Policing Prostitution examines the complex world of commercial sex in the final two decades of the Russian Empire before its collapse in 1917. From the 1840s until 1917, prostitution was legally tolerated across the Empire under a system known as regulation. Medical-police were in charge of compiling information about registered prostitutes and ensuring that they followed the strict rules prescribed by the imperial state governing their visibility and behaviour. The vast majority of women who sold sex hailed from the lower classes, as did their managers and clients. Official interest in prostitution generated a mass of documentation, which allows us to glimpse the lives and challenges of various groups of the Empire’s urban lower classes, including women who sold sex, their clients, brothel madams, police, and wider urban communities. In the late imperial period, prostitution was not just an urban ‘problem’ to be controlled and contained, but also a lucrative commodity due to the formal and informal financial relationships forged between brothel madams, registered prostitutes, and the police. This study is a social history of prostitution, drawing on archival material from Russia, Ukraine, Belarus, Latvia, Lithuania, and Estonia. It focuses on how regulation was implemented, experienced, and resisted in various urban centres in the northwest of the Russian Empire, and how everyday experiences of regulation varied widely from place to place. In principle, the tsarist state regulated prostitution in the name of public order and public health; in practice, that regulation was both modulated by provincial police forces who had different local priorities, resources, and strategies, and contested by registered prostitutes, brothel madams, and others who interacted with the world of commercial sex.

Concern about the issue of forced prostitution reached its height in the Russian empire (as elsewhere in Europe and the Americas) at the turn of the twentieth century, as part of the wider international “white slave” panic. In 1909, new antiprocurement statutes were incorporated into the Russian empire’s Criminal Code to ensure that those who forced, coerced, or encouraged young women to enter the commercial sex industry felt the full force of the law. This article uses a case study of the Russian empire’s Estonian provinces (Estliand and Lifliand) to highlight the regional nature of Russian imperial experience. Prosecuting procurement was aligned with the priorities of local government, and the authorities in Revel’ (Tallinn) and Iu’rev (Tartu) used the issue of procurement to bolster their revenue. Here, the statutes gave the authorities additional tools for targeting individuals, such as managers of unlicensed brothels, who deprived the government of the income it generated from regulating the commercial sex industry. Drawing on court cases from the early 1910s, this article also examines the interaction of lower-class people with the state, their engagement with the legal system, their knowledge of the law, and the rhetorical strategies they employed to in their attempts to secure specific outcomes.

This chapter examines the institutions in charge of policing prostitution, namely provincial governments, municipal authorities, and medical-police committees. The devolved nature of Russian imperial governance meant that the severity with which regulation was applied varied widely from place to place, often depending on the specific economic, social, and environmental conditions of localities. The dynamics of medical-police committees are discussed, particularly the tension between the police and medical personnel. The chapter also explores the complex relationship between ‘policer’ and ‘policed’ in examining the (often informal) relationship between registered prostitutes and the police. Urbanization, limited resources, and the inability, or unwillingness, to enforce policy meant that regulation consistently failed to meet its medical and moral objectives. In the early twentieth century, the Russo-Japanese and First World Wars widened the gulf between state ambitions and realities even further.

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