INSTITUTE FOR BALKAN STUDIES

OF THE SERBIAN ACADEMY OF SCIENCES AND ARTS

SPECIAL EDITIONS 114

M I R O S L AV S V I R E V I

H ORIGINS OF
LOCAL GOVERNMENT
AND THE DEVELOPMENT
OF THE MODERN
SERBIAN STATE

BELGRADE 2011

114

2011



, 35/IV
-mail: balkinst@bi.sanu.ac.rs
www.balkaninstitut.com

EON dsign studio

500
ISBN 978-86-7179-072-7

)
(1839) (1903);
)
: (17651836), - (17881859),
(18231868), (18461875),
(18511939)

XIX
XX
(. 177011),
.

1. . . . . . . . . . . . . . . .
1.1. . . . . . . . . . . . . .
2. . . . . . . .
3.
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

14
15
16
19

I
XVIII
1. XVIII . . . . . . .
2. :
. . . . . . . . . . . . . . . . . . .
3.
17181739. . . . . . . . . . . . . . . . . . . . . . . .
4.
17391788. . . . . . . . . . . . . . . . . . . . . . . . . . . .
4.1. . . . . . . . . . . . . . . . . . . . . . .
4.2. . . . . . . .
4.3. . . . . . . . . . . . . . . . . . . . . . . . .
5.
17911801. . . . . . . . . . . . . . . . . . . . . . . .
5.1. 10. . .
5.2. III . . . . . . . . . .
5.3. . . . . . .
6. III . . . . .

43
43
46
48
50

II

1. . . . .
2. . . . . . . . .
3. . . . . . .
4. . . . . . . . . . . . . . . . .

53
55
56
73

III

1. -
1815. . . . . . . . . . . . . . . . . . . . . . . . . . .

77

23
27
30
33
34
37
41

2. . . . . .
2.1. . . . . . . . .
2.2. . . . . . . . .
2.3. . . . . . . . . . . . . . . . . . . . . . . .
2.4. . . . . . . . . . . . . . . . . . . . . .
3.
18151830. . . . . . . . . . . . . . . . . . . . . . . . . . . .
4. 18301839. . . . . .
4.1. 1830. 1833. . . . . . . . .
4.2.
18301835. . . . . . . . . . . . . . . . . . . . . .
4.2.1. 18301835. . . . . . .
4.2.2. 18301835. . . . .
4.2.3. . . . . . . .
5. 1835. . . . . . . . .
5.1. . . . . . . . . . . . . . . . .
5.2. . . . . . .
5.3. . . . . . . . . . . . . . . . . . . . .
5.4. ()
18351838. . . . . . . . . . . . . . . . . . . . . . . . . .
6. 1838. . . . .
6.1. . . . . . . . . . . . . . .
6.2.

. . . . . . . . . . . . . . . . . . . . . . . .
6.3. . . . . . . .
7. 1839. . . . . . . . . . . . . . . .
IV

1. .
2. . . . . . . . . . .
3. . . . . . . . . . . .
3.1.
1839. . . . . . . . . .
3.2. 1839. . . . . . . . . . .
3.3. . . .
4. . . . . .
V


1. 18591860.
2. . . . . . . . . . .
2.1.
. . . . . . . . . . . . . . . . . . . . . . . . .
3.
. . . . . . . . . . . . . . . . . . . . . . . . . . . . .

81
84
88
89
91
92
92
92
95
95
97
99
100
100
104
105
106
108
108
110
112
113

117
119
122
123
127
132
134

139
143
146
147

3.1. 1861. . . . . . . . . . .
3.2. 1861. . . . . .
3.3. 1861. . . . . . . .
3.4. 1861. . . . .
3.5.
1863. . . . . . . . . . . . . . . . . . . . . . . . . . . .
4. . . . . . . . . . . . . . . . . . . . . . . .
4.1. 1866. . . . . . . . . . .
4.1.1. . . . . . . . . . . . . . . . . . . . . . . .
4.1.2. . . . . . . . . .
4.1.3. . . . . . . . . . . . . . . . . . . . . . . .
4.1.4. . . . . . . . . . . . . . . . .
4.1.5. . . . . . . . . . . . . . . . .
4.2. , ,
, 1866. . . . . . . . . . . . . . .
5. 1868. . . . . . . . . . . . .

148
151
153
153
154
155
155
156
156
160
161
161
164
154

VI


1.
18681872. . . . . . . . . . . . . . . . . . . . . . . . . . . .
167
2. 1869. . . . . .
168
2.1.
. . . . . . . . . . . . . . . . . . . . . . . . . .
170
2.2. . . . . . . . .
179
2.3. . . . . . . . . . .
183
3.
18681872. . . . . . . . . . . . . . . . . . . .
188
3.1. . . . . . . . . . . .
190
3.2. . . . . . . . . .
192
4.
. . . . . . . . . . . . . . . . . . . . . . . . .
194
4.1.
1875. . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
196
5. 1875. . . . . . . . . . . . . . . . . . . . . . .
199
VII

1. . . . .
2.
. . . . . . . . . . . . . . . . . . .
3.
- . . . . . . . . . . . . . . . . . . .
4.
. . . . . . . . . . . . . . . . . . . . . . . . . . .
4.1. :
- . . . . . . . . . . . . . .

207
211
219
224
226

4.2. : -
. . . . . . . . . . . . . . . . . . . . . . . . . .
4.3. : -
. . . . . . . . . . . . . . . . . . . . . . . . . .
5.
- . . . . . . . . . . . . . .

230

VIII


1. . . . . . . . . . . . . . . . . .
2. () . . . . .
3.
. . . . . . . . . . . . . . . . . . . . . . . . . . .
4.
. . . . . . . . . . . . . . . . . . . . . . . . .

