Development of the management system for Siberia c. Administrative structure and management of Siberia

State administration of Siberia in the 17th century

After the annexation of Siberia to Russia, a system of governing Siberia gradually emerged.

In the 16th century Siberia, as a new region, was subject to the Ambassadorial Order. In 1599, the administration of Siberia was transferred to the Prikaz of the Kazan Palace, which was controlled by the Prikaz of the Kazan Palace, which governed the eastern part of Russia (the former Kazan and Astrakhan Khanates). Soon, the rapid expansion of Russian territory to the east required the creation of a separate governing body for Siberia.

In February 1637, by decree of Tsar Mikhail Fedorovich, a special central governing body was formed - the Siberian Prikaz, which existed from 1637 to 1708 and from 1730 to 1763. As a rule, it was headed by representatives of noble boyar families close to the tsar. In the 17th century The Siberian order was successively headed by: Prince B. M. Lykov (1637-1643), Prince N. I. Odoevsky (1643-1646), Prince A. N. Trubetskoy (1646-1662), boyar R. M. Streshnev (1663- 1680), Prince I. B. Repnin (1680 – 1697), Duma clerk A. A. Vinius (1697 – 1703).

The Siberian order was engaged in resolving issues administrative management Siberia (appointment and removal of governors, control over them, judicial functions, etc.), supplies to Siberia, its defense, taxation of Siberia, its defense, taxation of Siberia, control of Siberian customs, reception, storage and trade of furs, diplomatic relations with China , Dzungaria and Kazakh hordes.

The Siberian order consisted of territorial discharge tables and chambers. Direct management of Siberian territories was carried out through territorial discharge tables. At the end of the 17th century. in the Siberian order there were four territorial discharge tables - Tobolsk, Tomsk, Yenisei and Lensky. The chambers dealt with financial matters and furs. The Siberian Prikaz had three chambers - the rated chamber, the merchant chamber and the state chamber. The first chamber was responsible for the reception and evaluation of furs and other types of tribute coming from Siberia, the second was responsible for the selection of merchants for the trade in state-owned furs and control over them, and the third was in charge of all financial affairs of the Siberian order. At the head of the tables and chambers were the clerks, to whom the clerks were subordinate.

The territory of Siberia, like the whole of Russia, was divided into districts for ease of administration. Soon, a large territory required the introduction of an additional administrative structure over the counties in Siberia. For this purpose, at the end of the 16th century. The Tobolsk category was formed, uniting all Siberian districts. The Tobolsk governor became the main Siberian governor, to whom the governors of other Siberian forts were subordinate.

The Tobolsk voivode exercised overall leadership of the defense and supply of Siberia. He had seniority in resolving foreign policy and foreign trade issues. As a rule, noble people who were close to the king, but who fell out of favor for some reason, were appointed to this post. In the 17th century the most notable Tobolsk governors were Yu. Ya. Suleshev (1623-1625) and P. I. Godunov (1667-1670).

Yu. Ya. Suleshov, who came from a noble family of Crimean Tatar beys who switched to Russian service, during his stay in Siberia carried out a number of significant reforms to improve its situation. He organized the first census of population and arable land, established a firm ratio between the size of the peasant land allotment and the size of the “sovereign arable land” cultivated by him, and unified the salaries of service people.

P. I. Godunov focused on strengthening the defense of Siberia from the threat of raids by nomads from the south. He began building fortifications on the steppe borders Western Siberia and began to organize Cossack settlements there - villages, and also created dragoon regiments. Under his leadership, the “Drawing of Siberia” was compiled - the first known map of Siberia, which summed up Russian geographical information about Siberia at that time and was a significant milestone in the history of Russian geographical science.

Gradually, as Siberia was developed and settled, three more categories were formed - Tomsk (1629), Lensk (1639) and Yenisei (1677) and new districts.

After the formation of other categories, the role of Tobolsk as the main Siberian center was preserved. The Tobolsk governor appeared as if he were senior over the other rank of governors.

Rank governors were appointed by the Siberian Order, as a rule, for three years. They supervised the district governors and resolved all issues of discharge management. The discharge voivode had the exclusive right of correspondence with the Siberian order. He managed the discharge through the Order Chamber - the discharge management body. The structure of the chamber copied the Siberian order and included territorial district tables. At the head of the chamber were two clerks appointed by the Siberian order, the tables were headed by clerks.

The districts were led by voivodes, who were also appointed by the Siberian Order, and, as a rule, for three years. The district governor appointed and dismissed clerks, yasak collectors, was responsible for the state of the district, and resolved all issues of district administration. He governed the county through the Moving House, the county governing body. The hut consisted of tables responsible for various areas life of the district - yasak table, bread table, money table, etc. At the head of the hut was a clerk, the tables were headed by clerks.

Siberian counties were divided into Russian prisudki and yasak volosts. The composition of the property included a fort or settlement with adjacent villages. The estates were managed by clerks who were appointed by the governors or elected by the population. The population of the villages united into communities and elected elders. Yasak volosts united local tribes who were obliged to pay yasak. The yasak volosts were headed by local tribal nobility, who ruled according to local customs and traditions. Russians in life and everyday life Siberian peoples in the 17th century did not interfere except to try to prohibit inter-tribal wars.

In Siberia, unlike in Russia, governors had broader powers. The Siberian order ordered them to manage “according to their own discretion, as it will be useful and as God will instruct.”

The broad powers of the Siberian governors and the remoteness of Moscow created favorable opportunities for various abuses. They were also facilitated by the support system of the Russian administration. In the 17th century In Siberia, a “feeding” system was used. Governors and clerks did not receive state salaries. They were strictly prohibited from any commercial activity. They had to live off the offering. As a result, the abuses of the Siberian administration took on a very wide scale. Almost all Siberian governors and clerks of the 17th century. were involved in abuses, the main of which were all kinds of extortions and bribes.

The Russian government tried to somehow limit these abuses of the Siberian administration. His attempts to fight them boiled down to the following:

- “detective” (summoning suspected persons to Moscow, their interrogation and trial);

Removal of persistent violators from office;

Search of governors and clerks at Verkhoturye customs upon returning to Russia and confiscation of part of their property.

However, these government measures did not produce any noticeable effect.

The abuses of Siberian governors, clerks and other officials became the cause of private mass unrest and uprisings, in which both Russians and local peoples participated. During the 17th century, several hundred of them occurred. They covered almost the entire territory of Siberia from Verkhoturye to Yakutsk and Nerchinsk. Most often, unrest and uprisings occurred in Tomsk and Yakutsk. The largest uprising occurred in Transbaikalia in 1696, when the rebels marched to Irkutsk and besieged it, outraged by the abuses of the local governor Savelov. The Russian government, as a rule, was forced to tolerate these protests and sought to resolve conflicts peacefully.

Lay self-government in the 17th century

The economic development of Siberian open spaces, the need to interact with state authorities and enter into contacts with the indigenous population forced Russian settlers to organize and reproduce in Siberia the norms of secular (community) self-government, rooted in all-Russian traditions.

The appearance of the peasantry in Siberia entailed the emergence of a peasant community - a peasant “world” arose immediately as soon as several household farmers settled in one place. Likewise, when townspeople appeared in cities, a townsman “world” arose. This was prompted by a number of factors.

Firstly, the need for collective solutions to economic problems and artel organization of labor.

Secondly, the need to regulate relationships between members of the same community and between communities. For this purpose, the townspeople and peasants elected officials from among themselves - elders, sotskys and tens.

Thirdly, the need to fulfill government duties. This function of the community was especially important. The fact is that at that time the state was not able to maintain a large staff of officials who would manage everything and everyone. Therefore, many services that were actually state services were assigned by the authorities to peasant or townspeople. These services were called “secular.” On the other hand, the settlers themselves - immigrants from the free Russian North - brought with them ideas about the traditions of the class organization and its place in the system of local government. Therefore, not only the state obliged the worlds to participate in governance, but the worlds themselves considered such participation to be their right. The community independently decided on the distribution of taxes, duties and secular services among its members.

People who performed secular services were called kissers, because they kissed the cross, pledging to do their work honestly. They were chosen by the community. The townspeople had kissers at customs, taverns, at the fur treasury, at grain and salt barns; among the peasants - granary, mill, field. It is important to note that when choosing a person for secular service, the principle of mutual responsibility was in effect, when in the event of a “disruption” of government interest, not only the kissers, but also their electors were responsible.

We can say that a community is, on the one hand, a social organization that regulates economic, social and family life posad or village on the basis of traditional law, and on the other - the lowest level of government and the tax authority.

Management structure in the first half of the 18th century

The beginning of administrative reforms only touched the surface of Siberia. During the first provincial reform, the entire region was united in 1708 into one Siberian province with the center in Tobolsk. The Siberian order was abolished in 1710, its functions were transferred to the Siberian governor, the governors of the Siberian districts were renamed commandants. Prince M.P. Gagarin was appointed the first Siberian governor.

