87 Aside from the pod'iachie, then, Peter’s colleges were each to be staffed by eighteen officials, of which three or four were to be foreigners. These non-Russians were to lay the foundation for the collegial system of administration and to teach their Russian colleagues all they knew about the new administrative routines. The same method of acquiring foreign techniques by hiring specialists from abroad had been used earlier in Peter’s reign; while the regular army was being organized in 1699—1700, only foreigners were selected to head the new regiments, and at that time a third of the officers in the Russian army were foreigners. In his December 11 ukaz, Peter decreed that the college presidents were to spend all of 1718 collecting materials and preparing for the actual establishment of their respective colleges. The new administrative setup was to become functional on January 1, 1719, but the presidents were to be granted membership in the Senate as of 1718.^*^‘ In this sense, too, Peter’s projected reform was in agreement with the Swedish system, in which each president held a seat cx officio in the Senate, or the Council of State, as it was usually called.'*’- As presented to the college presidents, then, the timetable for carrying out the collegial reform covered only one year. On the very day this timetable was published, December 11, 1717, the tsar also issued an ukaz forbidding civil servants from performing their duties outside the chancelleries. Nor were they to be allowed to continue the practice of reporting to the homes of their superiors in the morning “for attendance (paying their respects) or business matters, of this ukaz was to make theadministration moreefficient. When the regular army and navy had been set up earlier in Peter’s reign, new demands had been made upon the civil administration, whose foremost responsibility was to create a secure economic base for the maintenance of the armed forces. Regular administrative procedures based on a permanent division of labor were introduced, which above all meant that the chancellery personnel had to be disciplined. One strict requirement in connection with this was that civil servants must report to work and remain at their offices during specifically designated working hours. Efforts were also made to counteract the tendency toward the privatization of higher office that had characterized the prikaz administration during the seventeenth century. The prikazy had been run according to an unofficial system of clientage whereby the judges surrounded themselves with “their own people.” S. K. Bogoiavlenskii, the Soviet historian 190 The object ” 193 V. N. Avtokratov, “Voennyi prikaz,” in L. G. Beskvovnyi ct al., Sbornik Poltava. K 250-letiiu poltavskogo srazheniia (Moscow, 1959), 240. ZA (no. 261), 216—217. See Heinrich Pick’s description of the Swedish senate; ZA (no. 332), 275—276. ZA (no. 262), 217. IPO 1P2 193
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