Russia. A History

Such administrative eclecticism strengthened the state, creating quasi-bureaucratic organs that freed grand princes to concentrate on those few issues they considered their own: supreme judicial authority, foreign policy, the army and defence, and above all the mobilization and exploitation of resources. It was a minimalist state, run by the ruler, his counsellors, and a household-based bureaucracy reminiscent of the Carolingian court. Until the mid-sixteenth century the work of the fisc, foreign policy, and the mustering of troops constituted the provenance of two general offices, the treasury, and the court (in the sense of household, not judiciary). By the 1560s, the term prikaz

(chancery) was used to denote the many new offices that were being established to meet new needs (the Brigandange, Slavery, and Streltsy Chanceries, for example) or to separate out specific functions (Military Service, Service Land, Foreign Affairs, Postal System Chanceries). By the end of the century there were approximately twenty-four chanceries, a system that was efficient but eclectic and irrational by modern, Weberian standards. No single principle governed the organization and jurisdiction of chanceries. Some had responsibility for a particular social group (the military élite, foreigners); others exercised one function over the entire realm (Fortifications, Slavery, Criminal Chanceries), or had total authority over a particular territory (the Kazan Chancery). Initially led by secretaries, from the time of Boris Godunov boyars ran more and more chanceries, presaging the transformation of the military élite into the ‘noble official’ class that has been chronicled for the seventeenth century.

No less important to the sixteenth-century state than the expansion of the army was the mobilization of wealth. That impelled a new fiscal strategy in 1551—elimination of the tax immunities traditionally enjoyed by lay and ecclesiastical landholders. But the government was inconsistent, issuing new immunities in times of political turbulence (1530s-40s, 1560s-70s, 1590s). At mid-century the state commuted taxes from payment in kind and services to cash, changed the tax assessment unit in the centre, raised existing taxes (especially for the postal system), and introduced new ones. The tribute-bearing peoples of Siberia and the middle Volga also filled Moscow’s coffers, as did a tax on any furs brought to market from Siberia by Russian traders. Income from the tsar’s monopolies such as salt and alcohol production (analogous to medieval European kings’ monopolies or regalia

) was also significant and the state aggressively patronized entrepreneurs, whether Russian (the Stroganovs) or foreign (the English Muscovy company received a charter of trade privileges c

.1555). Trade through the White Sea with the British and Dutch grew to great proportions in the second half of the century.

But the government’s drive to mobilize eventually blew up in its face. Taxes rose precipitously in the sixteenth century, exceeding the parallel inflationary rise of the century. It has been calculated that taxes rose 55 per cent from 1536 to 1545, another 286 per cent (with commutations to cash) from 1552 to 1556, another 60 per cent in the 1560s, and another 41 per cent in the 1570s before they began a steady decrease in the face of economic distress. At the same time in the 1560s and 1570s the north-west and centre experienced great disruptions from the oprichnina,

Livonian War, and natural disasters that included plague, crop failure, and famine. Petty landlords responded by squeezing their peasants for more income, while larger landholders lured peasants to their lands with loans and tax breaks. They also began to consolidate their holdings into demesnes and to extract labour services, two to three days per week by the end of the century on much secular land. Trying to shelter the landed élite, the state ended taxation on landlord’s demesne in the 1580s, shifting the tax burden all the more to peasants. In response the average peasant plot decreased: at the beginning of the century many peasant holdings were the equivalent of a man-sus (in Russian, vyt, that is, the unit of land considered sufficient to support a peasant family). But from the 1570s most holdings ranged between just one-half to one-eighth of a vyt.