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РОССИЙСКАЯ ГОСУДАРСТВЕННОСТЬ Russian Statehood
A.B. Khramtsov
THE URBAN SELF-GOVERNMENT REFORM OF 1785 IN SIBERIA: LEGISLATION AND BUREAUCRATIC PRACTICE*
А.Б. Храмцов
Реформа городского самоуправления 1785 года в Сибири: теория и практика реализации
The system of urban self-government in Siberia started as a result of the 1722-1723 reforms by Emperor Peter the Great, with the first town magistrates being formed in Tobolsk and Tyumen. They were responsible for urban development, tax collection, judicial and police functions.
Another stage of its development was linked with the provincial reform of 1775 implemented by Empress Catherine II of Russia. According to the latter, "the posad community (town)" elected from its members a town magistrate (town hall) as a local self-government body to perform various judicial and economic functions. New elected self-government institutions were triggered by the urban reform of 1785 during the reign of Empress Catherine II, which regulated the citizens' status.
The 1785 reform is more studied in modern Russian historiography than in pre-revolutionary1 and Soviet periods2. Comprehensive works on urban history, merchantry and meshchane (urban petty bourgeois estate) were published in the 1990s and 2000s. The focus was made on town elections, urban self-government activities, the formation of municipal budgets, and the interaction between self-government and provincial bu-reaucracy3.
The history of urban self-government is also examined by foreign researchers, highlighting social and economic development of Russian towns and the state's policy in relation to local self-government, before and after the reforms of Emperor Alexander II of Russia4.
The past two decades witnessed solid research into urban self-government in Western Siberia5. However, stages of local self-government
* Исследование выполнено при финансовой поддержке РФФИ в рамках научного проекта «Реформа городского самоуправления 1785 года в Сибири: теория и практика реализации» (№ 20-19-50001) = Funding: The reported study was funded by RFBR, project number 20-19-50001.
reformation as well as idiosyncrasies of local bureaucratic practices still need to be identified.
In a bid to fill the existing historiographical gaps, the present article scrutinizes the urban reform of 1785 in the towns of Western Siberia (Tobolsk and Tomsk provinces).
* * *
As seen from the analysis of archival documents related to the formation of self-government in the towns of Siberia (including large ones), that was a slow and painful process.
Partly, the difficulties were caused by frequent administrative and territorial transformations in the region. During the reform of 1785 the towns fell under the three provinces: those of Tobolsk (1782-1796), Irkutsk (1783-1896) and Kolyvan (1783-1796). After they were abolished, the Tobolsk province was formed (1797-1920). In 1804 the Tomsk province was isolated from the Tobolsk province, obtaining a separate status. In 1822-1882 the Tobolsk and Tomsk provinces belonged to West-Siberian General-Governorship, with Omsk being the centre. In 1822 the Yeniseisk province was separated from the Tomsk province (with the towns of Yeniseisk, Achinsk, Kansk, Krasnoyarsk and Turuhansk). In 1868 the Akmolinsk region (with the towns of Omsk and Petropavlovsk) followed suit6.
The provinces were repeatedly transformed through the division of uyezds and their administrative centres, with the towns changing their status (provincial/gubernatorial, uyezd, non-uyezd, zashtatnyi (supernumerary town - a town that has been deprived of the status and institutions of an uyezd administrative center)), bringing about changes in the system of urban self-government.
On the basis of the Act of 1785 introduced by Empress Catherine II, referred to as "The Charter on the Rights and Benefits for the Towns of the Russian Empire" three periods of the urban self-government reform can be identified ( see Table 1).
* * *
The first stage (1775-1803) is the implementation of the law of 1785 in Siberia, which lasted for years.
Governor-General of Perm and Tobolsk A.A. Volkov expressed his dissatisfaction with his subordinates' work in his regulation dated 7th October 1789:
"I was informed that the town Dumas had not been formed yet in many towns of the Tobolsk governorship whereas the town regulation ["Grant-Charter to Towns" of 1785. - A.Ch.] prescribes to establish those, so I propose that the governorship's administration in each town with a magistrate should report the immediate formation of the Dumas as
well as the guilds in question in accordance with the town regulation"7.
Governor-General A.A. Volkov was fully aware that the reform could not be implemented in full, with many towns having no proper conditions. 14 settlements received the status of uyezd towns only three years before the adoption of the reform, in 1782. Thus, Omsk turned into an uyezd town from the Omsk Fortress, Ishim from the Korkina Sloboda, Kainsk from the Kainsk Sloboda, Kurgan from the Kurgansk Sloboda, Biisk from the Biisk Fortress, Yalutorovsk from the Yalutorovsk Ostrog ( see Table 1).
Table 1
Local self-government institutions in Siberian towns in 1785-1870*
Town (foundation year / status assignment year) Stages of reform implementation
17851803 1804-1822 1823-1870
Town Duma Town Hall Town Duma Town Hall Town Headman/ Economic administration Town Duma Town Hall Town Headman/ Economic administration
Tobolsk (1587 ) + - + - - + - -
Tyumen (1586) + - + - - + - -
Kurgan (1679/1782 ) - - - + - - + +
Ishim (1687/1782) - - - + - - - +
Omsk (1716/1782 ) + + + (since 1840) + (1823 -1840)
Petropavlovsk (1807) + (since 1852) +(1825 -1852)
Tara (1594/1782) + - - + - - + +
Tyukalinsk (1763/1823 ) - - - - - - - +
Tourinsk (1601/1782) + - - + - - + +
Yalutorovsk (1782) - - - + - - - +
Beryozov (1593/1782) - - - - + - - +
Surgut (1593/1782) - - - - + - - +
Achinsk (1683/1782) - + - + - - + +
Yeniseysk (1619/1708) + - + - - + - -
Krasnoyarsk (1628) + - + - - + - -
Turuchansk (1609/1782 it.) + - - + - - - +
Kansk (1636/1782) - - - - + - - +
Tomsk (1604) + - + - - + - -
Barnaul (1730/1822) - - - + + - +(1824-1864) +
Kolyvan (1728/1783) - + - + - - - +
Biisk (1709/1782) - - - - + - - +
Mariinsk (1698/1856) - - - - - - - +
Narym (1595/1708 ) + + (before 1820) + + (before 1834) +
Kainsk (1722/1782 ) - + - + - - + +
Kuznetsk (1618/1804) + - - + - - + +
Total 11 3 6 3 5 6 8 20
* The table features the towns which belonged to the Tobolsk and Tomsk provinces in 1785-1870.
The local Dumas were established in 11 towns of Siberia (50 %) with acting magistrates. The first ones to be elected and to start work were the "common" and "shestiglasnaycT (consisting of six elected town coun-
cilors) Dumas in Irkutsk (1787), Tomsk and Tobolsk (1788), Yeniseysk, Tara, Turinsk (1789), Omsk and Narym (1790).