235
238

227

231

242
253

IX

(18781883)
1.
1878. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
257
2. 1878.
. . . . . . . . . . . . . . . . . . . . .
261
3. . . . . .
267
3.1. - 18761878.
268
3.2. . . . . . . . . . . .
270
3.2.1. . . . . . . . . . . . . .
272
3.2.2.
1878. . . 278
3.2.3. 281
3.2.3.1.
. . . . . . . . . . . . . . . . . . . .
283
3.3. . . . . . . . .
290
3.4. 18761878.
. . . . . . . . . . . . . . . . . . . . . . . . . . .
294
3.4.1.
. . . . . . . . . . . . . . . . . . . . . . . . . 302
4. . . . .
303


18811903.
1.
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
2. . . . . . . . . . . . . . . . . . . . . . .
3. . . . . . . . . . . . . . . . . . . . .
4. . . . . . . . . . . . . . . . . . . .
4.1. .

307
309
313
328
338

4.2. 1881.
5. . . . .
5.1. . . . . . . . . . . . . . . . . . . . . . . . .
5.2. . . . . . . . . . . . . . . . . . . . . . . . . . . .
5.3. . . . . . . . . . . . . . . . . . . . . . . . . .
5.4. . . . . . . . . . . . . . . . . . . . . . .
5.5. . . . . . . . . . . . . . . . . . . . . . . . . . . .
5.6. . . . . . . . . . . . . . . . . . . . . . . . . .
5.7. . . . . . . .
I

18831894.
1. 1883. . . . . .
2.
1884. . . . . . . . . . . . . . . . .
3. 1888. . . . . . . . .
3.1. . . . . .
3.2. . . . . . . . . . . . . . . . . . .
3.3. . . . . . . .
4. 1889. . . . . . . . . . . . . . . . . .
4.1. . . . . . . . .
4.2. . . . . . . . . . . . . . . . . . . .
4.3. . . . . . . . . . . . . . . . . . . . .
4.3.1. . . . . . . . . .
4.3.2.
4.3.3. 1890, 1891. 1892.
4.4. . . . . . . .
5. 1890.
. . . . . . . . . . . . . . . . . . . . . . . . . . . .
5.1.
. . . . . . . . . . . . . . . . . . . .
5.2. . . . . . . . . . . . . . . . . . . .
5.3. . . . . . . . . . . . . . . . . . . . .
5.3.1. . . . . . . . . .
5.3.2.
5.3.3.
. . . . . . . . . . . . . . . . . . . . . .
5.4. . . .
II

1. 18891893. . . . . . . . . . .
2. 18931897. . . . . . . . . . . . . . . . . . .
3. 18971900. . . . . . . . . . . . . . . . . . .

346
347
345
349
349
351
352
352
353

357
360
362
362
364
366
374
374
367
383
384
389
391
398
400
400
404
411
411
414
416
418

421
425
431

4.
1898. . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
5. 1898. . . .
6.
1900. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
7. 1901. . . . . . . . . . . . . . . .
7.1. . . . . . . . . . . . . . . . . . . .
7.2. .
8. 1902. . . . . . . . . . . . . . . . . .
9. 1903. . . .

433
435
438
439
440
444
446
451

III
I

1.
. . . . . . . . . . . . . . . . . . . . . . . . . . . .
455
2. 1903. . . . . . . . . . . . .
458
3.
19031914. . . . . . . . . . . . . . . . . . . . . .
471
3.1. . . . .
472
3.2. () -
. . . . . . . . . . . . . . . . . . . . . . . . .
475
3.3. . . . . . .
478
3.4. - . .
480
3.5. . . . . . . . . . .
483
4. 1902. ,
. . . . . . . . . . . . . . . . .
485
4.1. 1903. . . . . . . . . . . . . . .
485
4.2. 1904. . . . . . . . . . . . . . .
489
4.3. 1905. . . . . . . . . . . . . . .
489
4.4. . . . . . .
491
4.4.1. . . . . . . .
492
4.4.2. 495
4.4.3.
. . . . . . . . . . . . . . . .
497
4.5. 1909. . . . . . . . . . . . . . .
501
4.5.1. . . .
503
5. 1905. . . . . . . . . .
506
5.1. 1909. 1910. . . . . . . . . . .
512
5.2. . . . . . .
514
6. 19031914. . . .
516
6.1. . . . . . . . . . . . . . . . .
516
6.2. . . . . . . . . . . . . . . . . . .
522

 XIV


1. . . . . .
525
2. . . . . . . . . . . . . . .
528
2.1. . . . . . . . . . . . . . . . . . . . . . .
529
2.2. . . . . . . . . . . . . . . . . . . . . . .
530
2.3. . . . . . . . . . . . . . . . . . . . . . . . . .
531
2.4. () . . . . . . . . . . . . . . . .
531
2.5. . . . . . . . . . . . . . . . . . . . . . .
532
2.6. . . . . . . . . . . . . . . . . . . . . . . . .
533
3. .
533
4. -
. . . . . . . . . . . . . . . . . . . . . .
535
5. 19121913. . . . . . . . . . . . . . . . . .
540
5.1. 1912. . . . . . . . . . . . . . . . . .
540
5.2. 1913. . . . . . . . . . . . . . . . .
541
6.
. . . . . . . . . . . . . . . .
542
7. . .
546
7.1. . . . . . . . . . . . . . . . . . .
547
7.2. 1912. 549
7.3. 1913. 552
7.4. I 1913. . . .
556
7.5.
1913. . . . . . . . . . . . . .
556
7.6.
. . . . . . . . . . . . .
558
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

561

Sammary . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .

581

. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
. . . . . . . . . . . . . . . . . . . . . . . . . . . . . . .
. . . . . . . . . . . . . . . . . . . . . . . . . . . . .

595
598
619

1.
,
,
,
.
(17871864),
,
, ,
XIX ,
,
: , , , ,
. , 20- 30-
XIX
, ,
, .
,
, . -,
1850. ,
, ,
() .
.
. : 1981, 913.