Second provincial reform of 1719-1724. introduced more radical changes to Siberian administration. A four-degree administrative-territorial division was introduced. The Siberian province was divided into Tobolsk, Yenisei and Irkutsk provinces, headed by vice-governors. The provinces, in turn, were divided into districts headed by zemstvo commissars. However, already at the end of the 1720s. in most of Siberia they returned to the old system of local government: counties headed by voivodes.

In 1730, the Siberian Order was also restored. But the rights were, however, significantly curtailed compared to the 17th century; diplomatic relations, industrial management, command of military commands, and pit service were removed from his jurisdiction.

Unlike the 17th century. strict centralization and subordination were introduced. District governors could no longer communicate with the center, bypassing the vice-governors, and the latter - the Siberian governor. In turn, all government orders first came to Tobolsk, and from there they were sent to the cities. True, for efficiency and convenience of administration, the Irkutsk province received administrative independence in 1736: its vice-governor began to report directly to the government, bypassing Tobolsk. Thus, the beginning of the administrative division of Siberia into Western and Eastern was laid.

At the same time, some people migrated from the last century to the 18th century characteristic features controls:

Firstly, the election of lower administrative servants: clerks, clerks, scribes, and counters were chosen from among their ranks by townspeople and service people.

Secondly, the small size of the Siberian administration.

According to Peter's urban reform, limited self-government was introduced in Siberian cities, as in Russian ones. Citizens received the right to create elected magistrates in large cities, and town halls in others. They consisted of 1 - 3 burgomasters and 2 - 4 ratmans. Magistrates and town halls were in charge of collecting taxes from citizens and duties from merchants and industrialists, performing recruitment, road, and billet duties, economic affairs and improvement of the city, etc.

In addition to magistrates and town halls, the towns' worlds annually elected zemstvo elders. Zemstvo elders had the right to convene a secular assembly and were responsible executors of its decisions.

Elected bodies of city government were completely under the control of the crown administration.

Since the 1730s In Siberia, “for better order,” the police began to be established.

Restructuring of management in the second half of the 18th century

Since the 1760s A new round of reform in the management of Siberia begins, further unifying it with Russia and radically changing the entire structure of power from top to bottom.

In 1763, the Siberian order was finally abolished, and the Siberian province began to be governed on a common basis with other Russian provinces. Siberian affairs are distributed among central government institutions - collegiums, and since 1802 - ministries. However, Siberian governors report directly to the Senate and personally to the monarch.

In 1763, for the first time, states were introduced for Siberian officials of all ranks and positions. The election of administrative servants is abolished.

In 1764, the Irkutsk province was elevated to the rank of a province and included the Irkutsk, Uda and Yakutsk provinces. The Tobolsk province includes the Tobolsk and Yenisei provinces.

The year 1775 was marked by the manifestation of one of the largest legislative acts of the reign of Catherine II - “Establishment for the administration of the provinces of the All-Russian Empire.” The “Establishment” was extended to Siberia in 1781-83, when the entire region was divided into three governorships headed by governors general. The Tobolsk governorship included the Tomsk and Tobolsk provinces, the Kolyvan governorship included only one Kolyvan governorate, and the Irkutsk governorship united the Irkutsk province and the Nerchinsk, Yarkut and Okhotsk regions.

According to the “Establishment,” the principle of “separation of powers” was introduced into the Russian state structure at the local government level. Now general administration was entrusted at the provincial level to the Provincial Board, headed by the governor and vice-governor, at the district level - to the Lower Zemstvo Court, in cities - to the mayor or commandant, magistrates and town halls.

An integral part of Catherine’s reform of government was the “Charter of Deanery” of 1782 and the “Charter of Grant to Cities” of 1785. In accordance with the “Charter”, all cities were divided into parts headed by private bailiffs who had special police teams at their disposal. The units were divided into quarters with quarters by guards. The result of the innovations was a network of police stations thrown over the city, covering every home and every citizen with their surveillance. From the beginning of the 19th century. police chiefs appear in cities.

The “Charter of Complaint” introduced a number of significant changes to city government. The bodies of city government in Siberia from now on were:

1. A meeting of the city society, which included merchants and townspeople who had reached the age of 25.

2. The General City Duma, which was elected by the townspeople and held elections to the Six-Party Duma and was responsible for the city economy.

3. The six-vocal city council is the most important body of city government.

4. City magistrate. In addition to judicial functions in the affairs of townspeople, the magistrate was also responsible for the general administration of the city.

5. City artisans received their own separate body - the craft council.

Peasant world

The internal life of the peasant community was determined by the decisions of village and volost assemblies. All male peasants of “perfect age” could be participants in the gathering. Each participant in the secular council had the right to express his opinion; the decision was made by majority vote. “Old men”—people older in age and those who had previously served in elected positions—enjoyed special authority. Although in some communities great influence The rural rich were present at the gathering. The decision of the gathering was recorded in writing - a secular verdict, which was signed by all participants in the gathering.

The gatherings were elected by village and volost boards - secular huts, headed by village elders and volost elders. To resolve the most important issues, the gatherings elected lay attorneys, to whom they handed their orders. The attorney received broad powers from the assembly; in necessary cases, elders and elders were subordinate to him. This structure of peasant self-government remained unchanged until the middle of the 19th century.

Until the beginning of the 20th century. Siberia was understood as the entire space east of the Ural Mountains to the Pacific Ocean, that is, this concept covered such regions as Western, Southern, Eastern Siberia and the Far East.
Unlike the European part of Russia, which was strictly subordinated to the central administration, Siberia had a certain administrative autonomy and a more extensive system of governance. The various levels of this system in some of their parts formally corresponded to the institutions operating in other territories of the empire, but the specifics of the region introduced the necessary changes into each of them.

Regional factors shaping the management features of Siberia

Political and geographical factors played an important role in the formation of the administrative system of Siberia. The vastness of its territory and remoteness from the capitals of the state underlay many of the features of the management of Siberia. Although economic goals(primarily income from furs) were indeed one of the main incentives for the establishment of Russian authorities beyond the Ural ridge, but nevertheless, the organization of administration was directly influenced primarily not by sable “magpies”, but by the desire to prevent separatism and embezzlement on the part of numerous Cossacks and servicemen bosses.
The government decided to establish a special administrative center in Siberia, parallel to the capital of the state, to which local authorities would be subordinate. Tobolsk, founded in 1587, became the residence of the supreme Siberian governors. The Tobolsk governor headed the so-called “discharge” - a large district consisting of several district voivodeships. Subsequently (in the 18th - early 20th centuries), the administration of the region was built on the principle of organizing large districts, governorships and general governorships. The highest administrator of Siberia received a much greater amount of power compared to his colleagues in other parts of the empire.
Harsh natural conditions and remoteness from inhabited European Russia prompted the police department to use Siberia as a place of exile and hard labor.
Political and geographical factors undoubtedly included the proximity of Siberia to Central Asian and Pacific countries; The great power of the heads of the Siberian administration contributed to the transfer of diplomatic and trade relations with neighboring states to them. Merchant caravans from China and Mongolia passed through Siberia, so the organization of the customs service became one of the main foreign economic prerogatives of Siberian rulers back in the 17th century. In addition, the Tobolsk voivode received the right to diplomatic relations (sending and receiving embassies) with the Mongols and Kalmyks.
The most important prerequisite for the formation of a management system was the peculiarities of the settlement of the region by Russians. Siberia was populated, on the one hand, by service people who performed the functions of government, defense and “explaining”; on the other hand, Russian peasants crossed the Urals, attracted by the local open spaces, rich lands and the absence of serfdom here. The Siberian authorities could not afford to exceed the measure of tax and political pressure, since their subjects always had the opportunity to move further into the wilderness and find themselves beyond the reach of the government authorities. Peasants formed township and rural communities, different from Russian ones, since they were no longer based on a traditional community.
Posad self-government was practically absent, and the administrative bodies of the posad essentially turned into lower police authorities, while in the European part of the country they stood guard over worldly interests and rights. There was also no organized nobility in Siberia. Representatives of the princely and boyar families, sent to the voivodeship, returned “to Rus'” after serving. Accordingly, it didn’t work out that’s why necessary conditions for the formation of representative bodies of the nobility, which formed the basis of local government in European Russia.
In conditions of personnel shortages, local authorities were forced to replenish their ranks from non-traditional layers for Russia - merchants, industrialists, and sometimes peasants. It was the lack of qualified administrative personnel from the nobility, among other reasons, that forced the government to leave some administrative powers to the aboriginal nobility.
In Siberia there was no serfdom as such and its entire population was “state-owned”; the central government, relying on regional bodies, had the opportunity to carry out any reforms there and change the administrative division of the region - after all, the highest and only authority for all Siberians were state institutions .
The task of converting more and more tribes and territories into citizenship, and then keeping them in subjection, prompted the central government to grant the Siberian governors not only civil, but also military power.

