Transformation of state governance mechanisms and the activities of Russian administrators in the Baltics in the 1880s — early 1890s

Abstract

The article examines the main directions of transformation of the governance system associated with the implementation of a policy of deeper integration of the Baltic provinces (Ostsee region) into the Russian Empire at the end of the 19th century. The sheer complexity of this task prompted the authorities to resort to measures that clearly went beyond bureaucratic norms. This was clearly evident during the 1882-1883 revision of the Baltic provinces under the leadership of Senator N.A. Manasein, which in many ways became the starting point for the new government policy in the region. Attempts to build a non-bureaucratic system of governance were also based on the principles of "people's monarchy" - a set of views that was largely inspired by the teachings of the Slavophiles and had a noticeable influence on government circles at the beginning of the reign of Alexander III. This tendency was most clearly expressed in the activities of Prince S.V. Shakhovsky, who held the post of governor of Estland province from 1885. Attempts to move beyond the bureaucratic mold were evident in Shakhovsky's desire to select employees based on ideological affinity, to act straightforwardly and uncompromisingly, to participate personally in day-to-day management, and to build a system of informal connections with his patrons in St. Petersburg. An important aspect of the governor's police was measures to galvanize public initiatives in support of integration policies. Shakhovsky's activities and management methods provoked hostility from influential Petersburg officials, who sought to limit the governor's independence. After the death of the prince in 1894, a significant part of his undertakings was curtailed. Nevertheless, the measures taken in relation to the Baltics and the attempts to build a non-bureaucratic system of governance were an important page in the history of government policy at the end of the 19th century, revealing important directions in the evolution of the system of public administration and social thought in Russia during this period.