The formation of the common Duma in Tyumen lasted until August 1790. The report dated 27th February 1790 written by local head Semyon Reshetnikov accounts the receipt of the directive from the Tobolsk governorship administration urging for the soonest establishment of the common and shestiglasnaya (six-councilors) Dumas. In June and July glasnye (elected town councilors) from the town population were elected to the common Duma and in early August they assembled for their first meeting. The six-councilors Duma started work on the 6th of September. All those elected were sworn in at the Trinity Monastery of Tyumen. All those holding elected office were supposed to give an oath to faithfully fulfill their duties, "to serve in full faith and truth to the Tsar and State"8.
The town Duma of Omsk was elected in March 1790. However, being recognized as "sparsely populated", Omsk lost its uyezd status to the effect of being zashtatnyi (supernumerary), causing the closure of the magistrate and dissolution of the Duma9.
At the end of 1796 Emperor Paul I of Russia eliminated the system of governorships. Instead of them, two provinces, Tobolsk and Irkutsk, were re-established. He cancelled the urban reform of 1785 and closed a number of magistrates. Thus, the Kolyvan magistrate was abolished, its functions passing over to the town hall10. On the 1st of May the Biisk magistrate was discontinued, with the town population falling under the Kuznetsk magistrate. Many towns were transformed intopasad, such as Omsk, Biisk, Kainsk, Kolyvan, Achinsk and others.
After his accession in 1801 Emperor Alexander I of Russia restored the law of 1785.
* * *
The second stage (1804-1822) is characterized by the fact that local economic problems in the posad towns were the responsibility of the ratusha (town halls).
Starting from 1804 the number of towns with opened town halls increased by 13 (see Table 1). For example, the Ishim town hall consisted of a burgomaster and two ratmen (councillors) whereas the Ishim town hall included two burgomasters, two ratmen and two people elected to class courts. All of them were elected by local merchants and meshchane for the period of three years. Besides a general assembly and chancellery, the town hall had two committees, one of them controlled criminal court, the other one was responsible for civil court, police, commerce, tax collection, military recruitment, and supervised over workshops11.
In Russia's small settlements (Beryozov, Surgut, Kansk and others) the urban reform of 1782 was not carried out due to their "meager" population. The population of Kansk as of the population census of 1782 enlisted 41 merchants and meshchane, 264 state peasants and 8 settlers,
totaling 313 people. It was decided to postpone the establishment of the town hall in Beryozov "until the time its merchant and meshchane population increases and the necessity arises, meanwhile, the merchants and meshchane should be assigned to the Tobolsk magistrate"12. "The urban societies" of Surgut (49 people) and Beryozov (65 people) were supervised by the Tobolsk magistrate until the closure of the latter according to the reform of 1822.
Narym with less than 1 000 people as of 1819 had a town Duma (with a head and three glasnye), a town hall (with a burgomaster and two rat-men), a town orphan and commercial (slovesny) courts, and a headman. 54 people representing meshchane were involved in public service. It was obvious that the town was overloaded with administrative institutions and was unable to maintain them, with such a limited population. On the 17th of July 1819 the town Duma of Narym applied to D.V. Il-lichevsky, governor of Tomsk, for the closure of the Duma. The petition was granted, and starting from 1822 the town was zashtatnyi. In 1834 the town hall was also eliminated13.
* * *
In accordance with the regulation of 1785, the town society (the assembly of urban electors) assembled once in three years as an initiative collective body for the election of self-government institutions. Due to property requirements introduced by the reform only wealthy citizens were entitled to form self-government bodies as well as being Russian subjects, male and not less than 25 years old14.
The urban population was divided into six categories that had different rights and privileges: 1) house owners and landowners; 2) merchants; 3) craftsmen assigned to artisans guilds (masters, apprentices); 4) inhabitants coming from other cities and foreigners; 5) "distinguished citizens": city's heads, burgomasters, members of magistrates and other self-government institutions having served for more than two terms as well as scholars, artists, and musicians; 6)posad people, meshchane, being the bulk of the population. These six groups (town peasants not being included) constituted its town society and were given the right to elect officers of local self-government institutions. After the adoption of regulations on classes (social estates) in 1832 during the rule of Emperor Nicholas I of Russia, the class structure of urban population acquired more precision15.
The law of 1785 did not take into account the towns' social composition, the class structure and proportion, the population's literacy and other factors. In Siberian towns the composition of the population considerably differed from that of the country's central part. Even large and medium-sized towns did not enlist all the groups of residents, with many of those entitled to vote showing no interest in public activities.
The town society in Siberia was largely represented by merchants,
meshchane and craftsmen. In Ishim, as of 1805, there were 549 merchants, meshchane and craftsmen16. In 1805 Tobolsk, the centre of the province, had only 12 709 inhabitants, with 6647 people of both sex (men accounting for less than 50%) being merchants, meshchane and artisans17. In 1797-1800 from 986 members of the Tobolsk society with the right to vote, there were a mere 100 people accounting for less than 10% (40 merchants, 45 meshchane and 15 craftsmen) who participated in the local election18. In other towns the degree of people's participation was even smaller. In Kolyvan in 1833 the total number of people with a vote was 350 whereas the meager 7% (21-26 people) signed the public judgements (the resolutions of public assemblies). In Kuznetsk 23 members of the town society (14 %) were involved in town activities19.
The townspeople were registered in the town's "book of inhabitants", which was divided into six sections according to the number of categories. This book enlisted what was known as the town society (in accordance with the law of 1785), being regularly revised, changed and supplemented. It was kept in the town Duma itself, as well as in Tobolsk and Tomsk provincial governments and treasuries. The keeping of the townfolk register book, registering merchants, meshchane and artisans, differentiation among the town citizens, recording the population's mobility within the city as well as the number of births and deaths - all this was the responsibility of the town Duma or the magistrate (town hall) in case the Duma was lacking.
The first residents register book was compiled in Tomsk in 1786178820. Vorsin, head of Tourin, and meshchane Diachkov and Bardakov, the councilors elected by the population, who were in charge of compiling the book, brought it to the Tobolsk governorship administration as late as 1794, in spite of the relative instructions issued in 1788, 1789 and 1791. The register book for 1789-1793 from the town of Beryozov was delivered by gorodnichy (the mayor), which indicated that there were no self-government institutions in the town21.
The compilation of these books was accompanied by numerous mistakes. As a result, "coachmen, the converted and yasachny (Siberian aboriginals)", i.e. those excluded from the law of 1785, could be found both in the books and the elected bodies.22 On the 20th of June 1789 Semyon Reshetnikov, the head of Tyumen, reported to the Tobolsk governorship administration that the citizens book was started by Headman Fiodor Pra-solov, who was elected by the town society (with Ivan Prasolov being the head at that time (1783-1798)), but had not been finished yet. On the 10th of March 1791 the head of Tyumen S. Reshetnikov informed about the completion of the book for 1789-179123.
In other towns similar problems would arise. Afanasiy Danilovsky, the head of Tomsk, in his report of the 16th of June 1789 indicated the following difficulties: "The town of Tomsk is the place of residence not only of merchants and meshchane, but of people of various categories: peasants engaged in mining industry and state peasants... coachmen, re-
tirees of different ranks, state plant workers and those involved in fishing and hunting... All the data had to be verified and selected, that is why the compilation of the book took more time"24.
