya (Moscow), 27 February 1954, p. 1; “V Prezidiume Verkhovnogo Soveta
SSSR,” Izvestiya (Moscow), 27 February 1954, p. 2; “Rech’ tovarishcha Tarasova M.
P.,” Izvestiya (Moscow), 27 February 1954, p. 2; “Rech’ tovarishcha Korotchenko, D.
S.,” Izvestiya (Moscow), 27 February 1954, p. 2; “Rech’ tovarishcha Shvernika N.
M.” Izvestiya (Moscow), 27 February 1954, p. 2; “Rech’ tovarishcha Rashidova
Sh.,” Izvestiya (Moscow), 27 February 1954, p. 2; “Rech’ tovarishcha Kuusinena O.
V.,” Izvestiya (Moscow), 27 February 1954, p. 2; and “Rech’ tovarishcha Voroshilova K.
E.,” Izvestiya (Moscow), 27 February 1954, p. 2.

[2] This matter is reported in P. Knyshevskii, “Shtrikhi k portretu kremlevskoi

galerei,” Novoe vremya (Moscow), No. 9 (April 1994), p. 54. Knyshevskii claims that
Khrushchev told him in 1944 (fifty years earlier) about having raised this matter with Stalin
when Khrushchev was visiting Moscow. William Taubman accepts Knyshevskii’s account
at face value in Khrushchev: The Man and His Era (New York: W. W. Norton, 2002), p.
163. I am far more skeptical (partly because Khrushchev was well aware of how savagely
Stalin had attacked Ukrainian national elites throughout the 1930s, partly because
Khrushchev’s main priority in 1944 was to crush the armed insurgency in western
Ukraine, and partly because a secondhand account told so long after the fact is inherently
difficult to assess), but I do regard it as a plausible reflection of Khrushchev’s own
sentiment at the time.

[3] “Dogovor mezhdu Rossiiskoi Federatsiei i Respublikoi Krym o prinyatii v Rossiiskuyu

Federatsiyu Respubliku Krym i obrazovanii v sostave Rossiiskoi Federatsii novykh
sub”ektov,” 18 March 2014, signed in Moscow.

Documents

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Document 1

5 February 1954

Decree of the Russian Soviet Federative Socialist Republic Council of Ministers, "Concerning the Transfer of the
Crimean Oblast' from the RSFSR to the UkSSR"

TsGA RSFSR [GARF]. F.259. Op.1. D.645. L.159. Published in "Istoricheskii arkhiv" (1992). Translated for CWIHP by
Gary Goldberg.

Document 2

5 February 1954

Minutes Nº 41 of a Meeting of the Presidium of the Russian Soviet Federative Socialist Republic [RSFSR] Supreme
Soviet

TsGA RSFSR [GARF]. F. 385, Op. 13. D. 492. L. 1-2. Published in "Istoricheskii arkhiv" (1992). Translated for CWIHP by
Gary Goldberg.

Document 3

13 February 1954

Decree of the Presidium of the Ukrainian Supreme Soviet, "Concerning the Submission of the RSFSR Supreme Soviet
Presidium Concerning the Issue of the Transfer of the Crimean Oblast to the Ukrainian SSR"

GARF. F. 7523. Op. 85. D. 94. L. 8. Published in "Istoricheskii arkhiv" (1992). Translated for CWIHP by Gary Goldberg.

Document 4

15 February 1954

Letter from D. S. Korotchenko and V. Ye. Nizhnik to K. Ye. Voroshilov, with a Report about the Decree of the Presidium
of the Ukrainian SSR Supreme Soviet

GARF. F. 7523. Op. 85. D. 94. L. 8. Published in "Istoricheskii arkhiv" (1992). Translated for CWIHP by Gary Goldberg.

Document 5

19 February 1954

Meeting of the Presidium of the Supreme Soviet of the Union of Soviet Socialist Republics

GARF. F.7523. Op.57. D.963, L1-10. Published in "Istoricheskii arkhiv," issue 1, vol. 1 (1992). Translated for CWIHP by
Gary Goldberg.

Document 6

Sergey Khrushcehv, Excerpt from Nikita Khrushchev: Reformator (Moscow: Vremya, 2010)

Translated by Anna Melyakova for the National Security Archive.