, . .

Sclavonia ( ) Serbia Servia,
Rascia, Rasia, Rassa, Raxia. . : 1978.

. : 1981, 1314.



14

,
, .
, .

-
.
1.1.
() 16831699.
,
(1699)
,
( ) .

,
(/),
.
,
- : 1807. ,
,
,
,

, , .

, : ,
, [ .
. .], : ,, , ,
, , , ;
, , , ,
( 1964, 126127).

1986, 7.

,
() . - (
),
. ()
. -
, - ()
.
,
( 1986, 710).

15

: .
,

, .
() .

,
. ,
.
,
.

.
1716
1718, 17371739. 17881791.
, (1739)

( ) ( ).
:
,
.
( ),
( )

.
12 : ,
, , , , , ,
, , , .
,
.

1830. .

1986, 717, 306307, 312313.

. : 1995, 110120.

1986, 1417.


17181739. ,
-
, (
). (1739)
,
(
) ( 1986, 111113).

1981, 67, 136.

16

, 1833.
. .

- .
, ,
.
2.


.10 :

, 1914. .11
. ,

1981, 117119, 123125, 136130.

IX , : /
/ / .
: /
/ ,
. . / 1970, 326357;
2001, 278
350; 2003, 585592.
11
. 1835. .
1838. i,
.
. (1868)
, (1882).
(
) (),
:
,
.

, , ,
.
, ;
, ( 1972, 328
329).
(1852) , . ,
,
1878. (/ 1970, 339342;
2001, 311312, 332334; 2003, 585).
.


10

17

,
.

,
.


.
,
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,
(, ,
, .).

( ),
().


,
.

,
XIX .
18041813.

,

. ,
- 18151830.
18301838.
, .12 ,
,
,
.
1842
1858. , 18601868.
18041830.
, (
) : ,
, , ,
. ,

( 2001, 27).
12

18

18681872.

, .
, 1871
1875. .
,
1875.
, , ,
.
( )
1881. .
,
, .
.

,
. :
.
.
, .

,
. 1888. 1903.
, 1889, 1902.
, 1903, 1904, 1905. 1909,
1890, 1905. ,
1909. 1910.
19121913.
, . ,
: 1903. 1905.
.
. ,

.

, ,
, : , , ,
, . , ,
.13
.: 1907, 1991, 1991, 1991,
1991, 1991, 1991, 1991,
13

19

,
XVIII
.
-
(18041914). ,
XIX
, .
3.

,
, .
,
.
,
. ,
,
.
,
, .14 ,
(,
, , , , , , , ,
, , .),
.

1991, 1991, 1991, 1927, 1955,

1976, 19821983, 1998, 2009, 2010,
2011.
14
, ()
.
()
(, ).
. -
, , .
, -
,
(. ,
).
. : 1970,
170171.

20

, : 1)
; 2) .15

.
, ,
, ,
, ,
, .



.
. , ,

,

.
,

.
, , (
).
, .
.
( 1914. ).
,
(
).16

.
.
(,
, .) ,

,
,

. . : 1991, 249254, 350351, 397406;
1970, 170172, 178180; 1991, 507511.
16
1838.
( i ),
, ().
15

21

.17 , ,
,
.
() .

(. , , ,
.).
,
. .
,
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.
,
(selfgovernment),18
.19

.
15. 1985.
(European Charter of Local
Self-Government).20
,
( ),
.

: (
1991, 397406); ( 1966, 78); (
1970, 179180); ( 1991, 509511);
( 1998, 16); ( 1999, 124);
( 2005, 4649) .
( 1957, 531); ( 1990, 919); (
2006, 251261) .
18
.

.
, ,

().
. . :
1991, 403405.
19
autonomie locale, kommunal
frvalting . ( 1991, 509).
20
. : http://www.conventions.coe.int/treaty/en/Treati
es/Html/122.htm
17

22

.

,
(, , ,
.).
,
- .
.
.

XVIII
,
.

XVIII

1. XVIII


,

.

, . ,
- . ,
je o , .
,
- .

, : 1) ; 2) -; 3) ; 4) -.


, XVIII
.

.
:
;
; -


1987, 127135, 154181; 1987, 135143, 162189.

24

. T
,
- , , ,
.
a a ,
,
: 1) - ; 2) -
; 3) - (,
, .).
,
.
- ,
.

. XIV
XVIII
, ,

.
,
1389. . ,
, .


- , : ;
- (16831689, 17161718, 17371739, 17881791);
, ;
; , . . : 1987,
142146; 1987, 109, 150155. -
(
1930; 1953, 1115, 1819, 1920, 2021).

-


.
-
( 1987, 147149; 1987, 107108; 156157;
1953, 1718).

1987, 149150; 1987, 108, 157158; 1953, 18,
20.

2004, 311; 2004, 6364.


, ,
. ,
, ,
.


25

.
, ,
.
, XIV XVIII
( ). ,
, , ,
.
III
1690. ,
.
.
60.00070.000 ,
.
1690.
.
,
.

,
.10 ,
, .11

- 17371739,
IV . ,
50.00060.000 .12
, .

[]
,
, , , [
], , , , , ,
, : , , ,
. ( 1957, 318; 1954, 3940; 1929, 297298).

1957, 318; , 1954, 3940.

1991, 100; 1989, 86.
10
1991, 100.
11

.

, ,
: 1) ; 2)
; 3) ,
; 4)
( 1953, 4548).
12
1924, 27; 1960, 1279.


26

.13 ,

.
, ,
,
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.14
,
XVIII
.
, . ,
, (
),
.

. ,
, ,15
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.16

,

( 1957, 318; 1954, 3940).
14
1991, 100.
15
. : 1974,
1321.
16

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13

27

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XVIII XIX .
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,

XIX

.19

,
.
.
,
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.
2. :

,

,
.


