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In page Anna of Russia:

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The Supreme Privy Council preferred the childless and widowed Duchess of Courland. They hoped that she would feel indebted to the nobles and remain a figurehead at best, and malleable at worst.[citation needed] To make sure of that, the Council had Anna sign a declaration of "Conditions" to her accession[citation needed], modeled after a Swedish precedent[citation needed], which stated that Anna was to govern according to their counsel and was not permitted to declare war, call for peace, impose new taxes or spend the revenue of the state without their consent.[1] Without the consent of the council, she could not punish nobility without trial, make grants of estates or villages, appoint high officials, or promote anyone (foreign or Russian) to court office.[2]