What Nicholas lacked in leadership he made up for by hard work. He was an industrious and conscientious monarch, especially during the first half of his reign, diligently sitting at his desk until he had finished his daily administrative duties. All this he did in the manner of a clerk — the ‘Chief Clerk of the Empire’ — devoting all his energies to the routine minutiae of his office without ever stopping to consider the broader policy issues. Whereas his father had been briefed on only the major questions of policy and had delegated most of his minor executive functions to his subordinates, Nicholas proved quite incapable of dealing with anything but the most trivial matters. He personally attended to such things as the budget for repairs at an agricultural training school, and the appointment of provincial midwives. It was evident that he found real comfort in these minor bureaucratic routines: they created the illusion of a smoothly functioning government and gave him a sense of purpose. Every day he carefully recorded in his diary the time and duration of his meetings with his ministers and his other official activities, along with terse notes on the weather, the time of his morning coffee, the company at tea, and so on. These routines became a sort of rituaclass="underline" at the same time every day he performed the same functions, so much so that his officials often joked that one could set one’s watch by him. To the petty-minded Nicholas, it seemed that the role of the true autocrat, ruling in person from the throne, was precisely to concern himself with every minor detail in the administration of his vast lands. He spent hours, for example, dealing with the petitions to the Chancellery: hundreds of these came in every month, many of them from peasants with rude names (e.g. serf nicknames such as ‘Smelly’ or ‘Ugly’ that had been formalized as their surnames) which they could not change without the Tsar’s consent. Nicholas proved unable to rise above such petty tasks. He grew increasingly jealous of his ministers’ bureaucratic functions, which he confused with the exercise of power, and resented having to delegate authority to them since he saw it as a usurpation of his own autocratic powers. So protective was he of his petty executive prerogatives that he even refused to appoint a private secretary, preferring instead to deal with his own correspondence. Even such simple instructions as the summoning of an official or the readying of a motor car were written out in a note and sealed in an envelope by the Tsar’s own gentle hand. It never occurred to him that an autocrat might be more usefully employed in resolving the larger questions of state. His mind was that of a miniaturist, well attuned to the smallest details of administration yet entirely incapable of synthesizing them into general principles of government. As Pobedonostsev once said of him, ‘He only understands the significance of some isolated fact, without connection with the rest, without appreciating the interrelation of all other pertinent facts, events, trends, occurrences. He sticks to his insignificant, petty point of view.’22
To defend his autocratic prerogatives Nicholas believed that he needed to keep his officials weak and divided. The more powerful a minister became, the more Nicholas grew jealous of his powers. Able prime ministers, such as Count Witte and Petr Stolypin, who alone could have saved the tsarist regime, were forced out in this fog of mistrust. Only grey mediocrities, such as the ‘old man’ Ivan Goremykin, survived long in the highest office. Goremykin’s success was put down by the British commentator Bernard Pares to the fact that he was ‘acceptable’ to both the Tsar and the Tsarina ‘for his attitude of a butler, taking instructions to the other servants’. Indeed, as befits a Tsar who ruled over Russia like a medieval lord, Nicholas regarded his ministers as the servants of his own private household rather than officials of the state. True, he no longer addressed them with the familiar tyi (the ‘you’ reserved for animals, serfs and children). But he did expect unthinking devotion from them and placed loyalty far above competence in his estimation of his ministers. Even Count Witte, who was anything but humble in his normal demeanour, found himself standing to attention in the presence of the Tsar, his thumbs in line with the seams of his trousers, as if he were some private steward.
Nicholas exploited the rivalries and divisions between his different ministries. He would balance the views of the one against the other in order to retain the upper hand. This made for little coherence in government, but in so far as it bolstered his position it did not appear to bother him. Apart from a short time in 1901, Nicholas consistently refused to co-ordinate the work of the different ministries by chairing meetings of the Council of Ministers: it seems he was afraid that powerful factions might be formed there which would force him to adopt policies of which he disapproved. He preferred to see his ministers on a one-to-one basis, which had the effect of keeping them divided but was a recipe for chaos and confusion. These audiences could be extremely frustrating for ministers, for while Nicholas invariably gave the impression that he agreed with a minister’s proposals, he could never be trusted to support them against those of another minister. Sustained and general debates on policy were thus extremely rare. If a minister talked too long on politics, the Tsar would make clear that he was bored and change the conversation to the weather or some other more agreeable topic. Aware that the Tsar found their reports dull, ministers consciously shortened them. Some even scrapped them altogether and amused him instead with anecdotes and gossip.23
The result of all this was to deprive the government of effective leadership or co-ordination during the final years of the tsarist regime. Nicholas was the source of all the problems. If there was a vacuum of power at the centre of the ruling system, then he was the empty space. In a sense, Russia gained in him the worst of both worlds: a Tsar determined to rule from the throne yet quite incapable of exercising power. This was ‘autocracy without an autocrat’. Perhaps nobody could have fulfilled the role which Nicholas had set himself: the work of government had become much too vast and complex for a single man; autocracy itself was out of date. But Nicholas was mistaken to try in the first place. Instead of delegating power he indulged in a fantasy of absolute power. So jealous was he of his own prerogatives that he tried to bypass the state institutions altogether and centre power on the court. Yet none of his amiable but dim-witted courtiers was remotely capable of providing him with sound advice on how to rule the country, coming as they did from a narrow circle of aristocratic Guards officers who knew nothing of the Russia beyond St Petersburg’s fashionable streets. Most of them were contemptuous of Russia, speaking French not Russian and spending more time in Nice or Biarritz than on their landed estates in the provinces. Under the court’s growing domination, Nicholas’s government was unable to create coherent policies to deal with the mounting problems of society which were leading inexorably towards revolution. During its final years, especially after Stolypin’s downfall in 1911, the government drifted dangerously as one sycophantic mediocrity after another was appointed Prime Minister by the Tsar. Nicholas himself spent more and more time away from his office. Government business had to be delayed for weeks at a time, while he went off on hunting trips, yachting parties and family holidays to the Crimea. But in the apparently secure refuge of his family another tragedy was unfolding.