( 1953, 32).
17
1991, 47.
18
1991, 101.
19
1991, 47.

28

XVIII .20
,

: ,

.21
.
.
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,
,

.

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( 1987, 165; 1987, 173.)
21

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29

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XVIII
22 .

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23
XIX .
: 2003, 285
312.
22

30

.
.
XIX .

.24
,
,
. ,

, . ,
XVIII .

17181739. ( ),
17391788. (
- )
III, 17931804. (
).
3.
17181739.
,
1699.
. ,
,
17161718. . ,
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SUMMARY

I
The medieval Serbian state remained very much alive in popular memory during the centuries of Ottoman rule, but not even on the eve of the First
Serbian Insurrection (180413) was there in the popular mind a geographic
area distinctly identified as Serbia. After the exhausting Austro-Ottoman wars
(168399; 171618; 173739) and Ottoman territorial losses in central Europe, the confluence of the Sava and Danube rivers on the Ottoman Empires
north-western periphery gained strategic importance. It was then that the pashalik (eyalet, beylerbeylik) of Belgrade was created, encompassing the sanjak of Smederevo, and parts of the adjacent sanjaks of Zvornik and Kruevac
(until 1718, also a portion of the former sanjak of Srem). The authority of
the Ottoman Belgrade military commander reached as far as the forts of Ni
and Pirot (sanjak of Ni), ensuring a greater military efficiency of the entire
pashalik. This resulted in an elaborate Ottoman system of defence centred on
Belgrade. The territory of the pashalik was to become the nucleus of the modern Serbian statePrincipality/Kingdom of Serbia.
The local government building process in Serbia between the early 1800s
and 1914 went through several clearly recognizable stages, within which certain
types of local government institutions were being developed. Even though each
of these stages is distinctive in its own right, taken together they form a single
evolutionary phase in the process of the modern Serbian states political emancipation from Ottoman rule and national culture building.
What had preceded this process in the pashalik of Belgrade in the eighteenth century was the functioning of institutions of self-government (village
and a group of villages/kneina), for the perpetuation and recognition of which
within the Ottoman Empire the Serbian population had been persistently struggling. The phases that followed were:

582

180413: First Serbian Insurrection led by Karadjordje Petrovi

181539: First reign of Prince Milo Obrenovi
183958: Regime of the so-called Constitution Defenders
185858: Second reign of Prince Milo and Prince Michael (Mihailo)
Obrenovi
186878: Regency period with a succession of short-lived governments, strongly marked by the political ideas and activity of Svetozar Markovi
and Adam Bogosavljevi, and with its closing years marked by the Eastern
Crisis (187578)
187883: Early years of independence (especially in the newly-liberated areas, the counties of Ni, Pirot, Toplica and Vranje) and the formation of
political parties in the modern sense (Liberal, Popular and Popular Radical)
18831903: Period of political strife over the national interest priorities, marked by the Popular-Radicals demand for the introduction of a
parliamentary system and local self-government; the Radicals struggle, by
parliamentary and non-parliamentary means, against the Progressives and
the autocratic regime of King Alexander Obrenovi (18831903); the Timok
Rebellion (1883) and its legal and political consequences; the institutional
struggle against the autocratic regime of King Alexander Obrenovi, and the
military conspiracy against the King, ending in the May Coup and the assassination of the royal couple (18941903)
190312: Reign of King Peter I Karadjordjevi until the Balkan Wars,
marked by a notable strengthening of the parliamentary system, local selfgovernment and the political role of the military
191214: Functioning of provisional authorities in Old Serbia and
Macedonia from their liberation in the Balkan Wars until the outbreak of the
First World War
II
The First Serbian Insurrection had three centres of resistance to the
reign of terror perpetrated by the Janissaries who had usurped power in the pashalik of Belgrade, defying Ottoman central authority. In umadija, the heartland of the pashalik, the insurgents were led by Karadjordje Petrovi; in the
Valjevo region, western Serbia, by Jakov Nenadovi and his nephew Mateja;
east of the Velika Morava river, by Milenko Stojkovi and Petar Teodorovi
Dobrnjac. Before the outbreak of the insurrection, few of its leaders, which
came to be known as vojvodas, had been village heads (knez) and had had
little influence among the people. It was the insurrection that propelled them
to the forefront, giving rise to a new leadership stratum which, apart from
some knezes of the pre-insurrection period, included merchants, priests, archimandrites, hajduks, bolukbashis, members of the freikorps disbanded after the
Austro-Ottoman war of 178891.

583

The functioning of the insurgent states central and local governments

directly depended on the relationship between Karadjordje and local leaders.
Three political groups, each advocating a different form of government, entered into a fierce conflict. The one led by Karadjordje advocated a centralized
structure with power concentrated in the hands of the insurrections supreme
leader. The group around Jakov Nenadovi advocated the setting up of a governing body to which all leaders would be accountable. Stojkovi and Dobrnjac, leaders of the third group, became involved in negotiations with the Russian troops stationed in the lower Danube, while in fact aspiring to be absolute
masters of their own respective areas and as independent from Kardjordje as
possible.
A governing bodySerbian Governing Councilwas set up as early
as 1805. It managed administrative, military and judicial affairs, but was unable to impose itself as the highest political body. The issue of a constitution,
however, was discussed at the assemblies of vojvodas. This form of political decision-making was less institutionalized than the Council, but its political importance was incomparably greater. Whatever was deemed a matter of
political significance and did not fall under the jurisdiction of the Council
was discussed at such assemblies. At the assembly held in Belgrade in 1811,
Karadjordje overpowered his opponents and proclaimed a constitutional act
ensuring him supreme military and political power.
Now disposing of supreme power, Karadjordje carried out a radical restructuring of local government, especially as regards local military headship.
He fragmented the areas controlled by vojvodas into smaller military-administrative units, limited the powers of vojvodas, replaced the commanding cadre,
and instituted a hierarchical system of responsibilities under which vojvodas
were no longer independent, but, on the contrary, completely subordinated to
the supreme commander. This reform of local government blunted the edge of
the insurgent army, which in turn considerably contributed to the collapse of
the insurgent state in 1813.
III
The Second Serbian Insurrection broke out in 1815, against the backdrop of a new balance of power in Europe as a result of Napoleons defeat,
and after a few months ended with an oral agreement between the Ottoman
general of Rumelia, Marashli Ali Pasha (subsequently vizier of Belgrade) and
the leader of the uprising, Milo Obrenovi. In early 1816, the Porte sanctioned the agreement by eight firmans to Ali Pasha regulating the position of
the Serbs in the pashalik of Belgrade under the new Ottoman administration.
After that, a sort of dual, Serbian-Ottoman, administration was established in
the pashalik, and Milo Obrenovi was tacitly recognized as its knez or prince.
Slowly but surely, however, Milo took control of the levers of power one