The urban self-government system was formed and run to meet the interests of the merchants. Tomsk, a provincial centre, was described as a merchants' town, even though the merchants accounted for a much smaller proportion (less than 4 % from the entire community) than the meshchane and craftsmen making up the bulk of the population. However, it was the merchants who shaped the city life promoting its economy, culture and education. The richest merchants were the first to build stone houses in towns to be used for numerous official institutions.
Vassily Florinsky, a professor of the University of Tomsk, wrote: "The first role here is played by merchants. They set the tone, though a base one, being the most honoured guests in the rooms of the local administration.
Everywhere they are given priority position: at the governor's , at the bishop's, to say nothing of other minor officials. Everyone courts them expecting this or that favour, making the city believe that all the power is in their pockets."25
Merchant Nikolai Chukmaldin of Tyumen recollected that "only the richest merchants were elected for the position of the town head, even though their literacy was only sufficient enough to sign their names"26. Many merchants came from peasants and were illiterate, which did not prevent them from occupying top positions in urban self-government. For instance, Michail Bykov (of peasant origin and undereducated), a merchant from Tomsk, a shipowner, was a glasny of the shestiglasny (six-councilors) Duma in 1791-1794, a burgomaster in 1798-1806, a glasny of the common Duma in the 1800s, and a town head in 182127.
Top posts in Dumas, magistrates (town halls) and courts were occupied by merchants. Among the self-government leadership the nobility, the clergy and military officers were practically missing. For example, in Krasnoyarsk the merchants of the Second and Third Guilds were elected town heads, as there were no merchants of the First Guild and only three men of the Second Guild in 179528. In 1815-1818 the town head of Tyumen as well as the chairman of orphan court was Vassily Proskuryakov, a merchant of the Second Guild whereas in the magistrate the burgomasters were a merchant and meshchanin, with two merchants and two meshchane serving as councillors (ratmen).
Moreover, a permanent "rotation" of self-government officers was seen between Dumas and magistrates (town halls).
For instance, Dmitry Kvasnikov, a merchant of the Third Guild of Tomsk, was elected a ratman (1788-1791), a glasny of shestiglasny (six-councilors) Duma (1794-1797), and a member of Tomsk provincial civil and criminal court. Fyodor Kolomyltsev, a merchant of the Third Guild of Tomsk, was elected a glasny of the shestiglasny (six-councilors) Duma (1794-1797), a glasny of common Duma (1800-1806 rr.) and burgo-
master (1807). Ivan Ikonnikov, a merchant of the Third and the Second Guild of Tomsk, in 1815-1818 served as a ratman; in 1819 he received in his house Siberia's General-Governor M. Speransky; in 1828-1830 was a town judge, and in 1837-1839 was a town head. Ivan Gavrilov, a merchant of the Second Guild of Krasnoyarsk, a broker (1788), a caretaker of a ferry across the Yenisei (1797), town head (1802), ratman (1814-1817), and town head (1823-1825). In other towns a rather limited group of people was climbing the administrative ladder. This was due to the lack of experienced public figures. Another "rotation" was found in archival documents: "burgomaster Ivan Shirokov in the capacity of the town head"29.
In 1785-1800 Siberia's merchantry was largely represented by merchants of the Second and Third Guilds. As of 1795, in Tyumen there were 74 merchants (65 of them being of the Third Guild), 47 (all of them being of the Third Guild) in 1796, and 54 (49 being of the Third Guild) in 1797. In 1795 there was the only person, a resident of Tyumen, whose capital of 10 100 roubles could qualify for the First Guild. The man was Pyotr Basharin, a proprietor of a tannery. His son Semyon Basharin was a burgomaster and town head (1809-1812)30.
In the late 18th and early 19th centuries the amount of merchants in Siberia went up. Almost 90 % of them belonged to the Third Guild, with only a few being merchants of the First Guild. Besides, some of them were listed in Siberia while they resided in Moscow or Saint Petersburg.
A rare case was that of Michail Mylnikov, a merchant from Tomsk. From 1775 he belonged to the Third Guild, qualified for the Second Guild in 1786 and starting from 1806-07 until his death (after 1825) he belonged to the First Guild. He traded in Russian, Chinese and German goods wholesale and retail. He also owned a gristmill in the town suburb. What is most important, he served his town throughout his entire life, at first as a ratman and wine pristav (a supervisor of wine sales) and later as a headman during three consecutive terms (in 1803, 1806, 1809). He built with his own money a stone house for the town hospital. As a deputy from Tomsk he attended the coronation of Emperor Alexander I, was awarded a memorable silver medal (1801), and several gold medals31.
As to the number of merchants the following towns topped the list: Tyumen (131) in the 1820s, Tobolsk (65) and Tomsk (65); Tyumen (486) in the 1850s, Tomsk (352), Yeniseisk (265), Kurgan (257), and Krasnoyarsk (189)32. Starting from 1860 in Petropavlovsk there were 184 merchants, 2 of them being the First and Second Guilds and 179 being the Third Guild.
The prevailing social group in all towns of Siberia were meshchane. According to the fourth revision in 1782, there were only 60 811 men, with 20 115 (33,1 %) accounting for meshchane. In the 1800-1850s their proportion rose considerably, the meshchane becoming the absolute majority among the town population. 1 889 meshchane lived in Tyumen. According to the data provided by the local police in Tyumen as of 1804
there were 4 820 meshchane (2 392 men and 2 428 women), or 65 % of the town's entire population. Their proportion increased both in percentage and absolute terms amounting to 6 625 people in 184433. According to statistical data, in the 1840s meshchane made up the following proportions in the entire population of the towns: 62,4 % in Tyumen, 47,2 % in Tomsk, 41,5 % in Tobolsk, 35,2 % in Krasnoyarsk, and only 9,6 % in
Omsk34.
In small towns (Beriozov, Surgut, Biisk, Kansk, Yalutorovsk, etc.) with a missing or insignificant merchant segment the key role in town self-government was played by meshchane, such towns were referred to as "meshchansky". For instance, on the 30th of November 1814 the town Duma of Tourinsk applied to the provincial administration in connection with the death of town head Ivan Markov, a meshchanin. The society of merchants and meshchane had elected meschanin Pyotr Konovalov of Tourinsk (with 67 votes - "for", and 19 - "against"), so the Duma interceded for him to be approved in this post35.
The proportion of artisans was small, with factories and plants being practically absent in small towns. Thus, the town society consisted of merchants, meshchane and separate masters. According to the Act of 1785 the craftspeople in towns were divided according to artisans guilds led by a foreman. Every artisans guild with no less than 5 masters elected one glasny to common Duma. The general craftsmen uprava was led by the head. The uprava was authorized to keep a record of masters, submasters, apprentices, to see to it that there is "an order and consent" among the workers, and to settle down minor arguments36.
