Police Department of the Ministry of Internal Affairs of the Russian Empire. Police Department of the Ministry of the Interior. Organization and general management of the activities of the general and political police

On August 6, 1880, a new institution was formed in Russia - the State Police Department, which became the highest political police body in the Russian Empire.

The first months of the existence of the Department were the times when its structure was created and the main functions were determined. An active role in this process was played by Loris-Melikov himself, now the Minister of the Interior and Chief of the Gendarmes.

Initially, the Police Department was created as part of three structural parts, which were called office work: 1st office work - administrative, 2nd office work legislative, 3rd office work secret.

The head of the Police Department was the director. According to the initial staff list, he had one vice-director, later, with the expansion of the structure and functions of the Department, their number reached 4. At the same time, in August 1880, Ivan Osipovich Velio, a baron, was appointed director of the Department, who later (1891) received the rank of real privy councillor. Velio was born on January 6, 1830 in Tsarskoye Selo, in the family of a general, commandant of Tsarskoye Selo. In 1847, he graduated from the Alexander Lyceum, the next 14 years of his life were associated with service in the Ministry of Foreign Affairs, where he received ranks, was promoted to collegiate assessors, court advisers, and was granted the rank of chamber junker of the highest court.

September 23, 1861 Velio was transferred to serve in the Ministry of the Interior. From November 1861 he was the Kherson vice-governor; from December 1862 he corrected the position of the Bessarabian civil governor and, as governor, in April 1863 was approved in the rank of vice-president of the Bessarabian Committee for Prisons; in August 1863 he was promoted to full councilor of state and appointed mayor of Odessa, in the fall of 1863 he was granted the rank of chamberlain of the Highest Court, approved as vice president of the Odessa prison committee.

On January 1, 1865, Velio was appointed governor of Simbirsk and approved as president of the Simbirsk Prison Committee. During the following years of his official activity, he was actively involved in prison issues, as the president of the committee was sent to Moscow, delved into the situation of the workers of the prison companies who were at work on the construction of the Southern Railway. along the line from Kursk to Kharkov, studies the transportation of prisoners to Siberia and gets acquainted on the spot with the famous "Vladimirka". He also visits places of detention: prisons, convict companies, restraint workers' houses, stages. For this work he was given special thanks.

A particularly fruitful and important period in his career were the years as director of the postal department of the Ministry of the Interior, to which he was appointed in June 1868. In August 1868, he increased the number of postal institutions, created auxiliary zemstvo post offices, and established and transformed the postal network in Eastern Siberia and Central Asia. Throughout European Russia, a daily reception and delivery of correspondence was introduced.

AND ABOUT. Velio was one of the drafters of the Law of October 30, 1878, according to which the perusal of correspondence, prohibited in 1868, was allowed by decision of the district courts, investigators, by decision of the Minister of the Interior and Justice during the investigation by the ranks of the Separate Corps of Gendarmes on state crimes against persons, against whom a criminal case has been initiated.

As director of the State Police Department, Velio served only a few months. Obviously, the events of March 1, 1881 were the reason for his imminent resignation. On April 15, by the highest command, due to "unhealthy health" (he was 51 years old at that time), he was enrolled in senators and dismissed from the post of director of the Department.

After the establishment of the State Police Department, the work to unify the police institutions continued. On November 10, Loris-Melikov presented to the emperor a regular report, which was called "On the complete merger of the higher police department into one institution - the Ministry of the Interior." The report proposed the amalgamation of the State Police Department and the Executive Police Department. The need to transfer to the State Police Department only those functions that were “strictly police in nature” was emphasized, the remaining duties of the Executive Police Department were proposed to be transferred to other departments of the ministry and to the Department of General Affairs 3.

M.T. Loris-Melikov considered it possible, as a result of the exclusivity of the new institution, “to allow in the staff of the Department some deviations from the norms common to other departments of the Ministry of Internal Affairs, both in terms of grades of positions and content”4.

Justifying his proposals, Loris-Melikov pointed out that “clerical work in this (State Police Department. - 3.P ..) can be entrusted only to such persons who, having the knowledge and abilities necessary for service in a higher government institution, fully deserve confidence in their moral qualities, consistency of character and political reliability. For such persons, a decent official position must be ensured.

At the same time, it was said that the staff of the Department and in terms of quality must meet the requirements that were set for an institution designed to protect the security of the existing system.

In essence, the activities of the new institution began almost from scratch, because almost the entire staff III Divisions stayed on the sidelines. True, there are different opinions among historians on this matter. So F.M. Lurie believes that all employees of the III Division became employees of the Department. At the same time, C. Ruud and S. Stepanov write that “at the time of management, the III Division had 72 employees, 21 of them expressed a desire to move to a new institution. The Department of the State Police approached the selection of candidates strictly and accepted only a few who were especially trusted”7. Only a few of them met the requirements for employees of the Department. M.V. Sidorova, who studied this issue specifically, claims that after the abolition of the III Department, the officials of this department were dismissed with pensions corresponding to the number of years they worked, many officials applied for enrollment in the Police Department. 21 requests were granted. “Priority was given to officials for special assignments, archivists and office workers”8.

The formation of the personnel of the Police Department was protracted. The old cadres were not suitable both in terms of their professional qualities and due to the fact that some of them were gendarmes, military people. Loris-Melikov, the Minister of Internal Affairs, sought to ensure that the new institution consisted of "lawyers", civilians and with legal training. In essence, the formation of the personnel of the Police Department began with the signing by the emperor on November 15, 1880 of the Decree on the accession of the Executive Police Department to the Department and the State Police.

The decree determined the staffing of the State Police Department: director of the Department, vice director, officers for special assignments (3), secretary (1), journalist (1), clerks (3), senior assistant clerks (10), junior assistant clerks ( 9), treasurer (1), assistant treasurer (1), archivist (1), assistant archivist (2), writing officials (18)9.

The staffing of the Department periodically changed to increase the number of employees. By a decree of November 15, 1880, the State Police Department was entrusted with the leadership of the body, both political and general police.

According to Art. 362 "Institutions of the Ministry", the Department was obliged to deal with the following issues: 1) prevention and suppression of crimes and protection of public safety and order; 2) conducting cases on state crimes; 3) organizing and supervising the activities of police institutions; 4) protection of state borders and border communications; issuance of passports to Russian citizens, residence permits in Russia to foreigners, expulsion of foreigners from Russia; monitoring all types of cultural and educational activities and approving the statutes of various societies 11. Enshrined in the code of laws of the Russian Empire, these functions were developed in more detail in the Department itself and were distributed among its structures.

The Decree of 15 November 1880 concerned the Ministry of the Interior itself. As a result of the abolition of legal advisory units under the Ministry of Internal Affairs, a special Judicial Department under the Ministry of Internal Affairs was established to conduct cases on inquiries about state crimes (which were previously dealt with in the judicial-political department of the Military Revolutionary Committee).

This department was closely connected in its work with the Department, which concentrated information on actions of an anti-government nature and data on all measures aimed at combating the revolutionary movement. This kind of connection led to the subsequent affiliation of the Judicial Division with the Department. Initially (June 11, 1881) the Judicial Department was considered under the Department (not merged into its structure), and its manager was simply subordinate to the Director of the Department. They appointed P.N. Durnovo, who a few years after V.K. Plehve became the head of the Police Department.

The joining of the judicial department took place under the new director of the department, Plehve, who was appointed in April 1881 on the recommendation of again Loris-Melikov, who still retained his already unstable position.

On March 1, 1881, Alexander II was killed as a result of a terrorist act. The consequences of this tragic event affected many aspects of Russian life, including the nature and direction of police reform. The liberalism of Loris-Melikov was finished. Plans for the further unification of all police services under a single management structure were also shelved. Changes took place only along the lines of improving the very structure of the Police Department, and at first this was done under the leadership of the new director of the Department, Plehve. As is known, a tough repressive line prevailed in the Russian political leadership in relation not only to the revolutionary movement, but also to liberal undertakings and views. Accordingly, the activities of Loris-Melikov were also evaluated. In this regard, the assessment given to Loris-Melikov and his reforms by A.I. Spiridovich, a well-known figure in police circles and author of books on the history of the revolutionary movement, head of the palace guard agents, is indicative. And in his memoirs, he wrote: “In the rapture of his own glory, Loris-Melikov, in one of his most subservient reports, beautifully depicted to the sovereign the calm and prosperity that he allegedly achieved in the empire with his liberal measures, mixing the people into one heap, unacceptable for a statesman, liberal society, politicians and revolutionaries. For that famous report, an example of boundless conceit, frivolity and political ignorance on the part of the Minister of the Interior, Russia paid, after a short time, with the life of its liberator Tsar.

Prior to joining the Plehve Department, he held the position of prosecutor of the St. Petersburg Court of Justice. After graduating from St. Petersburg University, he constantly served in the judiciary, holding the positions of comrade. prosecutor of the Vladimir, Tula district courts, prosecutor in Vologda, comrade. Prosecutor of the Judicial Chamber in Warsaw, then in St. Petersburg.

As the head of the Department, Plehve was included in the Commission created in May 1881, which was called upon to prepare the "Regulations on measures for the protection of state order and public peace"15. It is evident from subsequent correspondence that Plehve was one of the most active and active members of the Commission.

The regulation was approved on 14 August and published on 8 September18. It was introduced as a temporary, for a period of 3 years. However, its action was constantly extended and it lasted until the February Revolution, remaining "one of the most stable fundamental laws of the Russian Empire"19. The regulation of August 14, 1881 provided for the possibility of introducing two stages of an exceptional situation in some provinces of Russia: on the state of enhanced protection of the province and the state of emergency protection. These provisions expanded the powers of the Ministry of Internal Affairs, and the minister was endowed with unlimited rights. The powers of local authorities were also expanded in case of active revolutionary uprisings. The regulation on emergency protection was introduced in the provinces by the decision of the Committee of Ministers, approved by the emperor. Announcements of the area on the Position of Enhanced Security could be carried out by the Minister of the Interior, but if the province was part of the Governor-Generalships, then the Governor-General had such powers. The latter were given the right to issue binding decrees “on subjects related to the prevention of violations of public order and state security...”20, which the governors-general sometimes abused (governors-general or commanders-in-chief had enormous powers in a state of emergency) .

The "Regulations" gave them the right to ban "people's public and even private meetings", close trade and industrial establishments, press organs, search, arrest, establish special military-police teams, and refer cases to a military court.

The application of this provision led to the fact that at the beginning of the 20th century. the regime of enhanced protection extended to more than 1/3 of the population of the country 21. The situation of August 14, 1881 largely determined the work of the Police Department and local institutions of political investigation.

In December 1881, Plehve approved the distribution of responsibilities in the Department according to its structures, which looked like this:

1st office work- (administrative) - dealt with the affairs of the personnel of the Department, correspondence on promotion, awards, finances of the Department, correspondence with foreign countries on the extradition of Russian citizens detained abroad, on violations of the state border. Almost all of these functions remained under the jurisdiction of the office until 1907.

2nd office work- (legislative) - dealt with the organization of police institutions in all areas of the empire, the revision of the states of these institutions, the development of bills for the Ministry of the Interior, monitoring the exact implementation of laws in the field, the development of bills on the labor issue in the field of regulating relations between workers and manufacturers, monitoring drinking establishments, transportation of gunpowder and explosives. A very important moment was the approval of the charters of public organizations, meetings, clubs23. This is the only clerical work that retained its functions until 1917, albeit with minor changes.

