Journal of Social Sciences and Humanities Research Fundamentals
74
9
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TYPE
Original Research
PAGE NO.
91-96
DOI
OPEN ACCESS
SUBMITED
15 April 2025
ACCEPTED
17 May 2025
PUBLISHED
27 June 2025
VOLUME
Vol.05 Issue06 2025
COPYRIGHT
© 2025 Original content from this work may be used under the terms
of the creative commons attributes 4.0 License.
The Administrative-
Governance System Of
The Kokand Uyezd Within
The Fergana Region
(1876
–
1917)
Nazirov Mirjalol Baxodirjon o‘g‘li
Senior Lecturer at Fergana State University, Uzbekistan
Abstract:
The annexation of the Kokand Khanate by the
Russian Empire in 1876 marked a significant turning
point in the political and administrative landscape of
Central Asia. Following this event, the establishment of
the Fergana Region as part of the Turkestan General-
Governorate led to the introduction of a new
administrative-governance structure modeled on
Russian imperial norms. Within this framework, the
Kokand Uyezd emerged as a key territorial-
administrative unit, reflecting the broader objectives of
imperial integration and control.
Keywords:
Kokand
Uezdi,
Fergana
Region,
Administrative Governance System, Russian Empire,
Turkestan
General-Governorate,
Socio-political
Processes, Uyezd Administration, Migration Processes,
Demographic Changes, Forced Resettlement Policy,
Changes in Population Structure
Introduction:
This study focuses on the administrative-
governance system of the Kokand Uyezd during the
period 1876 to 1917, a time of deep social, political, and
demographic transformation. The paper explores the
institutional structure of uyezd administration, the role
of imperial officials, and the impact of governance on
local populations. Special attention is given to migration
processes and demographic shifts, particularly the
resettlement policies enforced by the Russian
authorities, which significantly altered the ethnic and
social composition of the region.
By examining archival materials, official documents, and
contemporary scholarly perspectives, this research aims
to contribute to a deeper understanding of colonial
administration practices in Central Asia and their lasting
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Journal of Social Sciences and Humanities Research Fundamentals
effects on regional development and social dynamics.
LITERARY ANALYSIS AND METHODOLOGY
The administrative history of the Kokand Uyezd within
the Fergana Region has been examined in the context
of broader Russian colonial policy and governance
mechanisms in Central Asia. A review of the existing
literature reveals a number of significant works that
focus on the political integration of the Turkestan
region into the Russian Empire, the role of local and
imperial
elites,
and
the
transformation
of
administrative systems during the late 19th and early
20th centuries.
Key historical studies by Russian and Central Asian
scholars provide insights into the structure and
function of uyezd-level governance, including the
reforms introduced by imperial authorities. In
particular, the works of V. Nalivkin, N. Ostroumov, and
Soviet-era historians offer valuable descriptions of
administrative divisions, social composition, and the
functioning of colonial bureaucracy. More recent
academic contributions have emphasized post-colonial
and socio-political interpretations, analyzing the
impact of migration, land resettlement, and changing
demographic dynamics.
The methodological approach of this study combines
historical-comparative analysis with archival research.
Primary sources such as official decrees, administrative
reports, colonial maps, and population statistics have
been used to reconstruct the structure and evolution
of the Kokand Uyezd’s administrative apparatus.
Comparative analysis with other uyezds of the Fergana
Region enables a more nuanced understanding of
regional governance patterns and local specificities.
In addition, a socio-historical lens is applied to assess
the effects of forced migration policies and
demographic shifts on the local population. This
interdisciplinary
methodology
allows
for
a
comprehensive
exploration
of
how
imperial
governance strategies influenced both administrative
organization and social change in the Kokand Uyezd
during the period under study.
DISCUSSION
The administrative structure established in the Kokand
Uyezd after its incorporation into the Russian Empire
reflected the broader imperial strategy of centralized
control and colonial management. The replacement of
traditional governance institutions with Russian
bureaucratic models led to significant shifts in political
authority, legal systems, and resource allocation.
One key aspect of this transformation was the
implementation of a hierarchical administrative
framework subordinated to the Fergana regional
center. Local elites were marginalized or integrated into
lower-level positions, while Russian officials held
dominant roles in decision-making. This restructuring
not only altered the balance of power but also created
tensions
between
colonial
administrators and
indigenous populations.
Migration policies played a crucial role in shaping the
socio-demographic profile of the uyezd. The
resettlement of Russian and Slavic peasants into the
region
led
to
land
redistribution,
economic
displacement of locals, and gradual demographic
changes. These processes contributed to social
stratification and cultural shifts, especially in urban and
agriculturally rich zones.
