UKRAINIAN STATE PAVEL SKROROPADSKY: PECULIARITIES of NATIONAL MILITARY AUTOCRACY Abstract

UDC: 351.82 DOI: https://doi.org/10.32689/2617- 2224-2019-17-2-286-295 Chorna Kateryna Pavlivna, PhD. of Law, Associated Professor, Professor of the Department of Business law, labour rights and civil-law disciplines, Interregional Academy of Personnel Management, Kyiv, tel.: (044) 258 21 24, e-mail: katerynachor- [email protected] ORCID: 0000-0002-0318-5237 Чорна Катерина Павлівна, кандидат юридичних наук, доцент, про- фесор кафедри господарського, трудового права та цивільно-правових дисциплін, Міжрегіональна Академія управління персоналом, Київ, тел.: (044) 258 21 24, e-mail: [email protected] ORCID: 0000-0002-0318-5237 Черная Екатерина Павловна, кандидат юридических наук, профессор кафедры хозяйственного, трудового пра- ва и гражданско-правовых дисциплин, Межрегиональная Академия управления персо- налом, Киев, тел.: (044) 258 21 24, e-mail:[email protected] ORCID: 0000-0002-0318-5237

UKRAINIAN STATE PAVEL SKROROPADSKY: PECULIARITIES OF NATIONAL MILITARY AUTOCRACY Abstract. The proposed research is an analysis of state-building attempts in Ukrainian territories during the period of the Ukrainian revolution, namely, during the time of the Ukrainian State of Pavlo Skoropadsky. It contains a detailed description of the Hetman government describes features of the interaction of central and local government, the influence of foreign protectorate for the creation, operation and collapse of the Hetman regime that, despite this, wearing the national character. Special attention is given to the reform and innovation, characteristics and reasoning autocracy in management professiogram officials, outlining future plans for state building and cause of the fall of the Ukrai- nian state. Investigated that large industrial and agricultural bourgeoisie has created its own representative body — the Council of Industry, Trade, Finance and Agriculture, which was intended to promote the restoration of pre-revolutionary

286 economic system (Protofis) with its branches in provinces. Thus, experiencing harassment by the Hetman’s administration, who was a prisoner of economic agreements with Germany and Austria-Hungary, and resisting landowners who wanted to restore the old land and property, the masses were enemies of the new order, which, in fact, contributed the most crash Hetman’s government. The work presented evidence to suggest practical steps towards an independent state made the times Skoropadskiy: the creation authorities, the struggle for the country, implementation of strong internal and active foreign policy, legislative regulation of public life; Separately, the historical lessons of the described experience of national state construction are emphasized. Keywords: Hetman, Ukrainian State, Council of Ministers of the Ukrainian State, Ukrainian Sejm, foreign protectorate, State guard, Protofis, provincial el- ders, atamans, Directory of the UPR. УКРАЇНСЬКА ДЕРЖАВА ПАВЛА СКОРОПАДСЬКОГО: ОСОБЛИВОСТІ НАЦІОНАЛЬНОЇ ВІЙСЬКОВОЇ АВТОКРАТІЇ Анотація. У запропонованому дослідженні проаналізовано державотвор- чі процеси на українських теренах у період української революції, а саме — за часів Української держави Павла Скоропадського. Подано детальний опис діяльності гетьманського уряду, схарактеризова- но особливості взаємодії центральної та місцевої влади, досліджено вплив іноземного протекторату на створення, функціонування та крах гетьман- ського режиму, який, незважаючи на це, носив національний характер. Осо- бливу увагу приділено розгляду реформ та нововведень, характеристиці та аргументації автократії в управлінні, професіограмам урядовців, окресленню майбутніх планів державного будівництва та причинам падіння Української держави. Досліджено, що велика промислова і сільськогосподарська буржуа- зія утворила власний представницький орган — Раду промисловості, торгів- лі, фінансів та сільського господарства, яка мала на меті сприяти реставрації дореволюційного господарського устрою (Протофіс) зі своїми філіями у гу- берніях. Таким чином, зазнаючи утисків з боку гетьманської адміністрації, яка перебувала у полоні економічних домовленостей з Німеччиною та Ав- стро-Угорщиною, та чинячи опір поміщикам , які прагли повернути колишні угіддя і майно, народні маси ставали ворогами нових порядків, що, по суті, найбільше посприяло крахові гетьманського урядування. Наведено докази, що свідчать про реальні кроки на шляху до самостійної держави, здійснені за часів П. Скоропадського: створення владних структур, боротьба за території країни, провадження рішучої внутрішньої та активної зовнішньої політики, законодавче регулювання суспільного життя; окремо наголошено на історичних уроках описуваного досвіду національного дер- жавного будівництва. Ключові слова: гетьман, Українська Держава, Рада Міністрів Україн- ської Держави, Український Сейм, іноземний протекторат, Державна варта, Протофіс, губернські старости, отамани, Директорія УНР.

