I found this quote from Whitney Smith's Flags Through the Ages and Across the World :

"…on 11 June 1858 for use as a civil flag. Under the influence of German counselors, the government based it on the livery colors of the imperial arms — black and golden yellow, the latter usually represented as orange. A white stripe was added at the bottom lest the flag be exactly the same as the one used by Austria, whose arms also featured a black eagle on gold. White, long a symbol of legitimist monarchies in Europe, was specifically attributed here to the cockades of Peter I and Catherine II. The black-orange-white flag was very unpopular, so much so that the government felt compelled on 7 May 1883 to recognize the white-blue-red as official for use on land during celebrations. Hence the flag intended for unrestricted use was rarely seen in prerevolutionary Russia, while the flag restricted to special occasions was in fact the most likely to be hoisted whenever private citizens wished to express their nationality by displaying a flag on land."