Despite the formal imposition of order, the
administrative system remained partially dependent on
informal networks and local intermediaries to ensure
functionality. This duality between official regulation
and practical adaptation underscores the complexity of
colonial governance in the Kokand Uyezd.
Overall, the administrative developments in the uyezd
from 1876 to 1917 illustrate how imperial policies were
adapted to local conditions while still serving the
overarching goals of political control, economic
exploitation, and cultural assimilation.
RESULT
The study reveals that the administrative-governance
system implemented in the Kokand Uyezd between
1876 and 1917 was characterized by the consolidation
of Russian imperial control through a hierarchical
bureaucratic structure. Traditional local governance
institutions were largely replaced or subordinated to
colonial authorities, leading to significant political and
social reorganization.
The introduction of migration and resettlement policies
markedly affected the demographic composition of the
uyezd, resulting in increased ethnic diversity and social
tensions. Russian colonization efforts led to land
redistribution that altered traditional patterns of land
ownership and economic activity.
Despite formal administrative reforms, local dynamics
and informal practices continued to influence
governance, indicating a complex interplay between
imperial objectives and regional realities. Overall, the
uyezd’s administrative evolution reflects broader
processes of colonial integration, social transformation,
and demographic change in Central Asia during the late
19th and early 20th centuries.
As a result of the Russian Empire's invasion, the khanate
was abolished on February 19, 1876, and the city of
Kokand became the administrative center of the
Fergana Region, which was established within the
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Turkestan General-Governorate. Due to the transfer of
the regional center to New Margilan on April 27, 1877,
Kokand city was designated as the administrative
center of the Kokand Uyezd within the Fergana Region
starting from June 1 of the same year . Until 1917, the
city of Kokand was governed by the uyezd head. The
uyezd head held both administrative and economic
management powers, and in addressing social issues,
he was assisted by three deputies elected for a term of
three years from among the influential representatives
of the population, two of whom represented the
Russian community. As the city's territory and
economy expanded and the population increased, the
administrative apparatus also grew. From 1907
onwards, the number of deputies increased to six, four
of whom represented the Russian population . The
Tsarist regime’s system of governance in Turkestan
was fundamentally based on the oppression of local
laborers and the complete violation of their rights.
Until 1886, the Fergana Region and its cities were
administered according to a plan proposed by
K.P.Kaufmann in 1873, which, however, was not
approved by the higher authorities. As in all other
regions of Turkestan, the Tsar’s officials here held sole
authority over both military and civil administration.
This arrangement aimed to promptly suppress any
opposition or movements that could potentially
challenge the Tsarist government in this newly
acquired and remote territory .
The city of Kokand was designated as the
administrative center of the Fergana Region and,
compared to other cities in the region, had several
distinctive features in its governance system. Given
Kokand’s prior role as the center of the former
khanate, its significant influence in the political and
economic life of the area, as well as the large presence
of military personnel and imperial officials, the city was
granted a special autonomous administrative status on
July 15, 1876.
This special status also reflected the growing strategic
importance of Kokand in the context of Russian
colonial migration policy. The resettlement of Russian
settlers and officials to Kokand intensified during this
period, contributing to demographic changes and
reinforcing
administrative
control.
Migration
processes played a key role in reshaping the city’s
social structure and integrating it more firmly into the
imperial system..
The structure of the city administration was as follows:
the head of the city was Colonel Karolkov. He was
assisted by Captain V. L. Padachnev as the senior aide
and Lieutenant V. P. Zabusev as the junior aide. A. L.
Freyberger and I. V. Molokov served as administrative
officers, while Second Lieutenant A. G. Bogdanov held
the position of written translator. In December of the
same year, the staff was expanded with the addition of
three more aide positions alongside the two secretaries
.
On April 27, 1877, the provincial center was officially
relocated from the city of Kokand to the newly
established Yangi Margilan. In connection with this, all
administrative positions related to the governance of
the city were abolished, and the administration of the
city was transferred to the district (uezd) head.
Following this, one senior aide, a chief secretary, and
one written and one oral translator were assigned to the
district (uezd) administrator, with additional salaries.
Additionally, the judicial bailiff school in the city was
abolished, and its functions were transferred to the
district administration.
On June 19, 1877, the Governor-General of Turkestan,
Kaufman, approved this proposal to allocate additional
staff positions for the administration of the Kokand
district. Under this arrangement, one aide, one
secretary, one written translator, and one oral
translator were assigned to the district (uezd) head.
Additionally, a new position for police administration
was introduced at the Kokand district office in Qosh.
Thus, all police, judicial, and other administrative
oversight functions in Kokand were transferred under
the authority of the district head.
