Ranks and pensions for civil service. Part of 1
There are different versions of the expansion of the territory of Russia, explaining the development, accession and, in some cases, the conquest of neighboring lands. Starting from 1263, the territory of the Grand Duchy of Moscow, and then the kingdom, expanded many times, reaching its maximum size by 1914, within the borders of the Russian Empire. American political scientist J. Friedman considers such expansion a necessary measure and a defensive reaction of Russia from external threats. Another reason is the containment of the development of Russian statehood by the land limitedness of a vast territory and the lack of access to non-freezing seas.
As a result, by the middle of the XNUMXth century, Russia had become the second empire in the world (after the British one) in terms of scale and influence. The vastness of the territory led to the complication of the tasks of state administration and the formation of a bureaucratic apparatus. It was not an easy task. At certain historical stages, doubts arose about the advisability of further expanding the boundaries of the Russian Empire. For example, the famous statesman Admiral Count N. S. Mordvinov wrote about this, for example, in 1825 to Emperor Alexander I. To a large extent, such concerns were associated with the complexity of the formation of the outline of state administration, centralization and formalization of administrative mechanisms and procedures in the empire. In addition, the maintenance of the rapidly growing bureaucratic superstructure was a heavy burden on the state treasury.
The origins of the bureaucracy
The formation of the bureaucratic apparatus and the separation of the state service into a separate line of professional activity was carried out simultaneously with the creation of a centralized Russian state, and then the Russian Empire. An important stage was the refusal in 1682 of the year from the management of the affairs of the Russian kingdom in the form of regionalism. This event was the beginning of the formation of the civil service system in Russia. The first steps in this direction belong to the reign of Fyodor Alekseevich (1676-1682). At that time, a draft of the “Charter on the service seniority of boyars, okolnichy and dumny people” was developed, but it did not become a valid document.
In Russia, and then in the Russian Empire, the upper class was always involved in the affairs of state administration. An important role was played by military officials, including retired, appointed to various government posts. Military service was put in the first place with the indication that "military officials are above the passage." While still a king, Peter I 16 January 1721 of the year introduced for all officers the right to acquire nobility.
For many years, the nobility remained the caste and service core of Russian statehood. Its main purpose was considered the service of the king and for the benefit of the Fatherland. However, over time, the situation has changed. The emergence of professional public service and bureaucracy (in the modern meaning of this concept) in Russia was associated with the reforms of Peter I. The formation of boards instead of orders and the creation of the Governing Senate marked a new system of centralized management. It was based on the principle of bureaucratic collegiality in making management decisions. The publication of the “General Regulations” in February 1720 was important. He defined the structure of the collegiums, staffing, official duties of officials, internal regulations and the behavior of officials, the decoration of “chambers” - offices, organization of work with documents: the rules of their registration, control over the execution of documents, the order of their preparation, certification, storage. Thus ended a long transition from individual orders of the monarch to boyars and those close to a single system of state administration, which now included central and local government institutions with a staff of officials. Officials moved from the service of the sovereign to the public service. Emperor Peter I took a personal part and 4 times made changes to the prepared Osterman A.I. the project “Tables of Ranks”, which defined the contours of the civil service for almost two centuries ahead.
By the way, in this context “rank” was considered as a rank or rank, the right to which was given by the relevant government post. Initially, the civil service as a military or civilian rank within the Russian Empire provided for compulsory status for the citizens of the noble status.
However, Emperor Peter III in 1762 published the “Manifesto on the Freedom of the Nobility,” according to which the serving class was freed from the obligation to serve the sovereign and the Fatherland, while retaining all the previous privileges. Later, Catherine II not only secured, but also expanded the rights of the privileged class. In 1785, her patent letter to the nobility was promulgated - “Certificate of rights, liberties and advantages of the noble nobility”. Under these conditions, the upper class became less and less reliable support of the state.
Bureaucracy and the establishment of a document management system
Under the bureaucracy is usually understood the system of government, carried out with the help of a specially created apparatus of civil servants, standing above society. In one way or another, the bureaucracy exists in every country. However, by itself, the apparatus of state administration is not functional without the presence of a specially formed document flow. It is not by chance that in the concept of “bureaucracy” the first component comes from the French word bureau, which in Russian means “bureau, office”.
A brief excursion into the history of the emergence of the Russian bureaucracy is necessary to understand the reasons for the rapid growth in the number of civil servants and clerical servants in the public administration system in subsequent years. The clerical system prevailing in institutions in the first quarter of the 18th century was called collegiate. The main difference between college clerical work from the clerical was that its organization was regulated by law. The main document was the “General Regulations".