3rd office work- (secret) - was engaged in monitoring unreliable elements in Russia and abroad, their correspondence, communications, monitoring of parties, organizations, distribution of illegal literature, controlled the activities of domestic and foreign agents, the protection of the king, high-ranking officials. Somewhat later, the Library of Revolutionary Publications, which was previously located in the III Division, came under the jurisdiction of the 3rd office somewhat later. Since 1889, this structure has been the focus of correspondence on covert police supervision. It was an important political department in the structure of the Department and it existed with such duties and functions for 17 years. This paperwork loses its political face in 1898, when the Special Department, which was part of it, spun off from it, which became the most important structure of the Police Department. All the political functions of the 3rd office were transferred to the Special Department. From this moment on, the 3rd office loses the status of a secret unit. Until 1906, it dealt with the deployment of troops on the territory of Russia, collecting materials on the agrarian movement. In addition, it resolved personnel issues related to movements in the Department, gendarme departments, and security departments. Since 1906, there was a short period in the activity of office work, when its functions included the approval of the charter of public organizations and unions.

With the reorganization in 1907, the 3rd office becomes financial: correspondence on the pension part and loans is concentrated here. Practically since that time, cases of a purely police nature have been formed in it: on appointments to police positions, movements and activities of police officers, violations of service, criminal records of police officers, awards to police officers, as well as janitors, porters and other persons who assisted the police, materials on joining the Department.

In addition, in the structure of the Police Department in 1880 there was an archive created on the basis of the III Division. This archive kept the materials of liquidated institutions - Section III, the Investigative Commission of 1862, the Supreme Administrative Commission, the Special Chancellery of the Ministry of Internal Affairs, which are currently stored in the State Archives of the Russian Federation and constitute independent funds. The task of the archive was, first of all, to ensure the safety of documentary materials, to receive cases completed by office work, to determine the period of their storage, to compile internal registers for cases, to carry out technical processing of cases. In addition, the archive executed certificates at the request of structural subdivisions of the Department and other departments; over time, researchers began to be admitted to the archive. There are lists of persons who have received permission to study in the archives of the Police Department with an indication of the topic of the classes, certificates of the reliability of these persons, sheets of issuance of cases.

In addition to the structures described, as of December 1881, the Department had a reference section, which included two important collections transferred to the Department from the III Section: a collection of photographs and a collection of illegal publications.

In the secretarial part of the directorate of the Department there were magazines of incoming and outgoing correspondence and personal correspondence of the director.

1st office work The Judicial Department monitored the course of political inquiries and concentrated in its hands the materials of inquiries made on the basis of the law of May 15, 1871, which were transferred by the Minister of Justice for administrative measures and penalties. In addition, it dealt with inquiries that arose in cases of revolutionary propaganda, belonging to secret societies, as well as cases sent by the Minister of Justice, which required the decision of the Minister of the Interior.

In the 2nd business The Judicial Department mainly focused on correspondence on administrative expulsion, on establishing surveillance of politically unreliable persons both in the center of Russia and in exile, correspondence on the search for persons who had fled from the place of exile, etc.

Within the Department of the State Police, a subdivision was also organized with the name "Correspondence by special correspondence of the director of the Department." Here, material was concentrated at the request of government agencies on the political and moral reliability of persons wishing to open schools, workshops, enter the civil service, publish newspapers, magazines, and give lectures; monitoring the issuance of passports to persons traveling abroad, correspondence on denunciations and statements; search orders. All these responsibilities were subsequently transferred to various structures Department.

As mentioned above, the State Police Department was part of the Ministry of the Interior and reported directly to its Minister. However, burdened with a number of responsibilities, the minister could not always pay due attention to the new institution. In this regard, the decree of June 25, 1882 25 introduced a new post of deputy minister of the interior, head of the police. The same decree distributed the rights and responsibilities for the leadership of the Police Department and the Separate Corps of Gendarmes between the Minister of the Interior and a Deputy Minister. A few days later, on July 16, 1882, the "Instruction to the Comrade Minister of the Interior, Head of the Police" was approved and put into effect. On the basis of this Instruction, the Police Department, chief police officers, governors, town governors were subordinate to him, and he was also entrusted with the management of their activities to "prevent and suppress crimes." The Comrade Minister presided over the Special Conference, established on the basis of the Regulations on Protection, and resolved issues related to police supervision. At the same time, he was the commander of the Gendarme Corps. According to the introduced Instruction, both the gendarmerie ranks and the ranks of the general police were subordinate to the Deputy Minister. Thus, there was a further centralization of power, the management of the police was concentrated in the hands of one person, who remained subordinate to the Minister of the Interior as the supreme leader.

In the future, the issue of leadership of the Police Department and the Gendarmes Corps was raised and decided depending on the personality of the Minister of the Interior and the Deputy Minister, much depended on their relationship and their understanding of the tasks of political search. Former Comrade Minister of the Interior P.G. Kurlov wrote about this: “In practice, this issue caused a lot of misunderstandings, and both of these positions (Comrade Minister of the Interior, Head of Police and Chief of Gendarmes. - Z.P.), depending on the view of the Minister and the personality of the candidate for this post, then joined together, then separated.

The local bodies through which the Police Department carried out its protective search work were the provincial gendarmerie departments and regional gendarmerie departments (hereinafter GZhU, OZhU), gendarmerie-police departments of railways (hereinafter ZhPU railway), search points, security departments, district security departments (hereinafter ROO, 1907 - 1917). These institutions in their operational-search and observation activities were subordinate to the Department, and in combat, economic, inspection - to the Separate Corps of Gendarmes.

The Police Department lasted 35.5 years. During this time, there were changes in its structure, the number of paperwork was constantly growing, and by February 1917 it worked as part of 10 main structural units. Its structure was constantly improved, the functions of some office work changed, often the functions of one office work were transferred to another, office work merged and separated.

The motive for structural changes in the Department was the desire to make its work clearer, eliminate duplication, and get rid of unnecessary links. The reorganization and expansion of functions were designed to make the Police Department a body that adequately responds to changes in the political situation, the growth of the social and revolutionary movement.

With the creation of the Police Department in 1881, the post of secretary was established under the director of the Department. On March 14, 1883, a “part of the secretary” was formed in the Department, which concentrated in itself: 1) registration of information about outstanding events in the empire; 2) press table; 3) personal correspondence of the Director of the Department; 4) general magazine. Subsequently, on January 11, 1895, the "part of the secretary" was abolished, and the personnel were distributed among the office work, along with the transfer of the affairs of the secretary part there. Only the secretary and the magazine remained with the director. In July 1903, an office was created under the secretary.

On February 18, 1883, Alexander III signed the Decree on the liquidation of the Judicial Department of the Ministry of Internal Affairs and the creation on its basis in the Police Department of the next structures - record keeping 28a. At the same time, the State Police Department is renamed the Police Department.

The 1st office of the Judicial Department of the Ministry of Internal Affairs becomes the 4th office of the Department and is called judicial, it existed until 1902, then it was renamed into the 7th office and received the name of the supervisory one.

From the 2nd office of the Judicial Department, the 5th office was created, which was called "executive". This is one of the most interesting structures of the Police Department. The duty of the 5th clerical work was to draw up reports for the Special Meeting, which resolved the issues of administrative expulsion of persons who did not have sufficient evidence to bring them to justice.

A special meeting was created on the basis of Article 34 of the "Regulations on Measures for the Preservation of State Order and Public Peace." It consisted of 4 members: two from the Ministry of Internal Affairs, two from the Ministry of Justice.

The Deputy Minister, the Chief of Police, headed the Special Conference and was its chairman.

The 5th clerical work accumulated a huge amount of material related to administrative exile, documents on the activities of various revolutionary organizations, revolutionary squads, strike committees, information about peasant unrest, workers' actions in different parts of the empire.

With the departure of Plehve from the Department in 1887, the structure of the Department did not undergo any significant changes until 1894, although P.N. Durnovo (1887 - 1893) focused on "debugging" the activities of the Department in the form in which Plehve left it, as well as adapting it to solving new problems related to the entry of new social forces into the socio-political arena.

In 1894, the 6th clerical work was created as part of the Department, which began to develop the foundations of factory legislation. Previously, these issues were dealt with by the 2nd office, but due to its overload and due to the fact that some issues required a more prompt solution, another office was created. In addition to overseeing the development of factory legislation, the duties of the 6th clerical work included control over the manufacture, storage, and transportation of explosives, and over compliance with the regulations that determined the position of the Jewish population. Gradually, control functions associated with such phenomena as vagrancy, forgery of banknotes are added to the new office work (June 1900). Since January 1901 - control over the application of charters on private gold mining and private oil production.

Since 1907, the 6th office also began to prepare certificates on the political reliability of various persons entering the civil service (at the request of the relevant institutions). In June 1912, this office was merged with the 5th office, to which all its functions were transferred. But already on October 30 of the same year, another change took place in the structure of the Police Department. The 6th clerical work is being restored, but in the form of the Central Reference Device, which includes the reference part of all structures, the reference desk and the Central Reference Alphabet. In 1915, this structure was merged with the Special Department, and in September 1916 it again became an independent unit.

In 1898, a Special Department was created.

In 1902, the 4th office was liquidated. Its functions are transferred to the newly created 7th Office. This structure was entrusted with the duties of control (supervision) of the formal inquiries carried out at the GJU. In addition, this clerical work draws up certificates for the investigating authorities on persons previously involved in political cases, since May 1905 it has been in correspondence with the prison department, and draws up search circulars.

Here materials are concentrated on political trials, cases on which were transferred to the courts. After the revolution of 1905-1907. - a lot of cases were reviewed and decisions on some political processes were toughened. All this was reflected in the cases of the 7th office work. Here are concentrated materials on the political processes that took place throughout Russia. Their geography is wide: cases of arrests of the Barnaul, Krasnoyarsk, Kostroma, Moscow, Nizhny Novgorod and other Bolshevik organizations, illegal party printing houses, the Armenian parties Gnchak, Dashnaktsutyun, the Lithuanian Social Democratic Organization, the All-Russian Teachers' Union, the All-Russian Officers' Union, about the Turkestan Committee of the All-Russian Railway Union, about the conference of representatives of social democratic organizations in Riga, about the congress of factory doctors and representatives of the factory industry, etc.

Until 1905, there were practically no structural changes in the Police Department. Only the internal structure of the Special Department is changing, which was associated with the strengthening of the working and revolutionary movement, and the 4th office is being created again, but with completely different functions than the previous one.

The revolution of 1905-1907, its strength and scope revealed the weakness of the police service in Russia and caused confusion in high spheres. The instability of the entire police apparatus, the confusion of the authorities in the face of the rising wave of the revolutionary movement is evidenced by the fact that from March to June 1906, i.e. in just a year and a half, five directors of the Police Department were replaced (A.A. Lopukhin, S.G. Kovalensky, E.I. Vuich, N.P. Garin, M.I. Trusevich). Subsequently, referring to 1905, the former director of the Police Department, and then Deputy Minister of the Interior S.P. Beletsky wrote: “The events of 1905 were the result of the failure to take timely decisive measures, which at one time was the result of the ignorance of the search authorities due to the unsatisfactory setting of the political search, why all the preparatory work of the revolutionaries went unnoticed or were not taken seriously enough by the local search authorities”30

The police department begins hastily to "correct" already in the course of the revolution. Circulars are issued one after another, which introduce the leaders of the political investigation department in the field to the essence of the situation that has developed, introduce them to new organizations and their programs.

Almost all party organizations are in the sphere of supervision of the Police Department: proletarian, petty-bourgeois, big bourgeoisie, monarchist, operating in Russia and abroad. The activities of the central, district, provincial committees of political parties, the preparation and holding of congresses, conferences, meetings, party publications, and the implementation of decisions of congresses were monitored. Special cases were opened about the attitude of individual parties to the State Duma, surveillance was established over the activities of factions in the Duma, over party propaganda in the army and navy, among the peasants. The Department strove to have comprehensive information both about the life of the parties as a whole and about each of their organizations. In this regard, several cases were opened in each province related to local party organizations. They concentrated the intercepted party correspondence of committees (in the form of a perlustration, sometimes originals), leaflets, resolutions, decisions of party organizations, newspaper clippings concerning local committees. Correspondence was conducted between the local GZhU and the Department for Monitoring Organizations and their leaders, notes were compiled about the objects of observation, reports on searches, arrests.