287 УКРАИНСКОЕ ГОСУДАРСТВО ПАВЛА СКОРОПАДСКОГО: ОСОБЕННОСТИ НАЦИОНАЛЬНОЙ ВОЕННОЙ АВТОКРАТИИ Аннотация. В предложенном исследовании проанализированы государ- ствено-созидательные процессы на украинской территории в период Укра- инской революции, а именно — во времена Украинского государства Павла Скоропадского. Представлено подробное описание деятельности гетманского правитель- ства, охарактеризованы особенности взаимодействия центральной и местной власти, исследовано влияние иностранного протектората на создание, функ- ционирование и крах гетманского режима, который, несмотря на это, носил национальный характер. Особое внимание уделено рассмотрению реформ и нововведений, характеристике и аргументации автократии в управлении, профессиограмме чиновников, обрисовке будущих планов государственного строительства и причинам падения украинского государства. Доказано, что крупная промышленная и сельскохозяйственная буржуазия создала собст- венный представительный орган — Совет промышленности, торговли, фи- нансов и сельского хозяйства, цель которого — способствовать реставрации дореволюционного хозяйственного устройства (Протофис) со своими фи- лиалами в губерниях. Таким образом, испытывая давление со стороны гет- манской администрации, которая находилась в плену экономических дого- воренностей с Германией и Австро-Венгрией, и сопротивляясь помещикам, которые хотели вернуть прежние угодья и имущество, народные массы ста- новились врагами новых порядков, что, по сути, больше поспособствовало крушению гетманского управления. В работе приведены доказательства, свидетельствующие о реальных шагах на пути к самостоятельному государству, совершенные во времена П. Скоро- падского: создание властных структур, борьба за территории страны, производ- ство решительной внутренней и активной внешней политики, законодатель- ное регулирование общественной жизни; отдельно отмечены исторические уроки описываемого опыта национального государственного строительства. Ключевые слова: гетьман, Украинское Государство, Совет Министров Украинского Государства, Украинский Сейм, иностранный протекторат, Го- сударственная стража, Протофис, губернские старосты, атаманы, Директо- рия УНР.

Statement of the problem in the- ment institutions largely depended on sis form and its connection with im- the allies and their geopolitical inte- portant scientific or practical tasks. rests. The desire of the Ukrainian elite After the defeat of the Ukrainian Cen- to continue the national revolution tral Rada and the entry of German by reforming the internal and external and Austro-Hungarian troops into the life found support from these forces, country, the formation of new govern- which relied on the power of the Ukrai-

