262 GOVERNING RUSSIA'S PROVINCES
decided on a solution which had the merit of being relatively simple
and of having some historical precedent. The Governor General, accord-
ing to the law of 1822, was to be assisted by a Council. Both together,
governor and council, composed the Main Administration (glavnoe
upravlenie) with a wide power of executive decision. The Maih Ad-
ministration supervised the proper functioning of local administration
in its territory, and could take special emergency action without refer-
ring first to St. Petersburg. 1
A central problem was the staffing of the Governor General's Coun-
cil. In 1819 the Minister of the Interior, O. Kozodavlev, had urged
upon Speransky the creation of elective advisers to the Governor, to
be chosen among the wealthier and more prominent citizens. Not much
impressed by the spiritual and moral quality of the human material
he had found in Siberia, and also possibly because of his own bureau-
cratic predilections, Speransky decided against an elective Council.
While not rejecting out of hand the establishment of a representative
body in the far future, Speransky provided the Governor with a coun-
cil of local high officials, some appointed by St. Petersburg, and some
selected by the Governor General (and confirmed by the central govern-
ment).lI
The Council of the Main Administration is appointed by Imperial
decree. It has general supervision of current administration, examines
the yearly reports of the provincial governors, considers private com-
plaints against officials and government institutions, and decides juris-dictional disputes between courts. It reviews all contested matters per-
taining to taxation, contractual obligations, state supplies, recruitment
of soldiers, etc. a But the Main Administration has only the right to
prescribe the manner in which decrees received from St. Petersburg
will be implemented in its territory.^4 Except in those cases for which
his powers are specifically enumerated, the Governor General can act
only after submitting the matter to the Council. 5 But the Council has
only an advisory opinion; the Governor is not bound by its advice and1 PSZ 29,125, par. 511.
1I The Governor General, stipulated the statute of 1822, represents the monarch,
he is the head of the Main Administration. In some cases he acts alone, entirely
on his own; in others, he first seeks the advice of the Council. His major function
is to supervise the proper and rapid execution of administrative measures; he also
inspects the region regularly. He makes recommendations for promotions and
honors; he has a qualified right to appoint and dismiss officials. In emergencies
he may issue temporary executive orders, ~ubject to eventual confirmation by St.
Petersburg. (PSZ 29,125, pars. 18, 19).
a PSZ 29,125, pars. 14, 15, 16, 20.
4 PSZ 29,125, par. 522.
5 PSZ 29,125, pars. 543, 544.