On the basis of the information collected, addresses were developed for correspondence between local organizations and the center, individuals associated with the local organization were identified, and party leaders were searched for. For the most prominent representatives of the party in the Department, certificates were drawn up about their activities, arrests, criminal records, and connections. Sometimes information was entered into these certificates from materials selected during searches, from perusal.

An important role was played by undercover information received from secret agents, presented in the form of undercover notes, as well as "surveillance reports". Basically, these were monthly reports on the lists of people who were monitored, indicating their connections, place of residence, places of visits, and role in the party.

On the basis of the huge amount of material received by the Department, general Party affairs were also initiated. Several cases were formed with correspondence based on party literature published during these years, both illegal and legal publications were taken into account. Special cases are filed against newspapers and magazines.

Cases are also being filed against party organizations operating abroad. Special cases are filed against the Bolshevik Group, the Zurich Group, the Leipzig Group, and the Savinkov Group. Documents related to the preparation and holding of congresses and conferences are concentrated in separate cases.

New changes in the structure of the Police Department are already associated with the arrival in June 1906 of the Director of the Police Department M.I. Trusevich, a jurist, whose activities began in the judiciary as early as 1885. In the late 80s, he was the prosecutor of the Riga, then St. Petersburg district courts. In 1901, Trusevich was appointed prosecutor of the Novgorod District Court, and in 1903 he returned to St. Petersburg to the post of prosecutor of the St. Petersburg Court of Justice.

The new director of the Department is actively getting down to business. Circulars are published one after another, sometimes several in one day. So, on July 1, 1906, two circulars No. 10408 and 104093 31 were issued. In the event of an armed uprising and about a "possible action." The circulars talked about the circulation of proclamations calling for an uprising according to a "deliberate plan", with the aim of causing unrest simultaneously in different parts of the empire. It was pointed out the need for joint and consensual actions with the authorities to suppress and suppress such actions "with complete self-control and firmness." These circulars were ordered to be kept personally by the person to whom they were sent, and not to be entered in the registration books.

The period from December 1906 to February 1907 turned out to be a turning point and the most eventful both in terms of internal reorganizations in the system of the Police Department and the political search in general.

At this time, new institutions of political investigation were created - district security departments, the network of security departments was being strengthened. A Commission was created that was supposed to develop proposals for revising the structure and functions of the police as a whole, known in history as the "Senator Makarov's Commission for the transformation of the police in the Empire."

On January 1, 1907, a new Instruction on the duties of "clerical work" of the Police Department was introduced in the Police Department, which introduced certain changes in the activities of the 1st, 2nd, 3rd and 6th clerical work and the Special Department. A new, 4th office work was created.

All changes were aimed at a more effective fight against the revolutionary movement.

The functions of the 2nd office work are expanding. Now it should deal with issues related to police institutions at private expense. Such divisions were created by entrepreneurs and manufacturers during the years of the revolution to protect their enterprises.

According to the new distribution, the 3rd office work is finally approved as financial. The same functions that, to some extent, still connected this paperwork with political affairs, are transferred to other divisions (correspondence about the reliability of employees entering the civil service - to the 1st office work, correspondence about weapons - to the Special Department, correspondence about the press and monasteries - into a new, just organized - 4th office, which becomes one of the leading structural divisions of the Department).

The 4th office was formed on the basis of the Special Department "B", from July 1906 it dealt with issues of the social movement. The growth of public organizations and mass movements forces the Department to single out this area of ​​struggle into an independent structure.

According to the reorganization order, the functions of the 4th office work included monitoring the workers, social, peasant movement, unrest in educational institutions, propaganda and "fermentation" in the troops, correspondence about the press, mass unrest - demonstrations, rallies. Cases about the press are connected with the monitoring of the legal press, as well as legal societies and unions. Materials on the approval of the statutes of legal societies are also transferred here from the 2nd office work: educational, literary, professional. Here materials are concentrated on monitoring the activities of such societies as the society of Russian doctors in memory of N.I. Pirogov, Kazan Society for the Propagation of Education, All-Russian Literary Society, Penza Professional Society of Commercial and Industrial Employees. Cases are being opened about the All-Russian Zemstvo Union, the All-Russian Union of Cities, about monitoring the work of congresses and conferences of such public organizations as the All-Russian Congress of Writers (April 1912), the X Pirogov Congress (1907). From the beginning of the creation of the 4th clerical work, it concentrates cases on monitoring the activities of the Cadets Party (then they move to the Special Case Department - No. 27), Octobrists, and Black Hundred organizations. It also concentrates cases with correspondence about members of the State Duma and about persons scheduled for election to members of the 4th State Duma. In 1907, about 100 such cases were opened (about members of the State Duma). Initially, cases on trade unions and the trade union movement in the empire are concentrated here (then these cases are again transferred to the Special Department), on monitoring the cinema, on the celebration of May 1, on the Women's Mutual Aid Society, on Pavlenkov's encyclopedic dictionary, on booksellers, etc. .

Based on the study of the materials concentrated in the Police Department, reviews of the revolutionary movement, certificates, orientations, as well as special circulars were created, which were sent to the GZhU, security departments, search points. The circulars informed the representatives of the political investigation department about the state of political parties and organizations, about the proposed congresses and conferences. At the same time, they contained instructions of an instructive nature on how to act in a given situation: to observe this or that person, detain him, prevent him from leaving for a congress, conference, or simply find out the composition of the deputies, the route. Circulars were general, relating to any important event in the life of the party - the congress, conference, party school, and private ones, which concerned individuals who fled from their place of exile, were under police supervision, and went abroad. The circulars indicated the surname, name, patronymic, basic installation data and measures to be taken.

Since 1910, in the 4th office, special cases have been opened about the unreliability of officials. The uncertainty about the loyalty of civil servants was so great that a huge correspondence was started to check the personnel of the Ministry of War, trade and industry, the Ministry of Justice, communications, finance, the Ministry of the Interior, maritime, foreign affairs, public education, the Imperial Court, the palace police.

Unrest in the army and navy forces the government to monitor the political reliability of recruits, and they are checked even before being drafted into the army. Depending on the feedback about them, they are sent to the appropriate parts.

Immediately on the organization of the structure, a nomenclature of cases for this office work was developed. Taking into account its specificity, especially the part that concerned observation in the provinces, it seems appropriate to give a brief description of it.

When developing the nomenclature of cases of the 4th clerical work, special attention was paid to various kinds of moods in the provinces, special cases were started for each province. The provinces received their own index (number), which passed and; " year to year and was violated only if a new territorial entity arose.

For example, case 1. Akmola region; 2. Amur region; .four. Arkhangelsk province. etc. Each issue had a single list of parts, which indicated the nature of the documents generated in the case, for example:

d. 1h. 1. On the agrarian movement in the Akmola region.

d. 1 h. 2. labor movement in the Akmola region

d. 1 h. 3. Demonstrations, rallies in Akmola province.

d. 1 h. 4. Movement in the army.

d. 1 h. 5. Information about educational institutions.

d. 1 h. 6. About terrorist acts.

d. 1 h. 7. Miscellaneous information.

d. 1 h. 8. Correspondence about the press.

d. 1 h. 9. Public mood.

d. 1 h. 10. Statements of incidents.

P. 46. d. 1 part 11. About inappropriate actions and political reliability of officials.

Exceptionally important changes are undergoing in another structural part of the Department - the 6th clerical work, the main activity of which is checking the political reliability of state and zemstvo employees (these functions subsequently become the 4th clerical work) and issuing certificates of political reliability at the request of private individuals. The reason that prompted the Department to pay attention to this problem was that in 1905-1907. many employees took an active part in the revolutionary events, sympathized with and helped the revolutionaries. The unreliability of many civil servants prompted P.A. Stolypin in September 1906 to issue a circular through the Council of Ministers, in which it was noted that in the “emerging ... political struggle of the parties and in open criticism of the government, sometimes even directly in anti-state agitation, a noticeable not only private individuals, but also employees of public institutions, took part in our country, ”and that“ the opposition to the government revealed by us on the part of its agents is such a crying evil, which is more or less inherent in the most diverse branches of the public service ”32.

In accordance with the circular, the responsibility of the Department and its 6th clerical work was charged with making inquiries at the request of various institutions about the political reliability of persons entering the zemstvo and state service. Especially carefully in this regard, teachers of zemstvo schools and persons entering the court department should have been checked.

Soon after the circular of the Council of Ministers, a circular of the Department itself was issued on anti-government agitation in government institutions33 on the issue of employees of zemstvo, city and class institutions. It spoke of the need for precise execution of the circular of the Council of Ministers, pointed out the need for a resolute struggle against anti-government agitation by employees in government, zemstvo, city and estate institutions. In the last paragraph it was said: “In view of the fact that such agitation is also unacceptable for employees in public zemstvo, city and estate institutions, the main local administrative authorities should take measures to establish unrelenting supervision over them so that employees in such institutions do not conduct anti-government agitation, moreover, civilians exposed in it are subject to immediate removal from service, and those holding elective positions associated with the rights of public service must be brought to disciplinary responsibility in the specified order.

Due to the fact that the prescriptions of the circular were not carried out clearly enough, on September 30, 1908, a new circular appeared, signed by Vice-Director S.E. Vissarionov, in which the governors and mayors were reminded: “From the correspondence carried out in the Police Department, it is seen that when filling teaching positions in parochial schools, the county branches of the diocesan council do not always enter into a preliminary relationship with the provincial authorities about the desirability, in the interests of the service, of appointing a particular person to teaching positions, which may lead to the penetration of politically unreliable persons into the environment of the pedagogical staff and deprive the provincial government of the opportunity to exercise the supervision entrusted to it by law over the course and direction of initial education in the province. In this connection, the School Council under the Holy Synod, entering into consideration of this issue on June 19 of this year. Decided: To oblige the local theological and school administrations, when determining candidates for teaching positions in parochial schools, to enter into relations with the provincial authorities to ascertain their moral qualities and political reliability, with the exception of persons who have received education in theological academies and seminaries, diocesan women's schools, women's schools of the spiritual department and church teachers' and second-class schools, if no more than a year has passed since they completed the course, the church and school management communicates about these persons only with the authorities of the mentioned institutions.

For the rapid collection of information about a particular person, from January 1, 1907, an auxiliary "Registration Department" with a Central Information Office was organized within the Department. This was a significant step towards streamlining the documentary base of the Department. A single reference apparatus is being created, a single alphabetical and subject-thematic card index for the entire Department. All file cabinets that were previously maintained for individual office work and individual officials were transferred to the CSA. As indicated in one of the reports, by January 1, 1907, the newly created structure received 19 separate name card files, which amounted to 1400 alphabet boxes, in which there were 1.5 million name cards.

To work on the unification of card files, "young ladies" were invited, who reduced data about the same person or event to one card, rewrote the cards and updated the card files. Within three months, work was carried out to improve the card index, the number of cards was almost halved, now there were 800,000 of them. Thanks to this, the work on card indexes was greatly facilitated (at first for the employees of the DP, later for archivists and historians).

Officials of the Police Department themselves wrote about the CSA that its creation “has brought great benefits in terms of the sense and productivity of the work of the entire Department. Inquiries began to be made quickly and accurately, and most importantly in one place, whereas earlier, in order to obtain a complete information about a particular person, it was necessary to bypass all private alphabets. In 3-4 minutes it was possible to establish whether there were materials on a particular person, whether he had previously been involved in political cases, trials, arrested, tried or simply observed, administratively referred. The replenishment of the card index went quite quickly. Every year, the department received up to 150 thousand cards, though not all of them were included in the card file. Since some people already had information. In this case, the name card was supplemented with new ciphers.

The name file of the Police Department contained approximately 2.5 million cards for 2 million people 36. It was compiled for all the names mentioned in the files of the Police Department for the entire period of its existence, for all party nicknames that were known to the Police Department (except for nicknames secret agents). They were kept in the Special Section of the Department by another, "top secret" file cabinet.