The collegial principle of decision making had a significant impact on the organization of office work. The organization of the office work of the colleges was entrusted to a special structure - the office. Chief in the office was the secretary. He supervised the actions of officials and other employees who were part of her staff (clerks, registrars, copyists, translators, wachmistr (guardian of the collegium) and other officials. The General Regulations introduced the concept of “archive.” , the order is maintained according to which all completed cases are stored in the field for 3 years, and then they are archived.
In 1775, the order “for the communication of authorities and places” is legally defined. In other words, the document flow is defined in the vertical and horizontal state agencies, as well as other branches of government. The higher authorities sent "decrees" to subordinates, and received reports and submissions from the lower branches of local authorities. Equal horizontal state bodies and institutions exchanged "offers" and "messages." At the same time a new type of document appeared - “protocol”.
For individuals, all appeals to the authorities and institutions were allowed only in the form of “petitions”, which from the end of the 18th century began to be called “petitions”.
Since the beginning of the XIX century, the time has come for the ministerial period of business production. First, in the framework of the first 8 ministries, and in 1811 in the framework of the new (ministerial) system of state administration. The document then adopted under the name “General Institution of Ministries” clearly defined the entire procedure for working with documents and the procedure for document circulation. A monthly “audit of cases” was envisaged. In other words, control over the execution of documents was introduced.
Every year, each ministry submitted a 3 report - a report in sums, a report in cases, a report in types and assumptions for improvement. Each report had a special procedure for compiling and submitting, within the limits of the established competence, officials and relevant government agencies. At the same time, there was an established procedure for document circulation between the highest authorities and ministries. Thus, the king sent ministers "decrees" and "orders", in response to which the ministers submitted "reports", "submissions" and "notes". In addition, the ministers received “the highest approved opinions” from the State Council, in response to which “submissions” were sent from ministries. The procedure for the exchange of documents between ministries and the Senate, the Cabinet of Ministers, the State Treasury, etc. was also regulated. The entire document circulation inside the ministry, between the ministries and other institutions was written. With the advent of telegraph and telephone, new types of documents were approved - telegrams and telegrams.
The support of the Russian autocracy
According to Peter the Table of Ranks, state administration was based not only on hereditary, but also on new, noblemen. Initially, it was so. For example, a census of civilian officials in the middle of the 1750-s confirmed the predominance of noblemen at the highest and middle levels of public service at central and local levels. At the same time, among the officials of the IX-XIV classes, both in the center and on the periphery there were significantly fewer - about one third of the total number of officials of these classes. At the same time, the number of civil servants of civil departments reached 15-16 thousand officials. However, the need for civil servants and employees who were competent and loyal to the government was almost always felt in the local government bodies in the central provinces and especially in the outskirts of the empire.
By the beginning of the 19th century, it turned out that almost half of the Russian nobility (according to the data of the Imperial Ministry of Internal Affairs — about 48 percent) never served in the state military or civil service. The revolt of the Decembrist nobles in 1825 forced Emperor Nicholas I to take steps to form a large-scale bureaucracy as an alternative support for the throne. In addition, all the attempts of the emperor to resolve the urgent peasant question constantly ran across the resistance of the nobles - the owners of estates and serfs.
As a result of royal support, the prestige of the civil service has increased significantly. The scale of change is indicated by such facts. In the first half of the XIX century, the number of officials increased several times and amounted to over 82 thousand people. Over the same period, the population of the empire grew approximately 2 times (69 million people in 1851 year). On average, the 1 official had about 900 subjects of the Russian crown.
Depending on the class in the Table of Ranks, civilian ranks were conditionally divided into 3 categories. To the highest category attributed the officials of the IV class, to the middle category - the officials of the VI-VIII class, and to the lowest category - the IX-XIV class. A separate group consisted of clerical servants (clerk, sub-clerk and copyist).
After the introduction of military conscription into 1874, civil service could be entered only after the compulsory military service of a man in the army. Along with the increasing complexity of the public administration, the number of bureaucrats continued to grow. According to statistics, in 1903, the total number of employees in public institutions exceeded 500 thousand people (along with clerical and lower servants). Thus was formed the Russian bureaucracy in the scale of the Russian Empire. The largest and lowest paid group of officials was from IX to XIV class. In the higher and central authorities they occupied the lowest performing positions. However, in the structure of the county government, they formed the basis of government bodies and occupied key positions (county judges, treasurers, land surveyors, assessors, secretaries, etc.).