In accordance with the archive documents, as of March 1792, there were the following numbers of workshops and craftsmen in the towns: 9 artisans guilds and 31 craftsmen (later 11 and 99 correspondingly) in Tomsk; 4 and 111 (the largest brick guild with 46 workers) in Yeniseisk; 3 and 11 in Beryozovsk; 5 and 10 in Narym; 5 and 28 in Yalturovsk; 7 and 43 in Turuchansk; 29 and 542 in Tobolsk; 5 and 38 in Tourinsk; 27 and 588 in Tyumen (the biggest tanner guild with 126 workers); 6 and 52
in Tara, the total number of craftsmen in the shops amounting to 1 45437.
* * *
Large cities were divided into "parts" (police districts) where "proper" citizens and posad people (meshchane) assembled to put forward nominees for elected posts in town self-government. Merchants and artisans held meetings in their guilds electing one glasny from each guild. The merchants were called in by a guild head, with meshchane being called in by a town head, and guild artisans by an artisans head. Then the electors gathered in the house of the town society chaired by the town head to conduct the election of glasnys to Duma, town head, members of the magistrate (town hall) and other elected positions.
In early 19th century Tobolsk and Tyumen were divided into two parts
whereas Tomsk into three ones, with glasnys being elected from each part. In 1804 the shestiglasnaya Duma in Tobolsk consisted of 7 people: a town head and six glasnys from merchants of the Second and Third Guilds, from meshchane and guild artisans coming from both parts of the town38. On the 22nd of June 1815 in the building of the Duma the town head was elected, with 100 voters (21 merchants, 61 meshchane, 18 workshop craftsmen) participating in the election. 8 people (all of them being merchants) ran for the top position. Alexey Shirkov, a merchant of the First Guild, was elected town head, with 84 votes for and 16 against39.
Common Duma was actually a local representative assembly. Shestiglasnaya Duma as a self-government body was elected by common town Duma from the members of the latter (two-stage elections). However, common Duma had no proportionate representation of all the population's categories. Moreover, the changes in the social structure of the town population, increasing or decreasing number of those declaring merchant capitals as well as the varying population of meshchane and artisans brought about changes in the composition of both the electors and the elected (glasnys).
Common Dumas consisted of glasnys elected from merchants, mesh-chane and artisans as well as "proper" citizens (from town parts).
The membership of common Dumas varied from one to another, generally, ranging from 10 to 20. The common Duma of the 5th convocation in Tomsk (1800-1803) enlisted 11 glasnys: town head, 4 merchants and 6 meshchane40. The last common Duma of Omsk (1840) elected in Siberia in accordance with the reform of 1785 had 17 glasnys (4 merchants and 13 meshchane). The turn-out at the elections was 5-8 merchants and 40-70 meshchane, from the total number of 13 merchants and 210 meshchane correspondingly (altogether 223 people) who had the voting right41.
Common Dumas were seldom convened, mainly, on important occasions, for example, for electing glasnys to shestiglasnaya Duma, i.e. every three years. Common Duma was entrusted with administrative function in the town economic sphere. For instance, on the 6th of October 1798 the common Duma of Tyumen (with 16-17 glasnys) ruled to administer craft manufacture "at decent places" (in the market) with dues to be paid for the city42. The same issues were addressed by shestiglasnaya Duma that acted on a regular basis, as a rule, sitting every week. As a matter of fact, it replaced common Duma43.
According to "the register of electors" in Tyumen dated 19th July 1797, the posts of the town head, glasnys and the members of the magistrate with 112 electors, were held by 27 merchants and 85 meshchane44. During the election of the town head 82 % of vote was given to An-drey Alasin, a merchant of the Second Guild45. The register of electors dated 23rd July 1800 enlists 104 electors, including 50 merchants and 54 meshchane. 101 people participated in the election. Merchants Semyon Basharin, Ivan Prasolov, and Ivan Barashkov ran for the position of town head. By one vote the victory was won by I. Prasolov (aged 35). In 1800
common and shestiglasnaya Dumas consisted of 12 and 4 glasnys correspondingly, the latter being Ivan Parfyonov from the merchants' guilds, Ivan Spitsyn from the "proper" citizens (from the 1st and 2nd parts of the town), Alexey Mahilyov from "artisan people" and Ivan Kolominov from "posad people" (meshchane)46.
Thus, in reality, shestiglasnaya duma in Siberian towns appears to be three- or four-vote one ("triohglasnaya" and "chetyryohglasnaya"). The composition of glasnys represented merchants of each guild, meshchane and guild artisans. The Tomsk shestiglasnaya Duma of the very first convocations was composed of a town head and three glasnys from merchants of the Second and Third guilds and meshchane. Among them were affluent people, to mention but a few: Sergey Karpov (1746-1821), merchant of the Second Guild (merchant head in 1785), traded in German, Russian and Chinese goods, the owner of 11 shops; Grigory Zelentsov (born in 1752 ), merchant of the Third Guild (merchant head in 1786), proprietor of river vessels, fat-melting and leather-processing plant47.
The shestiglasny Duma of Tara in 1796 consisted of town head Ivan Nerpin and 4 glasnys: collegiate accountant Lev Cherkasov representing the "proper" citizens, merchant Michailo Nerpin being from the guilds, Vasily Korelin from meshchane and Vasily Matveyev from artisans48.
In 1799 the shestiglasny Duma of Tyumen enlisted town head Andrei Alasin (Second Guild merchant) and 4 glasnys: Osip Nagibin and Pyotr Kolokolnikov (from the merchants), Ivan Tonkov (from the meshchane) and Vasily Kulikov (from the artisans). Mention should be made that town head A. Alasin, who served two terms in 1797 and 1803, due to successful trade operations increased his merchant capital from 5 000 to 20 000 rubles from 1795 to 1817, and built a stone mansion house worth 32 000 rubles ( in 1833). His sons also occupied posts in the town self-government. In 1806 the composition of the Duma was as follows: town head Ivan Prasolov (Second Guild merchant ) and glasnys Afonasy Pesterev, Michail Nesterov, Mihei Reshetnikov and Andrei Nikanov49.
The shestiglasny Dumas had no nobility, military officers, "celebrated citizens", and guests from other cities. For this matter, the Senate in its decree of 26th October 1790 prevented the nobility from subscribing for merchants' guilds. The noble residents could only belong to the category of "proper" citizens50. However, the nobility did not want to participate in town self-government.
The duties among the glasnys were distributed according to the areas of activities. One of them was responsible for the maintenance and development of local economy: town's land and its sanitary condition as well as fire protection. He was in charge of the firemen stable men who took care of horses as well as hay procurement for horses and maintaining proper condition of fire equipment.
Another glasny was a treasurer, keeping records of town's revenues and expenditures as well as funds collected from the merchants, meshiane and artisans by their relative heads to support the Duma and magistrate51.
The third glasny was responsible for the construction area supervising the buildings constructed at the expense of the municipal funds.
Apart from this, the glasnys were obliged to check on a monthly basis the funds collected by the town's heads (starosta) for the treasury and audit the latter's incomes and expenses.
