statute, they had to render dues in cash or in labor
in return for their allotments.
The abolition of serfdom regulated more than
it changed, but regulation represented an enormous
change: The arbitrary power of the serfholder had
been the essence of serfdom. The reform could not
provide an immediate stimulus to economic devel-
opment. The regime set a higher value on stabil-
ity, on the prosperity of the nobility, and on the
welfare of the peasantry, than on development. It
feared chaos more than it wanted progress. So it
imposed stability and opened the way for a slow
passage out of the structures of serfdom.
It is argued that the other great reforms fol-
lowed from the abolition of serfdom, but the peas-
ant reform reordered the Russian village, while the
other reforms addressed the opposite end of the so-
cial spectrum. For example, the education reform
(1863) restored autonomy to Russia’s universities,
permitting the rector and faculty to run them; the
minister of education, however, had broad author-
ity to interfere. It also provided for technical sec-
ondary schools. However, only graduates of the
traditional, classical schools could enter the uni-
versities; the regime supposed that Greek and Latin
had a sobering effect on the young. The reform also
gave new authority, but little money, to local agen-
cies to establish primary schools. Finally, it allowed
some education to women, provided that they
would get an education “appropriate for the future
wife and mother.”
The censorship was reformed in 1865. Under
the old system, a censor went over every word of
a book or magazine, deleting or changing anything
subversive. This system had been supportive of
serfdom, but useful publications had been impeded,
and pre-censorship had not prevented the dissem-
ination of radical ideas. The emperor wanted
knowledge to flourish, but he was suspicious of
intellectuals. He observed, “There are tendencies
which do not accord with the views of the gov-
ernment; they must be stopped.” The censorship
reform did that. It eliminated the prepublication
censorship of books and most journals. Editors and
publishers were responsible for everything they
printed, however, and subject to heavy fines, crim-
inal penalties, and the closing of periodicals. The
regime appreciated that publishers dreaded finan-
cial loss. The result was self-censorship, more ex-
acting than precensorship.
The Judicial Reform (1864) was not closely re-
lated to the abolition of serfdom, since peasants
were not usually subject to the new courts. Under
the old system, justice had been a purely bureau-
cratic activity. There were no juries, no public tri-
als, and no legal profession. Corruption and delay
were notorious. Commercial loans were available
only on short terms and at high interest because
the courts could not protect the interests of credi-
tors.
The new system provided for independent
judges with life tenure; trial by jury in criminal
cases; oral and public trials; and an organized bar
of lawyers to staff this adversary system. Peasants
were formally eligible to serve on juries, but prop-
erty qualifications for jury service excluded all but
a few peasants. Here, as elsewhere, distinctions
linked to the system of estates of the realm (soslo-
viya) were retained by other means.
The reform of the courts had long been under
discussion. Officials who shared the emperor’s sus-
picion of lawyers and juries were unable to produce
any workable alternative to the chaos they knew.
Hence the task of drafting the new system passed
to a group of younger men with advanced legal
training. With the task came powers of decision
making. The reformers acted in the spirit of the cos-
mopolitan legal ethos they had acquired with their
training. They, alone of the drafters of reform
statutes, avowedly followed western models and
produced the most thorough-going of the reforms.
The zemstvo, or local government, reform
(1864) provided for elective assemblies at the dis-
trict and provincial levels; the electorate was divided
into three curias: landowners (mostly nobles),
peasant communities, and towns. Voting power
was proportional to the value of real estate held by
each curia, but no curia could have more than half
the members.
The zemstvo’s jurisdiction included the upkeep
of roads, fire insurance, education, and public
health. Squires and their ex-serfs sat together in the
assemblies, if not in proportion to their share of
the population. Public-spirited squires found a
sphere of activity in the boards elected by the as-
semblies. These boards, in turn, hired health work-
ers, teachers, and other professionals. The zemstvo
provided an arena of public service apart from the
state bureaucracy, where liberal landowners and
dissidents interacted. The accomplishments of the
zemstvo were remarkable, given their limited re-
sources and the government control over them. The
provincial governor could suspend any decision
taken by a zemstvo. The zemstvo had only a lim-
GREAT REFORMS
604
ENCYCLOPEDIA OF RUSSIAN HISTORY