113 tive or military) position and is himself forced, because of the death of his father or for any other reason, to manage economic matters on his estates, he is willingly given leave upon his own request. To summarize, then, Russia lacked the social resources, the system of schools and universities, and the well-educated class of civil servants which were needed if Russia were to be successful in her attempts to introduce the administrative principles practiced in Sweden and in other European states. Peter and his contemporaries became aware of these shortcomings, but the measures they took, based as they were on the principle of obligatory service, failed to produce any lasting results. The service of personnel recruited fromabroad was required by the Russian administration right on into the nineteenth century.302 7. The Imtructiom for the Colleges Characteristic of the collegial administrative structure that developed in several European states during the sixteenth and seventeenth centuries was the fact that Its functions were regulated in detail by different types of administrative legislation in the formof ordinances, instructions, and regulations. The result of all this, to cite Max Weber, was “a continuous organization of official functions bound by rules.” The continuous administration, which operated in accordance with an external division of jurisdictions and an internal division of labor based on standard office procedures, was necessary in order to meet the costs of the rapidly expanding state apparatus—the regular military establishment and the civil administration—in a continual and stable manner. This also explains why the organization and functions of the fiscal administration were the primary objects of the reform efforts of the sixteenth and seventeenth-century state. Regular fiscal planning and an effective system of tax collection were basic to the economic, and thus to the political, stability of the state apparatus. The complicated administrative mechanisms in question could not function on the basis of the customs and ad hoc decisions characteristic of medieval administration. Instead, administrative routines had to be codified once and for all in an authoritative system of regulations, which in turn meant that the state administration acquired an appearance of objectivity in the sense that its servants seemed to be working for the higher and objective good of the state. And, as Marc Raeff has pointed this meant that the regular administration helped to “instill in the ••»02 Witxram, II, 123. Max Weber, The Theory of Social and Economic Organization (New York, 1964), out Mu:) 330. 8 - Peteraou
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