Продолжение следует ...
As a result, by the middle of the XNUMXth century, Russia had become the second empire in the world (after the British one) in terms of scale and influence. The vastness of the territory led to the complication of the tasks of state administration and the formation of a bureaucratic apparatus. It was not an easy task. At certain historical stages, doubts arose about the advisability of further expanding the boundaries of the Russian Empire. For example, the famous statesman Admiral Count N. S. Mordvinov wrote about this, for example, in 1825 to Emperor Alexander I. To a large extent, such concerns were associated with the complexity of the formation of the outline of state administration, centralization and formalization of administrative mechanisms and procedures in the empire. In addition, the maintenance of the rapidly growing bureaucratic superstructure was a heavy burden on the state treasury.
The origins of the bureaucracy
The formation of the bureaucratic apparatus and the separation of the state service into a separate line of professional activity was carried out simultaneously with the creation of a centralized Russian state, and then the Russian Empire. An important stage was the refusal in 1682 of the year from the management of the affairs of the Russian kingdom in the form of regionalism. This event was the beginning of the formation of the civil service system in Russia. The first steps in this direction belong to the reign of Fyodor Alekseevich (1676-1682). At that time, a draft of the “Charter on the service seniority of boyars, okolnichy and dumny people” was developed, but it did not become a valid document.
In Russia, and then in the Russian Empire, the upper class was always involved in the affairs of state administration. An important role was played by military officials, including retired, appointed to various government posts. Military service was put in the first place with the indication that "military officials are above the passage." While still a king, Peter I 16 January 1721 of the year introduced for all officers the right to acquire nobility.
For many years, the nobility remained the caste and service core of Russian statehood. Its main purpose was considered the service of the king and for the benefit of the Fatherland. However, over time, the situation has changed. The emergence of professional public service and bureaucracy (in the modern meaning of this concept) in Russia was associated with the reforms of Peter I. The formation of boards instead of orders and the creation of the Governing Senate marked a new system of centralized management. It was based on the principle of bureaucratic collegiality in making management decisions. The publication of the “General Regulations” in February 1720 was important. He defined the structure of the collegiums, staffing, official duties of officials, internal regulations and the behavior of officials, the decoration of “chambers” - offices, organization of work with documents: the rules of their registration, control over the execution of documents, the order of their preparation, certification, storage. Thus ended a long transition from individual orders of the monarch to boyars and those close to a single system of state administration, which now included central and local government institutions with a staff of officials. Officials moved from the service of the sovereign to the public service. Emperor Peter I took a personal part and 4 times made changes to the prepared Osterman A.I. the project “Tables of Ranks”, which defined the contours of the civil service for almost two centuries ahead.
By the way, in this context “rank” was considered as a rank or rank, the right to which was given by the relevant government post. Initially, the civil service as a military or civilian rank within the Russian Empire provided for compulsory status for the citizens of the noble status.
However, Emperor Peter III in 1762 published the “Manifesto on the Freedom of the Nobility,” according to which the serving class was freed from the obligation to serve the sovereign and the Fatherland, while retaining all the previous privileges. Later, Catherine II not only secured, but also expanded the rights of the privileged class. In 1785, her patent letter to the nobility was promulgated - “Certificate of rights, liberties and advantages of the noble nobility”. Under these conditions, the upper class became less and less reliable support of the state.
Bureaucracy and the establishment of a document management system
Under the bureaucracy is usually understood the system of government, carried out with the help of a specially created apparatus of civil servants, standing above society. In one way or another, the bureaucracy exists in every country. However, by itself, the apparatus of state administration is not functional without the presence of a specially formed document flow. It is not by chance that in the concept of “bureaucracy” the first component comes from the French word bureau, which in Russian means “bureau, office”.
A brief excursion into the history of the emergence of the Russian bureaucracy is necessary to understand the reasons for the rapid growth in the number of civil servants and clerical servants in the public administration system in subsequent years. The clerical system prevailing in institutions in the first quarter of the 18th century was called collegiate. The main difference between college clerical work from the clerical was that its organization was regulated by law. The main document was the “General Regulations".