584

by one: judicial, financial, police and administrative. It was a great personal

success for Milo, but it also was significant for the Serbian population. Identifying his personal interests with the state interest, and intent on building and
strengthening domestic government, Prince Milo had to overcome four kinds
of obstacles: (1) rivalries among local leaders; (2) resistance from heads of
nahiyes and kneinas; (3) brigandry; and (4) occasional popular revolts.
Having overcome all these obstacles within the next fifteen years, Milo
concentrated legislative, executive and judicial power in his hands and became
an autocrat. The Sultans hatti-sherif of 1830 accorded autonomous status to the
pashalik of Belgrade, which lent a new quality to the domestic legal system and
provided a basis for the further struggle against Ottoman rule and for establishing a constitutional system. Milo, on the other hand, was granted the hereditary
title of knez (prince). In 183035, all main obligations of the Principality of
Serbia towards the Ottoman suzerain also came to be defined, notably the annual tribute; the Ottoman agrarian system was abolished; and the Principality
incorporated the areas liberated during the First Insurrection (known as six nahiyes, which had not been part of the pashalik of Belgrade). At the same time,
however, the legal basis was strengthening for the struggle of Princes opponents for the legality principle, especially legal protection of private property.
The last large-scale revolt against Prince Milos absolutist rule, knezMiletas rebellion of 1835, forced the Prince to acquiesce in the promulgation
of the first Serbian constitution, known as Sretenjski ustav (Presentation-Day
Constitution). Rejected by Ottoman Turkey, Russia and Austria, however, it
was short-lived. The next constitution was drawn up in Istanbul, with the participation of Russian representatives. It had the form of the Sultans hattisherif granted to the inhabitants of the Province of Serbia in 1838, and thus
popularly known as the Turkish Constitution. This Constitution provided for
the sharing of power between the Prince and a newly-established state body,
the Council (Sovjet). The Council was granted absolute veto power to stop
any bill proposed by the Prince, which ensured it a great political authority
in the country. The notables who became its members were prepared to strip
the Prince of his powers to the greatest extent possible, and in April 1839,
Milo was forced into promulgating a law on the Council, which additionally
limited his legislative and executive powers. Milos abdication in June 1839
as a result of these developments ushered in a new phase in the political and
constitutional development of the Principality of Serbia.
IV
The opposition to Milos absolutism, a party known as Constitutionalists or Constitution Defenders, was led by prominent popular leaders (Toma
Vui Perii, Avram Petronijevi, Stojan and Aleksa Simi, Milutin Garaanin
and his son Ilija). Milos absolutist regime was soon replaced with their oli-

585

garchic rule. After the short-lived reign of Milos son Michael (183942), the
Constitutionalists installed Prince Alexander Karadjordjevi, son of the leader
of the First Insurrection, Karadjordje Petrovi. The Constitutionalists regime
was ended in 1858 by the deposition of Alexander and the decisions of the
Assembly known as St Andrews Day Assembly.
The Turkish Constitution of 1838, meanwhile in effect, had allowed the
Constitutionalists to pursue their goals undisturbed: the principle of legality,
centralized government, and the security of tenure for bureaucracy. One of
the most important laws enacted under the Constitutionalists was the Law on
Counties and Districts of 1839. It established a pyramidal hierarchy and rigid
bureaucratic subordination (central administrationcountiesdistricts). The
process continued with the Law on Municipalities of 1839, whereby municipal organs were fully subordinated to the central administration. This model
of local government and its utter dependence on central government was not
to be changed until the following stage in the development of the modern Serbian state, under the second reign of Michael Obrenovi.
V
The fall of the Constitutionalists regime at the Saint Andrews Day
Assembly in 1858 and the return of Prince Milo to the throne in 1859 ushered in the new ten-year phase in the state and legal system building process
(185868). It was marked by the strengthening of princely power, the weakening of the political position of the Council and the introduction of the Popular
Assembly as a regular political institution, all of which gave a further boost
to centralization.
During the brief second reign of Prince Milo (185960) there was no
new legislation on local government. Major changeboth on central and local levelsoccurred in the second reign of Prince Michael (186068), even
though the Prince himself stood for centralism and absolutism, defending his
position by, among others things, his ambitious foreign policy agenda.
Central administration was reorganized by a series of organic laws enacted in 1861/2. Local administration reform was carried out on the grounds of the
Law on Municipalities of 1866, according to which all municipal organs (municipal assembly, municipal court, municipal board, mayor) were subordinate to
and overseen by central authorities, with no margin for independent action.
VI
The tragic death of Prince Michael in 1868 marked the beginning of
another ten-year period (186878) in the development of Serbias political