So, the main factors that influenced the specifics of the management of Siberia were the following: political-geographical- vastness of the territory, absence of old administrative divisions, proximity to Asian countries; socio-political- lack of corporate class organizations of the nobility and townspeople, shortage of managerial personnel, lack of privately owned lands, military-administrative nature of the organization of settlements, spontaneous resettlement of the peasantry and small population; ethnosocial- the need to involve the native nobility in management.

Introduction

The main role in the conquest of Siberia was played by servicemen and industrialists, from among whom came many famous explorers and warriors who ensured the speed of the conquest itself. Moreover, if during the annexation of Western Siberia the state initiative prevailed, then the annexation Eastern Siberia It took place mainly on the initiative and at the expense of the material resources of private individuals - merchants, industrialists, service people.

The stunningly rapid annexation of Siberia to Russia became irrevocable and lasting only as a result of the fact that a wave of Russian settlers poured beyond the Urals from Rus', and a system of public administration was established in Siberia itself. At the founding of Siberia, historians distinguish two processes: government colonization, which included various land development activities carried out at the initiative and under the leadership of the state administration, and free people’s colonization, which was expressed in the voluntary and spontaneous settlement of the region by Russian people. Both principles - state and free people - were closely intertwined during the development of Siberia.

The purpose of this work is to consider the structure and implementation of governance of Siberia in the 17th - 18th centuries.

State administration of Siberia in the 17th century

After the annexation of Siberia to Russia, a system of governing Siberia gradually emerged.

In February 1637, by decree of Tsar Mikhail Fedorovich, a special central governing body was formed - the Siberian Prikaz, which existed from 1637 to 1708 and from 1730 to 1763. As a rule, it was headed by representatives of noble boyar families close to the tsar. In the 17th century The Siberian order was successively headed by: Prince B.M. Lykov (1637-1643), Prince N.I. Odoevsky (1643-1646), Prince A.N. Trubetskoy (1646-1662), boyar R.M. Streshnev (1663-1680), Prince I.B. Repnin (1680 - 1697), Duma clerk A. A. Vinius (1697 - 1703).

The Siberian order dealt with issues of administrative management of Siberia (appointment and removal of governors, control over them, judicial functions, etc.), supply of Siberia, its defense, taxation of Siberia, its defense, taxation of Siberia, control of Siberian customs, reception, storage and fur trade, diplomatic relations with China, Dzungaria and the Kazakh hordes.

The Siberian order consisted of territorial discharge tables and chambers. Direct management of Siberian territories was carried out through territorial discharge tables. At the end of the 17th century. in the Siberian order there were four territorial discharge tables - Tobolsk, Tomsk, Yenisei and Lensk. The chambers dealt with financial matters and furs. The Siberian Prikaz had three chambers - the assessed, merchant and state chambers. The first chamber was responsible for the reception and assessment of furs and other types of tribute coming from Siberia, the second was responsible for the selection of merchants for the trade in government furs and control over them, and the third was in charge of all financial affairs of the Siberian order. At the head of the tables and chambers were the clerks, to whom the clerks were subordinate.

The Tobolsk voivode exercised general leadership of the defense and supply of Siberia. He had seniority in resolving foreign policy and foreign trade issues. As a rule, noble people who were close to the king, but who fell out of favor for some reason, were appointed to this post. In the 17th century the most notable Tobolsk governors were Yu. Ya. Suleshev (1623-1625) and P.I. Godunov (1667-1670).

Yu.Ya. Suleshov, who came from a noble family of Crimean Tatar beys who switched to Russian service, during his stay in Siberia carried out a number of significant reforms to improve its situation. He organized the first census of population and arable land, established a firm ratio between the size of the peasant land allotment and the size of the “sovereign arable land” cultivated by him, and unified the salaries of service people.

P. I. Godunov focused on strengthening the defense of Siberia from the threat of raids by nomads from the south. He began the construction of fortifications on the steppe borders of Western Siberia and began to organize Cossack settlements there - villages, and also created dragoon regiments. Under his leadership, the “Drawing of Siberia” was compiled - the first known map of Siberia, which summed up Russian geographical information about Siberia at that time and was a significant milestone in the history of Russian geographical science.

Gradually, as Siberia was developed and settled, three more categories were formed - Tomsk (1629), Lensk (1639) and Yenisei (1677) and new districts.

After the formation of other categories, the role of Tobolsk as the main Siberian center was preserved. The Tobolsk voivode appeared as if he were senior over other rank of voivodes.

The districts were led by voivodes, who were also appointed by the Siberian Order, and, as a rule, for three years. The district governor appointed and dismissed clerks, yasak collectors, was responsible for the state of the district, and resolved all issues of district administration. He governed the county through the Moving Hut - the county governing body. The hut consisted of tables responsible for various spheres of life in the county - the yasak table, the bread table, the money table, etc. The hut was headed by a clerk, and the tables were headed by clerks.

Siberian counties were divided into Russian prisudki and yasak volosts. The composition of the property included a fort or settlement with adjacent villages. The estates were managed by clerks who were appointed by the governors or elected by the population. The population of the villages united into communities and elected elders. Yasak volosts united local tribes obliged to pay yasak. The yasak volosts were headed by local tribal nobility, who ruled according to local customs and traditions. Russians in the life and way of life of the Siberian peoples in the 17th century. did not interfere except to try to prohibit inter-tribal wars.

In Siberia, unlike in Russia, governors had broader powers. The Siberian order ordered them to manage “according to their own discretion, as it will be useful and as God will instruct.”

The broad powers of the Siberian governors and the remoteness of Moscow created favorable opportunities for various abuses. They were also facilitated by the support system of the Russian administration. In the 17th century In Siberia, a “feeding” system was used. Voivodes and clerks did not receive state salaries. They were strictly prohibited from any commercial activity. They had to live off the offering. As a result, the abuses of the Siberian administration took on a very wide scale. Almost all Siberian governors and clerks of the 17th century. were involved in abuses, the main of which were all kinds of extortions and bribes.

The Russian government tried to somehow limit these abuses of the Siberian administration. His attempts to fight them boiled down to the following:

- “detective” (summoning suspected persons to Moscow, their interrogation and trial);

Removal of persistent violators from office;

Search of governors and clerks at Verkhoturye customs upon returning to Russia and confiscation of part of their property.

However, these government measures did not produce any noticeable effect.

Since the 1760s A new round of reform in the management of Siberia begins, further unifying it with Russia and radically changing the entire structure of power from top to bottom.

In 1763, the Siberian Order was finally abolished, and the Siberian province began to be governed on a common basis with other Russian provinces. Siberian affairs are distributed among central government institutions - collegiums, and since 1802 - ministries. However, Siberian governors report directly to the Senate and personally to the monarch.

In 1763, for the first time, states were introduced for Siberian officials of all ranks and positions. The election of administrative servants is abolished.

In 1764, the Irkutsk province was elevated to the rank of a province and included the Irkutsk, Uda and Yakutsk provinces. The Tobolsk province includes the Tobolsk and Yenisei provinces.

Siberia in the regional policy of the Russian state in the 18th century.

The changes that took place in the structure and composition of the administration of Siberia at the end of the 17th-18th centuries began with the reform of the voivodeship administration. The central position in it was occupied by the Siberian Order, the judge of which was the main institution and represented the tsar in governing the region. The competence of governors in Siberia, in contrast to Central Russia, was much wider, because they were in charge of issues of settlement and development of the region, and resolved issues of current diplomatic relations with neighboring peoples and countries. The absence of noble land ownership and the peculiarities of Russian settlement in the vast expanses of Siberia led to developed self-government among the settlers - the service “army”, the “worlds” of townspeople and peasants. The internal administration of yasak "foreigners" was preserved in its traditional form.

The political and legal reforms of Peter I led to fundamental changes in the governance structure of Siberia. Already during the provincial reform of 1711, the Siberian order was actually eliminated and regional administration was united in the hands of the Siberian governor, which strengthened the hierarchical subordination of local government bodies. Since the 1710s ideas emerged for separating the court from the administration, introducing collegial principles in management, and the formation of a permanent supervisory body - the fiscal office.

The provincial reform of 1719 contributed to the isolation of administrative, fiscal and judicial bodies and introduced the collegial principle of decision-making. Management began to be based not on custom, but on legal norms, and acquired a bureaucratic character. These principles were reflected in the organization of government in the city, where from then on class self-government began to develop and the influence of service people decreased. However, no fundamental changes are taking place in the management of the state peasant class; the state still manages this social group through state clerks. It must be emphasized that the transformations of the early 18th century. in Siberia were carried out taking into account the specifics of the region and, as a result, there were deviations in the desire to create a unified system of provincial government in the emerging empire, which was later reflected in the “Instructions” to the Siberian governor in 1741.

A departure from the rational principles of empire-building implemented by Peter I was the restoration in the late 1720s. Siberian order and management procedures of “Moscow antiquity”. Such restorations did not justify themselves in practice, since, in addition to the Siberian order, all-Siberian affairs fell under the competence of the Senate and collegiums, as well as the Siberian governor. During the provincial reform, specialized financial bodies were retained within the framework of regional administration, and a departmental mining department functioned. Fragmentation and uncertainty of administrative functions did not contribute to the incorporation of the region into the empire.

