The sun. [volume] (New York [N.Y.]) 1833-1916, 1905-07-30

official for the time being again exerts
determining influence. The decision ar
rived at by the Cxar becomes the law. Not
only, however, may the Emperor ignore the
opinions OF the Council Of the Empire; he
may and often docs ignore It's existence
altogether, legislating directly or refusing
legislation, on the suggestion OF some per-
sonal favorite.
At the head nominally Of the civil adj
ministation stand two bedies ono OF which
the Council OF Minstors--makes only
spectral and spasmodio appearance. 1t
consists OF all the Ministers, the Secretary
Of State q. O.. the Secretary Of the Council
Of the Empire) and any other persons
whom the Car chooses to call to bis aid. lts
hypothetical business 10 to harmonic. when
necessary. the measures Of the separate
Ministries. II was intended by It's author.
Alexander H., in his brief reform period.
to be the supreme administrative board OF
the country; Is now called together only
occasionally, and practically has been
superseded by the Committee Of Ministers.
a larger body with, wider but underlined
powers. This body consists Of president
named by the Emperor IN. Witte was
placed In this chair when N. Plehve
secured his dismissal from tho moro i'm
portant post Of Fina nee Minister), the presi-
dents Of departments OF the Council Of the
Empire, Ministers and persons nominated
by tho Emperor. All business common
to or superior to the separate Ministries Is
supposed to come before this committee
as we'll as important administrative Quee-
tons, such as the higher police the censor
ship and famine relief. Its decisions how
ever, In all but routine affairs, are sub
mitted to the Emperor-that Is, they are
decided by his most powerful advisers for
the time being Beside this permanent
body and various occasional councils there
are three permanent councils -tloae OF
Finance, War and the Navy; and special
councils for specific current purI osee are
formed from time to time, such as the COM
mittees on the Caucasus, the AFFAIRS OF
Poland and the Siberian Railway.
Nominally executive organs Of this higher
administration, tho Ministers or at least the
chief Of them, arc the real seats Of authority
in the State, because they are directly In
touch with the people in matters Of crucial
importance; because they have Immediately
behind them the vast rank and file OF the
bureaucracy, with its hitherto irresistible
traditions and esprit de corps: and because
these are the natural strongholds OF tho
most ambitious and experienced members
Of the whole official hierarchy. M.
White, for instance, at the head OF the
Finance Ministry-with its sections and
consultative committees Of commercial.
fiscal and other experts. and its control
over taxation and expenditure, the liquor
Al In
ways, factories. mines and industries In
general-was to a very large extent master
of the State machine until NJ. de Plehve,
his great rival Of the Ministry Of the In
terror, found |: necessary to srepple with
him. After twenty years OF succsssful re-
action Plehve-master OF the police and
oendarmerie, the censorship. the institu-
tions OF the nobility. the provincial gov
ernors and the zemstvos-could only be
removed by the bomb Of an assassin. By
these two Ministries, whenever they have
powerful chiefs. together with the Over
Procurator Of tho Holy Synod, the in
terna affairs Of the empire are practically
governed.
II.
Such Is the central machine. Within
the legislative and administrative domains
the Emperor, or rather his favorite Official
for the time being, decides matters In an Inn
mediate and direct way. 1t Is otherwise
In the domain OF judiciary powers. Tho
judiciary reform of Alexander II. had Is
its basis rigorous separation q the judicial
from the legislative or administrative
functions. BY that Car was created an
autonomous and independent system Of
judicature. The Emperor, indeed, was
regarded as it's head, but he did not take
part in judicial decisions. In this sphere
he, theoretically. has only the surveillance
Of the regular administration Of justice,
and this supervision he performs through
the Directing Senate The powers Of
the Senate, which once supervised the whole
administ ration, have been reduced by the
growing power OF the Min istries and the
Council of the Empire, and the first named
body is now chiefly important az the SUI
preme court of judicature. being divided
into nine sections. Of which two are courts
Of cessation, while two give judgment
In political cases and on charges against
officials. The Senate can still make remon-
strances to the Emperor in regard 10 the
general administration, but practically
this function is unexercised. Its members
are generally men Of rank and substance.
II we pass from the structural details Of
the central machinery Of government to
the fundamental principle We are struck by
the complete absence OF what in every
other civilized nation Of the world is con-
sidered the essential basis In local affairs,
indeed. there are two important oenters Of
autonomy (the mir and the semstvo, or
communal and provincial oounoils); In
the central Government there Is no repre-
sentation Of the people, no tie between the
rulers and the ruled except that which
binds master and subject. Yet, II In smaller
and more homogeneous States a public
assembly rejecting the various classes OF
the population IL deemed necessary to con-
tribute the experience and the concern for
the general welfare requisite for wise
legislation. how much moro needful Is suoh
an assembly in an empire presenting such
diversity Of racial, intellectual and economic
conditions Mr.. Perris is convinced that
ten years ago the Russian people would
have been satisfied with very small modi-
cum Of influence In State affairs. The rejec-
ton Of the most modest demands has aggra-
waited and broadened the popular discon-
4 - N..A