The registration department existed until March 1910, when the secretarial part of the Department was organized. The registration department was renamed the Central Reference Alphabet and merged into the secretarial part37.

In the February days of 1917, employees of the Department, knowing what value he was, being the key to the materials of the Police Department, tried to disable him. However, only a small part of the reference alphabet cards was destroyed, mainly these were surnames starting with the letter "A". Currently, it is part of the scientific and reference apparatus of the State Archives of the Russian Federation.

In 1907, based on the need to improve the work of the Police Department and in connection with the preparation of the police reform, the Ministry of the Interior sent the director of the Police Department, M.I. Trusevich abroad.

The purpose of the trip is to get acquainted with the organization of the police service in England, Germany, France, in order to take into account foreign experience to modernize the police service in Russia, to make the central apparatus more flexible and efficient.

Trusevich is interested in organizing the local police service and training personnel. The main materials received as a result of the business trip are sent to the Commission of Senator Makarov 38.

At the beginning of 1908, Trusevich petitioned the Minister of the Interior for the creation of two more structural units in the Police Department: the Inspectorate Department and the Criminal Investigative Unit Z8.

The creation of the Inspection Department was due to the fact that after the suppression of the revolution, the work on the ground of the political investigation bodies, from the point of view of the Police Department, noticeably weakened. The audits of local GZhU and security departments carried out under the leadership of the Special Department showed that both of them often do not pay any attention to the orders, instructions, circulars that the Department issues to them. Therefore, the task is set: to combat the violations that were committed by local authorities, to put their activities on a higher level.

On March 12, 1908, an order was issued to create Inspector Department 40. The main task of the department, as indicated in the order, is “surveying ... institutions and individual ranks”, as well as enforcement proceedings on such audits, drawing up reports to the director for removal from services of certain categories of officials, the imposition of disciplinary sanctions, the execution of orders from the minister.

The inspection department was supposed to work under the direction of the director of the department, the management of this department was entrusted to the senior vice director. Audits were appointed by order of the director, some department officials were included in the audit groups. On special orders of the Minister of the Interior, a member of the “Council of Ministers” (meaning the Minister of the Interior) was sometimes placed at the head of the persons sent for audit. This department has existed for 4 years. In 1912 it was liquidated. The initiative to liquidate it came from the Acting Vice-Director of the Department, P.A. Kharitonov, who in December 1911 submitted a note in which he noted: information received by the Police Department about the unsatisfactory composition of the police in a particular locality. The activity of the Inspection Department was sometimes completely stopped. For some time he was engaged in issuing benefits to police officers or increasing salaries, but with the transfer of these functions in November 1911 to the 1st office, he "virtually almost completely ceased to function"41.

As for the Criminal Investigative Unit, its creation was due to the fact that after the revolution of 1905-1907. the number of criminal offenses has risen sharply. However, the category of "criminals" often included persons who took part in the pogrom of landowners' estates, in the felling of the master's forest.

Dealing with issues of political investigation, local and central authorities were constantly faced with the need to centralize and reorganize the national investigation 42. The director of the Police Department, Trusevich, repeatedly spoke with Stolypin on this issue, noting that in Russia there was no “proper order” in the fight against criminal crime. As a result, in December 1907, for internal needs, a note signed by Stolypin, sealed by Trusevich, "On the organization of the detective unit" was published. It pointed out that only in the capitals and several of the largest centers of Russia were detective departments “specially ... equipped for solving crimes”, “the rest of Russia with a number of large and very lively points and with all small towns and out-of-town settlements completely is deprived of any security in the fight against criminally punishable speeches, ”that it is for these crimes that there is the highest percentage of unsolved crimes. Therefore, the government recognizes the need to start streamlining the issue of criminal offenses, proposing to expand the network of detective departments and increase the funds allocated for this work43.

A new structure was called upon to manage the activities of the established institutions. She, like the Inspection Department, was created by order of the Director on March 12, 1908 and became listed as the 8th office of the Department44. In addition to managing detective activities in the field, the duties of the new record keeping also included: communication with foreign police on general criminal issues; drawing up instructions, rules for the detective part, managing the school of instructors, photographing the Police Department45. Subsequently, with this office work, a criminalistics museum was created.

With the filing of the Police Department, such museums began to be created in a number of detective departments. Particularly interesting were the exhibits of the museums of the Moscow detective police, Warsaw, Samara, Riga detective departments. They were highly appreciated at the International Exhibition in Dresden in December 190946

The Museum of the Police Department has become, as it were, visual, classroom for training courses for specialists at the Headquarters of the Gendarme Corps. Head of the 8th office work

IN AND. Lebedev was one of the organizers of this museum. At the same time, he taught at the preparatory courses organized by the Police Department for new heads of detective departments47.

A few months after the creation of the 8th office, namely on July 6, 1908, the Law “On the organization of the detective unit”47a was issued. According to this law, in large cities, as part of the provincial police departments, detective departments of four categories began to be created to conduct a "search for general criminal cases." A total of 89 detective departments were formed.

Many police officials believed that such a number of detective departments for Russia is clearly not enough. This problem was discussed in the State Duma and on the pages of the journal Police Bulletin48. However, referring to the lack of funds, the government was extremely reluctant to create new detective departments.

Local governors very sharply raised the question of both the creation of detective departments and their financing. Correspondence on this subject has been preserved. The governors of the Privislinsky region were especially active in this regard. Where detective departments were established in Poland, they raised questions about the hiring of premises and their financing. In such cases, the answer of the Department was unequivocal: it was necessary to be guided by paragraph 7 of Art. 138 of the City Regulations, which stated that the cost of hiring or allocating premises for detective departments ... “should be attributed, as in other provinces of the Empire, to the funds of the proper cities”49.

In May 1910, in the Commission for judicial reforms The State Duma considered the issue "On the organization of the detective unit in the regions: Syr-Darya, Samarkand, Ferghana, Semirechensk and Transcaspian". The corresponding report was submitted by the Ministry of War, since the Turkestan Territory was governed by a special position and was administratively subordinate to the Minister of War. The report stated that it was impossible to further postpone the organization of detective departments in the Turkestan Territory ... “With the construction of two railway lines,” the report noted, “a large influx of people from the internal provinces of Russia and from the Caucasus is noticed, pursuing the goals of easy money at the expense of local inhabitants , little protected from malicious encroachments on them due to the extreme small number of police. At the same time, such an element influences the local native population in a particularly corrupting way, which, seeing in many cases the impunity of crimes, forms a false idea of ​​the weakness of the Russian government and easily begins to follow the example of vicious newcomers. The report had an effect and soon the detective departments were created.

From January 3, 1915, the 8th clerical work began to be engaged not only in monitoring the activities of the detective departments, but also participated in their organization. Unfortunately, the material of this structure is very poorly preserved. The bulk of the documents were destroyed in February 1917 when they tried to set fire to the Police Department. At the same time, the exhibits of the museum were practically lost. However, part of the reports of the governors, heads of the State Department of Internal Affairs, security and detective departments about criminal offenses in the provinces, the materials of the sensational case of Savitsky’s “gang”, about the “puppeteers”, the activities of some detective departments, as well as the theft in the Assumption Cathedral, have been preserved. Materials about church thefts, depending on the value and significance of the stolen things, are also available in other structures of the Police Department. In 1904, the Special Section of the Department started two volumes of correspondence about the terrible event that took place in Kazan, when a Russian shrine was stolen from the Convent - the Image of the miraculous icon of the Kazan Mother of God, which has not been found so far.

After the reorganizations of 1906-1908, carried out under the leadership of Trusevich, until March 1910, there were no major structural changes in the Department.

In early April 1909, Trusevich left his post as director. For many, his decision was unexpected. He receives the rank of Privy Councilor and appointment to the governing Senate. Trusevich, at the age of 46, full of strength, hoped for a speedy promotion and the promised position of Deputy Minister of the Interior, head of the police. Colonel A.P. Martynov, the last head of the Moscow Security Department, who had much contact with Trusevich during his work in St. Petersburg, considered the latter's departure from the Department a great loss. In his memoirs, he gives a rather interesting description of both the external and business qualities of Trusevich. “Above average height, thin, exceptionally elegant brown-haired man with fine features, a slightly short thin nose, bristly mustache, intelligent, piercing and somewhat mocking eyes and a large open forehead,” Martynov wrote, “Trusevich was a type of European secular person. He was lively, even impulsive in his movements, without typical Russian mannerisms. Even his numerous enemies never denied him sharpness of thinking, knowledge of the matter and ability to work. Reporting to him the cases, the most intricate and complex, was just a pleasure - he understood everything perfectly. Trusevich could not present the essence of the matter with blurring of details, with preparation and explanation, as it often had to be done with less capable administrators. He grasped the essence of the matter at once and gave clear instructions. By his nature, he was a wonderful master of search, a racing psychologist, who easily understood people. Political career it ended with the clarification of the role of Azef and changes in the Ministry ... With his departure, the government lost an exceptional person "in his place." I am absolutely sure that neither before him, nor, even more so, after him, the Russian government had such a rector of the Police Department.

Trusevich's departure was largely connected not with the Azef case, but with changes in the Ministry of Internal Affairs. When in March 1909 P.G. Kurlov, Vice-Director of the Department and Trusevich's subordinate, the latter who had plans for this position, felt insulted and resigned. As for Trusevich's business qualities and his knowledge of the search business, Marionov is absolutely right here. Perhaps only S.P. Beletsky could be compared with him in terms of knowledge of search work among future directors.

In March 1910, already under the new director N.P. Zuev, a “Special Directorate” is formed - a “secretary part”. The secretarial part" was transferred to the direct supervision of the secretary under the director of the Department, who was concealed the rights and duties of the vice director.

The secretarial part focuses on cases relating to the personnel of the Department54 - appointment, promotion, rewarding employees, dismissal, maintaining candidate lists - that is, personnel issues that were previously under the jurisdiction of 1 office work. Director of the Department N.P. Zuev, not being an expert in the field of political investigation, focused on streamlining personnel and economic issues, he sought to keep the most secret cases concerning personnel and correspondence under his direct control so that they would not go to a wider circle of performers. The secretarial part concentrates correspondence on the destruction of old ciphers, the introduction of new ones, the analysis of all encrypted telegrams incoming to the Department, the encryption of outgoing dispatches throughout the Department (excluding the Special Department); personal correspondence of the director of the Department, the production of cases and correspondence that are of a “special nature”, although they fall within the competence of other office work, the management of the general journal part. The management of the secretarial part was entrusted to the State Councilor M.N. Verigin55.

In February 1912, S.P. Beletsky, the former vice-governor of Samara, then the vice-director of the Department, became the director of the Police Department. As a specialist in the field of political investigation, he pays more attention to this, the main direction of work. At the same time, he seeks to streamline the structure of the Department, to eliminate parallelism in the activities of office work. He asks the employees of the Department to give their proposals on the distribution of responsibilities among the structures. As a result, the 1st paperwork concentrates the notes of all departments of the Department on their work and "considerations" about the desirability of changing the competence of each.

By the time Beletsky was appointed, 5 years had passed since the last serious reorganization carried out by Trusevich. During these years, serious shortcomings in the existing structure were revealed. Some office work was overloaded with work, there were not enough people to quickly perform their duties. Some clerical work duplicated each other, performing similar duties, other clerical work conducted cases that did not have an internal connection with each other, some structures (like the "inspector") were inactive.

For July 5, 1912, the "general presence of the Police Department" was appointed with consideration of the following issues:

1) Distribution of subjects of the department, reorganization of the 4th and 6th office work.

2) Establishing the procedure for the activities of the Inspection Department.

3) Drafting general list police department circulars.

4) Reduction and simplification of stationery production.

5) Drawing up instructions for the registrars of the Department.