The chancellery's staff consisted of a town secretary, an accountant, a "desk" head (office head), a registrar and scribes. These posts were largely occupied by freelancers having class ranks. The regulation of 1785 did not provide for an accountant in the Duma's staff, however, in reality, every Duma employed them to keep books.
After 1809 the documents were devoid of such nominations as "common town Duma" and "shestiglasny Duma". Obviously, one Duma referred to as "town Duma" came to be elected instead of two ones.
The assembly of a local community elected glasnys to duma, one from every category of the town's population. The "merger" could have been effected for the sake of saving the time spent on the formation of urban self-government bodies. Following the reform of 1822 the common and shestiglasny Dumas "were gone to the past". De facto, it happened 10-15 years earlier, with Omsk being an exception where the town duma began its work on the 2nd January.
As a result, in the early 19th century the Siberian towns featured the following system of self-government: social group communities (merchants, meshchane, artisans), town magistrates (town halls), town heads, common town Dumas, shestiglasny Dumas, ophans' and slovesny (commercial) courts, artisans guild and town meshchane's heads and artisans' heads.
* * *
As for their everyday routine, the town Dumas dealt with financial and economic matters assigned to them under the law of 1785 , i.e. urban development, food provision of the urban population, the development of trade and craftsmanship, safeguarding town's "calm and peace", the accumulation of urban revenues and incomes, protection of social groups' rights, and resolving out conflicts among the inhabitants. For example, starting from 1808 the town Duma of Tyumen participated in the construction of a new bridge over the Tumenka river, with 4 394 roubles allocated for its erection. Another bridge, named the Duma bridge, the wooden one, over the river of Ushaika, was built by the town Duma of Tomsk for the sum of 5 678 roubles52.
Town Dumas provided the "poor and underprivileged citizens" with food items, particularly, bread and salt. For example, the town duma of Tara on the 27th of October 1795 adopted the decision about "the provision of the citizens with bread", which was praised by the provincial authorities53. At the assembly of the town Duma of Tara the glasnys agreed "for the common good's sake" to purchase rye flour for poor citizens
with "drinking money" coming from the voluntary donations of merchants and meshchane. For instance, merchant Pyotr Basharin "wrote out 200 roubles", Andrey Alasin and Vasily Barashkov 50 roubles each. Following this decision of 31st of December about 7000 kg of flour was
purchased54.
Tax collection was a significant function of town Dumas. The shesti-glasny Duma of Tomsk decided that peasants and others bringing cattle to town for slaughter are to be charged 15 kopeks per each animal for the town revenues and to be registered in the ledger55. On the 30th of September 1791 the Duma decreed "to raise awareness among the citizens of Tomsk that those who intend to set up a fishing business on the town dacha territory designated for fishing should necessarily report to the Duma, otherwise, such fishing business in this area is not allowed .. ,"56
The town Duma of Omsk in 1790 announced a tender for leasing a ferry line across the Irtysh river, with a contract signed with K.G. Bardin, a Siberian Cossack army's captain. On signing the ferry lease contract over three years he undertook to pay 330 roubles as a revenue to the town. The ferries were provided by the Duma whereas the personnel was employed "at the leaser's expense". The agreement signed by Luka Ma-tyushkin, the town head, included the binding rules of the ferry crossing across the Irtysh57.
According to historian A.A. Kiesewetter, financial support for town self-governments was absolutely unregulated58. The Dumas had no means for stationary, the employees' salaries, the lighting and heating of the public buildings, to say nothing of launching projects in the area of town improvement. So they had to "borrow" money from "the town community".
Town heads, dumas' glasnys, members of town halls (rathouses) and headmen annually reported to the provincial administration and treasury about the state of local economy, the expenditures and revenues, and the town's capital stock.
Starting from the early 19th century the town self-governments sought to implement regular financial and budget policies forming their own budgets. The towns determined the key income items (ordinary and extraordinary), such as town's real estate property, duties collected from the citizens to obtain the right to trade and use the land. The expenditure items (recurrent and non-recurrent) included the maintenance of town civil, healthcare and educational establishments. Apart from that, the town self-governments were obliged to spend funds for financial and other logistical support of the police, prisons, courts and military units, as well as for various public services imposed upon them by provincial administration.
The financial capacities of town self-governments were defined by the size of their incomes (see Table 2).
As can been seen, 8 from 11 towns in Tobolsk province had a budget deficit. One of the initial budgets of Tobolsk was only 1 427 roubles
(1797), with 1 247 roubles of the sum accounting for the "drinking sum" received from the treasury of Tyumen uyezd. On the 10th of January 1802 town head of Krasnoyarsk Yegor Porohovshikov reported to the provincial authorities on the incomes and expenditures in 1801: the income was 1 050 roubles 80 kopecks, from which 765 roubles 40 kopecks were collected for the ferry service across the Yenisei, the expenditure being 950 roubles 45 kopecks. The town Duma of Yeniseisk at the assembly on the 21st April 1802 presented a report for 1801 featuring the income of 3 402 roubles 41 kopecks and the expenditure of 2 594 roubles 80 kopecks59.
The budget of Ishim was largely formed from the duties collected from merchants and meshchane. In 1805 it amounted to 1 973 roubles 30 kopecks, with expenses for maintaining the city hall and the police being 850 roubles and 240 roubles correspondigly. In Tourinsk, as of 1805, with the population of 2 249 people (80 merchants, 1 362 meshchane and 38 artisans) the income amounted to 1 942 roubles 74 kopecks whereas expenses totaled 1 878 roubles 40 kopecks, including 650 roubles to maintain the magistrate and town Duma60.
According to the regulation by Empress Catherine II dated 18th December 1794 the maintenance of the police was responsibility of town Dumas and magistrates which were to impose duties on the citizens. On the 25th of October 1804 the town Duma of Tobolsk asked Governor B. A. Hermes of Tobolsk to grant them an exemption from their expenses on police maintenance and some other duties, but their request was rejected61.
Table 2
Town income and expenditures in 186262
Town Income (in roubles) Expenditures (in roubles)
Ordinary Total Recurrent Nonrecurrent Total
Tobolsk 9419 * 6533 15952 16159 341 16500 - 548
Tyumen 5216 1236 6452 10978 0 10978 - 4526
Tourinsk 1463 650 2113 2217 47 2264 - 151
Tara 2056 584 2640 3070 140 3210 - 570
Tukalinsk 1163 20 1183 838 34 872 + 311
Omsk 2783 2272 5055 6755 0 6755 - 1700
Ishim 6589 470 7059 4566 781 5347 + 1712
Petropavlovsk 7516 470 7986 7475 810 8285 - 299
Kurgan 4888 0 4888 4300 292 4592 + 296
Yalutorovsk 3186 271 3457 2397 1775 4172 -715
Beryozov 444 226 670 793 0 793 -123
Total 44723 12732 57455 59548 4220 63768 - 6313
* Kopecks are omitted by the author
The tiny income and obligatory public service did not allow the town self-governments to operate efficiently "for common use and benefit of the town". Moreover, the shortfalls in different fees collection kept accumulating. For example, the town Duma of Tara submitted a report on income and expenditures for 1848 where the income was 4 555 roubles whereas the expenditures amounted to 3 054 roubles, with the shortfall over the previous years being 3 354 roubles. One of the reasons for the scarcity of income is explained in the following remark in one financial document: "Additional expenses from recurrent income are not allowed by the local authorities"63. All the expenses of the town self-government
were subject to approval by the governor.