Transformations in the field of regional government of Catherine II, namely the small regional reform of 1764 and the provincial reform of 1775, during the disaggregation of administrative-territorial units, led to the approach of power to society. As a result, the Siberian Order was liquidated, and the Tobolsk and Irkutsk governors became proxies and representatives of the Empress in this huge region. Due to the absence of a noble class in Siberia, it was not possible to strengthen noble self-government, as was the case during the reform in the central part of the empire. The way out of this situation, which was special for Russia, was the replacement of the noble bodies of the court and the management of bureaucratic institutions. An extensive specialized system of administrative, fiscal and judicial bodies was created, and the departmental mining department continued to function in a modified form. During the period under review, city self-government and management were rationalized through the creation of presences that collectively solve city issues. In the 1760-1790s. Measures were taken to reorganize the management of peasants and indigenous populations. Reforming the management of peasants, the state government went to eliminate tithe arable land and state clerks, i.e. the demands they had made over the previous decades were met. With regard to the indigenous population, the government decided to involve clan administration in the system of state administration of the region, approve the court of yasak administration and to more clearly regulate the collection and amount of yasak, which indicates the government’s intentions to specifically deal with issues of managing the indigenous population of the region.

The absence of noble land ownership in Siberia since the beginning of the 18th century. led to the fact that representatives of the top of the service “device” - Siberian nobles and children of boyars - began to be appointed to government positions. The service “device” was the most important source of recruitment for local clerks and clerks. We can speak of Siberian bureaucrats as an “all-class” social group by origin, separated by the conditions of service from participation in trade, monetary and economic relations and completely dependent on government salaries. They were obliged to serve the monarch in accordance with the rules of law and strict organizational discipline.

Officials, first of all, took care that the yasak was collected carefully. The contingent of serving people was always the same in the remote province. There was one ordering class, which was constantly shuffled, which led to opportunism and bribery among the local bureaucracy. In Siberia, industrial people created bondage for foreigners, the trading class lived in monopolies. It can be argued that entire classes of the Siberian population were involved in the abuses.

Transformations of Russian statehood in the 18th century. along the path of empire-building were fully extended to Siberia. The main directions of these reforms were to rationalize the organization and activities of the regional management apparatus and the formation civil service, displacement of administrative custom by legislative acts, in the normative regulation of these processes. The social consequence of the transformations was the formation of a patrimonial bureaucracy. In Siberia, the process of its formation took place with some specificity, determined by local conditions: the vast space of the region, which was still poorly populated and developed by Russians, its remoteness from the capital's centers of power; a significant number of indigenous multi-ethnic population, who protected their beliefs and traditional culture and did not have their own statehood before the Russians; the virtual absence of landownership and nobility among Russian settlers. The peculiarities of the region led to the need to create such regional centers authorities who could represent the local society and its governing structures before the monarch. They determined the broader competence of the local state apparatus and strengthened the importance of class self-government in Siberia.

The provincial reform of 1775, built on the principle of strengthening local power by introducing into the structure of local government, in addition to the provincial administration and viceroyal power (governors general), was supposed to increase the efficiency of the entire state system. This was a step towards deconcentration of management, indicating an understanding of the need to create a strong and relatively independent regional government. By the end of the 18th century. The need to create a separate system of state administration of the region, taking into account the characteristics of the Siberian territories, is clearly evident.

According to the “Establishment” in the Russian state. structure at the local government level, the principle of “separation of powers” was introduced. Now general administration was entrusted at the provincial level to the Provincial Board, headed by the governor and vice-governor, at the district level - to the Lower Zemstvo Court, in cities - to the mayor or commandant, magistrates and town halls.

An integral part of Catherine’s reform of government was the “Charter of Deanery” of 1782 and the “Charter of Grant to Cities” of 1785. In accordance with the “Charter”, all cities were divided into parts headed by private bailiffs who had at their disposal special police teams. The units were divided into quarters with quarters by guards. The result of the innovations was a network of police stations thrown over the city, covering every home and every citizen with their surveillance. From the beginning of the 19th century. police chiefs appear in cities.

Material from the Historical Encyclopedia of Siberia

MANAGEMENT OF SIBERIA.

Administration and court in Siberia in the 18th century., system of government bodies. management and places. self-government, established by Peter I to replace the voivodeship administration and which existed basically. its features before Paul I. The most important feature of the exercise of the 18th century. – the connection will be completed in one hand. and fate. authorities. During the 1st lip. The reforms of Peter I in 1708 created the Siberian province. as part of the “Siberian cities”, as well as the assigned “Pomeranian cities” (see Administrative-territorial structure). The real beginning of the lips. control began with the arrival in Tobolsk (1711) of the governor, Prince. M.P. Gagarin. After the abolition of the Siberian order, the governor began to be in charge of all administrative, fiscal. and fate. affairs, subordinate only to the monarch and the Senate. Under the governor, the Siberian province was created. office. In 1713 it included 5 clerks and 24 clerks (7 old, 2 “middle class” and 15 young). The structure of the office is basically inherited from the Tobolsk Order Chamber - receipt and expenditure, discharge and judgment tables.

Higher must The commandant became the person in the district (1712), who inherited the power and powers of the governor. He was an administrator, judge and tax collector, and the military was subordinate to him. garrison.

In 1715 Peter I tried to separate the citizens. control in the districts from the military, abolishing the positions of chief commandant and commandant in cities where there was no garrison. The commandant became exclusively the commander of the garrison, and his adm., destinies. and fiscal. responsibilities were transferred to the Landrat. But in most cities of the Siberian province. the commandants remained, because garrisons were located in them (either regular military units, or service people “according to the device”). Lip. The reform radically changed the situation of citizens. employees. According to the personal decree of 1715, the office was headed personally by the governor, he was entitled to a salary of 1.2 thousand rubles. and 600 poods. bread per year; old clerks received 60 rubles. and 30 pud., “average article” - 40 rubles. and 20 poods., young people - 15 rubles. and 10 poods. Landrat was paid 120 rubles. and 120 quarters of bread, to the commissar - 60 rubles. and 60 quarters, 4 clerks under the Landrat - according to the norms of the lips. office. A salary for a position was introduced instead of a salary. salaries, “feeding from business” was now qualified as bribery. The commandants and landrats relied on the locals in their activities. state and estates. organs. Croup changes in the 1710s occurred at customs. management and management of “sovereign arable land and quitrent peasants.” Center. the figure in the latter remained the clerk, who was appointed by the commandant, but from 1711 the clerks in the settlements began to be replaced by “burmisters” chosen from among the peasants. In some Sib. In the settlements, the clerks actually disappeared, but their power was restored in 1716, and the bailiffs remained in the village even after that. Important feature lips The reform was the creation of a bureaucracy in 1711. body for supervision of government activities. apparatus - fiscal officers. The reform of 1708–11 caused an increase in abuses by localities. authorities, dissatisfied with the excessive concentration of rights in the hands of the governor. For example, denunciations of the fiscal A.Ya. Nesterov laid the foundation for the case of M.P. Gagarin.

Lip. The administration and the court underwent reorganization as a result of the 2nd reform of Peter I (1719–27). In Siberia, this reform is associated with the new adm.-ter. division and appointment on May 29, 1719 sib. Governor Prince A.M. Cherkassky. acc. with the “state of the Siberian province” (1724) it was headed by the governor. board consisting of the governor (rank - lieutenant general), vice-governor (major general), commandant (brigadier), and parade major. The heads of administration in the Yenisei and Irkutsk provinces were governors. Specialists acted under their supervision. management bodies: chamberlain - head. collections of taxes and treasury. property; rentmaster - treasurer, rep. for the treasury; food manager - head nature fees. In the Tobolsk, Yenisei and Irkutsk provinces, rent master and chamberlain offices were established, and in the Tobolsk chamber. The office “found... all the Siberian provinces, 18 cities and 8 districts.” Voivodes remained in the districts when the new position of zemstvo commissars was introduced, and the entire administrative police force was transferred to the Crimea. power in the districts. All faces are in lips. The departments had to fulfill their duties. instructions that were in force. law.

Tech. apparatus that ensured the activities of all the necessary. persons, became offices. They are on the lips. and provincial level were led by secretaries (secretaries) for the county. – clerks (clerks “with an acknowledgment”, old clerks). Office work was carried out by clerks, sub-clerks, and copyists (most of them in the 1720s were called in the old way - clerks). At the offices there were also watchmen, messengers, etc.

In addition to adm. and fiscal. organs in Siberia and specialized ones were created. - in charge of mining affairs, headed by the Berg College.

acc. With the idea of reform, the court was separated from the administration. On the lips. and provincial levels in Siberia, 2 overbuildings were created. ships - Tobolsk (1720) and Yenisei (1722). Like the Justice College, they were created on a collegial basis. At the beginning, the presence consisted of the prez., vice-pres. and several assessors; They had offices headed by secretaries. Lowest state authority courts in Siberia became one-man. tribunals of "city" ("zemstvo") judges (since 1722 - judicial commissioners).

