However, due to the conservative nature of the Tsarist regime and its desire to maintain power and control, social change in Russia lagged behind that of Europe.
[2] Contrary to popular imagination, the Russian Empire was an under-governed country compared to the rest of Europe.
In practice he only paid the Moscow and St Petersburg officials and in 1723 he used a quarter of the administration budget to pay off the deficit.
On 13 September 1767 Catherine decreed that after seven years in one rank, civil servants would automatically receive promotion—regardless of office or merit.
[4]: 135 Catherine changed the ecclesiastic provinces so they matched the administrative boundaries, thus increasing the bureaucracy's control over the church.