THE IMPERIAL ADMINISTRATION AND THE OFFICIALS
The Officials in Norgorod Assist Me in My Studies--The Modern Imperial Administration Created by Peter the Great, and Developed by his Successors--A Slavophil's View of the Administration--The Administration Briefly Described--The Tchinovniks, or Officials--
Official Titles, and Their Real Significance--What the Administration Has Done for Russia in the Past--Its Character Determined by the Peculiar Relation between the Government and the People--Its Radical Vices--Bureaucratic Remedies--Complicated Formal Procedure--The Gendarmerie: My Personal Relations with this Branch of the Administration; Arrest and Release--A Strong, Healthy Public Opinion the Only Effectual Remedy for Bad Administration.
My administrative studies were begun in Novgorod. One of my reasons for spending a winter in that provincial capital was that I
might study the provincial administration, and as soon as I had made the acquaintance of the leading officials I explained to them the object I had in view. With the kindly bonhomie which distinguishes the Russian educated classes, they all volunteered to give me every assistance in their power, but some of them, on mature reflection, evidently saw reason to check their first generous impulse. Among these was the Vice-Governor, a gentleman of German origin, and therefore more inclined to be pedantic than a genuine Russian. When I called on him one evening and reminded him of his friendly offer, I found to my surprise that he had in the meantime changed his mind. Instead of answering my first simple inquiry, he stared at me fixedly, as if for the purpose of detecting some covert, malicious design, and then, putting on an air of official dignity, informed me that as I had not been authorised by the Minister to make these investigations, he could not assist me, and would certainly not allow me to examine the archives.
This was not encouraging, but it did not prevent me from applying to the Governor, and I found him a man of a very different stamp.
Delighted to meet a foreigner who seemed anxious to study seriously in an unbiassed frame of mind the institutions of his much-maligned native country, he willingly explained to me the mechanism of the administration which he directed and controlled, and kindly placed at my disposal the books and documents in which I could find the historical and practical information which I required.
This friendly attitude of his Excellency towards me soon became generally known in the town, and from that moment my difficulties were at an end. The minor officials no longer hesitated to initiate me into the mysteries of their respective departments, and at last even the Vice-Governor threw off his reserve and followed the example of his colleagues. The elementary information thus acquired I had afterwards abundant opportunities of completing by observation and study in other parts of the Empire, and I now propose to communicate to the reader a few of the more general results.
The gigantic administrative machine which holds together all the various parts of the vast Empire has been gradually created by successive generations, but we may say roughly that it was first designed and constructed by Peter the Great. Before his time the country was governed in a rude, primitive fashion. The Grand Princes of Moscow, in subduing their rivals and annexing the surrounding principalities, merely cleared the ground for a great homogeneous State. Wily, practical politicians, rather than statesmen of the doctrinaire type, they never dreamed of introducing uniformity and symmetry into the administration as a whole. They developed the ancient institutions so far as these were useful and consistent with the exercise of autocratic power, and made only such alterations as practical necessity demanded.
And these necessary alterations were more frequently local than general. Special decisions, instruction to particular officials, and charters for particular communes of proprietors were much more common than general legislative measures.
In short, the old Muscovite Tsars practised a hand-to-mouth policy, destroying whatever caused temporary inconvenience, and giving little heed to what did not force itself upon their attention.
Hence, under their rule the administration presented not only territorial peculiarities, but also an ill-assorted combination of different systems in the same district--a conglomeration of institutions belonging to different epochs, like a fleet composed of triremes, three-deckers, and iron-clads.
This irregular system, or rather want of system, seemed highly unsatisfactory to the logical mind of Peter the Great, and he conceived the grand design of sweeping it away, and putting in its place a symmetrical bureaucratic machine. It is scarcely necessary to say that this magnificent project, so foreign to the traditional ideas and customs of the people, was not easily realised. Imagine a man, without technical knowledge, without skilled workmen, without good tools, and with no better material than soft, crumbling sandstone, endeavouring to build a palace on a marsh!