288 nian state, which stood in place of the the Russian statesman V. Obolenskyi UPR. [9], political studies of V. Petriv [12]. In historiography, there were quite Additional information to explore this frequent discussions on its assessment theme is provide in the works of Ukrai- as a separate state entity: its charac- nian historian I. Kripyakevych [11], teristics as a puppet state, as a satellite historiographical studies of modern sci- state, as a temporary artificial autocra- entists S. Kulchytskyi [1], O. Mironen- tic formation organized by the occupa- ko [2], V. Chekhov [10], O. Boyko [8]. tion regime to meet domestic economic The paper uses collective works on the needs. history of public service and archival However, this period is more appro- research materials of the governments priate to consider as a bright progres- of Ukraine in the twentieth century [7]. sive stage of the national state, charac- Formulation of the purpose of the teristic of the Ukrainian revolution of article: 1917–1921, and special scientific atten- • to highlight the mechanisms of tion is required by the fact that it in a formation of central government bo- short period of time (April–December dies, local authorities in the Ukrainian 1918) the foundations of the future In- State and the principles of their inter- stitute of Ukrainian public service were action; established, — the form and content of • to consider the features of the Ger- its activities, professional requirements man and Austro-Hungarian protector- for civil servants, the emphasis on the ate and characterize the level of foreign rejection of political preferences, ethics influence on political events and go- of the employee and the moral princi- vernment steps in the described period ples, and these lessons are important to- of the Ukrainian revolution; day for the modern state, the main task • to study the ratio of management of which is anti-corruption reform, pri- reforms and restorations in the acti- marily in the field of executive power, vities of the Hetman government; as well as the creation of effective tech- • to emphasize national features nocratic management. in the Hetman administration and to Analysis of research and pub- prove the importance of this historical lications. The source basis for the lesson. constructive scientific study of this Presentation of the main material problem were the works of contempo- of the study with the justification of raries of the Ukrainian revolution of the results. Pavlo Skoropadskyi, the 1917–1921: first of all, the memories head of the proclaimed Ukrainian State of the Head of the Ukrainian State officially took power from the delegates P. Skoropadskyii [4, 14]; historical of the all-Ukrainian peasant Congress, works of his colleague, an outstanding convened by the Central Rada in April scientist and statesman D. Doroshen- of 1918 — historians call this moment a ko [3]; memoirs of the reformer of the coup d’état initiated by the high com- “white” movement and the Supreme mand of Germany. The foreign role commander of the southern troops of in management was quite reasoned: Russia P. Wrangel [5; 6], memories of having found itself in a difficult situ-

289 ation after the end of the First World need of strategic partners, Austria- War, caused by the threat of the red Hungary and Germany, in agricultural and white guard, the previous govern- and industrial Ukrainian raw materials, ment of the UPR was forced to agree to and this pushed the latter to strengthen the protectorate of the Fourth Union, the military presence in the Ukrainian primarily Germany and Austria-Hun- lands, which fulfilled its important gary — in exchange for territorial con- mission: in the spring of 1918, the Bol- cessions (return of Kholmshchyna, sheviks left the territory of the UNR, Pildliashia, providing conditions for where more than 450,000 German and the autonomous development of Eas- Austro-Hungarian soldiers were con- tern Galicia); an important condition centrated [3].] of this agreement was the exchange of The figure of the leader of this state prisoners of war, a return to mutually Pavlo Skoropadskyi is of particular beneficial economic relations [1]. scientific interest to researchers. Tthe At the same time, the last important higher German command saw in him government steps were taken by the a ruler who had all the signs of tradi- Council of People’s Ministers, which tional legitimacy: aristocratic origin was evacuated to Volyn: The law on (Hetman's lineage), military experi- the citizenship of the UPR and the in- ence and high rank, noble education, troduction of the national currency — special respect for Ukrainian national hryvnia, the state emblem (trident) traditions, loyal attitude to foreign pa- was approved, the Gregorian calendar trons — all this should contribute to the was introduced. And it was the lack of approval of Pavlo Skoropadskyi as the domestic and international support, the head of state. The Hetman was aware spread of the Bolshevik threat, the de- of the temporality of his own individual struction of the legitimate power verti- ruling (before the Parliament), even cal that caused the coup d’état in Kyiv more — he denied monarchism, but he in April od 1918, and the subsequent considered autocracy to be the only achievements in the field of national possible way out in the conditions of policy belonged to the new govern- the general political and economic cri- ment. sis, which covered the then society [4]. Officially, the parliamentary course Despite an undemocratic rise to of the state remained unchanged, since power and a sizeable German protec- the law “On the temporary state struc- torate, the period of existence of the ture”, which prescribed the status of Hetman regime in Ukrainian territory citizens, noted that the legislative and was a continuation of ancient Ukrai- judicial power would belong to the nian traditions in government, and the Hetman only until the election of the newly created Ukrainian state had all Parliament, the Ukrainian Sejm, by all the signs of an independent state for- citizens of the Ukrainian State [2]. mation. First of all, this was evidenced Consequently, the partnership with by the strong position of the head of the Fourth Union was caused by the state, who had all the legislative (before acute need of the Ukrainian authorities the declared convocation of the Ukrai- for armed assistance and no less urgent nian Sejm) and Executive power in