6) Providing reporting on the movement of cases on office work.

As a result of the decisions taken by the meeting, all cases related to administrative expulsion were consolidated in the 5th office, some of which were in the 6th office. This association was motivated, in particular, by the alleged calm that had come in the country. It is noteworthy, however, that at the same time, in the correspondence of the Special Department, the situation in the country was compared with that which developed in 1905.

The 6th office is reorganized into the Central Information Body of the Police Department, where all correspondence is concentrated on making inquiries about the political reliability of the population in the places where the emperor and officials are located. At the same time, the Inspection Department was liquidated.

In a year, Beletsky proposes to carry out a new, deeper reorganization, which was supposed to concern the 4th, 7th office work and the Special Department. He is worried about the somewhat independent behavior of the head of the Special Department, Colonel A.M. Eremin, who was on the rights of vice director. In Beletsky's proposals, there is a desire to belittle the role of the Special Department, and all the reorganization he conceived was to a certain extent aimed at achieving this goal. He proposed to rename the Special Department into the 9th clerical work. In his note to the Minister of the Interior, referring to this issue, he wrote that this proposal was made "in view of the unity of names and the elimination of any reason to give this part a special privileged position."

In another of his documents on this subject, it was said that “from the point of view of discipline, it is desirable that this part, like other separate parts, be called office work”58. At the same time, Beletsky strengthens the role of the 4th office, dealing with the social and labor movement. He intended to concentrate in this structure the “most subservient reports” of the governors, to oblige the chiefs of the security departments and the provincial gendarmerie departments to send all the information on the social movement that comes to them not to the Special Department, but to the 4th clerical work, to transfer the agents available for the public movement, but as well as top secret information on the social movement in the 4th office work, "gradually start" a library on the social movement, as well as cooperative and trade union movements, increase the composition of employees in the 4th office work by 4 people, in addition to the existing regional division, start a division " on the subjects of the department, to introduce specialization of employees in certain types of social movement.

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Ivanov Andrey Viktorovich Police Department of the Ministry of Internal Affairs of the Russian Empire, 1880-1917 : Dis. ... cand. legal Sciences: 12.00.01: Moscow, 2001 182 p. RSL OD, 61:02-12/354-2

Introduction

1. Establishment of the Police Department of the Ministry of the Interior Russian empire and organization of his apparatus 12

1. The evolution of police management from the formation of the Ministries to 1880 12

2. Structure and organizational legal regulation serving in the Police Department 26

3. Legal regulation of the activities of the Police Department 61

2. The place and functions of the police department in the management of the police system of pre-revolutionary Russia 79

1. Organization and general management of the activities of the general and political police 79

2. Rule-making activities of the Police Department 119

3. Financial and budgeting activities and control functions of the Police Department 135

Conclusion 167

List of used literature

Introduction to work

Relevance of the topic. The conditions of modern Russian

The reality generated by the development of market relations necessitates the creation of a state mechanism capable of ensuring the normal functioning of updated public institutions. An integral part of the state mechanism are law enforcement agencies, whose activities are aimed at combating negative phenomena in society, provided by state coercion. An important role among these bodies is played by the police, designed to protect public order and security in the state, contributing to the implementation of the current legislation by the population. Its strengthening and reforming requires taking into account many factors and conditions. One of them is an appeal to historical experience. Of great interest is the experience of the functioning of the police bodies of Russia in 1880 - 1917, and above all the experience of the Police Department, which headed the entire police system of the country.

The transition of Russia as a result of the peasant reform of 1861 from feudal to bourgeois forms of management required the democratization of society, but the autocracy prevented this. Under such conditions, "anti-government" activities intensified, acquiring a large scale and an organized, cohesive character. These circumstances determined the conduct of an active protective policy by the authorities, which was expressed primarily in the strengthening of police bodies, the search for new forms of their organization. Among the issues of improving the police system, an important place is occupied by the problem of reforming the highest bodies of police control, represented before 1880 by the Third Branch of His Own Imperial Majesty office and the Police Department of the Executive Ministry of Internal Affairs, which led, respectively, the political police and the general police. As a result of the transformations carried out, the entire police force - both general and political - receives a single leader in the person of the Minister of Internal Affairs, and the Police Department of the Ministry of Internal Affairs becomes the tool for managing it.

The period of functioning of the Police Department refers to the years 1880-1917. For almost 37 years, the Department has functioned as the main instrument of police administration. Studying the dynamics of changes in the structure of the Police Department and its staff, the legal status and regulation of activities, its functions in the management of the police, identifying among them the general leadership, organization of law-making, financial-estimating and control activities, will provide a holistic view of the role and place of the Department in the state mechanism , to deepen knowledge about the system of police bodies of pre-revolutionary Russia, the effectiveness of their functioning. At the present stage, the experience of leading the police in the complex, constantly changing conditions of Russian reality late XIX- the beginning of the XX century is not only cognitive, but also of practical interest.

The chronological scope of the study is limited to the period of existence of the Police Department: 1880 - 1917. At the same time, the dissertation traces the evolution of the system of central police authorities since the creation of the Ministry of Internal Affairs in 1802, analyzes their structure and competence, which makes it possible to more fully and comprehensively show the place and role of the Police Department, its activities as the highest level of the police mechanism of the Russian state.

The degree of development of the topic. Issues of organization and activities of the central police institutions of Russia in the period 1880 - 1917, including

including the Police Department, were touched upon in the works of many researchers.

Pre-revolutionary authors focus on the police apparatus as a whole and to a lesser extent concern the Police Department. At the same time, they characterize to a greater extent the forms and methods of combating the revolutionary movement, the problems of police reform. Among these authors, it should be noted A. A. Lopukhin, R. A. Arnold and V. D. Kaisarov, B. B. Glinsky, N. A. Gredeskul.

The initial period of activity of the Police Department was reflected in departmental publications for the 100th anniversary of the Ministry of Internal Affairs, but rather superficially.

In the Soviet historiography of the 1920s and 1930s, the activities of political investigation institutions subordinate to the Police Department, methods of fighting tsarism against the revolutionary movement, secret agents (works by A. Volkov, M. A. Oeorgin, V. K. Agafonov, S. G. Svatikov, V. B. Zhilinsky, S. B. Chlenov, F. Bulkin, R. K. Kantor, M. K. Lemke, L. P. Menshchikov, P. Shchegolev). The work of P. A. Shuisky “The Police Department” is devoted directly to the Department, where in a popular form a general idea of ​​\u200b\u200bthis institution is given, but questions of the structure and place in the system of police management bodies are not touched upon.

The 60s - 70s are characterized by the appearance of significant monographic studies concerning the system of police institutions in Russia, its individual links. The police apparatus is of interest to lawyers, who evaluate its functioning from the standpoint of historical and legal science. R. S. Mulukaev, A. V.

Khokhlov, D. I. Shindzhikashvili1. The characteristics of state institutions in Russia are considered in the work of N. P. Eroshkin.

The dissertations of A. N. Yarmysh, L. I. Tyutyunnik, Z. I. Peregudova, A. A. Mirolyubova, Yu. F. Ovchenko, S. V. Fedorov2, as well as articles and publications of these authors. Most extensively, the entire period of the functioning of the Police Department, its purpose as the head of the system of subordinate institutions of political investigation, the main activities, forms and methods of work, the structure and functions of these institutions are reflected in the monograph by 3. I. Peregudova “Political Investigation of Russia (1880 - 1917) ".3

Most of the works related to the Police Department are either of a general nature or are devoted to the problems of the organization and activities of the political police. The role of the Department in the management of general police bodies is practically not considered. To date, there is no special monographic study of a historical and legal nature, reflecting the issues of internal organization and legal regulation of the Department's activities, creating a holistic view of this state institution.

Object and subject of dissertation research

The object of the dissertation research is the organizational and legal mechanism of the functioning of the Police Department.

The subject of the study is the internal organization of the Police Department and its legal support, as well as the mechanism for managing the police system.

Purpose and objectives of the study. This study aims to determine the role and place of the Police Department in the management system of the general and political police in Russia in 1880 - 1917.

Research objectives:

1. Identify trends in the evolution of the central police administration since the establishment of the Ministry of the Interior, the reasons for their reorganization in 1880 and the creation of the Police Department.

2. Track changes in the structure and staffing of the Department in the course of its activities.

3. To study the regulatory framework that defines the basis for the functioning of the Police Department as a state institution, its legal status and regulation of the activities of officials.

4. To reveal the mechanism for managing the general and political police at the central and local levels, to identify the functions of the Police Department in managing the Russian police system.

5. Reflect the activities of the Police Department in the process of preparing and adopting regulations, both departmental and national.

6. Consider sources and methods of financing the Police Department and its subordinate institutions.

7. Determine the role and place of the Police Department among the bodies controlling the police.

The methodological basis of the study is the dialectical-materialistic method, as well as private scientific methods of concrete historical, formal logical, comparative legal and systemic analysis of legal and social phenomena. The basis for the study is the principle of historicism, on the basis of which all events are covered in their sequence, in accordance with the real historical situation.

The source base of the study is the funds of the Police Department. Headquarters of the Separate Corps of Gendarmes, personal funds stored in the State Archives Russian Federation, Complete Collection of Laws of the Russian Empire, Code of Laws of the Russian Empire, editions of 1892 and 1906.

In addition to official documents, the works of domestic scientists, monographs, dissertations, magazine and newspaper articles, as affecting general issues internal policy of Russia in 1880-1917, and reflecting the specifics of the organization and activities of the police apparatus.

Scientific novelty of the dissertation

The scientific novelty of the study lies in the fact that for the first time, from the standpoint of historical and legal science, the history of the Police Department as a management institution is studied, given comparative analysis its functions in the management of the general and political police, the legal foundations of its organization and activities are determined. The dissertation characterizes the factors that necessitated the centralization of the management of the Russian police system, the creation of a single organizational center to manage it; it is shown that the purpose of the creation of the Police Department was to increase the efficiency of the functioning of the police, especially the political one. The dissertation provides an analysis of the legal framework for the activities of the Police Department, characterizes its rule-making activities. The study examines the sources and ways of financing the Police Department and its subordinate institutions. A number of archival materials used in the dissertation are introduced into scientific circulation for the first time.

The following provisions are put forward for defense:

1. The formation of the Police Department was a form of organizational implementation of the objectively determined need for the centralization of the Russian police system in order to increase the efficiency of its functioning in the new socio-economic and political conditions of the second half of XIX- the beginning of the XX century.

2. The Police Department, which united the management of the entire police system of the state, was the leading subdivision of the Ministry of the Interior, which determined the high share of this Ministry in the state mechanism of the Russian Empire.

3, During the functioning of the Police Department, its internal structure has been specialized in accordance with the main activities of the general and political police. The creation of the Special Section, which became the core of the organizational structure and the main link of the Department, was of fundamental importance. Changes in the structure of the Police Department were associated with the management of the political police, which was determined by the constantly aggravated social situation and the growing need to fight the political opponents of the autocracy.

4. Increased attention to the bodies of the political police relegated to the background the problems of the general police, which during the existence of the Police Department has not undergone qualitative changes. The projected reform of the police, the main goal of which was considered to be the unification at the local level of the general and political police, was not carried out. This led to the fact that the organizational forms of the general police and the low overall professional level her staff made her work ineffective.

The validity and reliability of the results of the study is achieved by the widespread use of documents from the State Archives of the Russian Federation, legislative acts of the Russian Empire XIX- the beginning of the 20th century, educational and scientific literature, reflecting the issues of the functioning of the police system in the mechanism of the Russian state.

Theoretical and practical significance of the dissertation

The theoretical significance of the study lies in the fact that it fills a gap in the study of the history of the domestic state and law, organization and activities of law enforcement agencies.

The practical significance of the work lies in the possibility of using the experience accumulated by the Police Department in managing the police system, taking it into account when searching for ways to develop the system of internal affairs bodies in Russia, improving the legal regulation of their activities and the mechanism of functioning.

