"One-story" Zemstvo: K. N. Paskhalov's project on the abolition of provincial zemstvo institutions

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The subject of the study is the project of one of the leaders of the right-wing movement of pre-revolutionary Russia, K. N. Paskhalov, on the abolition of provincial zemstvo institutions. The main purpose of the work is to evaluate Paskhalov's reforms that took place in the zemstvo —local government system. Based on this goal, the author faced two tasks: 1) to analyze the mechanism of transition to a "one-story" zemstvo developed by Paskhalov; 2) to study the results of the discussion of these ideas in zemstvos and on the pages of the periodical press. Special attention is paid to the legal prerequisites for the formation of the Paskhalov concept. The emphasis is placed on the relevance of this topic, since the arguments of Paskhalov's supporters and opponents may be in demand during the discussion on the territorial organization of local self-government in modern Russia. The methods used in this study include historical and legal ones. Methodological foundations also include the principle of objectivity, the principle of historicism, and the principle of consistency. The scientific novelty of the work consists in comparing Paskhalov's project with the responses to his proposals from the zemstvo authorities and individual municipal figures. According to Paskhalov, the Zemstvo Regulations should have clearly delineated the powers and functions of the two levels of zemstvo self-government. The absence of such standards led to an increase in unproductive expenditures of the provincial zemstvo and to the depletion of county budgets. Paskhalov argued that the county should remain the only territorial unit of local government. The procedure for the transition to a single-level model provided for the gradual transfer of the provincial zemstvo's property and capital into the hands of the counties. In the course of the study, it was found that Paskhalov's project caused quite a large public outcry. In 1909-1910, this topic was discussed at county zemstvo meetings in different regions. Many zemstvo leaders agreed with Paskhalov's theses on the need to reform medical institutions, road and insurance business. Several county zemstvos decided on the need to abolish provincial local government bodies. In 1911, the topic was repeatedly discussed on the pages of the specialized magazine Zemstvo Business. Objecting to the complete transition to a "one-story" zemstvo, the authors of the magazine, at the same time, proposed a number of specific measures to regulate the relationship between provincial and county zemstvos.