290 the country; he was also the “Supreme of Executive power was formed: the Governor” — the commander of the ar- ministries were divided into depart- my and Navy and had the right to form ments and offices, comrades of Minis- a government almost independently. ters (deputies) and other employees The new leader of the state, abandon- also got on a professional basis; names ing the monarchical plans, at the be- and powers were changed, staff sched- ginning of his state activity hoped for ules and cost estimates were reasoned. broad support of Austria, in alliance Similar but less successful reforms have with which he saw an independent fu- been carried out in the judicial sphere. ture of Ukraine [5]. There was a serious All civil servants and judges, as well reason for this: in addition to the readi- as the military, gave a solemn oath to ness of Austria-Hungary to take under faithfully serve the Ukrainian State [7]. its wing the weighty rest of the neigh- The Ukrainian State had a pre-re- boring lands, for the new Ukrainian volutionary territorial and administra- government it the fact that the territo- tive structure; its certain features were rial subjects of this Empire, in contrast reflected in the system of local self- to tsarist Russia, de facto had the status government (the Institute of provincial of relatively independent parts of the chiefs, which was engaged in the Min- Empire (with all the appropriate rights, istry of internal Affairs) [8]. A char- liberties and representations allowed acteristic feature of local government in the monarchywas worth a lot; there- was its formation in accordance with fore, the forced reorientation to the fu- the previous experience of the partici- ture (not Bolshevik) Russia will be for pants: important positions were often the Hetman, according to eyewitnesses, given to former Russian officials and of- the only possible conscious state choice, ficials of the time of the UPR, without but perhaps the most personal political regard to national origin and political disappointment [6]. sympathy. Usually this often provoked No less important feature of the state conflicts, especially given the fact that is the content and form of functioning during the Hetman regime in Ukraine a of its own government, the Council of lot of former landowners returned who Ministers headed by Otaman (Chair- demanded the government’s own land man of the Council of Ministers), the and condition, as well as considerable government, which significantly con- compensation for the losses caused by tributed to the development of the na- the revolution. The situation was com- tional Institute of public service. Thus, plicated by contradictions in the city the ministries of internal and foreign councils and zemstvo district and vo- affairs, industry, finance and trade, agri- lost councils, which often consisted of culture, public education, public health, representatives of the estates, loyal not and religion (religious Affairs) were es- only to the leaders of the White guard, tablished; the Ministers of military and who saw in the Ukrainian state a mem- judicial affairs, the Controller General ber of the future Federation of the for- and the Secretary General (head of the mer peoples of the Russian Empire, and General office) were appointed. Gradu- even to the monarchists (especially in ally, a prototype of the modern system the southern provinces with their pre-

