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During the Pugachev Uprising (1773–75), when East and
South Russia fell under the control of rebels, local administration
broke down and proved to government officials that it needed
to be completely overhauled. As part of this process, Catherine
issued a document defining the privileges of various strata
of the urban population as well as the organization and activities
of merchants’ and artisans’ guilds. The charter
also provided for a new system of urban self-government, including
a town council of six members that would run the city services.
The complex structure of urban government appeared democratic,
but assured control by the wealthiest merchants.
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