As a result, until 1917, the city of Kokand remained
administratively under the jurisdiction of the Kokand
district.
It is well known that on July 12, 1886, the Russian Tsar
approved the Regulation on the Administration of the
Turkestan Region. This regulation aimed to turn the
Turkestan region and its cities into a true colony, to
facilitate exploitation by Russian officials and capitalists,
and to completely suppress the discontent of the
working masses against the Tsarist regime. This
regulation, with some amendments, remained in effect
until 1917.
The city’s political, economic, public works, and other
administrative affairs were placed under the supervision
of the district (uezd) head, assisted by precinct bailiffs
and city deputies . In other words, the role of
intermediary governance was carried out by 3 to 4
elected deputies from among the wealthy residents of
the city.
At a council held on May 7, 1887, the Governor-General
of Turkestan decided on the number of deputies and the
election procedure.
According to this council decision, the city of Kokand
was granted the right to elect three deputies, two of
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whom were Russians.
The activities of these deputies were entirely
dependent on the district (uezd) head or the precinct
chief.
Their responsibilities were limited solely to the
collection of taxes and fees.
Although the Tsarist government attempted to adapt
its administrative bodies to the changing conditions of
urban life, by the early 20th century it became evident
that the existing administrative structures in
Turkestan
—
particularly in some commercially and
industrially developing cities such as Kokand
—
were no
longer capable of adequately meeting the needs and
demands of the population.
The city was divided into districts called dahas, each
governed by an amin (also known as a mingbashi),
meaning a neighborhood elder or head.
According to the Regulation on the Administration of
the Turkestan Region adopted in 1886, the division of
the Fergana province's districts into administrative
precincts (uchastkas) and the assignment of their
management to appointed bailiffs (pristavs) led to the
division of the Kokand district into such precincts as
well.
The city of Kokand was divided into four dahas, each
governed by an aksakal (elder). The dahas were further
divided into neighborhoods (mahallas), which were
administered by ellikbashis (local leaders).
The daha elders, who reported to the chief aksakal,
collected taxes from the population with the help of
mirshabs (local enforcers).
In general, local representatives were mainly
responsible for tasks such as collecting taxes and
conveying administrative orders to the public
—
in
essence, performing lower-level executive functions.
Administrative and economic affairs were handled by
the district (uezd) head.
In 1896, the position of chief aksakal was replaced by a
city police department. A police chief, appointed from
among Russians, assumed the functions of city head
and maintained strict control over the old part of the
city, where the local population resided. A significant
portion
—
24.1 percent
—
of the city's revenue was
allocated to funding the police service. .
It is important to note that the creation and
delineation of administrative precincts (uchastkas)
were carried out without taking into account the
specific local conditions of the regions. These divisions
lacked clearly defined administrative and territorial
boundaries.
As a result, the interests of the local population were
often harmed, and in some cases, residents were forced
to pay taxes twice.
Local authorities, instead of providing salaries,
compensated tax collectors by awarding them 5 to even
10 percent of the total amount of taxes collected .
For a certain period, the activities of the aksakals were
overseen by a chief aksakal selected from the local
population and appointed by the military governor.
The chief aksakal also held supreme police authority in
the city, commanding the regular police officers
—
mirshabs
—
who were also recruited from among the
local population. In terms of their jurisdiction, city
aksakals were considered equivalent to volost
administrators (village-level officials).
Beginning in 1896, the position of chief aksakal in the
cities of the Fergana region was abolished. As previously
mentioned, the colonial administration justified this
decision by claiming that chief aksakals
—
being
appointed from among the local population
—
were
obstructing the strengthening of police control in the
cities.
They argued that control over the local population
should be transferred directly into the hands of the
Russian administration. As a result, the position of chief
aksakal was abolished, and their responsibilities were
transferred to the city police department. It should be
noted that in practice, the politsmeister of Kokand
effectively held the position of city head. Their primary
assistant in this role was the qorboshi
—
a representative
from the local population appointed by the military
governor. The qorboshi was mainly responsible for
maintaining police control in the “old city.” It is
important to mention that, overall, the qorboshi, along
with the city aksakals, ellikbashis, and onbashis, served
alongside Russian officials in implementing the colonial
policies of Tsarism in the city. The colonial
administration continued to strengthen the police
regime in order to keep the local population in
subjugation. By the early 20th century, the power and
presence of the police administration had grown
significantly.
This situation intensified even further by 1911, when
criminal investigation departments were established
under the district administrations in the Fergana region,
including in the city of Kokand, with the aim of
strengthening police control over the population
It should be emphasized that the Tsarist government, in
organizing the administration of Turkestan
—
its remote
colony
—
largely preserved the existing old feudal
structures, either without any change or through only
partial reforms.
