“Paper Nation” Jews as a Religion, Minority, and Nation in Bureaucratic Discourse and Praxis in Russian Imperial and Post-Imperial States

Abstract This article compares late Imperial Russia (1850-1917) and its successor states — post-revolutionary independent Ukraine (1918-1919) and early Soviet Russia and the USSR (1918-1923) — focusing on the conception and implementation of state policy toward the Jews. It argues that Russian Imperial, Ukrainian nationalist and Soviet socialist policies treated the Jews essentially as a distinct ethno-confessional or ethnic collective entitled to state protection and group rights, thus anticipating (in Imperial Russia) and de-facto realizing (in independent Ukraine and Soviet Russia) the rights of minorities stipulated in the 1919 Paris Peace Treaty and implemented by the Versailles system in interwar Europe. The article shows how by establishing and maintaining separate Jewish institutions (sophisticated state apparatuses staffed by qualified, dedicated Jewish bureaucrats), the states developed and even promoted a collective Jewish identity and collective Jewish rights, starting with state protection and official recognition of Judaism and the Jewish way of life in the late Russian empire, to state-sponsored Jewish national and cultural autonomy in the Ukrainian National Republic, to official recognition as a Soviet nationality, and territorial and semi-political autonomy in the USSR.