The article provides a brief overview of the features of primary education in the pre-reform Russia. The problems solved within the framework of the reform of the primary school in the late 50s - early 60s of the 19th century are considered. The degree of departmental influence in the development of the Regulations for elementary public schools of 1864 is analyzed. It focuses on the mechanisms for the preparation of draft normative documents, as well as the factors that influenced the character of these Regulations.