283 Bogoslovskii claimed that the local administration was paralyzed by a nearly chaotic situation which might have been avoided had the transition between the two administrative systems been better coordinated. This poor planning led, among other things, to a number of cases in several provinces in which the old administrative personnel left their posts before the new officials had arrived, thus leaving the latter, upon their arrival, without any information about the province they were to administer. In a number of localities, the new officials were even left without the old account books, which had either been destroyed or taken along by the provincial councillors. In other provinces, as we have seen, the situation was instead one in which the new routines were delayed because the provincial councillors were unwilling, for various reasons, to surrender their positions of authority. In such cases, the voevoda and his personnel were unable to do more than to report the situation to the Senate and wait for the central administration to take the appropriate measures. In the beginning there was even uncertainty about the hierarchical relationship between the voevodas and the governors. Should, for example, the voevoda, as had the previous provincial councillor, deliver the cash and produce collected as taxes to the guberniia bursary, or should he deliver them directly to the colleges in St. Petersburg? The voevodas complained to the Senate that the governors were exceeding their authority and interfering with the jurisdiction of the voevodas as expressed in the instruktsiia for voevodas, which moreover had been issued to the governors, as well.-'*’* Experience proved, however, that the voevodas were able to preserve their independence vis-a-vis the governors, and the provincial administrations thus maintained direct contact with the central administrative organs at St. Petersburg.-^" It was only in military matters that the provinces were subordinated to the gubernUa leadership. The governor was in command of the garrisons of the guberniia, and therefore the recruiting of soldiers also remained his responsibility. Another thing that emphasized the military character of the governorships was the fact that the governors received their salaries from the krigs-kollegiia. But in the border provinces, the voevodas were responsible for military functions, as well.-^* On the basis of his archival studies, Bogoslovskii was able to state that it was the instruktsiia for provincial bursars which was followed most completely in practice.-'*- He also noted, when it came to the instruktsiia 238
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