Complaint was specially made of the difficulties of enterprises of that second category which came under the joint control of the Glavki and of the provincial economic councils, and in practice acted on orders from the former transmitted more or less automatically through the corresponding industrial department of the latter. The leaders of the unions should participate in the organs of economic administration, and put forward candidates from among the workers for State economic posts. The directors of enterprises and the local economic departments seized upon their new-found freedom eagerly, and began to federate enterprises locally into trusts. By a socialist economy, to which the mixed economy of the NEP was regarded as a preparatory stage, Lenin meant a system in which collective forms of production predominated, based on collective, instead of individual, ownership of the means of production.