Provincial reform and the capitation census led to radicalization. changes in estates. self-government. In providing these cereals. events in Siberia big role played emergency management body - census office of the regiment. book I.V. Solntseva-Zasekina, subordinate directly to Peter I and the Senate. “Testimony of souls” in the Siberian province. in fact, it became a new general census, in which the census office dealt with solving the problem of the estates. accessories in sib. about-ve.

In 1722–23, Solntsev-Zasekin put all service people “according to the device” on a per capita salary, enrolling them in the posad or in the state. peasants. But due to the protests of Sib. governors who argued the need to preserve the class of service people in Siberia with their military service and administrative police. duties, the Senate approved the “staff” necessary for the Siberian lips. service people, who were exempted “before the decree” from the poll tax. This class-tax reform led to the strengthening of the military. hierarchy, the withering away of elements of “military” self-government, a sharp decline in the role of the Cossacks in society.-political. life of Siberia.

During these same years, city government and self-government, as well as the government of the cross, changed.

During the first audit, attempts were made to change the legal status of the Sib. "foreigners". In 1720–21 A.M. Cherkassky proposed replacing the yasak with a poll tax for the “newly baptized” aborigines, but Metropolitan opposed this. Theodore. The bishop was supported by Peter I and Sib. Aboriginal people were not ordered to be assigned to a capitation salary. This legal status of yasak “foreigners” also meant the preservation of the previous system of administration in their “zemlitz” and “volosts”. This also affected the competence of the state. courts against aborigines. population, which were traditionally judged by their princes and elders on the basis of customary law. In 1727, the governor and pres. outbuilding court M.V. Dolgorukov wrote to the Senate that “there should be no judicial commissioners in the cities of Berezovo and Pelym... for the reason that in those cities there are only tribute-bearing infidels.”

Lip. administration and court in Siberia were reorganized during the counter-reforms of the 2nd half. 1720s As a result of counter-reforms (1727–28), a three-tier administrative terrestrial system was established in Siberia, as well as throughout Russia. division, strictly centralized for the first time. Basic became a province. It included provinces, which were divided into counties. Individual leadership was restored in the provinces and cities. the power of voivodes subordinate to governors. Part of the Siberian province. included Tobolsk, Yenisei and Irkutsk provinces. A vice-governor was appointed to the Irkutsk province, who was subordinate only to the Siberian order.

In 1764 Siberia was divided into two independent states. provinces - Tobolsk and Irkutsk. Tobolsk included Tobolsk and Yenisei provinces. In 1767, the boundaries of the districts were changed, and in some of them the governors were replaced by commissars. Changes in adm.-ter. division during 1736–75 occurred repeatedly.

Siberian lips headed by Sib. governor with all the fullness of administration, police, justice, finance, economics. and military authorities. He was appointed by personal decree on the proposal of the Supreme Privy Council (1726–30), the Cabinet of E.I. V. (1731–41) and the Senate. In 1736 the position of Irkut was introduced. vice-governor, and from 1764 - governor, who were also appointed by personal decree.

Provincial and county. governors were appointed by Sib. by order from candidates recommended by the Heraldry Office of the Senate, and commissioners and governors in districts and settlements - the Siberian province. office. If the district was temporarily left without a governor, Sib. The governor had the right to appoint temporary manager “for the voivode” at his own discretion. Since 1764, governors, commissars and administrators were appointed by the governor on the recommendation of the Senate. Provincial and county. governors and governors in districts were subordinate to the governor. From 1727 he had the right to independently remove from office governors in districts, and from 1740 - provincial governors. and county. governor in case of their abuses.

Execute The bodies under the governor, governors, commissars and administrators were offices. Their structure included a presence, its own office and ministers. In the presence of lips. The office consisted of a governor, a vice-governor (from 1764 - a comrade of the governor), province. prosecutor; in the presence of provincials. chancellery - provincial voivode, staff officer at the poll tax (1736–64), provincial. prosecutor (since 1764); in the presence of the governor. office - voivode and staff officer at the poll tax (1736–64).

The offices were divided into departments with clerks (chancery) servants, who were led by a secretary or clerk “with an accreditation.” To non-office worker. servants of the governor. The offices included teams of messengers (4–27 retired soldiers, 1732 by state), who received land instead of salaries. uch-ki, counters, elected by the townspeople, as well as active soldiers. services under capitation officers. The responsibilities of the counters included accounting and storage of treasuries. money and valuables, and the soldiers stood guard, carried out executions, forced them to pay taxes and fought against robberies.

One of the chapters goals of counter-reforms 1727–28 - reduction in government spending. apparatus. The salaries of governors were reduced, and for certain categories of clerks. ministers, instead of a salary, are allowed to “be content with business... as before.” Since 1763, all government employees began to receive salaries. apparatus.

The most important legislation. acts that determined the competence of places. rulers of the 1730s–50s: all-Russian. order to governors and voivodes (1728), instructions Sib. to the Governor (1741), “Instructions to the Governor” (1764). Local authorities. the authorities were obliged to carry out the decrees of the Senate, collegiums and Sib. order (until its liquidation in 1763). The governor also united places. power; considered complaints against all structures subordinate to him and appeared for provincial officials. and city governors “close command”, which they “control over themselves” and therefore “act carefully.” For seats. the rulers assigned adm.-police. and fiscal. functions. Governors and voivodes received exceptions. the right to trial in any robbery cases. In the instructions of 1741, the governor was also charged with diplomacy. part, including the annexation of “non-peaceful lands”, and diplomatic. relations with China and Kalmyks.

In their activities, governors and voivodes relied on the state. organs and organs of places. self-control. In the 1730s–50s. industries were formed. state bodies that managed mining factories (see Mining district management).

Under the Siberian provincial and Irkutsk provinces. offices had special finances. bodies - rent master offices at the lips. and provincial offices, Sib. order and the State Office Collegium. As a financial authority. exercises they were lips. and provincial treasuries: they carried out the reception, storage and distribution of money. funds coming from the localities. institutions and from the population of the province and provinces. Under the Siberian provincial and Irkutsk provinces. In the offices, tavern and salt offices and a commissariat were established. In the 1730s–70s. In Siberia, the formation of a regular army took place. police (see Police in Siberia).

Location body for managing white-local Cossacks, state. and the assigned peasants and commoners remained the court hut under the authority of the district. voivodes. It was led by a clerk appointed by the voivode (in the districts - the manager) from the Sib. service people, or sent from Europe. Russian nobleman. The office work was carried out by a sexton (scribe). The clerk and scribe were supported at the expense of the cross. community, she, to help the clerk, elected tselovalniks (to receive and store bread), elders, fiftieths and tens (to perform police functions).

In the 1730s–70s. on ter. Siberia acted in emergency measures. authorities conducting investigations into abuses of places. authorities. They were established either sib. the governor or the Senate; often acted under the personal control of monarchs. The most famous are the following. commission about Irkut. Vice-Governor A.I. Zholobov (executed in 1736), Sib. Governor A.M. Sukharev, Tobolsk. Governor D.I. Chicherine, Irkutsk. Governor F.G. Nemtsov and Nerchin. mountain commander V.V. Naryshkin.

Beginning of reforms in the 1770s–80s. in Siberia was marked by the introduction of the “Institution for the management of provinces” (1775), the “Charter of the deanery, or police officer” (1782) and the “Charter of rights and benefits for cities” (1785). In 1780, E.P. was appointed governor-general of Perm and Tobolsk. Kashkin, in 1782 governor-general of Irkutsk and Kolyvan - I.V. Jacobi.

In Aug. 1782 Tobolsk and Tomsk regions became part of the Tobolsk governorship. (16 counties). On March 6, 1783, the Irkutsk governorship was formed: Irkutsk, Nerchinsk, Okhotsk and Yakutsk regions (17 counties). In 1779, the Kolyvan region was separated from the Tobolsk governorship, and in 1783 it was transformed. into the governorship, which became part of the general governorship of Irkutsk and Kolyvan.

Sib. The provinces were governed by governors-general, representing the top. power. They were appointed by the monarch and had unlimited rights. powers, incl. higher policeman power, state security, command of garrisons, provision of provisions for the province. They also had the right to control the courts, eliminate “judicial red tape” and cancel the execution of sentences until special. decisions of the highest fate authorities. However, they were prohibited from interfering in legal proceedings.

The viceroyal board included a governor, 2 councilors, a secretary and an office. This was the highest. will perform organ on ter. provinces, which “are on a par with the collegiums and for this reason, apart from the Imperial Majesty and the Senate, does not accept laws and decrees from anyone.” His competence included: control over the execution of decrees and resolutions of the highest authorities. authorities, Senate and other higher. authorities, as well as courts. decisions, supervision of the activities of all must. persons of the province. The powers of the governor general and the governor were not defined by law, and this actually put the second under the control of the first.

