PLANS OF REFORM 157v. G. Shcheglov's detailed and careful study of the ideological and
institutional forerunners of the Council of State in Russia has conclu-
sively shown that - contrary to Karamzin's prejudiced belief - Spe-
ransky's creation was not a radical departure from tradition and
precedent. After a searching and thorough examination of much
archival material, which we need not summarize or repeat here,
Shcheglov has come to the conclusion that a "council," i.e., a body of
men who advise the ruler and help him to prepare legislation, had
been known not only in Muscovite Russia (boiar duma) but also
throughout the 18th century (Supreme Secret Council, Imperial Cabinet,
Council of the Emperor). The checkered history of the councils in the
18th century shows clearly the government's great need of a regular
advisory organization to assist it in the legislative process. The practical
effect of the Imperial Council instituted by Paul I, for example, was
to help the monarch in the drafting of needed legislation and in dealing
with important matters arising suddenly. Like its predecessors, Paul's
creation was a Regierungsbehorde, taking direct part in the admin-
istration as well, similar to the councils of the enlightened despots in
Western Europe, Maria Theresa's Austria in particular. Like most of
Paul's institutions, the Imperial Council was heartily disliked by the
advisers and friends of Alexander I. The members of the Unofficial
Committee spear-headed the opposition and advocated the abolition of
Paul's council for fear that - like the Senate - it would become a
rallying point for old dignitaries and disgruntled aristocrats who,
eventually, might present a serious challenge to the bureaucracy.
Speransky concurred in this harsh judgment of the Imperial Council
and the somewhat unjustified fear of it. To obviate some of the
criticisms levelled at Paul's creation, Alexander I established a new
council, called the Permanent Council (nepremennyi sovet). 1 The
function of this Council, as stated in its statute was the "consideration
of important state affairs." (PSZ 19,806, March 30, 1801). Unlike
the councils of the 18th century which had participated directly in the
administration of the Empire (Regierungsbehorde), the new Council
was to be strictly an advisory body. "The Council is established near
Us and it has, therefore, no outside action; it does not enter into any
decisions on executive matters, and has no other power in the state
than the power of deliberation (soobrazhenie). From this it follows
that the Council can issue no decrees or orders in its own name. The
1 The original name of the body had been Council of State - see Korkunov,
Russkoe gosudarstvennoe pravo II, pp. 63-64. The fact is alluded to in the Statute
of the Council, 1 Jan. 1810, PSZ 24,064.