
a result of the zemstvo reform of January 1, 1864.
This reform introduced an electoral self-governing
body, elected from all class groups (soslovii), in dis-
tricts and provinces. The basic principles of the
zemstvo reform were electivity, the representation
of all classes, and self-government in the questions
concerning local economic needs.
The statute of January 1, 1864, called for the
institution of zemstvos in thirty-four provinces of
the European part of Russia. The reform did not
affect Siberia and the provinces of Archangel, As-
trakhan, and Orenburg, where there were very few
noble landowners. Neither did the reform affect re-
gions closest to the national borders: the Baltic
States, Poland, the Caucasus, Kazakhstan, and Cen-
tral Asia.
According to the statute, zemstvo institutions
in districts and provinces were to consist of zem-
stvo councils and executive boards. The electoral
system was set up on the basis of class and pos-
sessions. Every three years, the citizens of a district
elected between fourteen to one hundred or so
deputies to the council. The elections were held in
curias (divisions), into which all of the districts’
population was divided. The first curia consisted of
landowners who possessed 200 or more desiatinas
of land (about 540 acres), or other real estate worth
at least 15,000 rubles, or had a monthly income
of at least 6,000 rubles. This curia consisted mainly
of nobles and landlords, but members of other
classes (merchants who bought nobles’ land, rich
peasants who acquired land, and the like) eventu-
ally grew more and more prominent. The second
curia consisted of city dwellers who possessed mer-
chant registration, or who owned trading and in-
dustrial companies with a yearly income of at least
6,000 rubles, or held real estate in worth at least
500 rubles (in small cities) or 2,000 rubles (in large
cities). The third curia consisted mainly of repre-
sentatives of village societies and peasants who did
not require a special possession permit. As a result
of the first of these elections in 1865 and 1866, no-
bles constituted 41.7 percent of the district deputies,
and 74 percent of the province deputies. Peasants
accounted for 38.4 and 10.6 percent, and mer-
chants for 10.4 and 11 percent. The representatives
of district and provincial assemblies were the dis-
trict and provincial marshals of nobility. Zemstvo
assemblies became governing institutions: They
elected the executive authorities: the provincial and
district executive boards (three or five people).
The power of the zemstvo was limited to local
tasks (medicine, education, agriculture, veterinary
services, roads, statistics, and so on). Zemstvo taxes
ensured the budget of zemstvo institutions. The
budget was to be approved by the zemstvo assem-
bly. It was compiled, mainly, from taxes on real
estate (primarily land), and in this case the pres-
sure was mainly on peasant land. Within the
limits of their power, zemstvos had relative inde-
pendence. The governor could only oversee the le-
gitimacy of the zemstvo’s decisions. He also
approved the chairman of the uezd executive board
and the members of the provincial and uezd exec-
utive boards. The chairman of the provincial exec-
utive board had to be approved by the minister of
the Interior.
As a result of the zemstvo counterreform of
1890, the governor gained the right not only to
oversee the reasonableness of the zemstvo’s deci-
sions. A special supervising institution was created,
called the Governor’s Bureau of Zemstvo Affairs.
Over half of the voters in 1888 were bereft of elec-
toral rights. The composition of zemstvo assem-
blies was changed in favor of the nobles. In the
1897 zemstvo elections, nobles constituted to 41.6
percent of district deputies and 87.1 percent of
provincial deputies. The peasants obtained 30.98
and 2.2 percent.
The structure of zemstvo institutions contained
no “minor zemstvo unit,” understood to mean a
volost (rural district) unit that would be closest to
the needs of the local population of all classes. Nei-
ther was there a national institution that would
coordinate the activity of local zemstvos. In the end,
zemstvos became “a building without a foundation
or a roof.” The government opposed cooperation
between zemstvos, fearing constitutionalist atti-
tudes. Zemstvos did not have their own institution
of compulsory power, which made them rely on
the administration and police. All this soon made
zemstvos stand in opposition to autocracy. They
were especially active in the 1890s, when a so-
called third element (professionals employed by
zemstvos, or predominantly democratic members
of the intelligentsia) became influential. In the early
twentieth century, liberal zemtsy became overtly
political, and in 1903 they formed the illegal
“Union of Constitutionalist-Zemtsy.” In November
of 1904, an all-Russian assembly of zemstvos was
held in St. Petersburg, and a program of political
reforms was developed, including the creation of a
national representation with legislative rights.
Later, many members of the movement joined the
leading liberal parties, the Constitutional Demo-
crats and the Oktobrists.
ZEMSTVO
1722
ENCYCLOPEDIA OF RUSSIAN HISTORY