Under the governor, there was an order of public charity, which was carried out by the government. politics to the people. education, social provision, medicine, was in charge of correcting. institutions. Under viceroyal rule there were lips. surveyor, architect and mechanic (machine or millwright). In Irkutsk province. The border guard office was retained. affairs, as before, subordinated and Irkut. the governor, and the Military and Foreign Collegiums.

To the county. Administrative level power was entrusted to the mayor (county town) and the lower zemstvo courts (consisting of a captain-police officer, 2 noble and 2 village assessors, a secretary with an office). County posts were also established in cities. surveyor, doctor, healer, 2 sub-healers and 2 doctor's apprentices.

The owner will take care of and financial tax. affairs in Sib. The provinces were led by the treasury chamber, headed by the vice-governor. In the region cities of Tobolsk and Irkutsk governorships (Tomsk, Okhotsk and Yakutsk) regions were opened. Treasury. Kazen. chambers and region The treasuries were subordinate to the district. Treasury.

In the organization of adm.-fiscal. authorities of the Kolyvan region. (governorship) reflected the specifics of this mining plant. edges.

From the end XVIII century fate the system is partially withdrawn from the administration. control Activities of places. state institutions authorities were placed under the supervision of the prosecutor's office. Provincial positions have been introduced. prosecutor and 2 attorneys; the prosecutor and 2 attorneys sat at the top. outbuilding court, lips magistrates and higher reprisals; supervision in counties. functions were carried out by the county. solicitors.

According to the “Institution for the management of provinces” (1775) in localities. control included the estates. elective. Due to the absence of landownership in Siberia, these positions were occupied by “headquarters and chief officers free from service,” i.e., nobles. assessors were not elected, but were appointed by governors for an indefinite period. At conscientious courts there were 2 bourgeois and villages. assessor, with city magistrates - 2 burgomasters and 4 ratmans, with the top. reprisals - 10 assessors each, with the lower. zemstvo courts and during lower reprisals - 2 villages each. assessor.

acc. with the “Establishment...” the provinces became bodies of city self-government. and mountains magistrates and town halls.

Policeman affairs in the city were under the jurisdiction of 2 states. bodies - the office of the mayor (commandant) board and the deanery boards. The first were opened on the basis of the “Establishment...”, the second - accordingly. with the “Charter of the Deanery, or Policeman” (1782). Under private management Verbal courts are insignificant. citizen claims (no more than 25 rubles).

Croup An innovation in the administration of the Tobolsk governorship was the reform of the cross. self-control - creation of vol. ships. In 1786–87 the treasury was abolished. clerks, former administrative units. divisions (fortresses, settlements, etc.) were replaced by new ones - volosts. Organs cross. self-government became elected for 3 years. courts: headman, 2 elected, hired clerk, elected villages. about you centurions and foremen. These courts were directly subordinate to the lower courts. zemstvo courts and carried out their decisions. Their duties included collecting taxes, administrative and police. supervision and analysis of “unimportant” citizens. and corners. affairs of peasants.

Lip. Administration and court in Siberia were reorganized in 1797 under Paul I.

Lit.: Gauthier Yu.V. History of regional administration in Russia from Peter I to Catherine II. M., 1913. T. 1–2; 1941; Rabtsevich V.V. Siberian city in the pre-reform management system. Novosibirsk, 1984; It's her. State institutions of pre-reform Siberia. Last quarter of the 18th – first half of the 19th centuries. Directory. Chelyabinsk, 1998; Bykonya G.F. Russian non-taxable population in Eastern Siberia in the 18th – early 19th centuries. (Formation of the military-bureaucratic nobility). Krasnoyarsk, 1985. Akishin M.O. Police state and Siberian society. The era of Peter the Great. Novosibirsk, 1996; It's him. Russian absolutism and management of Siberia in the 18th century: structure and composition of the state apparatus. M.; Novosibirsk, 2003; Rafienko L.S. Problems of the history of management and culture of Siberia in the 18th–19th centuries. Favorites. Novosibirsk, 2006.

M.O. Akishin

Management of Siberia and the Far East (XIX - early XX centuries). To the beginning XIX century structure of sib. the exercise had a trace. basic levels: viceroyal (governor general), provincial (governor, provincial government, treasury chamber, judicial chamber, prosecutor), regional (intermediate position between the province and the surrounding region), district (lower zemstvo court, district treasury, solicitor), city (commandant or mayor who supervised the elected city bodies). The system was completed with a cross. self-government, which carried out a number of important state functions. functions.

Adm. Paul I's reforms were aimed at centralizing and bureaucratizing the state. exercise, which also affected Siberia. In 1797, governorships were abolished here, and the provinces. The authorities are subordinated directly to the Senate. Siberia was divided into 2 provinces - Tobolsk and Irkutsk, but otherwise the transformations were reduced to insignificance. reduction in the number of lips. and county. institutions.

In the beginning During the reign of Alexander I, the current ministerial system of administration also allowed for the existence of governor generals, including in Siberia. In 1803, I.O. was appointed Governor-General of Siberia. Selifontov. In 1803–05 he made changes to the administration. structure of the region: from the Tobolsk province. Tomsk province was singled out, Kamchatka and Yakutsk regions were formed, the number of counties was reduced, and the population was crowded. The counties are divided into commissaries. Under him, the influence of the governor on the activities of the treasury increased. chambers, the possibilities for intervention of the governor general and the governor in financial and economic affairs have expanded. parts of places. control While monitoring the work of the administration, Selifontov put several people on trial for abuses. high-ranking officials.

Governor General I.B. Pestel (1806–19) also took measures to strengthen his power in Siberia. He replaced Sib. governors for their proteges, achieved appointment to the post of Irkut. governor personally devoted to him N.I. Treskina. Important figures in places. zemstvo officials (police officers and zemstvo assessors) became the administration; they were given all the responsibilities of police and justice. and household authorities in the county. Increased interference of the administration in households. and everyday life the life of the population, the desire to control everything and everyone, to act even with threats and violence - all this led to indignation on the part of the Sib. merchants. In addition, the strengthening of the governor general. and governor. authorities encountered local resistance. representatives of the center Mines, including Marine and Military.

Track. period in the history of the department is associated with the appointment in 1819 of M.M. to the post of Governor-General of Siberia. Speransky, who was entrusted with conducting an audit in the region. The new governor-general managed to attract talent to work. employees (including the future Decembrist G.S. Batenkov), and he himself explored most of Siberia. The audit revealed flagrant cases of arbitrariness, embezzlement and bribery. A lot of abuses were associated with the procurement of grain, the distribution of duties, the collection of taxes, yasak, trade and industry. control As a result, Tomsk and Irkutsk. governors, as well as 48 officials, were put on trial, 681 people. found themselves involved in illegal activities. actions. Ch. Speransky believed that the reason for the revealed abuses was not only the personal qualities of officials, but also the imperfection of the management system in Siberian conditions.

After Speransky returned to St. Petersburg with a report, he developed a reform plan; for this purpose, on July 28, 1821, the First Siberian Committee was created. On July 22, 1822, Alexander I approved 10 laws that constituted a special “Siberian Institution” (“Establishment for the management of Siberian provinces”, “Charter on the management of foreigners”, “Charter on the management of the Kyrgyz-Kaisaks”, “Charter on exiles”, “Charter on the stages ”, “Charter on land communications”, “Charter on city Cossacks”, “Regulation on zemstvo duties”, “Regulation on grain reserves”, “Regulation on debt obligations between peasants and between foreigners”). Sib. adm. reform (1822) became an important stage in the rational improvement of the system of places. exercise, introducing it into the legal framework. But ch. the goal - legality in the exercise - was not achieved. Nevertheless, the “Siberian Institution” takes into account important factors: the impossibility of governing a huge region from one region. center, natural-geographical conditions, numbers, location and ethnicity. characteristics of the population, special development of trade and industry, unique mining, problems of food supply, borders. edge position.

According to the “Siberian Establishment” of 1822, Siberia was divided into 2 general governorates - Western. Siberia and East. Siberia with centers in Tobolsk (from 1839 - in Omsk) and Irkutsk. In the West Siberia included Tobolsk and Tomsk provinces. and Omsk region In the East Siberia - Irkutsk and Yenisei provinces formed in 1822, as well as those that were part of the Irkutsk province. Yakut region, Troitskosavskoe border. administration, Kamchatka and Okhotsk coastal administrations. The formation of such special adm.-ter. units as regions was due to the fact that they do not have enough population for the province, but their territory is too large for the district. At the head of the seaside. The command was a naval officer - the commander of the port, and Troitskosavskoye was headed by the border guard. boss. In addition, instead of a district council, a border guard was established here. control Speransky failed to reform the management of mountain districts (they remained under the jurisdiction of the Cabinet of the E.I.V.), but at the same time the positions of the Tomsk governor and the beginning. mining factories nevertheless united in one person, although the Cabinet reserved the right to present a candidate for this post. Since 1830 Nerchin. the factories and the population assigned to them came under the control of the Governor-General of the East. Siberia, and in 1851 the assigned peasants of this district were transferred to the Cossack class. Subsequently, this system changed (see Management of Mountain Districts).

