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When Gorbachev tried to recentralize decision-making in order to promote his reforms, he was obstructed at all levels and eventually figured out that without the republican support he could accomplish nothing. This is why, as Suraska writes, at the last Party congress in 1991, he outbid his competitors (Yegor Ligachev) by formally bringing all regional party bosses into the Politburo and thus effectively confederalizing the Party and the country. But even that proved too little too late as the largest unit, Russia under Yeltsin, became, together with the Baltic republics, the most secessionist.