Russia

by Donald Mackenzie Wallace

* These figures are taken from the best available
authorities, chiefly Schwanebach and Scalon, but I am not
prepared to guarantee their accuracy.

Hostile critics can point to facts which are, to say the least, strange and anomalous. Out of the total of its revenue the Zemstvo spends about twenty-eight per cent. under the heading of public health and benevolent institutions; and about fifteen per cent. for popular education, whilst it devotes only about six per cent. to roads and bridges, and until lately it neglected, as I have said above, the means for improving agriculture and directly increasing the income of the peasantry.

Before passing sentence with regard to these charges we must remember the circumstances in which the Zemstvo was founded and has grown up. In the early times its members were well-meaning men who had had very little experience in administration or in practical life of any sort except the old routine in which they had previously vegetated. Most of them had lived enough in the country to know how much the peasants were in need of medical assistance of the most elementary kind, and to this matter they at once turned their attention. They tried to organise a system of doctors, hospital assistants, and dispensaries by which the peasant would not have to go more than fifteen or twenty miles to get a wound dressed or to have a consultation or to obtain a simple remedy for ordinary ailments. They felt the necessity, too, of thoroughly reorganising the hospitals and the lunatic asylums, which were in a very unsatisfactory condition. Plainly enough, there was here good work to be done. Then there were the higher aims. In the absence of practical experience there were enthusiasms and theories. Amongst these was the enthusiasm for education, and the theory that the want of it was the chief reason why Russia had remained so far behind the nations of Western Europe. Give us education, it was said, and all other good things will be added thereto. Liberate the Russian people from the bonds of ignorance as you have liberated it from the bonds of serfage, and its wonderful natural capacities will then be able to create everything that is required for its material, intellectual, and moral welfare.

If there was any one among the leaders who took a more sober, prosaic view of things he was denounced as an ignoramus and a reactionary. Willingly or unwillingly, everybody had to swim with the current. Roads and bridges were not entirely neglected, but the efforts in that direction were confined to the absolutely indispensable. For such prosaic concerns there was no enthusiasm, and it was universally recognised that in Russia the construction of good roads, as the term is understood in Western Europe, was far beyond the resources of any Administration. Of the necessity for such roads few were conscious. All that was required was to make it possible to get from one place to another in ordinary weather and ordinary circumstances. If a stream was too deep to be forded, a bridge had to be built or a ferry had to be established; and if the approach to a bridge was so marshy or muddy that vehicles often sank quite up to the axles and had to be dragged out by ropes, with the assistance of the neighbouring villagers, repairs had to be made. Beyond this the efforts of the Zemstvo rarely went. Its road-building ambition remained within very modest bounds.

As for the impoverishment of the peasantry and the necessity of improving their system of agriculture, that question had hardly appeared above the horizon. It might have to be dealt with in the future, but there was no need for hurry. Once the rural population were educated, the question would solve itself. It was not till about the year 1885 that it was recognised to be more urgent than had been supposed, and some Zemstvos perceived that the people might starve before its preparatory education was completed. Repeated famines pushed the lesson home, and the landed proprietors found their revenues diminished by the fall in the price of grain on the European markets. Thus was raised the cry: "Agriculture in Russia is on the decline! The country has entered on an acute economic crisis! If energetic measures be not taken promptly the people will soon find themselves confronted by starvation!"

To this cry of alarm the Zemstvo was neither deaf nor indifferent. Recognising that the danger could be averted only by inducing the peasantry to adopt a more intensive system of agriculture, it directed more and more of its attention to agricultural improvements, and tried to get them adopted.* It did, in short, all it could, according to its lights and within the limits of its moderate resources. Its available resources were small, unfortunately, for it was forbidden by the Government to increase the rates, and it could not well dismiss doctors and close dispensaries and schools when the people were clamouring for more. So at least the defenders of the Zemstvo maintain, and they go so far as to contend that it did well not to grapple with the impoverishment of the peasantry at an earlier period, when the real conditions of the problem and the means of solving it were only very imperfectly known: if it had begun at that time it would have made great blunders and spent much money to little purpose.

* Vide supra, p. 489.

However this may be, it would certainly be unfair to condemn the Zemstvo for not being greatly in advance of public opinion. If it endeavours strenuously to supply all clearly recognised wants, that is all that can reasonably be expected of it. What it may be more justly reproached with is, in my opinion, that it is, to a certain extent, imbued with that unpractical, pedantic spirit which is commonly supposed to reside exclusively in the Imperial Administration. But here again it simply reflects public opinion and certain intellectual peculiarities of the educated classes. When a Russian begins to write on a simple everyday subject, he likes to connect it with general principles, philosophy, or history, and begins, perhaps, by expounding his views on the intellectual and social developments of humanity in general and of Russia in particular. If he has sufficient space at his disposal he may even tell you something about the early period of Russian history previous to the Mongol invasion before he gets to the simple matter in hand. In a previous chapter I have described the process of "shedding on a subject the light of science" in Imperial legislation.* In Zemstvo activity we often meet with pedantry of a similar kind.

* Vide supra, p. 343.

If this pedantry were confined to the writing of Reports it might not do much harm. Unfortunately, it often appears in the sphere of action. To illustrate this I take a recent instance from the province of Nizhni-Novgorod. The Zemstvo of that province received from the Central Government in 1895 a certain amount of capital for road-improvement, with instructions from the Ministry of Interior that it should classify the roads according to their relative importance and improve them accordingly. Any intelligent person well acquainted with the region might have made, in the course of a week or two, the required classification accurately enough for all practical purposes. Instead of adopting this simple procedure, what does the Zemstvo do? It chooses one of the eleven districts of which the province is composed and instructs its statistical department to describe all the villages with a view of determining the amount of traffic which each will probably contribute to the general movement, and then it verifies its a priori conclusions by means of a detachment of specially selected "registrars," posted at all the crossways during six days of each month. These registrars doubtless inscribed every peasant cart as it passed and made a rough estimate of the weight of its load. When this complicated and expensive procedure was completed for one district it was applied to another; but at the end of three years, before all the villages of this second district had been described and the traffic estimated, the energy of the statistical department seems to have flagged, and, like a young author impatient to see himself in print, it published a volume at the public expense which no one will ever read.