Catherine the Great

She was equally forceful in dealing with the Senate. Since the time of Peter the Great, the Senate had administered the laws of the empire, making certain that the decrees handed down by the autocrat were carried out. Having no power to make law, the Senate’s role was to administer the state on the basis of existing laws, no matter how useless or out-of-date. During the coup, Catherine had associated herself closely with this body; it was through the Senate that her first orders were issued to Russian troops abroad, and it was to the care of the Senate that she confided her son, Paul, when she rode off at the head of the Guards to Peterhof. Once she was on the throne, the meetings of the Senate were moved to the Summer Palace to make it easier for her to attend. On her fourth day as empress, she was present at a session of the Senate which began with reports that the treasury was empty and that the price of grain had doubled. Catherine replied that her imperial allowance, amounting to one-thirteenth of the national income, should be used by the government. “Belonging herself to the nation,” she said, she considered that everything she possessed belonged to the nation. In the future, she continued, there would be no distinction between the national and her personal interests. To deal with the grain shortage, she ordered a prohibition on the export of grain; within two months, the price came down. She abolished many of the private monopolies held by great noble families such as the Shuvalovs, who controlled and made a profit on all the salt and tobacco sold in Russia.

At these meetings, she quickly discovered that in the Senate there were heavy layers of ignorance. One morning, when the senators were discussing a distant part of the empire, it became apparent that none of them had any idea where this territory lay. Catherine suggested looking at a map. There was no map. Without hesitation, she summoned a messenger, took five rubles from her purse, and sent him to the Academy of Sciences, which had published an atlas of Russia. When the messenger returned, the territory was identified and the empress made a gift of the atlas to the Senate. Hoping to improve their performance, she wrote, on June 6, 1763, to the senators as a body: “I cannot say that you are lacking in patriotic concern for my welfare and the general welfare, but I am sorry to say that things are not moving towards their appointed end as successfully as one would wish.” The cause of this delay, she said, was the existence of “internal disagreements and enmity, leading to the formation of parties seeking to hurt each other, and to behavior unworthy of sensible, respectable people desirous of doing good.”

Her agent in the Senate was the procurator general, an office established by Peter the Great to be the link between the autocrat and the Senate—“the eye of the sovereign,” he called it—and to provide supervision over the Senate. Specifically, this official’s task was to set and keep track of the Senate’s agenda, report to the monarch, and receive and pass along his or her commands. Catherine’s newly appointed procurator general, A. A. Vyazemsky, received her analysis:

In the Senate, you will find two parties.… Each of these parties will now try to get you on their side. On the one, you will find honest people, if of limited intelligence. On the other, I think more long-range plans are harbored.… The Senate has been established for the carrying out of laws prescribed to it. But it has often issued laws itself, granted ranks, honors, money and lands, in one word … almost everything. Having once exceeded its limits, the Senate now finds it difficult to adapt itself to the new order within which it should confine itself.

More important than this admonitory advice to Vyazemsky regarding the behavior of the Senate was Catherine’s message to the new procurator general, setting out the relationship she expected to have with him personally:

You must know with whom you have to deal.… You will find that I have no other view than the greatest welfare and glory of the fatherland, and I wish for nothing but the happiness of my subjects.… I am very fond of the truth, and you may tell me the truth fearlessly, and argue with me without any danger if it leads to good results in affairs. I hear that you are regarded as an honest man by all.… I hope to show you by experience that people with such qualities do well at court. And I may add that I require no flattery from you, but only honest behavior and firmness in affairs.

Vyazemsky justified Catherine’s expectations and remained the “eye of the sovereign” for twenty-eight years, until his retirement in 1792.