* * *
The third stage (1823-1870) is the time of transformation of the urban self-government system.
The system of local self-government in Siberia was dramatically changed by Siberian Governor-General M.M. Speransky64. Publicist G.N. Potanin wrote: "Having discovered the corruption of the bureaucracy and having punished the key figures, he changed Siberia's core system of administration."65
In the course of the administrative reform of 1822, as Siberia was divided into West-Siberian and East-Siberian general-governorships, the urban self-government was transformed together with provincial and urban governmental agencies. The magistrate was changed into urban court, and the election of a mayor and city councilors (a burgormaster and ratmen) was changed into the election of associated judges from the town society66. For instance, on the 12th of January 1823 the town magistrate of Tomsk established in 1743 was reorganized into a town court67.
The Siberian towns fell into three categories according to their population size: populous (3 cities), medium-sized (6 towns) and thinly populated (12 towns). In accordance with the number of inhabitants the town
21
introduced the corresponding system of local self-government (see Table 3)68. Alongside with that the law of 1785, with amendments, was still in force.
Table 3
Categories of towns and the system of urban administration and self-government under the reform of 1822*
Populous cities Intermediate density towns Thinly populated towns
1) Police administration - gorodnichy (administrative and police head of the city), district pristav (chief of district police) 2) District upravas (per number of districts) 3) City duma (4 glasnys) and city head 4) City court 1) Police administration (gorodnichy, quarter inspectors) 2) Town hall/town council - town judge (burgomaster) and councillors (ratmen) 1) Gorodnichy 2) Town headman
Tobolsk Tomsk Omsk (since 1840) Tara Tyumen** Tourinsk Petropavlovsk (from 1852) Barnaul Kainsk Beryozov, Ishim, Kurgan***, Tukalinsk, Yalutorovsk, Kolivan, Kuznetsk, Biisk, Narym, Zmeinogorsk (village), Charysh (since 1827 - village), Mariinsk (since 1856)
* The table shows the towns of Tobolsk and Tomsk provinces ** In Tyumen the assembly of merchants, meshchane and guild artisans petitioned for the duma and town court to be preserved (the request was satisfied) *** In 1823 merchants and meshchane's society in Kurgan decided to keep the town hall and filed a petition to the Chief administration of Western Siberia (it was satisfied)
As a result of the reform, Siberia's four cities had city dumas with two, three or four glasnys (their number depended on "the space of the town and the directive from the Chief administration") and a city head (Tobolsk, Tomsk, Tyumen, and Omsk). In middle-sized towns self-gov-
ernment was implemented by town halls (gradually, by the 1860s they were being eliminated) and headmen, and in the majority of small-sized
towns by town headmen coming from meshchane.
* * *
In the 1820s - 1840s there were no significant changes in Siberia's system of urban self-government. Some towns changed the status and composition of self-government institutions (Biisk, Tukalinsk, Mariinsk, Omsk, Narym, Petropavlovsk). During the 1850s - early 1870s the town Dumas also operated during a three-year term. For example, over the period of 1790 - 1872 the town Duma of Tyumen was convened only 27 times.
"The great reforms" of Emperor Alexander II had direct and indirect effects on the structure and functions of urban self-government institutions. Anyway, they were "embedded" in the administrative mechanism, fulfilling regular administrative tasks from the governments of Tobolsk and Tomsk provinces. Provincial authorities had a total control over the activities of urban self-governments, thereby preventing "the town societies" from consolidating, interfering with civil initiatives, public life and true self-government.
* * *
The urban reform of 1785 was the first one in Russia's history to lay down the principles of urban self-government, such as decentralization, collegiality, class division and electability. It fixed the legal status of the town as a separate territorial unit and the right of urban self-government to possess real estate and form a budget.
However, the reform set up a rather complicated and awkward combination of local self-government institutions (Dumas, magistrates, town halls, headmen, courts, etc.) with no distinct differentiation of functions, whose formation involved but a limited part of urban population, i.e. merchants, meshchane and guild artisans.
In reality, the role of urban self-government institutions turned out more modest than it was envisaged by the law of 1785. The meager funds, lack of authority and independence made it impossible to efficiently deal with urban agenda. Nevertheless, the first experience of launching and organizing activities of local self-government institutions had a positive effect on the conception and implementation of the urban self-government reform of 1870.
Notes Примечания
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Города России в XVIII столетии. Санкт-Петербург, 1875; Кизеветтер А.А. Городовое положение Екатерины II 1785 г.: Опыт исторического комментария. Москва, 1909.
2РабцевичВ.В. Сибирский город в дореформенной системе управления. Новосибирск, 1984.
3 Середа Н.В. Реформа управления Екатерины Второй: Источниковедческое исследование. Москва, 2004; Писарькова Л.Ф. Городские реформы в России и Московская дума. Москва, 2010; Ионов А.Н. Отечественная историография городского управления в Российской империи 1785 - 1870 гг. // Вестник Ярославского государственного университета им. П.Г. Демидова. Серия Гуманитарные науки. 2011. № 4 (18). С. 26-29; Mironov B. Bureaucratic- or Self-Government: The Early Nineteenth Century Russian City // Slavic Review. 1993. Vol. 52. № 2. P. 233255.
4 Laakmann H. Das Bürgerbuch von Pernau. Bd. 2: 1787 - 1889. Tartu, 1939; Torke H.-J. Das russische Beamtentum in der ersten Hälfte des 19. Jahrhunderts. Berlin; Wiesbaden, 1967; Malloy J.A. N.A. Miliutin and the Zemstvo Reform of 1864 // Études Slaves et Est-Européennes = Slavic and East-European Studies. 1969. Vol. 14. P. 83-102; Lincoln W.B. The Russian State and its Cities: A Search for Effective Municipal Government, 1786 - 1842 // Jahrbücher für Geschichte Osteuropas. 1969. Bd. 17. S. 531-541; Starr F.S. Decentralization and Self-Government in Russia, 1830 - 1870. Princeton (NJ), 1972; Yaney G.L. The Systematization of Russian Government: Social Evolution in the Domestic Administration of Imperial Russia, 1711 - 1905. Urbana (IL), 1973; Jones R.E. The Emancipation of the Russian Nobility, 1762 - 1785. Princeton (NJ), 1973; Lincoln W.B. N.A. Miliutin and the St. Petersburg Municipal Act of 1846: A Study in Reform under Nicholas I // Slavic Review. 1974. Vol. 33. P. 55-68; Hanchett W. Tsarist Statutory Regulation of Municipal Government in the Nineteenth Century // The City in Russian History. Lexington (KY), 1976. P. 91-114; Hittle J.M. The Service City: State and Townsmen in Russia, 1600 - 1800. Cambridge (MA), 1979; LeDonne J.P. Ruling Russia: Politics and Administration in the Age of Absolutism, 1762 - 1796. Princeton (NJ), 1984; Hartley J. Town Government in Saint Petersburg Guberniya after the Charter to the Towns of 1785 // Slavonic and East European Review. 1984. Vol. 62. № 1. P. 61-84; HildermeierM. Bürgertum und Stadt in Rußland 1760 - 1870: Rechtliche Lage und soziale Struktur. Köln, 1986; Pearson T.S. Russian Officialdom in Crisis: Autocracy and Local Self-Government. Cambridge, 1989; Brower D.R. The Russian City Between Tradition and Modernity, 1850 - 1900. Berkeley (CA), 1990; Saunders D. Russia in the Age of Reaction and Reform, 1801 - 1881. New York (NY), 1992; Tuchtenhagen R. Zwischen Aufklärung und Absolutismus: Staatliche Reformen in den Ostseeprovinzen unter Katharina II // Aufklärer im Baltikum. Europäischer Kontext und regionale Besonderheiten. Heidelberg, 2011. S. 241-264; Martin A.M. Enlightened Metropolis: Constructing Imperial Moscow, 1762 - 1855. Oxford, 2013.