291 revolutionary views and the remnants and the government: created by the de- of the administrative system) [9]. cree of the Chairman of the government In the system of local self-govern- of the new loyal to the former police ment Hetman government sought to officers and officials, the professional rely on the middle class, in particular, and state police in the middle of 1918 on the well-off peasantry, with this goal numbered up to 60 thousand employees was revived the Institute of the Cos- and was a strong pillar of the regime. At sacks coralink organizwtion and Ota- the same time VPS, future voluntary man management, which operated in people’s squads, began its activities, as parallel with the provincial Presidium well as precinct and street committees [10]. In addition, the great industrial for the protection of public order — the and agricultural bourgeoisie formed its involvement of the local population led own representative body — the Coun- by him, including law enforcement was cil of industry, trade, finance and agri- one of the unrealized initiatives pro- culture, which was aimed at promoting claimed more Stolypin reforms [12]. the restoration of the pre-revolutionary In the performance of foreign po- economic system (Protophis) with its licy, the main problems were attempts branches in the provinces. Thus, suf- to clearly delineate the North-Eastern fering harassment by the Hetman ad- borders of the state and attempts to ministration, which was in captivity of establish relations with the Entente economic agreements with Germany countries (or with its individual enti- and Austria-Hungary, and resisting the ties). With the support of the countries landowners who wanted to return the of the Fourth Union and their geopo- former lands and property, the mas- litical partners (all of these states had ses became enemies of the new order, official representations in Kyiv) and which, in fact, most contributed to the the recognition of the Ukrainian State collapse of the Hetman administration by the majority of European countries, Given the constant external threat the Ukrainian government carried out and internal civil conflicts, one of the foreign activities as a full-fledged sub- main issues of state building was the ject of international relations, recogniz- organization of state protection-the ing the right to state-building behind restructuring of the army, aviation and all the national outskirts of the former Navy, which, according to the general Russian Empire and seeking to unite conclusion of historians, were brought the ethnic Ukrainian lands and Crimea to the highest combat capability of the (on the rights of autonomy) within the time during the reign of pPavlo Skoro- Ukrainian State. The Ukrainian State padskyi [11]. The same applies to the was recognized by 30 states, including internal security forces, in particular, Bolshevik Russia. Despite numerous the state guard, which at the beginning criticisms of the political pro-Russian of its existence carried out not only the (white guard) policy of Pavlo Sko- functions of the police, but also carried ropadskyi, without regard to the real out border and customs control, was protectorate of Germany and Austria- responsible for the military intelligence Hungary, many laws and other acts and personal security of the Hetman (and there were more than 500) of the

292 government of the Ukrainian State tes- thority. The leader of the state and his tified to the Ukrainization of social and colleagues were aware of the delays and political life. The central administra- shortcomings of autocracy and all the tive apparatus consisted mainly of eth- risks of conservatism, which replaced nic Ukrainians. Ukrainian was recog- socialism (social democracy), declared nized as the official language, national in the programs of the Central Coun- symbols and national system of state cil, and which was based on the form awards were widely used, Ukrainian of national cossack traditions, and the Academy of Sciences, National Histori- content of activities — on strict mo- cal Museum, National library and Na- narchism and authoritarian methods tional archive were founded, Ukrainian of management, characteristic of ma- universities were opened. The study of nagement in pre-revolutionary Impe- the Ukrainian language and literature rial Russia. As for the Hetman himself, has become mandatory. The process “the unification of the Slavic lands of of Ukrainization affected the visual, Austria and Ukraine and the creation musical and theatrical art, history of of an independent and independent Ukraine, national law, religion; at the Ukraine was his only lifelong task” [13]. same time, the rights of national minor- The head of the Ukrainian state gave ities (Jews, Crimean Tatars and others) the following assessment to the whole to free national — cultural and spiritual government: “I do not want to say that development were also recognized — all the central offices worked well, there these governmental steps convincingly were many people who were unsuitable prove the existence of a solid national due to their knowledge and their moral spiritual basis in the development of qualities, but it took time to disinfect all the Ukrainian State (even if there was these institutions” [14]. It is the lack of a foreign substrate in management). time to establish effective governance, Summary. The activities of the the people’s discontent with foreign Hetman government was another step mercantile patronage, the intensifica- towards the creation of the state in tion of political struggle in the state and Ukraine, initiated by the allies of the caused an uprising against the Hetman, Ukrainian State led by Hetman Pavlo which, in the absence of military sup- Skoropadskyi, which appeared instead port of allies engaged in territorial and of the UPR, even today remains a bright political divisions in their own States, lesson of the formation of national state it ended with the coming to power of building in the Ukrainian expanses. In the Directory. In any case, the ruling addition, the period of existence of the of Pavlo Skoropadskyi should be con- Hetmanate was a triumph of the execu- sidered as another (although initiated tive power, because never in Ukrainian by foreign patrons) historical attempt history the government had such broad of Ukrainians to build their own state powers and was not so deprived of con- model, however, not in the previous, de- trol of the legislature. However, it was clared by the Central Rada democratic under the strict supervision of the head pro-socialist format, but in the form of state and his foreign patrons and of autocracy, built on the principles of represented himself as a provisional au- military Ukrainian conservatism.

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