331 ever fully established in Russia. Among other things, the great shortage of competent personnel made it a difficult reform to implement. Russia lacked a legally trained corps of judges that could be drawn upon to fulfill the demands placed on an independent system of courts. All in all, there were to be three hundred seventy-one positions in the local courts, but the iustits-kollegiia had only three hundred twenty-six men with whom to fill all the positions. While this left a shortage of forty-five at the outset, only one hundred ninety-nine of the three hundred seventy-one positions were filled as of 1720.^^^ The members of the courts were recruited from the now defunct prikazy, as well as from the local nobility,and while the courts became active in 1720, the supplementing of their personnel continued even afterwards. For example, the men appointed members of the court of appeals at Voronezh did not arrive at their posts until 1721, which is characteristic of the slowness and uncertainty with which the reformwas carried out once it had been inaugurated. M. M. Bogoslovskii, who investigated the results of the court reform on the basis of extensive archival studies, stated that the Petrine courts of appeals were in most cases manned by governors, vice-governors, and voevodas, and that military officers were also called upon to fill many of the judgeships. In 1719, for example, four colonels were appointed to membership on the Moscow court of appeals.'As a result of the fact that the courts of appeals were placed under the control of senior administrators and military men, of course, the basic principle behind the reform—the separation of administrative and judicial functions—remained unrealized. In January 1722, General-Admiral F. M. Apraksin stated in the Senate that “it is not suitable (prilichno) for the provincial judges appointed in the gubernii and provinces and towns to be under a special direction (pravlcnie)." Apraksin suggested instead that the provincial courts should be subordinate to the voevodas, a proposal that was accepted by the tsar. An ukaz was published in April of that year stipulating that “in all the gubernii and provinces, the governors, vice governors, and voevodas shall adjudicate and administer all types of justice with the exception of those towns where courts of appeals have been established, nearly restored the state of affairs that had existed before the court reform, and the officials in the local administration once again received 113 11.'i This measure ” lie Bogoslovskii (1902), 185. "2 Ibid., 204. Ibid., 186. Ibid., 187—188. 1*5 2A (no. 388), 384. *"* lA (no. 389), 385.
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