Approbation of the research results. The main conclusions and proposals of the dissertation research are reflected in published works. The research materials are used in teaching the courses "History of State and Law", "History of Internal Affairs" at the Oryol Law Institute of the Ministry of Internal Affairs of Russia.

The results of the study were discussed at the Department of State and Legal Disciplines of the Academy of Management of the Ministry of Internal Affairs of Russia, certain provisions were presented at the All-Russian Scientific and Practical Conference "Problems of the activities of law enforcement agencies and the state fire service", held at the East Siberian Institute of the Ministry of Internal Affairs of Russia on April 26 - 27, 2001.

The evolution of police administration from the formation of the Ministries to 1880

80s XIX years century entered Russian history as a period of post-reforms, when the transformations carried out in the 60s and 70s, which affected all aspects of public life, revealed shortcomings that manifested themselves, in particular, in the organization of the central police agencies. The socio-economic and socio-political conditions of that time forced the ruling circles to focus on the police apparatus of the state - the backbone of power in the implementation of the necessary domestic policy. The result of the reorganization was the unification of the general and political police under the jurisdiction of the Ministry of Internal Affairs, the leadership of which was concentrated in a new structural unit of the Ministry - the Police Department.

The creation of the Police Department occupies a special place among the stages of improving the police system. This body, with a periodic deepening of the main directions of activity, as well as an enlargement of the structure based on the multiplication of tasks, existed until March 1917, i.e. until "--the moment of the change of state power, when many aspects of the Department's activities not only lost their relevance, but also turned out to be contrary to the policies of the new state.

The stage, covering the activities of the Police Department, is decisive and the last in the evolution of the Russian police, but the significance of the previous ones should not be underestimated. For a deeper understanding and comprehensive study of the organizational and legal foundations of the work of the police, namely, its higher echelons, there is a need to trace the development of the central police apparatus from the moment it was formed as an integral part of the state mechanism in the form of a separate unit of the Ministry of Internal Affairs.

The starting point in the process of formation and development of the system of state institutions, which existed with minor changes until 1905, was the implementation of a package of reforms early XIX century, associated with the name of Alexander I. The decision taken by the ruling circles to improve the system government controlled was embodied in the tsar’s manifesto of September 8, 1802 “On the Establishment of Ministries”1, according to which, with the elimination of the outdated system of colleges, the main governing state functions were transferred to eight ministries: the military, the navy, foreign affairs, justice, internal affairs, finance, commerce, public education. As for the police, its management, in addition to the management of many other internal affairs, was entrusted to the Minister of the Interior, whose main task was declared "to take care of the widespread well-being of the people, peace, quiet and improvement of the entire Empire." The governors, who, among others, exercised the function of directing the local police, now had to, in all matters relating to the provincial government, “refer to this Our Minister, ... to deliver reports to Us through him, both ordinary and emergency incidents” "" With the further development of the Ministry of Internal Affairs, its purpose as a central governing body, in particular, the police of the regions, is being strengthened.The directives emanating from the Ministry are aimed at strengthening control over the provincial authorities.So, since 1805, governors are required to submit annual reports on their work to the Ministry of Internal Affairs. Police activities were given a special section in the report.Reports from the field were used in the preparation of the annual report of the Minister of the Interior, which included a paragraph on the organization and activities of the police in the Empire.

The importance of the Ministry of Internal Affairs in state administration was also determined by the fact that its activities were not limited only to the leadership of the police - it performed functions in various branches of administration, economy and economy. “The multi-sectoral nature of the Ministry of Internal Affairs allows us to say that its activities covered internal affairs in the broadest sense of the word, ensured the strength and stability of the entire internal structure of the Russian state” "".

The main department of the Ministry, with the largest functional load, was the Department of the Interior, the states of which were approved on January 7, 1803. According to the spheres of activity, the Department was divided into 3 expeditions: state economy; state medical board; tranquility and goodness. In the latter, the management of the country's police department was concentrated.

Initially, the subjects of the expedition of tranquility and deanery, which received the name of the 2nd expedition, were divided between two departments, of which the first was in charge of the city, the second - the rural police. The formation of the Ministries did not affect the organization of the local police, so the structure of the 2nd Expedition of the Department of the Interior was initially focused on the territorial principle. The situation was changed by the Supremely approved report of the Minister of the Interior “On the organization of the 2nd expedition of the Department of the Interior”, published on April 20, 1806,1 according to which the principle of “functional management of police bodies” was introduced. The activities of the 1st department indicated the collection of information about all incidents in the empire, i.e., accounting and statistics, control over the holding of mass spectacles, permission for public meetings, censorship functions, and the organization of staffing for the staff of police agencies. "The centralization of personnel management in the Department of the Interior was one of the conditions for the relative independence and autonomy of the police authorities from the leadership of the local administration." The 2nd branch was responsible for resolving complaints "in violation of rights in various states appropriated", measures to restore order , "accepted on the basis of reports and complaints, in violation of the rights of power and obedience."

Structure and organizational and legal regulation of service in the Police Department

The Imperial Decree of November 15, 1880 “On the Merging of the Departments of the State Police and the Executive Police into One Institution - the Department of the State Police” set the general direction of the Department’s activities, limiting its competence exclusively to the sphere of protecting “public peace”, “establishing good order and suppressing crimes”1 . The assignment to the Department of the highest leadership of the entire police of the Empire required the concentration in it of the threads of general and political police management, the organization of the main directions of their activities, as well as the improvement of police work, focusing on changes in the socio-political and socio-economic situation in the country. The effectiveness of the management mechanism largely depended on the structure of the institution, capable of ensuring the fulfillment of the main tasks set by the government. The formation of the structure of the Police Department proceeded in stages, in accordance with the main goals designed to turn the Police Department into a powerful power unit of the Ministry of Internal Affairs, responsible for the police. These goals were:

1) in creating a convenient and reliable mechanism for the implementation of the main management functions by the Police Department;

2) in the specialization of the structural units of the Police Department in accordance with the main areas of activity of the general and political police;

3) in optimizing the composition and competence of the auxiliary part of the Police Department, ensuring the normal functioning of office work and proper working conditions for the officials of the Department.

Thus, in the process of forming the structure of the Police Department, three directions should be distinguished, corresponding to the above goals, which were carried out in parallel, having different intensity at different stages of the functioning of the Police Department.

One of the first requirements that the structure of the created institution had to satisfy was to ensure that it performs the main management functions of the Department, which should be highlighted:

1) Organizational and managerial, which included the general management of police activities on the scale of the main areas of this activity, the organization of its local bodies, as well as the organization of personnel management;

2) Law-making, which consisted in the preparatory development of various kinds of draft regulations, instructions and rules on the police or related to certain issues of its activities;

3) Financial security, which included the distribution of financial resources released in the form of loans to police and gendarmerie bodies, the preparation of cost estimates for the Police Department, the provision of police with weapons, uniforms, etc.

4) Control and supervision, the implementation of which consisted in inspecting gendarmerie and police institutions in the form of their audits both in individual and in all areas of activity, supervision over the legality of police actions.

Characteristically, in the process of forming the structure of the Police Department, the sign of division into basic management functions was not decisive. This was due to the fact that the competence of the Department included the management of two police at once - general and political, which had previously been concentrated in various institutions - the Executive Police Department and the Third Branch of His Imperial Majesty's Own Chancellery, which had their own structure and competence. The historically established division of the police into general and political predetermined the approval on December 1, 1880 of the first "distribution of occupations", in accordance with which three records management were formed as part of the State Police Department. The competence of the 1st office included most of the issues of an organizational nature, the 2nd was in charge of the general, the 3rd - the political police. It should be noted that simultaneously with the State Police Department, on the basis of the abolished legal advisory units under the chief of gendarmes, the Judicial Department was created, which became part of the structure of the Ministry of Internal Affairs. His competence included the analysis and preparation for further proceedings on state crimes, which was previously carried out in the Supreme Administrative Commission and in the legal advisory part of the Ministry of Internal Affairs. This had a positive effect on establishing control of the Ministry of Internal Affairs over state crimes, however, due to the lack of distribution of functions between the State Police Department and the Judicial Department, in a number of areas of activity, in particular, conducting inquiries on state crimes, these departments of the Ministry of Internal Affairs duplicated each other. For this reason, and also in order to achieve unity in the direction and resolution of cases of state crimes, on July 11, 1881, the Judicial Department with all its functions was transferred to the State Police Department.

This merger required the introduction of a new "division of occupations", which was approved on September 3, 18811 and clarified the functions of both the clerks of the Police Department and the structural units (also called clerks) of the Judicial Division.

The 2nd clerical work of the Department was named "for general police affairs." He was in charge of the organization and activities of the general police, as well as cases withdrawn from the 1st office work on the factory issue, supervision of the press in relation to articles relating to the activities of the Police Department.

The competence of the 3rd office work ("secret") was defined back in 1880, so the new schedule practically did not affect it. This paperwork was in charge of political search, internal and foreign agents, and the protection of the king. Here the information delivered by the provincial civil and gendarmerie authorities about all events in the province that had a political connotation, about the establishment of surveillance, search, and protection was concentrated.

Organization and general management of the activities of the general and political police

The transformation of the police apparatus, which resulted in the creation in 1880 of the Police Department in the system of the Ministry of Internal Affairs, clearly reflected internal politics tsarist government, aimed at strengthening protective tendencies in the sphere of public administration. The inclusion in the structure of the Ministry of Internal Affairs of a body in charge of the entire police force in the Empire strengthened its position as the main Ministry, the assignment of tasks to which directly indicated the preservation and maintenance of the existing system.

The responsibility of the Police Department was assigned the general management of the activities of the general and political police. At the time of its formation, the Department was directly subordinated as political police bodies to the provincial gendarme departments (TJU) formed in 1867 and the Department for the Protection of Public Security and Order in the city of St. Petersburg, established in 1866. During the functioning of the Police Department, the number of political search bodies was replenished by the Departments for the Protection of Public Security and Order in the cities of Moscow and Warsaw, established respectively in 1881 and 1900, new provincial, as well as regional and county gendarme departments, since 1902 - search departments (later renamed security) departments and search points in a number of cities, district security departments, the time frame of whose activities relate to 1906-1914. Among the institutions of this profile, subordinate to the Police Department, it should also be noted that from the moment of formation in 1861 the functions of the general police were the gendarmerie police departments of the railways, which since 1906 were entrusted with the production of inquiries on state crimes and the obligation to have their own secret agents1.

The general police bodies, which were under the leadership of the Police Department, were represented by the city, county and district police departments, as well as the gendarmerie police departments of the railways.

The leading activities of the Police Department in the framework of the implementation of organizational and managerial functions in relation to police and gendarme bodies included the following issues: - determining the competence of the Police Department in relation to subordinate institutions; - organization of local police and gendarmes in accordance with the range of tasks dictated by the dynamics of changes in the socio-economic and socio-political conditions in the country; - delimitation of the powers of the general and political police, the organization of their effective interaction and the establishment of normal relations between them. It should be noted that initially the top management of the political police, and in relation to the gendarmerie police departments of the railways - the general police, the Police Department shared with the Headquarters of the Separate Corps of Gendarmes. The delimitation of the powers of the Department and the Headquarters consisted in the fact that the so-called "observation unit", i.e. the regulation of the search activities of the gendarmerie departments, was within the competence of the Police Department, and their organization in combat, economic, inspection and military-judicial parts belonged to the Headquarters corps. Along with this, having a single leadership in the person of the Minister of the Interior, who was the chief of the gendarmes. The Police Department and the Headquarters of the Separate Corps of Gendarmes belonged to different departments: the Department - to the Ministry of Internal Affairs, the Headquarters - to the Military Ministry, to which it was accountable in combat and according to the estimate of which the main funding of the gendarmes was carried out. Such a position in the system of Ministries, as well as the delimitation of the administrative functions of these institutions, on the one hand, was the cause of contradictions in the organization of the leadership of the gendarmes, on the other hand, a conscious policy of the government, which considered the military-police organization of the gendarmes the most acceptable in the context of the strengthening of the revolutionary movement, strengthening them prestige both at the top and among the population.

