The communes have had their roots on one hand in the neighbourhoods or communities, and on the other hand in the lowest level administrative units, established by the absolutist state. In the first place, the needfor the establishment of the communes became evident during the count of the population and at the time of carrying out the recruitment activities (1770), then in the period of Josephine tax and land register regulation (1789), and afterwards following the revival and restoration of the Austrian authority in theyear 1814 in the form of the principal communes and sub-communes as the units for auxiliary administrative bodies and authorities of the district lords. It should be stressed that since the year 1809 Carniola was apart of the French Ilirian provinces and afterwards, from the year 1814 on, it had a different regulation of the administrative bodies and authorities on the lower level. The sub-communes experienced some minor territorial changes and modifications when the new land-tax cadaster surveys, based upon the patent of the emperor Fran^ Joseph I, had been brought about. In the year 1814 the former neighbourhoods or communities and towns (with the exception of'the provincial capital Ljubljana) as well as the boroughs were incorporated into the sub-communes. In accordance with the development described above the duties of the principals of the communes, the so-called "rihtars", underwent major changes as well. The operation of the communes had not been adequately nor suitably regulated. In the year 1843 the Ljubljana "gubernij" (governor) printed the Draft of the instructionsfor the "superior rihtars" and "vice-rihtars" which were ment to be used by the lords as the resource for the instruction of the rihtars, especially on the basis of the police legislation. In 1844, responding to the question of the associated court office, the Ljubljana "gubernij" (governor) had not yet considered it necessary that the communes would get a representative administrative body.