Implementation of housing allowances is an integral part of Russia's progra
mme of systematic rent increases on state and municipal rental units which
began in 1994. Because housing allowances constitute the country's first in
come-tested programme, its performance transcends the housing sector. Rents
are being increased in steps to cover full operating costs by the middle o
f the current decade. Primary administrative responsibility for the program
me rests at the local level. Since the rate at which rents increase is dete
rmined by each municipality, progress varies. Arguably, the quality of the
programme's administration may influence acceptance of both the programme a
nd broader economic and political reforms. Reported here are the results of
a first-time assessment of the practices of local housing allowances offic
es (HAOs) who administer the programme. Field work included on-site reviews
at 17 HAOs and analysis of about 1200 files of programme beneficiaries. Fo
r administrative practices covering such areas as the presence of written j
ob descriptions, written guidelines for intake workers, generation of repor
ts for higher-level authorities and setting standards for the routine revie
w of files of applicants determined to be eligible for benefits, applicants
rejected and time during which processing of approved cases should be comp
leted, HAOs had a fair record. Generally, 2-4 of the studied offices failed
the standards set out in the paper. However, frequent instances of incompl
ete record-keeping about HAO operations limit our conclusions and highlight
an area definitely needing improvement. On the other hand, and important f
or programme credibility, errors in computing subsidies paid to beneficiari
es were found to be universally very low. Overall, HAO performance is adequ
ate but highly variable and improvements are clearly needed. The results ca
n be interpreted as being consistent with HAO staff acceptance of housing a
llowances as a legitimate replacement for the previous broad entitlement to
benefits that worked through controlled rents in state housing. The adequa
te operation of HAOs should work to strengthen popular support of broader e
conomic and political reforms.