The Police Department began its transformation of the political police in an attempt to create single system political search with a vertical system of subordination. This was due to the fact that the activities of the capital's security departments (Petersburg and Moscow) in the early 80s of the XIX century did not satisfy the Ministry of Internal Affairs. The staff and instructions to the head of the Secret Department of the St. Petersburg City Administration, approved by M.T. Loris-Melikov on April 16, 1880, and the Moscow Department on November 7, 1881, limited the competence and territorial limits of these departments to the capital cities, as a result of which they could not cover the search for the entire country1. The provincial gendarme departments, which carry out surveillance and search functions on the ground, although they came under the jurisdiction of the Police Department, have not yet received a clear regulation of relations with the new leadership. To these problems was added the need to expand agents in the field, which required the creation of a network of relevant coordinating bodies. The police leaders saw the completion of the reform of 1880 in concentrating the leadership of the search and monitoring bodies, in especially important cases, with one person, who was supposed to become a link between the Police Department and local political police.

Rule-making activities of the Police Department

Being subordinate to the general and political police, the Police Department carried out normative regulation of the functioning of its bodies, while performing a rule-making function. It consisted in the development and participation in the development of normative acts regulating the organization and activities of the police and other issues within the competence of the Police Department.

In the rule-making activity of the Police Department as an institution that is part of the system of the Ministry of Internal Affairs, two sides should be distinguished - internal and external. Internal was connected with the preparation of departmental regulations adopted by the Ministry of Internal Affairs, as well as directly by the Police Department. The external side was the development and participation in the development of draft regulations that required discussion by higher state bodies ( State Council, State Duma (since 1905). Council of Ministers) and the subsequent approval of the emperor.

Regulations, instructions, rules, orders, orders and circulars acted as normative acts of the Ministry of Internal Affairs, including the Police Department. The regulations regulated the activities of specific subsystems of police bodies, determined the procedure for the formation, powers and procedures for the actions of bodies and institutions, their structural divisions. Thus, the local bodies of the political police - security departments and ROOs, acted on the basis of the “Regulations on district security departments” approved on December 14, 1906 and the “Regulations on security departments” approved on February 9, 19071. The activities of the Special Section as a structural subdivision of the Police Department were regulated by the “Regulations on the Special Section of the Police Department of the Ministry of Internal Affairs” approved on January 17, 19052. The position, as a rule, was approved by the Minister of the Interior.

The order contained norms on the procedure for the actions of specific bodies or their officials in a given situation. On February 20, 1916, the Director of the Police Department Klimovich, Acting Minister of the Interior, approved the “Instruction to the highest ranks of the Police Department sent to audit search institutions”, which indicated the goals of the audit carried out in the process of auditing the event, reflected the issues of documenting the results of the audit.

Instructions and rules regulated the main types (forms) of activities of bodies and their employees, the work of specific categories of employees. The instruction established: by whom, in what order and by what methods and methods this or that type of activity should be carried out (“Instruction for the flyers of the Flying Squad and the officers of the search and security departments” dated October 31, 1902, “Instructions for organizing the central alphabet under the Police Department of the Ministry of Internal Affairs” , approved by order of the Police Department of January 1, 1907). The rules determined the procedure for the implementation of a particular type of activity (for example, the "Rules for the transfer of cases to the archive of the Police Department for storage and destruction", approved by order of the Police Department of January 29, 1907).

The order, as a normative document, had broad functions and was issued, depending on the competence, by the director of the Police Department, the Deputy Minister, the head of the police and the Minister of the Interior. Orders could create, reorganize, liquidate structural units, bodies and institutions of the Ministry of Internal Affairs and the Police Department, determine their tasks and functions, establish legal regulation of certain areas of activity, service. Rules and instructions were put into effect by orders.

In addition to those normative documents Circulars were issued by the Ministry of the Interior and the Police Department. They were called "orders, relations and letters sent to a number of officials or institutions with the same text". Orders, relations and letters were forms of written communication between the Police Department and the Ministry of Internal Affairs (according to the Police Department) “with institutions and officials, both of this Ministry and other departments, and with private individuals”2.

The instructions were instructions from the Police Department or the Ministry of Internal Affairs (according to the Police Department) to subordinate bodies on issues of their organization and activities. Accordingly, the Ministry of Internal Affairs (for the Police Department) sent instructions to the provincial authorities and other persons and institutions of the Ministry of Internal Affairs, the Police Department - to police institutions and police officers. Relationships involved intercourse with officials of equal status. Letters were sent to equals and some higher officials.

The circulars were issued by various departments of the Police Department, depending on the functions of leadership and coordination of the activities of the police authorities assigned to them. The 1st office issued circulars of an instructive nature on the organization of the work of police and gendarmes, the 3rd office - on financial issues, issues of the issuance of benefits, pensions, appropriations for police institutions, the 4th office - management and information on monitoring the activities of revolutionary organizations, legal educational societies. of the State Duma (of all convocations), the 7th clerical work - on the procedure for conducting inquiries in political cases, the 8th clerical work - search. A huge number of circulars on various issues were issued by the Special Section, which was the largest relatively independent division of the Police Department.

There was a Police Department that managed the police in the state for 30 years, until the coup and the creation

Formation of a public body

It was formed on August 6, 1880 as a kind of successor to all the rights and dogmas of the Third Branch of His Imperial Majesty's Own Chancellery, which was also part of and fell under the provisions of the Department

The very first name of this body was the “State Police Department”, it included such departments as security, police, detective, all fire stations and address desks throughout the country were under control.

End of the Department

On March 23, 1917, the Department was dissolved in connection with the revolution and the change of power, and instead of it, the authorities ordered the creation of the so-called Directorate for the Security of Citizens and Public Police Affairs, so that at least a temporary police would exist during the coups. The slogan "For Faith, Tsar and Fatherland" was forgotten after that.

Rebirth of the Department in a new state body

A little later, almost six months later, this department became known as the main one, which gave it state rights and full legality, unlike the previous state department. The tasks of this Police Department included organizing the activities of the police on the ground, full control of what they do, as well as guarding the borders, prisoners of war, foreign ambassadors and guests of the highest echelon of power who arrived in the USSR.

List of divisions of the Department

At the end of 1917, the Department consisted of nine departments, called records management, as well as secret departments and offices. The structure of the Department was as follows:

• The 1st Department is the very first variation of the Department, which existed even under the Empire. She was engaged in all police affairs, as well as an extract for the appointment of awards, benefits, pensions. He regulated all cases that concerned counterfeit money, sorted out papers on the return of refugees to their homeland.
• The 2nd department dealt with national affairs during the Russian Empire. Making laws about social events, for example, how to behave, which performances to skip and which to ban. He created such slogans as “For the Faith, the Tsar and the Fatherland”, “God bless us”, etc. He was engaged in the creation of laws on the reception and import of vehicles into the territory of the empire.

• The 3rd department was engaged in the search for political criminals, as well as the fight against mass movements of parties, strikes and rallies. Managed the protection of the emperor himself and was completely secret. It became known about him only after all the affairs of this department were transferred to the so-called Special Department, which stored all the data on political parties and movements in Tsarist Russia.
• The 4th department - the police department monitored all mass work, and also completely controlled all peasant movements.
• The 5th department carried out special decisions of the Ministry of the Interior, for which it was called the executive department.
• The 6th department controlled the manufacture and storage of explosives (cartridges, explosives, as well as chemicals). The duties of the 6th department were introduced to monitor and control the entire gold industry and the oil industry, which began its development in the Russian Empire.

• The 7th department - "observant", compiled and maintained all archival records of inquiries, cases about revolutionary leaders of certain groups of people (parties, congresses). The responsibilities of the seventh department also included the maintenance and archiving of prison assignment correspondence (about all emergencies in prisons, about escapes, consideration of appeals and extensions of the term).
• The 8th department was the center for managing all detective agencies and criminal investigation agencies in the Russian Empire.
• The 9th Division dealt with all matters related to intelligence and counterintelligence, communications with allied powers, and discussions of plans for enemy states.
• The Encryption Section of the Police Department guaranteed complete secrecy and storage of the royal family's correspondence, deciphered enemy messages, and developed new ways of deciphering and encrypting letters.

Structural construction , activities

With the abolition of the Third Branch of His Imperial Majesty's own Chancellery and the Supreme Administrative Commission for the Preservation of State Order and Public Peace, the State Police Department was formed as part of the Ministry of the Interior. In essence, he inherited the tasks and functions of the Third Department, but did not take a single employee of the abolished department into his staff.

After the signing by the emperor of the decree of November 15, 1880 "On the merging of the State Police Department and the Executive Police into one institution - the State Police Department", the real creation of a new special service began. In accordance with the Decree, the structure of the department was built, the staffing table was calculated, and the amount of funding was determined.

In 1883, with the accession to the State Police Department of the judicial department of the Ministry of Internal Affairs, which was in charge of overseeing "political inquiries", the new body of political investigation received its final name - the Police Department.

The scope of duties of the Police Department was established by Article 362 "Establishments of the Ministry":

1. Prevention and suppression of crimes and protection of public safety and order.

2. Conducting cases of state crimes.

3. Organization and supervision of the activities of police institutions.

4. Protection of state borders and border communications.

5. Issuance of passports to Russian citizens, residence permits in Russia to foreigners, expulsion of foreigners from Russia, etc.

6. Supervision of the manufacture, storage and transportation of weapons and explosives.

7. Supervision of all types of cultural and educational activities and approval of the statutes of various societies, as well as the performance of a number of secondary duties.

These powers were subsequently detailed by departmental instructions and distributed among the structures of the state security body.

Initially, the structure of the State Police Department consisted of three office work:

The first (administrative) was in charge of general police affairs and police personnel.

The second (legislative) focused on the development of various police bills, instructions and circulars.

The third, the so-called secret office, dealt with issues of political investigation and led the internal and foreign agents of the Police Department, the protection of the emperor and his family, was in charge of monitoring revolutionary activities in Russia, its prevention and suppression.

Security branches

The most important links in the system of political investigation of the Russian Empire were the local bodies of the Police Department - security departments ("Okhranka").

In 1880, the Secret Investigation Department was created at the office of the Moscow Chief Police Chief and the Third Security Department was opened in Warsaw.

By the end of 1902, Minister of the Interior V.K. Pleve created search departments in eight more cities - Vilna, Yekaterinoslav, Kazan, Kiev, Odessa, Saratov, Tiflis and Kharkov. The following year, at the request of the heads of these bodies, they are renamed from search departments to security departments. The St. Petersburg Security Department became the central investigative body of the Russian Empire. Since December 1906, at the initiative of the famous jurist M.I. Trusevich, supported by P.A. Stolypin, district security departments are being created, covering several provinces. The main task of the district security departments was to unite the activities of all political investigation bodies available in a particular region. In other words, it was an attempt to bring the boundaries of the activities of the political investigation bodies into line with the boundaries of the activities of anti-government organizations.

Organization work security branches

Forces and means, as well as channels for obtaining operational information by security departments, according to internal instructions, were:

1. Gendarmerie non-commissioned officers, officials of the security department and in the search bodies bailiffs, police officers, police officers assigned to the security department, who, as officials, make clarifications and questions, but secretly, under a plausible pretext

2. Internal, top secret and permanent agents, the task of which is to investigate criminal revolutionary communities and to expose their members in order to bring them to court.

3. Surveillance agents, or snitches, who, while conducting surveillance, develop information from internal agents and verify it.