586

and legal systems. It ended with the change of her international statusshe
became a sovereign state independent of the Ottoman Empire.
Milan Obrenovi, proclaimed Prince by the army in 1868, was minor,
and therefore until 1872 the princely authority was exercised by a body of
regents (Miloje Petrovi Blaznavac, Jovan Risti and Jovan Gavrilovi). One
of the regents, Jovan Risti, was gradually taking control. Risti came to a
political understanding with a liberal group and soon became their leader. This
political compromise led to the reshaping of the highest political institutions
in the country.
The most important proof that state policy was taking a liberal course
was the promulgation in 1869 of a new constitution (Regency Constitution)
independently of the Porte. Those who were instrumental in its shaping were
Jovan Risti and Radivoje Milojkovi, Minister of the Interior. Risti advocated moderate liberalism, a wider range of powers for the popular representative
body and division of power between the representative body and the Prince,
while safeguarding a centralized state administration and a strong executive
power embodied in the Prince and ministers.
With the control of the country in their hands, Risti and his liberals
realized that a strongly centralized local government was in their own best interest and that it might be used to purge the state administration of the remaining conservative elements (from the period of the Constitutionalists). For this
reason, they retained the system of local government inherited from the reign
of Prince Michael, while introducing slight modifications to adjust it to their
party interests. Jovan Risti and his liberals began the practice of installing
obedient officials in counties, districts and municipalities regardless of their
abilities and qualifications (the practice known as partisanship). For the same
reason, they retained the Constitutionalists Law on Counties and Districts
and the Law on Municipalities, which allowed them to pursue partisanship on
local level.
The Young Conservative government of Ljubomir Kaljevi (1875/6)
reformed local government in 1875 through amendments to the 1866 Law on
Municipalities. The amendments considerably broadened the powers of municipalities (most of all the municipal assemblies and boards), which became
more independent in relation to central authorities.
However, the amendments were in force for only a brief period of time.
During the Serbian-Ottoman wars of 187678, they were revoked and the prewar laws were re-enacted.
VII
Under the Regency (186872), Svetozar Markovi (184675) stepped
onto Serbias political scene. Influenced by the ideas of Russian and West-

587

ern socialism, he developed a distinctive concept of government, modifying

it successively to make it suit the political, economic and social reality of
Serbia. Markovis concept of state, political and economic reorganization of
Serbia went through three phases.
In the first phase, Markovi developed the concept of municipality as a
politically and legally autonomous unit with all attributes of a state. The central stateshould there be one as a legal personwas supposed to be an association of free municipalities with defence as its only original competence.
Such a municipality would enable the formation of the popular representative
body using referendum and popular initiatives. In that way, the municipality would embody perfect democracy and popular self-government, and have
tremendous political importance.
In the second phase, Markovi was powerfully influenced by the Paris
Commune of 1871 and Bakunins theory of the state as an association of
communes or municipalities. As a result, he revised his concept of state reorganization, which now became more of a federation with some quite unusual
elements. He found that Serbian municipalities were small in area, economically weak, technologically lagging and lacking well-trained cadres, and that
therefore they were incapable of assuming the responsibilities of a municipality-state he had envisaged. This led him to the concept of a big municipality,
i.e. the district, a self-governing entity created by the spatial and functional
merging of the existing municipalities.
In the third phase, in addition to self-governing municipalities and districts, Markovi introduced yet another self-governing entitythe county.
According to his Programme of 1873, the state was conceived of as a federation of free counties.
Towards the end of his short life, Markovi shifted from socialism to
democratic radicalism, focusing on parliamentarianism and actual local selfgovernment.
VIII
With Adam Bogosavljevi (184380) a new phase in the struggle for local self-government in Serbias political life began, and the movement started
by Svetozar Markovi attained its full significance. Bogosavljevi, who chose
to stay a farmer even though he had higher education, retained only those of
Markovis ideas that were in favour of the peasantrys class struggle. He
saw the state through the eyes of a rational rural householder.
Bogosavljevi adopted two ideas from the corpus of Markovis
thought to underpin his populist ideology: (1) struggle against bureaucracy
seen as an unproductive, parasitic social stratum; and (2) simplified and
cheaper state administration based on the principle of popular self-govern-

588

ment. Convinced that the existing state administration was only in the interest of bureaucracy, Bogosavljevi proposed its thorough reorganization: the
state was to be organized on the principle of popular sovereignty and popular
self-government in order for the freedom of the press, assembly, speech and
association, to be secured and power ceded to the most productive social stratumthe peasantry.
In his capacity as National Assembly member, Bogosavljevi put forth
concrete demands for the reorganization of state administration, submitting
them in the form of law proposals. They received so strong public response
that the Law on Municipalities which had been in effect since the reign of
Prince Michaelturning them into rigid administrative and territorial units
had to be modified.
Owing to Bogosavljevi and his political activity, the idea of local selfgovernment led to that of responsible government, which was rapidly gaining
popular support. After his death in 1880, this radicalization of basic political
tenets was carried on by the like-minded Popular Radical Party, which was
founded in 1881.
IX
Once the Serbo-Ottoman wars of 187678 ended and the Principality
of Serbia achieved independence and international recognition at the 1878
Congress of Berlin, a new phase in its legal, political and cultural development began. Serbia was now territorially expanded with the so-called New
Areas: the Ni, Pirot, Toplica and Vranje counties. The process of integrating
the New Areas into Serbias political and legal systems took five years: from
1877, when Serbia was still at war, until 1882.
The integration process was exceptionally complex and difficult to carry through. For that reason, the process of building state apparatus and local
government in the New Areas ran in parallel with three major legal and political issues: (1) establishing of new local government bodies; (2) regulation of
agrarian relations; and (3) colonization.
The process of building civil administration in the New Areas had two
phases: (1) establishing of provisional local authorities; and (2) establishing of
permanent authorities such as those existing in the Principality of Serbia. The
first phase lasted from December 1877 (when the first government officials
arrived in the liberated areas), until 17 December 1878 (when the Law on the
Division of the Annexed Territory into Counties and Districts was enacted).
The second phase lasted until 1881, when the Law on the Police in the NewlyLiberated Areas was enacted.
Agrarian relations were regulated under the Law on Agrarian Relations
in the Newly-liberated areas of 1880. It acknowledged the right to compensa-

