The history of the development of soviet power is studied in terms of public administration system model, criteria of full powers and their nominal and real implementation. The proposed network model is based on the stratification of activities and intercommunication of social institutions based on territorial community, local geo-historical and social environment. Systems of governmental regulation consist of the same set of activity types but differ in their influence on each other. The Soviets emerged as a real public industrial and territorial organization. After the October revolution the Soviets initially had full powers at all territorial levels without separation of powers into types of activity, but later they evolved into a formal institution controlled by the communist party representing the political elite of the socialist society. Comprehensive interpretation of the history of the soviet power leads to the conclusion that confrontation between the people and the political elite disconnected from the real needs of the society must be avoided within the government structure.