[topranks]

I'm not sure it could have worked out perfectly, but I'm sure, minus the Bolshevik influence on such committees pre-October, and their wholesale takeover of them afterwards, those same committees could have acted with a bit more sense and purpose.

I don't think the author is wrong to point out that they had more potential than they lived up to. He's not, I think, saying they add up to a cohesive strategy for a successful state.