5 Толочко А.П., Коновалов И.А. Городское самоуправление в Омске в дореволюционный период. Омск, 1997; Коновалов И.А. Местное
самоуправление в Омске в XVIII - начале XX вв. // Известия Омского государственного историко-краеведческого музея. 1997. № 5. С. 20-26; Толочко А.П., Коновалов И.А., Меренкова Е.Ю., Чудаков О.В. Городское самоуправление в Западной Сибири в дореволюционный период: Становление и развитие. Омск, 2003; Коновалов И.А. Особенности местного самоуправления в Сибири в последней четверти XVIII в. // Genesis: исторические исследования. 2017. № 12. С. 90-96; Толочко А.П., Коновалов И.А. Местное управление в Сибири в XVIII - начале XX в. (источниковедческие и конкретно-исторические аспекты) // Вестник Омского университета. Серия: Исторические науки. 2020. Т. 7. № 3 (27). С. 17-21; Храмцов А.Б. Особенности формирования системы местного самоуправления в Сибирском регионе по городской реформе 1785 года (на примере г. Тюмени) // Муниципальная служба: правовые вопросы. 2020. № 2. С. 28-32.
6 Толочко А.П., Коновалов И.А. Городское самоуправление в Омске в дореволюционный период. Омск, 1997. С. 28.
7 Государственный архив в г. Тобольске (ГА в г. Тобольске). Ф. И-341. Оп. 1. Д. 50. Л. 69.
8 Государственный архив Тюменской области (ГАТюмО). Ф. И-2. Оп. 1. Д. 3. Л. 1; Государственный архив Томской области (ГАТомО). Ф-331. Оп. 1. Д. 127. Л. 10.
9 Энциклопедия города Омска. Т. 1. Омск, 2009. С. 27.
10 ГАТомО. Ф. 54. Д. 146, 159, 177.
11 Толочко А.П., Коновалов И.А. Городское самоуправление в Омске в дореволюционный период. Омск, 1997. С. 10.
12 Городские поселения в Российской империи. Т. 5. Санкт-Петербург, 1865.С. 158.
13 Куприянов А.И. Культура городского самоуправления русской провинции, 1780 - 1860-е гг. Москва, 2009. С. 161.
14 Грамота на права и выгоды городам Российской империи // Полное собрание законов Российской империи: Собрание 1-е (ПСЗРИ-1). Т. XXII. № 16187. С. 362.
15 Манифест «Об установлении нового сословия под названием почётных граждан», 10 апреля 1832 г. // Полное собрание законов Российской империи: Собрание 2-е (ПСЗРИ-2). Т. VII. № 5284. С. 193-195.
16 ГА в г. Тобольске. Ф. И-329. Оп. 13. Д. 157. Л. 195об.
17 Там же. Л. 291.
18 ГА в Тобольске. Ф. И-8. Оп. 1. Д. 6. Л. 43-52.
19 Куприянов А.И. Русский город в первой половине XIX века: Общественный быт и культура горожан Западной Сибири. Москва, 1995. С. 27.
20 ГАТомО. Ф. 50. Оп. 1. Д. 705. Л. 2-77.
21 ГА в г. Тобольске. Ф. И-329. Оп. 13. Д. 5. Л. 3, 35.
22 Грамота на права и выгоды городам Российской империи // ПСЗРИ-1. Т. XXII. № 16187. С. 358-384.
23 ГАТюмО. Ф. И-2. Оп. 1. Д. 3. Л. 8-9; Храмцов А.Б. Особенности
формирования системы местного самоуправления в Сибирском регионе по городской реформе 1785 года (на примере г. Тюмени) // Муниципальная служба: правовые вопросы. 2020. № 2. С. 28-32.
24 ГА в г. Тобольске. Ф. И-341. Оп. 1. Д. 50. Л. 14-14 об.
25 Флоринский В.М. Заметки и воспоминания В.М. Флоринского (1865 - 1880) // Русская старина. 1906. Т. 126. Кн. 5. С. 282, 287.
26 Чукмалдин Н.М. Записки о моей жизни. Москва, 1902. С. 148.
27 Краткая энциклопедия по истории купечества и коммерции Сибири. Т. 1. Кн. 1. Новосибирск, 1994. С. 168.
28 Комлева Е.В. Енисейское купечество (последняя четверть ХУШ -первая половина XIX века). Москва, 2006. С. 52.
29 ГА в г. Тобольске. Ф. И-8. Оп. 1. Д. 53. Л. 2.
30 ГАТюмО. Ф. И-2. Оп. 1. Д. 993. Л. 2. Краткая энциклопедия по истории купечества и коммерции Сибири. Т. 1. Кн. 1. Новосибирск, 1994. С. 97.
31 Дмитриенко Н.М. Томские купцы: Биографический словарь (вторая половина ХУШ - начало XX в.). Томск, 2014. С. 181.
32 Краткая энциклопедия по истории купечества и коммерции Сибири. Т. 2. Кн. 2. Новосибирск, 1995. С. 139.
33 ГАТюмО. Ф. И-2. Оп. 1. Д. 983. Л. 21.
34 Статистические таблицы о состоянии городов Российской империи, Великого княжества Финляндского и Царства Польского. Санкт-Петербург, 1842. С. 38.
35 ГА в г. Тобольске. Ф. И-329. Оп. 13. Д. 600. Л. 50-53.
36 Апкаримова Е.Ю., Голикова С.В., Миненко Н.А., Побережников И.В. Сельское и городское самоуправление на Урале в XVШ - начале XX века. Москва, 2003. С. 226.
37 ГА в г. Тобольске. Ф. И-341. Оп. 1. Д. 50. Л. 331-361об., 367-368.
38 ГА в г. Тобольске. Ф. И-329. Оп. 13. Д. 125. Л. 12.