4. Random applicants, manufacturers, engineers, officials of the Ministry of the Interior, factory inspectors, etc.

5. Anonymous interrogations and popular rumor.

6. Material obtained during searches, leaflets distributed, revolutionary and opposition press, etc.

Each security department consisted of an office and departments: external (filer) surveillance and undercover, in charge of internal surveillance of underground organizations.

In accordance with the “Regulations on the District Security Department” of 1907, the employees of the offices of the security departments had to specialize in individual revolutionary organizations.

The security departments have the following registration documents:

1. Diaries of undercover information delivered by secret agents, separately for each organization, and to them a separate sheet alphabet of the persons mentioned in these diaries.

2. Surveillance diaries with relevant reports, separately for each organization.

3. Leaf alphabet of persons, information about whom is available in this department, as well as wanted persons in the prescribed form.

4. Sheet alphabet of houses passing under the supervision of agents or correspondence with extracts from house books on sheets of 3 colors.

5. Special outfits for each organization separately, with samples of all the proclamations of this faction.

Special cases for each organization separately (committee), where all papers are filed in chronological order that are important for highlighting the activities of this party and the measures taken against it.

The necessary operational information was received by the Police Department through many channels, but the main ones were considered to be perusal of letters, external surveillance and internal intelligence surveillance.

Filerskaya service

The main task of the fillers was visual control over the objects of interest of the secret police and the search for state criminals according to signs and signs of conduct. Filers were considered the vanguard of the Okhrana. The basis of the work of the filer, as well as other members of the Okhrana, was conspiracy.

The main task of the filler was to trace, remember and report to the “Okhranka” the features of the appearance, behavior, clothing and movement of the observed. Determine the routes of his movement, the addresses visited, how long he stayed, at what time he left, etc. It was instructed to remember, and if possible, find out the names, names, places of work and residence of the persons with whom the object of observation met. The most important thing was not to lose sight of what was being observed until another filer took it under observation. The detectives had to conduct surveillance imperceptibly both for the object of their interest and for the environment.

The fillers submitted a written report on their work in the form of daily reports and weekly summaries. The reports of the fillers were filed in a special notebook attached to the file on the organization or person.

internal undercover observation

And yet the elite of the Okhrana, its pride was not the fillers, but agents of internal surveillance, introduced into political organizations (provocateurs in the party environment). There was also an institute of informers who, unlike agents, were not members of anti-government organizations and therefore did not participate in illegal activities. As a rule, informants were recruited from among the janitors, lackeys, waiters and people of other professions, often located in crowded places due to their occupation. It was secret employees who were most valued, and the 1907 Instruction on the organization and conduct of internal surveillance in gendarmerie and search institutions emphasized: “It should always be borne in mind that one, even a weak secret agent, who is in the surveyed environment (“party employee”), will disproportionately give more material for the detection of a state crime than a society in which the head of the investigation can officially rotate. Therefore, no one and nothing can replace a secret collaborator who is in a revolutionary environment or another surveyed society.

For the sake of his own security, the agent presented the information he received in the form of depersonalized reports signed with a pseudonym. Thus, even if the document fell into the hands of an unauthorized person, it was impossible to establish either the name of the source of information, or his age, or his sex, or his profession.

The scheme of organization of the political search was determined by the situation in the country.

Perlustration correspondence

Perusal, or secret opening of postal items, was a fairly full-fledged source of obtaining information by the "okhrana".

The Charter of Criminal Procedure (Art. 368 and Art. 1035) allowed control of the correspondence of criminally prosecuted persons with the approval of the district court. However, the secret police were interested in the correspondence of an incomparably larger circle of people than individual criminals.

With the consent of the highest state authority, this “interest” was satisfied, although this violated the inviolability of private correspondence protected by law, moreover, by people called upon to monitor the implementation of laws.

Correspondence was processed in the so-called black offices, usually located in post office buildings. The selection of employees was made from among the most trusted officials with knowledge of foreign languages. Applicants signed a non-disclosure agreement about the nature of their work.

The selection of materials for study from the general flow of letters was made in accordance with the lists of persons of interest to the secret police. In addition, the interpreters selected documents at their own discretion, guided by their ability, developed in the course of many years of activity, to identify signs of the handwriting of representatives of certain political parties that were of interest to the special service. Accounting for information obtained in the process of perusal was carried out in the form of extracts from letters.

informational - analytical support operational activities of the security guard

A feature of the work of the Police Department was the combination of undercover work with the processing and filing of information. Moreover, each of these forms of work mutually activated the other: for the growth of the data bank, it is necessary to increase the number of agents, which led to the receipt and accounting of new information. When organizing this work, the leaders of the special services proceeded from the consideration that not all the operational information received by the “okhrana” could be immediately implemented. Separate facts should be accumulated, analyzed, others should serve as “reference material”, etc. Having received its archives by right of the successor of the Third Division, by 1914 the Okhrana had increased the number of recorded materials to a million cards.

Information regarding specific objects of interest of the Okhrana under surveillance was taken into account in the form of personal cards containing personal data (name, age, gender, address, fingerprints, photographs), as well as leaflets of outdoor observations. The latter were a diagram in which the object of observation was represented by a circle connected by lines with their connections, each of which corresponded to a special card. And the closer the connection was to the object of observation, the closer the symbol representing this connection on the diagram was to the circle denoting the object. The thicker the line connecting the object with its connection on the diagram, the more contacts they had according to the observation data.

This was a kind of revolution in the processing and analysis of data received by the secret police, as it created the opportunity to visually look at a particular organization, study the nature of the relationship in it, analyze the effectiveness of the actions of external surveillance and internal agents to decompose the organization, etc. However, in real life everything turned out to be more difficult. The schemes were oversaturated with secondary, and often completely unrelated to the object of study connections. It turned out to be very difficult to rank the links in proximity to the object.

After the liquidation in August 1880 of the III Branch of the SEIVK, a new structure was created on its basis - the State Police Department (from August 6, 1880 to February 18, 1883), then this structure was renamed the Police Department (from February 18, 1883 to March 10, 1917 .) Ministry of the Interior.

Along with ensuring the internal political stability of the Russian Empire, the director of the Police Department was also charged with the duty to ensure the protection of the tsar and other high-ranking officials. For this purpose, a Special Department was formed in the structure of the Third Office of the Police Department. In addition, in December 1883, a “Security agent” was created in the Police Department, which was operationally subordinate to the St. Petersburg mayor. The "Security Agents" included "guards" and "local" guards. Their main task was to ensure the safe passage of the emperor and heir to the capital. The "guards" were supposed to prevent possible assassination attempts by "personal observation in the area of ​​\u200b\u200bits post." "Local" agents, recruited from the district guards, had to keep an eye on all suspicious individuals in their area 312 .

Along with the reform of the political police, the structure of the Separate Corps of Gendarmes was also reorganized. As a result of the reorganizations carried out, a multi-level system is being created, the main task of which was to resist political terror. The first level included the provincial gendarme departments, they were engaged in surveillance, political investigation, inquiry and investigation in the territories under their control. The second level is the railway police departments, which served in the right of way of the railways, along which the routes of the imperial trains passed. The third level was associated with the organization of security departments in St. Petersburg (since 1866), in Moscow (since 1880) and Warsaw (since 1900), they were part of the city authorities and were exclusively engaged in political search.

These departments (the Separate Corps of Gendarmes and the Police Department) were led by the Minister of the Interior. Thus, in the 1880s. Three structures operated in parallel, working to ensure the security of the imperial family: A separate corps of gendarmes. The Police Department and units subordinate to the Chief Security Officer E.I.V. P.A. Cherevina.

After the death of Alexander III, crisis phenomena began to grow rapidly in the country, but Nicholas II refused in principle to follow the path of political modernization of the Russian Empire. This position led to a confrontation between society and power in the early 1900s, which manifested itself in a new surge of revolutionary terrorism.

Attempts by the Combat Organization of the Party of Socialist Revolutionaries on the highest dignitaries of the Russian Empire in 1901-1904. have shown that the system of protection that has developed in the previous decades needs a radical revision. This fully applied to the organization of the protection of the king. Although in the early 1900s Nicholas II has not yet become the main target of the Socialist-Revolutionary terrorists. During this period, the Socialist-Revolutionaries proceeded from the need to bring the “current combat work,” that is, terror, closer to the masses. Years later, one of the leaders of the Socialist-Revolutionary Party V.M. Chernov recalled that "in agreement with the Central Committee of the party, the head of the supreme power, the tsar himself, is being removed from terrorist strikes for the time being" 313 .

Since the early 1900s Terror has become the nightmare of the authorities. Even the top officials of the security structures admitted their powerlessness in the face of Socialist-Revolutionary terrorism. The head of the Police Department, General Leonid Alexandrovich Rataev, who oversaw E.F. Azef, admitted that “there has not yet been a case where the guards saved someone from death. In front of these guards, so to speak, under their very noses, at the very gates of the Police Department, the minister was rounded up and poisoned like a wild animal. General A.V. Gerasimov, who headed the St. Petersburg security department from 1905 to 1909, admitted that “there was nothing left but to say to high-ranking persons under the threat of terror:“ The terrorists are plotting against your life. They are unknown to us. We cannot do anything against them. We can only recommend one thing to you - if you value own life do not leave your dwellings”” 315 .

It should be noted that the Social Revolutionaries not only took into account the experience of their predecessors, the Narodnaya Volya, but also developed new, more effective and unexpected for the Police Department methods of fighting the autocracy. Thus, the main organizational

Socialist-Revolutionary Party structures were located in provincial cities, where political investigation systems had not yet been created. Those who headed the intelligence services of the empire began to realize that the usual methods of combating terror were outdated and that new methods and approaches had to be developed to combat this evil. Therefore, in the early 1900s. in the bowels of the imperial secret services, preparations began for their reform.

S.V. Toothed

Comrade of the Minister of Internal Affairs P.N. Durnovo, who served in the Police Department in 1881-1884, began to carry out fundamental changes in the structure of the Okhrana.

From the autumn of 1902, search points were established in the main provincial cities, later renamed the Security Departments. They were engaged exclusively in conducting a political search. The work of the Security Departments was based on the activities of agents, surveillance and perusal of private correspondence. To these methods one can add the extraction of testimony from the arrested revolutionaries. The episodic espionage practiced before in the revolutionary environment was introduced into the system, and it was called the "institute of employees." The Police Department reorganized the Special Department, which was supposed to coordinate all political investigative work within the borders of the empire. Colonel S.V. headed the Special Section of the Police Department. Zubatov, the best practitioner and innovator of the search business of that time. The system, based on the activities of the Security Departments of the Police Department, constituted the first and most serious barrier on the way of terrorists to regicide.

From the end of the 1890s. in the Moscow security department under the command of Colonel S.V. Zubatov formed the backbone of talented gendarmerie officers, who subsequently played key roles in organizing the protection of Nicholas II. For all these officers

was characterized by a high level of professional training. They went through a good detective school and learned the lessons of S.V. Zubatov on the organization of undercover work, and the experience of E.P. Mednikov became the basis for the organization of the spy service throughout the empire.

E.P. Mednikov

Here are a few names of officers from this series who went through the search school in the Moscow Security Department: Lieutenant Colonel Sazonov, later he will head the St. Petersburg Security Department; Captain Ratko first became the head of the Moscow security department, and then the analytical department in the structures subordinate to the Palace Commandant; Captain Petersen led the Warsaw Security Department. Gendarme officer captain B.A. Gherardi, whom A.I. Spiridovich called "an outstanding officer" 316, headed the Palace police guarding the imperial residences. A.I. Spiridovich was also a student of the police school of Colonel S.V. Zubatov, since 1906 - the head of the "mobile" security detachment, which ensured the security of Nicholas II outside the imperial residences.

Thus, the Police Department since the early 1900s. opposing the revolutionary movement in Russia, he paid special attention to the fight against revolutionary terrorism directed against the first persons of the empire.

Filer group

And the Moscow Security Department became a kind of "forge" of personnel for the palace security units, which to a large extent helped to coordinate their actions.