The optimistic expectations of the zemstvo liberals were, it is almost needless to say, never realized. Theirs was a vast undertaking, quite beyond the limited capabilities of the zemstvos. There were some achievements, especially in primary education, which were reflected in the general increase of zemstvo expenditure from 15 million roubles per annum in 1868 to 96 million per annum by the turn of the century. However, the overall level of spending was not very high, considering the zemstvos’ wide range of responsibilities; and the proportion of local to state taxation (about 15 per cent) remained very low compared with most of Europe (where it was over 50 per cent).22 There was, moreover, a fundamental problem — one which undermined the whole liberal project — of how to involve the peasants in the zemstvo’s work. The peasants after the Emancipation were kept isolated in their village communes without legal rights equal to the nobility’s or even the right to elect delegates directly to the district zemstvo. They saw the zemstvo as an institution of the gentry and paid its taxes reluctantly.
But an even more intractable problem for the zemstvos was the growing opposition of the central government to their work under the last two tsars. Alexander III looked upon the zemstvos as a dangerous breeding place of liberalism. Most of his bureaucrats agreed with him. Polovtsov, for example, thought that the zemstvos had ‘brought a whole new breed of urban types — writers, money-lenders, clerks, and the like — into the countryside who were quite alien to the peasantry’. The government was very concerned about the 70,000 professional employees of the zemstvos — teachers, doctors, statisticians and agronomists — who were known collectively as the Third Element. In contrast to the first two zemstvo Elements (the administrators and elected deputies), who were drawn mainly from the landed nobility, these professionals often came from peasant or lower-class backgrounds and this gave their politics a democratic and radical edge. As their numbers increased in the 1880s and 1890s, so they sought to broaden the zemstvos’ social mission. In effect they transformed them from organs for the gentry into organs mainly for the peasantry. Ambitious projects for agricultural reform and improvements in health and sanitation were advanced in the wake of the great famine which struck rural Russia in the early 1890s. Liberal landowners like Lvov went along with them. But the large and more conservative landowners were very hostile to the increased taxes which such projects would demand — after more than a decade of agricultural depression many of them were in dire financial straits — and campaigned against the Third Element. They found a natural and powerful ally in the Ministry of the Interior, which since the start of Alexander’s reign had campaigned to curtail the democratic tendencies of local government. Successive Ministers of the Interior and their police chiefs portrayed the Third Element as revolutionaries — ‘cohorts of the sans-culottes’ in the words of Plehve, Director of the Police Department and later Minister of the Interior — who were using their positions in the zemstvos to stir up the peasantry.
In response to their pressure, a statute was passed in 1890 which increased the landed nobles’ domination of the zemstvos by disenfranchising Jews and peasant landowners from elections to these assemblies. It also brought the zemstvos’ work under the tight control of a new provincial bureau, headed by the provincial governor and subordinated to the Ministry of the Interior, which was given a wide veto over the appointment of zemstvo personnel, the zemstvos’ budgets and publications, as well as most of their daily resolutions. Armed with these sweeping powers, the Ministry and its provincial agents constantly obstructed the zemstvos’ work. They imposed stringent limits on their budgets on the grounds that some of their expenditures were unnecessary. Some of this was extremely petty. The Perm zemstvo, for example, had its budget capped for commissioning a portrait of Dr Litvinov, the long-serving director of the provincial lunatic asylum. The Suzdal zemstvo was similarly punished for using fifty roubles from a reserve fund to help pay for the building of a library. The police also blocked the zemstvos’ work. They arrested statisticians and agronomists as ‘revolutionaries’ and prevented them from travelling into the countryside. They raided the zemstvo institutions — including hospitals and lunatic asylums — in search of ‘political suspects’. They even arrested local noblewomen for teaching peasant children how to read and write in their spare time.23
The counter-reforms of Alexander’s reign, of which the 1890 Statute was a cornerstone, were essentially an attempt to restore the autocratic principle to local government. The provincial governor, whose powers over the zemstvos and the municipal bodies had been greatly increased by the counter-reforms, was to play the role of a tsar in miniature. The same idea lay behind the institution of the land captains (zemskie nachal’niki) as a result of another counter-reform in 1889. They remained the central agents of the tsarist regime in the countryside until 1917, although after the 1905 Revolution their powers were considerably diluted. Appointed by the provincial governors and subordinated to the Ministry of the Interior, the 2,000 land captains, mainly from the gentry, were given a wide range of executive and judicial powers over the peasants, to whom they were known as the ‘little tsars’. Their powers included the right to overturn the decisions of the village assemblies, to discharge elected peasant officials, and to decide judicial disputes. Until 1904 they could even order the public flogging of the peasants for minor misdemeanours, such as (and most commonly) for trespassing on the gentry’s land or for failing to pay their taxes. It is hard to overstress the psychological impact of this public flogging — decades after the Emancipation — on the peasant mind. The peasant writer Sergei Semenovfn2 (1868–1922), whom we shall encounter throughout this book, wrote that his fellow peasants saw the land captains as ‘a return to the days of serfdom, when the master squire had lorded it over the village’. Semenfn2 Kanatchikov, another peasant-son we shall encounter, also voiced the resentment caused by the captains’ feudal treatment of the peasantry. One peasant, who had been arrested for failing to remove his hat and bow before the land captain while he delivered a lecture to the village, asked Kanatchikov: ‘What’s a poor peasant to a gentleman? Why he’s worse than a dog. At least a dog can bite, but the peasant is meek and humble and tolerates everything.’
Worried by the damage the land captains were causing to the image of the regime in the countryside, many of the more liberal bureaucrats — and even some of the conservatives — pressed for their abolition during the first decade of Nicholas’s reign. They pointed to the low calibre of the land captains — who were often retired army officers or the lesser sons of the local squires too dim to advance within the regular bureaucracy — and warned that their readiness to resort to the whip might provoke the peasants to rebel. But Nicholas would not hear a word against them. He saw the land captains as the ‘knight servitors’ of his personal power in the countryside. They would give him a direct link with the peasantry — a link which the ‘wall’ of the bureaucracy had blocked — and help to realize his dream of a popular autocracy in the Muscovite style. Through their power he sought to restore the traditional order of society, with the landed gentry at its head, thereby counteracting the democratic trends of the modern world.24