39 ГА в г. Тобольске. Ф. И-8. Оп. 1. Д. 117. Л. 14, 15, 16, 19, 20.
40 ГАТомО. Ф. 127. Оп. 1. Д. 91. Л. 1-3; Д. 80. Л. 2, 19об.
41 Толочко А.П., Коновалов И.А. Городское самоуправление в Омске в дореволюционный период. Омск, 1997. С. 12.
42 ГАТюмО. Ф. И-2. Оп. 1. Д. 18. Л. 1-2.
43 ГАТомО. Ф-331. Оп. 1. Д. 127. Л. 3.
44 ГАТюмО. Ф. И-2. Оп. 1. Д. 607. Л. 17-18.
45 Краткая энциклопедия по истории купечества и коммерции Сибири: в 4-х т. Т.1. Кн. 1. Новосибирск, 1994. С. 25.
46 ГАТюмО. Ф. И-2. Оп. 1. Д. 614. Л. 31-32, 36; Храмцов А.Б. Особенности формирования системы местного самоуправления в Сибирском регионе по городской реформе 1785 года (на примере г. Тюмени) // Муниципальная служба: правовые вопросы. 2020. № 2. С. 28-32.
47 Дмитриенко Н.М. Томские купцы: Биографический словарь (вторая половина XVШ - начало XX в.). Томск, 2014. С. 112, 126.
48 Куприянов А.И. Культура городского самоуправления русской провинции, 1780 - 1860-е гг. Москва, 2009. С. 159.
49 ГАТюмО. Ф. И-2. Оп. 1. Д. 764. Л. 5; Храмцов А.Б. Особенности формирования системы местного самоуправления в Сибирском регионе по городской реформе 1785 года (на примере г. Тюмени) // Муниципальная служба: правовые вопросы. 2020. № 2. С. 28-32.
50 О запрещении дворянам записываться в гильдии и пользоваться выгодами присвоенными одним купцам, 26 октября 1790 г. // ПСЗРИ-1. Т. XXIII. № 16914. С. 175.
51 ГАТомО. Ф. 331. Оп. 1. Д. 31. Л. 2-18; Д. 16. Л. 1-42.
52 ГАТомО. Ф. 2. Оп. 1. Д. 56. Л. 311а.
53 Куприянов А.И. Культура городского самоуправления русской провинции, 1780 - 1860-е гг. Москва, 2009. С. 159.
54 ГАТюмО. Ф. И-2. Оп. 1. Д. 994. Л. 18.
55 ГАТомО. Ф. 331. Оп. 1. Д. 5. Л. 1.
56 ГАТомО. Ф. 331. Оп. 1. Д. 49. Л. 1.
57 Евсеев Е. Мосты жизни нашей: век XVIII - наплавные мосты: исторический очерк // Омская правда. 1988. 13 июля. С. 4.
58 Кизеветтер А.А. Городовое положение Екатерины II 1785 г.: Опыт исторического комментария. Москва, 1909. С. 355.
59 ГА в г. Тобольске. Ф. И-329. Оп. 13. Д. 109. Л. 2, 6, 10, 21.
60 ГА в г. Тобольске. Ф. И-329. Оп. 13. Д. 157. Л. 103, 108, 197.
61 ГА в г. Тобольске. Ф. И-329. Оп. 13. Д. 125. Л. 1а.
62 ГА в г. Тобольске. Ф. И-329. Оп. 6. Д. 39. Л. 1-4, 5-8.
63 ГА в г. Тобольске. Ф. И-152. Оп. 35. Д. 44. Л. 2-4.
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Author, abstract, keywords
Aleksandr V. Khramtsov - Candidate of History, Associate Professor, Industrial University of Tyumen (Tyumen, Russia)
ORCID ID: 0000-0003-2758-4192
khramtsov_ab@bk.ru
On the basis of archival documents discovered by the author as well as other data found in the works by Russian researchers, the article gives a detailed stage-by-stage analysis of the urban reform of 1785 implemented in the towns of Western Siberia during 1785-1870 in the provinces of Tobolsk and Tomsk. In the course of the reform the towns were for the first time granted the right to possess real estate and form their budget. The author singles out three stages in reforming urban self-government in Western Siberia, highlighting the typical features of each of them.
The Siberian towns turned out unprepared for the reform in social, economic and demographic respects, argues the author. That is why the project conceived by legislators could not be fully realized at the local level. The formation of town Dumas was a slow process coming across various difficulties. As a result, it took years to complete. The reform of 1785 distinguished among six categories of citizens who had the right to elect and be elected to self- government institutions. However, the citizens falling into these categories constituted a narrow circle of merchants, urban petty bourgeois estate and artisans. Other social groups of the town population were practically not represented. As a result, the urban self-government operated largely in the interests of the merchants, and in case the latter were low-numbered, it acted in the interests of the urban petty bourgeois estate. The small-numbered nobility residing in Siberian towns had the right to be elected to the town Duma, but it did not want to burden itself with public and administrative duties. The provincial administration strictly controlled urban self-government institutions using them as an additional administrative mechanism, which rendered their activities less effective.
Urban reform of 1785, urban self-government, city duma, elections, merchants, petty bourgeoisie, bureaucracy, governor, Siberia.
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Автор, аннотация, ключевые слова
Храмцов Александр Борисович - канд. ист. наук, доцент, Тюменский индустриальный университет (Тюмень)
ORCID ID: 0000-0003-2758-4192
khramtsov_ab@bk.ru
В статье на основе обнаруженных автором архивных документов и фактического материала, содержащегося в трудах российских исследователей, подробно и поэтапно рассматривается реализация городской реформы 1785 г. в городах Западной Сибири в 1785-1870 гг. (Тобольская и Томская губернии). В ходе реформы городам впервые было представлено право обладать недвижимым имуществом и формировать свой бюджет. Автором выделены три этапа реформирования городского самоуправления в Западной Сибири, раскрыты характерные черты каждого из этапов.
По заключению автора, сибирские города в социально-экономическом и демографическом отношениях оказались не готовы к реформе, поэтому на местном уровне не удалось реализовать в полном объеме
замысел законодательной власти. Процесс формирования городских дум шел медленно, сталкивался с различными трудностями, в результате затянулся на несколько лет. Реформа 1785 г. устанавливала шесть разрядов городских жителей, имевших право избирать и быть избранными в органы самоуправления. Однако отнесенные к этим разрядам жители сибирских городов представляли собой узкий круг купцов, мещан и ремесленников. Другие социальные группы городского населения в органах городского самоуправления практически представлены не были. В результате органы городского самоуправления работали преимущественно в интересах купечества, а при малочисленности купцов - в интересах мещанства. Малочисленное дворянство, жившее в сибирских городах, имело право избираться в городские думы, но не желало обременять себя общественными и хозяйственными обязанностями. Губернская администрация жестко контролировала органы городского самоуправления и использовала их как вспомогательный хозяйственный аппарат, что снижало эффективность их деятельности.
Городская реформа 1785 г., городское самоуправление, городская дума, выборы, купечество, мещанство, чиновничество, губернатор, Сибирь.