589

tion to the spahis and chiftlik-owners who had lived in the newly-liberated
areas under the Ottoman Empire. The right could be exercised under a special
procedure, but in 1882 the Serbian government took the obligation to pay
collective compensation to the former masters through the mediation of the
Porte, and it took a loan in Austria-Hungary for that purpose.
Under the Law on Colonization of 1880 every farming family who settled in the New Areas was allotted four hectares of farming land and a house
lot of twenty acres. Under this law the state subjected the process of populating the New Areas to its legal system. Serbian settlers from the Ottoman
Empire, such as Montenegro, Herzegovina (already under the Austrian occupation), Bulgaria, and even from Austria-Hungary (Serbs from the Banat and
Baka) and western Serbia (Uice region), strengthened the ethnic Serbian
component and created demographic conditions for a more efficient organization of local administration in the New Areas.
X
The 1880s saw the emergence of first Western-style political parties in
Serbia. Liberals constituted the oldest political group, which had emerged as
early as the mid-1800s, fighting for a parliamentary system. Its mainstays
were sons of the fatherland, members of the first generation of domestic
intellectuals. As holders of scholarships provided by the Constitutionalists
government, they had been educated at Western (mostly French) universities,
where they had become familiar with liberal political ideas. Upon returning
to the country, they advertised the principle: liberty internally, independence
externally, and engaged in the political struggle for the modernization of domestic political institutions. After the 1858 Saint Andrews Day Assembly, the
liberals slowly but surely grew into a true political party, formally founded in
1882. Its unquestioned leader was Jovan Risti. In 1888 and 1889, the original
Liberal Party programme was amended and supplemented with new political tenets, demanding self-government for municipalities, though with some
measure of central government control. This was a significant evolution in the
Liberals understanding of the organization of central and local governments.
The Progressive Party, founded in 1881, assembled conservatives and
had four key figures: Milan Piroanac, Milutin Garaanin, Stojan Novakovi
and edomilj Mijatovi. Its views on the organization of central and local
government stemmed from two major projects: (1) Law Proposal on the Organization of State Administration of 1882; and (2) The Kingdom of Serbia
Draft Constitution of 1883. According to the Law proposal, local government
reform would consist in the abolishing of counties, the establishing of five
provinces (oblast) and the strengthening of district government, and all this

590

in a centralized state structure. A similar idea was put forward in their Draft
Constitution.
The Popular Radical Party, founded in 1881, was ideologically shaped
under the influence of Adam Bogosavljevi (its rural wing) and Svetozar
Markovi (the intelligentsia). It focused on a struggle against the bureaucracy. The party also had four key figures: Nikola Pai, Pera Todorovi, Stojan
Proti and Milovan Milovanovi. However, after the Timok Rebellion in 1883,
the Radicals became fully committed to the struggle for political change: for
constitutionalism; the principle of popular sovereignty and parliamentary democracy; local self-government; political rights and liberties; justice as the
ultimate value for every citizen. These ideas were particularly manifest in the
constitutions of 1888 and 1903, and in many laws enacted under successive
Radical governments. The Radical Raa Miloevi published a booklet titled
The structure of districts based on the principle of self-government and voting
right, elaborating the principle of self-government as a basis for the organization of administration. Miloevi stressed three principles for organizing
districts and the entire system of local government: (1) popular sovereignty;
(2) voting right; and (3) self-government.
XI
The building of a constitutional and legal framework for local government was a highly sensitive political issue between the Timok Rebellion in
1883 and the reinstitution of the Regency Constitution in 1894 in the reign of
King Alexander Obrenovi. As early as 1884, the Law on Amendments and
Supplements to the Law on Municipalities was enacted, bolstering centralization and conferring discretionary powers upon the police in the area of
overseeing and appointing or removing municipal institutions in the name of
protecting the national or municipal interest.
Serbias liberal and democratic Constitution of 1888 was one of the
most progressive constitutions in Europe at the time. Its underlying principles
were: guaranteed political and civil rightsexercised in a democratic multiparty system; free election of all popular representatives (general suffrage)
and a unicameral parliament (National Assembly); full ministerial responsibilitypolitical and criminal; the power of the National Assembly to pass the
government budget; implementation of the principle of self-government in
districts and municipalities.
This Constitution was the basis for the Law on Municipalities of 1889,
stipulating the following municipal organs: the mayor, the municipal assembly, the municipal court and the municipal board. Municipalities were still
controlled by the county council, the police (district and county governors)
and the State Council. The enactment of this law was a significant step for-

