On 5 July 1939 the RKKA Main Military Council complained about insufficient control over organization of communications and recommmended to reorganize the General Staff as well as district/army group/corps staffs. The questions of organization of the communication service, intelligence, information and reconnaissance were to be given to the Operations Administration of the General Staff and operations departments of districts', army groups and corps staffs
http://docs.historyrussia.org/ru/nodes/ ... e/1/zoom/5
On 19 July 1939 this decision was officially endorsed by the NKO order No.0105
https://ru.wikisource.org/wiki/%D0%9F%D ... 84%96_0105
Accordingly the communications department was created within the Operations Administration of the General Staff. This department was responsible for communications between the GS and operational army. At the same time the Communications Administration of the NKO responsible for provision of communication equipment and control of the commuications service was still retained. Soon it became obvious that such dual control was ineffective.
The commision on communication service convened after the Soviet-Finnish War admitted that the reorganization carried out according to the order No. 0105 was faulty. The existence of separate communication sections under operations departments led to many tensions and required endless coordination and "okaying" which took plenty of time. Accordingly the commision recommened to unite all questions of communications under a single chief of communications (of the Red Army, front, army etc). The communications department of the Operations Administration/GS was to be included into the RKKA Communication Administration.
These proposals like many others were in vain and the new leadership of the NKO dimsissed them. As a result this system of dual control survived and the communications department whithin the General Staff remained responsible for planning and organization of communications between the GS and fronts.
General Gapich (chief the Communiations Administration of the RKKA in June 1941) recollected after the war:
"In the General Staff, all issues were in charge of a small body - the communications department, which was not able to develop communications issues with the required completeness"
Gapich also said that he was not fully informed of the planning for communications in wartime. He was given a plan for wartime communications developed by the GS only on the morning of 22 June 1941. This plan was not discussed in advance with the Communications Administrations which apparently led to some clashes as Gapich accused kombrig Ivanov - chief of the communications department of the General Staff of incompetence and unreaslistic planning.
https://www.noo-journal.ru/nauka-obsest ... icle-0287/
As I understand only in July 1941 with the reorganization of the (Main) Communications Administration it was given a full control over all issues of communications between the GS in Moscow and the operational army (including control of the GS Communications Center). The communications department whithin the Operations Administration/GS was retained apparently with much reduced functions until being disbanded by the NKO order of 19 April 1942
So in essence we see a story typical story for a pre-war Soviet military administration system: aggrandizement of many control bodies with parrallel and poorly separated functions leading to frictions and dissolution of responsibility.