In 1838, instead of the Omsk region. board created Border. control sib. Kirghiz (as the Kazakhs were called), in 1854 it was liquidated, 2 regions were formed - Semipalatinsk and Siberian Kirghiz. In 1849, the Okhotsk Primorsky Administration was abolished due to the transfer of Ch. Pacific port from Okhotsk to Petropavlovsk, and the entire Okhotsk region. included in the Yakut region. In 1851 Yakut region. gained independence and own governor. In the same year, the Transbaikal and Kamchatka regions were formed, separated from the Irkutsk province, as well as the Kyakhta city government (abolished in 1862). The Treaty of Aigun (1858) and the Treaty of Beijing (1860) with China secured Russia. Empire of the East. Kazakhstan, Amur region and Primorye. In 1856, after the annexation of the Amur region, the Primorsky region was formed. East Siberia with its center in Nikolaevsk-on-Amur (since 1871 in Vladivostok), Kamchatka region. liquidated. In 1858 on the territory. Priamursky region 2 regions were created: Primorskaya and Amurskaya. The Primorskaya included the Nikolaev, Sofia and Okhotsk districts, the Amur - the Amur district, the Amur Cossack army and a special mountain police. surroundings, which included all the evil ones. mines. In 1860 acc. with Beijing Russian-Chinese agreement with the Primorsky region. The Ussuri region was annexed, after which in the Primorsky region. The South Ussuri region is formed.

Governorates and regions were divided into okrugs (districts, districts), okrugs into volosts and foreigners. council. This is how 4 levels of control were created.

An important place in Speransky’s transformations was occupied by the control of the roots. peoples of Siberia (see Aboriginal (alien) politics).

Installed in Siberia new system link management. Until 1822 there was no satisfaction. transportation was organized, as well as accounting and distribution of exiles. Now the Order on exiles in Tobolsk was established and expeditions were organized around the province. boards for the reception and distribution of exiles in Siberia. However, the increasing flow of exiles reduced all the work of this body to their registration.

A collegial body was created for the “Siberian Institution”. consult bodies of different levels - councils of Ch. administration, provincial and district councils, but in reality the powers belonged to the heads of the administration.

Higher adm. and the top. control power was concentrated in the hands of the Sib. Governors General. They were appointed and removed by the highest personal decrees, and were, as a rule, personally known to the emperor and invested with his trust. All sibs were subordinate to them. lips institutions for a small amount. exception. The Governor-General had the right to monitor the activities of any subordinate department. him institutions. He could supplement and cancel the decisions of governors, demand reports on work from governors, heads and other places. organs. The Governor-General had the right to appoint, dismiss and transfer officials, and nominate them for awards. His range of actions included resolving border issues. and foreign policy. questions (within certain limits). The degree of activity of the Governor General in plural. depended on his personal qualities. The duties of the governor-general were equally immense. He was responsible for the fast and the law. carrying out affairs in subordinate authorities, conducted audits, monitored the activities of mining and education. departments, controlled by the Cossacks, for providing the population with food; its functions included “suppressing ruinous luxury” and “monitoring the state of minds.”

Ext. powers, the complete legal absence of delimitation of functions between the governor-general and the governors created the opportunity for the governor-general to become either a figurehead. figure, or alone. host extensive edges. Everything depended on his own. positions, from relations with the center. authorities, ch. arr. with the monarch and members of the imperial names, their trust and support. Basic directions of activities of heads of places. administration means. degrees were determined by the needs of the region. The Governor-General had to solve the problems of exile and colonization, the gold industry and foreign affairs. trade, border affairs and communications, the composition of the administration. corps and local relations. about-vom.

During the existence of governor generals in the West. and Vost. In Siberia, these positions were occupied by 18 people. As a rule, these were military men (except - actual Privy Councilor A.S. Lavinsky) aged approx. 50 years old, had experience in commanding troops, only a few had previously led civilians. administration. In the 2nd half. XIX century Already trained people were appointed to this post; they understood the scale of the tasks of managing the region, were engaged in its development, sought to study it, and surrounded themselves with employees who knew Siberia. The most prominent role in the history of Siberia was played by N.N. Muravyov-Amursky, G.Kh. Gasford, N.G. Kaznakov, N.P. Sinelnikov.

On the lips. level there were general and particular. control The first included the governor and governor. advice. Lip. The council was headed by the governor and included the previous one. lips institutions and provinces prosecutor, lips were invited to the meetings. postmaster, dir. schools, etc. Private. lips the exercise consisted of lips. board (his predecessor was the second person in the province), treasury. chambers, lips court and prosecutor. The Governor was also subject to the Order of Public Charity and the Doctor. administration, builds. part and typography, as well as lips. stat. committee, recruit presence (later recruiting committee), people's commission. food, road and builds. commissions.

In the 19th century in Siberia and throughout Russia, the key figure in the management system was the governor - the highest. must face of places. management, he controlled all the state located in the province. organs. Until the 1880s Sib. governors means. The court was also subject to the measure. The law of 1866 ordered them to audit places. finance organs - breech. chambers, lips and county. treasury, excise departments. But at the same time, the governor was considered only an official of the Ministry of Internal Affairs. Affairs (Ministry of Internal Affairs), although high-ranking, and places. the organs of other ministries did not obey him. The boundaries of the power of governors and governors-general remained unclear. The districts were directly subordinate to the governors. chiefs and heads of police (zemstvo police officers in districts, mayors or police chiefs in cities). Governors decided on the most important issues of management and supervision. The appointment and dismissal of most officials in the province and their nomination for awards actually depended on them.

Regulations on the responsibilities of department heads. provinces (especially Tomsk) and borders. regions during this period had their own characteristics. In the regions there was a simplified procedure for management and a shortened administration. apparatus. Instead of lips. The board was regional with a smaller staff compared to the provincial one: instead of the chairman of Art. advisor, fewer advisors and departments. At the border areas of emphasis in means. militarized to a degree. In the Sib region. Kyrgyz and Semipalatinsk region. the board combined the functions of the lips. board, treasury chambers and lips. vessels acc. departments. In the Amur and Primorsky (until 1866) regions. functions of the region The boards were carried out by the offices of the military. governors.

In the East In Siberia during the period 1822–87 there were 46 governors, and in the West. Siberia for 1822–82 - 37. Of these, 10 served in this position for more than 10 years, some were appointed successively to Siberia. several governors times (for example, I.K. Pedashenko to the Amur and Transbaikal regions, then to the Irkutsk province; K.N. Svetlitsky to the Yakut region, then to the Irkutsk province). Over time, the composition of the governor. The hull has undergone major changes. In the beginning century, these are officials who cared primarily about their own. interests, well-being and tranquility, with low education. level, but with practical knowledge and stationery. skills. Social-political changes in the country required both education and prof. competence of governors. The personal qualities of officials and their progress were important. views, even character traits and habits. Among them there were quite ordinary people, who sometimes accidentally took such a high position. But they also served in this position with outstanding talent. personalities such as A.P. Stepanov, V.A. Artsimovich, P.V. Kazakevich, A.I. Despot-Zenovich.

In Siberia, as throughout Russia, there were places. organs of a number of min-v. On the lips. The level of the Ministry of Internal Affairs was subordinated to the governor, province. board and institutions under it. On the outskirts level (see Siberian district administration) this ministries represented the env. chief (in populous districts), zemstvo police officer and zemstvo court. Env. departments, depending on the number of people, were divided into crowded ones, cf. and few people. Until 1867 it was headed by a crowd of people. districts were encircled. advice and surroundings boss. In all administrative police districts. functions were performed by zemstvo courts, led by zemstvo police officers. The Zemsky Court was only a police officer. organ. acc. With the rules adopted at that time, the responsibilities of the police were extensive, they were assigned many functions (see Police in Siberia). In practice, zemstvo police officers and assessors of the zemstvo court mainly We were investigating from corners. affairs, were constantly traveling around the world. territory of Sib. districts, and ordinary adm. the affairs were actually conducted by the secretaries of the zemstvo courts. Number of lips and region institutions grew, the population increased, and the district government remained the same until the 1880s. Then the positions of special officials on the cross were introduced. affairs, resettlement affairs, etc. Formalism, incompetence in the lips. institutions, lack of funds, slow office work and low prof. qualities of officials led to the fact that env. and ox. operations were virtually without supervision. Vol. management was carried out by elected representatives of the cross. Cross. self-government consisted of ox. headman (head), ox. board and ox. court. The role of the ox was extremely important. clerk - it was he who connected the activities of the state. apparatus and organs of the cross. self-control. In 1879 in the West. Siberia and in 1882 in the East. A new order has been introduced in Siberia, assigning a cross to organs. self-government of administrative police functions. In a crowded place. and Wed according to the population of cities and police. affairs were in charge of the mayor and the city. government (see City government).