The collegial principle of decision making had a significant impact on the organization of office work. The organization of the office work of the colleges was entrusted to a special structure - the office. Chief in the office was the secretary. He supervised the actions of officials and other employees who were part of her staff (clerks, registrars, copyists, translators, wachmistr (guardian of the collegium) and other officials. The General Regulations introduced the concept of “archive.” , the order is maintained according to which all completed cases are stored in the field for 3 years, and then they are archived.
In 1775, the order “for the communication of authorities and places” is legally defined. In other words, the document flow is defined in the vertical and horizontal state agencies, as well as other branches of government. The higher authorities sent "decrees" to subordinates, and received reports and submissions from the lower branches of local authorities. Equal horizontal state bodies and institutions exchanged "offers" and "messages." At the same time a new type of document appeared - “protocol”.
For individuals, all appeals to the authorities and institutions were allowed only in the form of “petitions”, which from the end of the 18th century began to be called “petitions”.
Since the beginning of the XIX century, the time has come for the ministerial period of business production. First, in the framework of the first 8 ministries, and in 1811 in the framework of the new (ministerial) system of state administration. The document then adopted under the name “General Institution of Ministries” clearly defined the entire procedure for working with documents and the procedure for document circulation. A monthly “audit of cases” was envisaged. In other words, control over the execution of documents was introduced.
Every year, each ministry submitted a 3 report - a report in sums, a report in cases, a report in types and assumptions for improvement. Each report had a special procedure for compiling and submitting, within the limits of the established competence, officials and relevant government agencies. At the same time, there was an established procedure for document circulation between the highest authorities and ministries. Thus, the king sent ministers "decrees" and "orders", in response to which the ministers submitted "reports", "submissions" and "notes". In addition, the ministers received “the highest approved opinions” from the State Council, in response to which “submissions” were sent from ministries. The procedure for the exchange of documents between ministries and the Senate, the Cabinet of Ministers, the State Treasury, etc. was also regulated. The entire document circulation inside the ministry, between the ministries and other institutions was written. With the advent of telegraph and telephone, new types of documents were approved - telegrams and telegrams.
The support of the Russian autocracy
According to Peter the Table of Ranks, state administration was based not only on hereditary, but also on new, noblemen. Initially, it was so. For example, a census of civilian officials in the middle of the 1750-s confirmed the predominance of noblemen at the highest and middle levels of public service at central and local levels. At the same time, among the officials of the IX-XIV classes, both in the center and on the periphery there were significantly fewer - about one third of the total number of officials of these classes. At the same time, the number of civil servants of civil departments reached 15-16 thousand officials. However, the need for civil servants and employees who were competent and loyal to the government was almost always felt in the local government bodies in the central provinces and especially in the outskirts of the empire.
By the beginning of the 19th century, it turned out that almost half of the Russian nobility (according to the data of the Imperial Ministry of Internal Affairs — about 48 percent) never served in the state military or civil service. The revolt of the Decembrist nobles in 1825 forced Emperor Nicholas I to take steps to form a large-scale bureaucracy as an alternative support for the throne. In addition, all the attempts of the emperor to resolve the urgent peasant question constantly ran across the resistance of the nobles - the owners of estates and serfs.
As a result of royal support, the prestige of the civil service has increased significantly. The scale of change is indicated by such facts. In the first half of the XIX century, the number of officials increased several times and amounted to over 82 thousand people. Over the same period, the population of the empire grew approximately 2 times (69 million people in 1851 year). On average, the 1 official had about 900 subjects of the Russian crown.
Depending on the class in the Table of Ranks, civilian ranks were conditionally divided into 3 categories. To the highest category attributed the officials of the IV class, to the middle category - the officials of the VI-VIII class, and to the lowest category - the IX-XIV class. A separate group consisted of clerical servants (clerk, sub-clerk and copyist).
After the introduction of military conscription into 1874, civil service could be entered only after the compulsory military service of a man in the army. Along with the increasing complexity of the public administration, the number of bureaucrats continued to grow. According to statistics, in 1903, the total number of employees in public institutions exceeded 500 thousand people (along with clerical and lower servants). Thus was formed the Russian bureaucracy in the scale of the Russian Empire. The largest and lowest paid group of officials was from IX to XIV class. In the higher and central authorities they occupied the lowest performing positions. However, in the structure of the county government, they formed the basis of government bodies and occupied key positions (county judges, treasurers, land surveyors, assessors, secretaries, etc.).
Продолжение следует ...
- РњРёС… Р ° РёР »РЎСѓС… РѕСЂСѓРєРѕРІ
- slavyanskaya-kultura.ru
Information