These structures were considered a key tool for
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maintaining
economic,
political,
and
cultural
backwardness in the region. Judicial and civil matters
were handled by qazis , who resolved all cases in
accordance with Islamic Sharia law. The qazis were
elected for a term of three years during elections held
at the volost (rural district) level. . Certain contentious
issues, such as water disputes, were resolved through
Sharia law. However, based on its colonial policy, the
Tsarist government prohibited qazis (Islamic judges)
from handling major criminal cases. All criminal
matters were assigned exclusively to Russian courts.
People’s courts (folk courts) had the authority to
sentence offenders to imprisonment for up to three
months.
Sentences exceeding that term were subject to
approval by the military governor upon petition from
the people’s court. In addition, qazis had the right to
impose fines of up to 300 rubles, imprison those
unable to pay the fines, assign them to various forms
of labor, and
—
under orders from the higher regional
administration
—exile individuals deemed “dangerous
to the city” to remote areas
Due to the absence of a unified procedural code in the
qazi courts, their proceedings were often disorganized.
In 1894, Governor-General Baron Vrevskiy approved
special instructions for the “people's judges” (i.e., for
the qazi courts). . Additionally, on November 28, 1902,
the Governor-General issued a special decree aimed at
expediting judicial proceedings Based on these
instructions and decrees, the proceedings in the qazi
courts became somewhat more regulated. From those
responsible for cases heard in the qazikhana (qazi
courts), mirzas collected fees of 10-12 tiyin, while
yasavuls took 25 tiyin. In addition, bribes were
obtained from defendants through various means.
Because of this, intense competition arose before
elections to the position of qazi. Each candidate
nominated for the qazi position spent a considerable
amount of money not only to gain the support of
government officials and administrators but also to
win over the ellikbashis (local community leaders).
Later on, these efforts were multiplied several times
over as they extorted money from the general
population.
According to K.K. Palen’s observations,
becoming a
qazi (judge) or not was somewhat dependent on the
voters, as qazis would buy off and court the “voters.”
The position of qazi was typically held by influential
and resourceful individuals. “The people’s court
became a battleground for candidates to take revenge
on each other, while the population itself turned into a
tool exploited by the elected officials. Those elected
would strive with great effort during their judicial
terms to recoup, and even exceed, the substantial
expenses they had incurred during their election
campaigns” . Thus, the so
-
called “people’s courts,”
notorious for their corruption and bribery, defended the
interests of the ruling classes and sought to maintain
oppressive relations. The Tsarist government did not
establish special judicial bodies under its direct control
in Turkestan and its cities; instead, judicial matters were
entrusted to military commanders.
However, later, according to the regulations of 1886 and
1889, the Tsarist government established the following
judicial bodies in Turkestan: the magistrate’s court
(mirovoy sudya, conciliatory judge), i.e., the provincial
city judge, the second district courts, and the Tashkent
judicial chamber.
Magistrate judges (mirovoy sudya) handled the main
cases in the cities.
Although magistrate judges in Russian provinces were
established through elections, here they were
appointed by the Ministry of Justice based on division
into cities and districts, and were subordinate to the
district court. Officials were very afraid of the local
working population and severely punished even their
slightest politically motivated actions by involving
military and district courts.
Participants in popular protest movements were
severely punished. In the region, the Tsarist officials and
their judicial apparatus increasingly resorted to ruthless
imprisonment, execution, and exile of many people. For
example, in his report on the revision of Turkestan in
1882
–
1883, Senator F.K.Girs noted that abuses of
power
by
district,
city,
volost,
and
village
administrations had intensified everywhere. This
situation was also acknowledged later by K.K. Palen,
who conducted inspections in Turkestan and its cities .
Overall, the total number of administrative bodies
increased. For instance, in the management of the
Kokand district, apart from the district head, there were
9 officials in various positions in 1886.
By 1900, under the authority of the district head, there
was one assistant, a bailiff, assigned bailiffs for the
departments of Bachkir, Kenagas, Konibodom, and the
surrounding city areas, two police bailiffs for Kokand
city, a secretary, two messengers, one written
translator, district and city doctors, a nurse, a city
architect, and two consular clerks
—
making a total of
16 positions.
Thus, although the administrative and governance
system of the Turkestan region took a definite form by
the 1890s, the issue of the administrative apparatus in
governing the region remained a subject of much
debate until 1917 As a result of the Tsarist government
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applying the principle of "military civil administration"
in the region, a military-officer style was effectively
established, which gave this system a distinctly
“military
-
bureaucratic”
character
aligned
with
Tsarism’s colonial policy.
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