Location The bodies of the Ministry of Finance were the state chambers and district treasuries, and since 1862 also the excise departments. Audit of treasuries, cash registers, all finances. services carried out places. state bodies control - control chambers. Lip. and surroundings courts, lips (region) prosecutors, province. and surroundings the attorneys represented the Ministry of Justice.

A huge role in the exercise was assigned to the gendarmes. They did not have the right to make binding decisions, but they appeared for the top. authorities are an instrument of secret control over the state of affairs in the regions and official. government representatives. In 1833 the VII (from 1837 – VIII) Siberian Gendarmerie District was created. (with its center in Tobolsk, from 1839 in Omsk), it included all of Siberia and the Perm province. Gendarme. lips headquarters officers have repeatedly identified cases of blatant abuse; their reports contained unpleasant information about many. Sib. officials, including high-ranking ones.

Extraordinary. The governing body was the Nerchinsk commandant department, created in 1826 to supervise the Decembrists and removed from local control. administration.

Low efficiency of siblings. adm. apparatus, distrust of its employees forced to resort to such control measures as the senator. and other revisions. Revision in the West. Siberia, headed by senators of the book B.A. Kurakin and V.K. Bezrodny, led to the resignation of Governor General P.M. Kaptsevich and Tobol. Governor D.N. Bantysh-Kamensky. Audit in Vost. Siberia - it was conducted by Senator N.I. Tolstoy - and Zap. Siberia - Adjutant General N.N. Annenkov - led to the resignation of Governor General V.Ya. Rupert and Prince P.D. Gorchakova.

An important event in the history of Sib. management was the creation in 1852 of the II Siberian Committee, the reason for which was the audit of N.N. Annenkova. The Committee was entrusted with the task of uniting the efforts of all departments and coordinating the actions of the center. and places. administration, development complex. regional development programs. The committee, whose competence covered all of Siberia to the Pacific Ocean, Russian America, the Amur and Steppe territories, and the Orenburg General Government, existed until the end. 1864.

In the 2nd half. XIX century The “Siberian Institution” and the entire management system in Siberia were increasingly criticized both in the Center and in the region itself.

Already in the 1850–60s. Some changes were made to the adm.-ter. division of the edge (see above), later it was crushed. After long negotiations in St. Petersburg in 1875 an agreement was signed with Japan, according to which, in exchange for the Kuril Islands, Russia received full ownership of Sakhalin Island, and the border began to pass along the strait. La Perouse. In 1880, the Vladivostok military was formed. governorship, in 1889 - Ussuri Cossack Army. In 1884 Primorsky, Amur, Transbaikal regions. and Vladivostok military. The governorship is united into the Amur Governorate General (Khabarovsk). In 1882 the General Government of the West was abolished. Siberia, Tobolsk and Tomsk provinces. transferred directly maintaining min-v, and Omsk becomes adm. the center of the Steppe General Government. In 1887, the General Government of the East. Siberia was renamed Irkutsk. The name “Siberia” itself gradually disappears from the adm. maps, the concept of “Asian Russia” is introduced into circulation.

A new surge in foreign policy. activity in the Far East is associated with Russia’s penetration into Manchuria and the construction of the Chinese-Eastern Railway. etc., on the part of the Liaodong Peninsula leased from China in 1898, the Kwantung Region was created. In 1902, in the Amur General Government, the districts were transformed into counties, in the Yakut region. env. The system is maintained until Feb. 1917. In 1903, the Far Eastern governorship was created, headed by adm. E.I. Alekseev, it included the Amur Governor-General and the Kwantung Region. For the first time in Russia history of cereals adm. the center was located on a rented property from the co-owner. state territory - in Port Arthur. To coordinate efforts to organize the railway. construction and approval of departments. interests the Siberian Railway Committee acted here. d. (1892–1905) and the Committee of the Far East (1903–05).

Together with the change in ter.-adm. structures of the region, transformations were carried out in other areas of government. control In the 1870s–80s. the organization of peasant, foreign (see Aboriginal politics), mining, educational, police, prison, postal and telegraph (see Postal and telegraph business) departments was changed, provincial presences for peasant and urban affairs were created, positions of officials appeared for cross. affairs, a new city regulation was introduced (see City Government), etc. In 1885, certain changes were made to the courts. system. During the war. reforms in Aug. 1865 The West Siberian and East Siberian military forces were formed in the existing general governments. okr., their commanders were appointed governors-general. In 1882, after the liquidation of the West Siberian General Government, the West Siberian Military. env. transformed into Omsk, which included the Steppe General Government, Tomsk and Tobolsk provinces. In July 1884, the East Siberian Military. env. divided into 2 – Irkutsk and Amur. In 1899 Omsk and Irkutsk military. env. unite into the Siberian Military. env. with headquarters in Omsk. In March 1906 from the Irkutsk and Yenisei provinces, Yakutsk and Transbaikal regions. The Irkutsk Military District is re-formed. env.; and from Tobolsk and Tomsk provinces, Semipalatinsk and Akmola regions. - Omsk. Until Feb. 1917 Governor-General of the Steppe region. was at the same time commander of the district troops and ataman of the Siberian Cossack army. In the Irkutsk and Amur governorates in the 1910s. there was a division of military functions. and citizen exercise In June 1895, the management system in Tobolsk, Tomsk, Yenisei and Irkutsk provinces was reorganized. by establishing lips. control under pred. governors. In 1896 in Sib. government departments are opened in the provinces. properties created in the Center. Russia in 1883. Officials on the cross. Affairs in 1898 the cross was changed. bosses who controlled the bodies of the cross. self-control. In 1901–02, these positions were introduced in the Amur General Governorate, and in the Yakutsk region. they never showed up. Until Feb. In 1904, the Order on Exiles was in effect in Tyumen, which took into account and distributed throughout Siberia all those sent to hard labor or exile. and state criminals.

General administration system organs were complicated by the intricate structure of the constantly growing organs of control. For example, Omsk ceased to be an adm. in 1882. center of the West Siberia, but excise control and state control continued to operate here. properties for the entire West. Siberia. Head of Siberian Customs. env. was located in Petropavlovsk and was subordinate to the customs department. fees of the Ministry of Finance. South borders of Tomsk lips. were under the jurisdiction of Semipalatinsk customs. env. Supervision of salt mines in the West. Siberia was entrusted to the Altai mining administration, and in the East. - to the mining department of the Main Directorate of Eastern Siberia. Did not coincide with the general adm. dividing the boundaries of mountain regions. Adm. Altai and Nerchinsk districts had autonomy. Cabinet E.I. V.

Defeat in Russo-Japanese War led to the liquidation of the governorship and the transfer of South to Japan. Sakhalin and lease rights to the Liaodong Peninsula. In 1906 Transbaikal region. transferred to the Irkutsk General Government. In 1909, Kamchatka (Anadyr, Gizhiginsky, Udsky, Okhotsky, Petropavlovsky and Commander Islands districts) and Sakhalin regions were formed within the Amur General Government. To coordinate efforts on the construction of the Amur railway. In 1909–15, the Committee for the Settlement of the Far East operated. Simultaneous to study the district of the village, develop proposals for the construction of new communication routes, us. points, measures for colonization and development produces. forces south parts of D. East under the leadership. N.L. Gondatti creates the Amur Expedition (1910–12).

On the eve of the First World War, in April. 1914 A decree is signed establishing a Russian protectorate over the Uriankhai region. (Tuva) and construction begins on the 1st on its territory. the city of Belotsarsk (now Kyzyl). The war suspended the process of further ter.-adm. reconstruction of Siberia and the Far East. However, the Ministry of Internal Affairs nevertheless prepared a draft for the allocation of Altai lips. from the populous (4.5 million people) Tomsk province. This project was implemented already under the Provisional Government, in 1917.

Lit.: Remnev A.V. Autocracy and Siberia. Administrative policy in the first half of the 19th century. Omsk, 1995; It's him. Autocracy and Siberia. Administrative policy of the second half of the 19th – early 20th centuries. Omsk, 1997; It's him. Russia of the Far East. Imperial geography of power in the 19th – early 20th centuries. Omsk, 2004; Mathanova N.P. Governor-General of Eastern Siberia in the middle of the 19th century: V.Ya. Rupert, N.N. Muravyov-Amursky, M.S. Korsakov. Novosibirsk, 1998; It's her. The highest administration of Eastern Siberia in the middle of the 19th century: Problems of social stratification. Novosibirsk, 2002; Power in Siberia of the 16th – early 20th centuries: Interarchival reference book. Novosibirsk, 2002; Dameshek L.M., Dameshek I.L., Pertseva T.A., Remnev A.V. MM. Speransky: the Siberian version of imperial regionalism. Irkutsk, 2003; Palin A.V. Tomsk provincial administration (1895–1917): structure, competence, administration. Kemerovo, 2004.

N.P. Mathanova, A.V. Remnev, M.V. Shilovsky