591

ward in the process of building genuine local self-government, reflected most

of all in that the right to elect municipal organs was conferred upon the municipal assembly and freed from any interference, especially by the central
authority.
The Law on Counties and Districts of 1890 introduced a different administrative-territorial division of the Kingdom of Serbia. Counties were the
largest units with dual government: central and self-government. On the one
hand, there was the county governor as representative of the central authority,
and on the other, the county assembly, the permanent county board, district
representatives and the county council secretary as representatives of selfgovernment. As the highest representative of the central authority, the county
governor acted as the highest oversight authority in the county. On the other
hand, the county assembly was the principal institution of county self-government.
XII
King Milan Obrenovi abdicated in 1889 and appointed a Regency
(Jovan Risti and Generals Kosta Proti and Jovan Belimarkovi) to exercise the royal authority during the minority of his son and heir Alexander.
The Regency immediately entrusted the mandate to constitute a cabinet to
the Popular Radical Party as the strongest and most influential. The Radicals
were in power from February 1889 until early August 1892. In 1893, however,
Alexander Obrenovi, even though still in minority, ousted the Regency, took
over royal power, and began to build his own personal regime. In 1894 the
King abolished the liberal democratic Constitution of 1888 and reinstituted
the Regency Constitution of 1869 with all related laws regulating the major
spheres of public life. For instance, he reinstituted the 1839 Law on Counties
and Districts passed under the Constitutionalists regime and Prince Michaels
Law on Municipalities of 1866.
King Alexander began the latter part of his reign (18971903) by forming a non-party government led by Vladan Djordjevi. His father, King Milan,
was appointed Commander-in-Chief, which contemporaries saw as the former
kings grand return into politics. The governments main task was to carry
through an ambitious political project, known as 11th October Programme.
The purpose of the Law on the Amendments and Supplements to the Law on
Municipalities and the Law on County and District Assemblies, both of 1898,
was to additionally centralize political power and limit the powers of the
county, district and municipal organs.
In 1901 King Alexander unilaterally introduced a new constitution,
which is important inasmuch as it provided for a bicameral system, with Senate as the upper and National Assembly as the lower chamber. The Senate and

592

the King were supposed to rein in the Assembly, which embodied the popular will. The King hoped that the agreement between the Progressives and the
Radicals, known as fusion, reached under his aegis, would consolidate the
freshly-established constitutional system.
A new Law on Municipalities, enacted in 1902, stipulated the same municipal government bodies: the municipal assembly, the municipal board and
the municipal court. The municipalities were under the authority of the Minister of the Interior exercised through immediate overseerscounty and district
governors, while Belgrade was under the direct oversight of the Minister.
In the night of 29 May (Old Style) 1903 a group of military officers assassinated King Alexander and Queen Draga (May Coup). The Kings death
was the tragic end of the House of Obrenovi, but it opened up possibilities for
new political processes in the country.
XIII
Shortly after the assassination of King Alexander in 1903, a new government was constituted under the patronage of the conspiracy group, while
Peter I Karadjordjevi, grandson of Karadjordje Petrovi, leader of the First
Serbian Insurrection, was proclaimed King, which ushered in a new phase in
the legal, political and cultural development of Serbia (190314), marked by
the strengthening role of parliament, the army and local self-government. The
1888 Constitution with minor modifications was soon reinstituted (known as
the Constitution of 1903).
The Law on Municipalities of 1902 was also reinstated. The fact that it
was quite similar to the Law on Municipalities of 1889 should be seen as the
reason for putting it back into effect rather than its Radical-enacted predecessor. The 1902 Law was amended and supplemented three times, in 1903, 1904
and 1905. The amendments of 1909 were so extensive that this new version
may be seen as an entirely new law. It was the last law on municipalities enacted in the Kingdom of Serbia. It considerably modified the municipal election process, regulating in detail the compiling of electoral rolls and all other
procedures.
The Law on Counties and Districts of 1905, very similar to the law of
the same name of 1890, regulated in detail the status of counties and districts,
their organizational structure and mode of operation. It was modified in 1909
and twice in 1910.
XIV
In the Balkan Wars of 1912/3, the Kingdom of Serbia liberated Old
Serbia and Macedonia, showing that the mobilization of the entire society

593

round the cause of liberation could result in a glorious military victory. But
they also highlighted the competing views of civilians and militaries on the
form of government to be established in the liberated areas. Military circles
came out stronger from the war and tended to take all credit for its success to
themselves. On the other hand, the civilian domain, headed by the Radicals,
advocated civilian rule, expecting that it would ensure their predomination
both over the militaries and over other political parties, and their victory in the
next parliamentary election in Serbia.
The process of building a constitutional system and local government in
Old Serbia and Macedonia went through several phases: (1) the setting up of
provisional local organs of authority as instructed by ministry inspectors and
head of the Police Department of the Supreme Command; (2) implementation
of the Decree on the Management of the Liberated Areas of 14 December
1912; and (3) implementation of the Decree on the Management of the Liberated Areas of 21 August 1913.
Finally, under the royal decree issued on the proposal of the government, the implementation of some portions of the Constitution of the Kingdom
of Serbia began in the liberated areas. It was intended to demonstrate that the
provisional legal regime was grounded in the Constitution. In late December
1913, Stojan M. Proti, Minister of the Interior, submitted to the National Assembly the Law Proposal on the Annexation of Old Serbia to the Kingdom of
Serbia, enclosing the opinion of the State Council. However, the National Assembly did not get round to voting on the proposal by the time the First World
War broke out in 1914.

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630

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632

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634

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636

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638

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640

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641

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642

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, ,
, , 176178,
195, 244, 249, 314, 562.
, -, (
)
, 52.
, . (: Marvin R.
Jackson),
, 521.
, , -

, 41, 535.
, (17371805; : Wil
liam Petty-Fitz Maurice, 1st Marquess of
Lansdowne),
, 178.
, (:
),
, 219, 341342, 362,
372373.
, (18151890; : Lo
renz von Stein),
, 215.
, (: Vclav
tpnek),
, 536.

, 35/IV
-mail: balkinst@bi.sanu.ac.rs
www.balkaninstitut.com

ISBN 978-86-7179-072-7

CIP -
,
352.07(497.11)17/19
94(497.11)17/19
, , 1970 :
/ . - :
, 2011 ( : ). - 643 . ;
24 cm. - ( / , = Special Editions /
Serbian Academy of Sciences and Arts, Institute for Balkan Studies ; 114)
. . .: The Origins of Local Government and the
Development of the Modern Serbian State. - ...

XIX XX (. 177011) ... --> . - 500. .
- Summary. - : . 595-617. .
ISBN 978-86-7179-072-7
a) - - 18-20 b)
- - 18-20
COBISS.SR-ID 186876172