Late Imperial Period

[Excerpted from Russia: A Country Study, Glenn E. Curtis, ed. (Washington, DC: Federal Research Division of the Library of Congress, 1996).

Transformation of Russia in the Nineteenth Century

The late nineteenth and early twentieth centuries were times of crisis for Russia. Not only did technology and industry continue to develop more rapidly in the West, but also new, dynamic, competitive great powers appeared on the world scene: Otto von Bismarck united Germany in the 1860s, the post-Civil War United States grew in size and strength, and a modernized Japan emerged from the Meiji Restoration of 1868. Although Russia was an expanding regional giant in Central Asia, bordering the Ottoman, Persian, British Indian, and Chinese empires, it could not generate enough capital to support rapid industrial development or to compete with advanced countries on a commercial basis. Russia's fundamental dilemma was that accelerated domestic development risked upheaval at home, but slower progress risked full economic dependency on the faster-advancing countries to the east and west. In fact, political ferment, particularly among the intelligentsia, accompanied the transformation of Russia's economic and social structure, but so did impressive developments in literature, music, the fine arts, and the natural sciences.

Economic Developments

Throughout the last half of the nineteenth century, Russia's economy developed more slowly than did that of the major European nations to its west. Russia's population was substantially larger than those of the more developed Western countries, but the vast majority of the people lived in rural communities and engaged in relatively primitive agriculture. Industry, in general, had greater state involvement than in Western Europe, but in selected sectors it was developing with private initiative, some of it foreign. Between 1850 and 1900, Russia's population doubled, but it remained chiefly rural well into the twentieth century. Russia's population growth rate from 1850 to 1910 was the fastest of all the major powers except for the United States. Agriculture, which was technologically underdeveloped, remained in the hands of former serfs and former state peasants, who together constituted about four-fifths of the rural population. Large estates of more than fifty square kilometers accounted for about 20 percent of all farmland, but few such estates were worked in efficient, large-scale units. Small-scale peasant farming and the growth of the rural population increased the amount of land used for agricultural development, but land was used more for gardens and fields of grain and less for grazing meadows than it had been in the past.

Industrial growth was significant, although unsteady, and in absolute terms it was not extensive. Russia's industrial regions included Moscow, the central regions of European Russia, St. Petersburg, the Baltic cities, Russian Poland, some areas along the lower Don and Dnepr rivers, and the southern Ural Mountains. By 1890 Russia had about 32,000 kilometers of railroads and 1.4 million factory workers, most of whom worked in the textile industry. Between 1860 and 1890, annual coal production had grown about 1,200 percent to over 6.6 million tons, and iron and steel production had more than doubled to 2 million tons per year. The state budget had more than doubled, however, and debt expenditures had quadrupled, constituting 28 percent of official expenditures in 1891. Foreign trade was inadequate to meet the empire's needs. Until the state introduced high industrial tariffs in the 1880s, it could not finance trade with the West because its surpluses were insufficient to cover the debts.

Reforms and Their Limits, 1855-92

Tsar Alexander II, who succeeded Nicholas I in 1855, was a conservative who saw no alternative but to implement change. Alexander initiated substantial reforms in education, the government, the judiciary, and the military. In 1861 he proclaimed the emancipation of about 20 million privately held serfs. Local commissions, which were dominated by landlords, effected emancipation by giving land and limited freedom to the serfs. The former serfs usually remained in the village commune, but they were required to make redemption payments to the government over a period of almost fifty years. The government compensated former owners of serfs by issuing them bonds.

The regime had envisioned that the 50,000 landlords who possessed estates of more than 110 hectares would thrive without serfs and would continue to provide loyal political and administrative leadership in the countryside. The government also had expected that peasants would produce sufficient crops for their own consumption and for export sales, thereby helping to finance most of the government's expenses, imports, and foreign debt. Neither of the government's expectations was realistic, however, and emancipation left both former serfs and their former owners dissatisfied. The new peasants soon fell behind in their payments to the government because the land they had received was poor and because Russian agricultural methods were inadequate. The former owners often had to sell their lands to remain solvent because most of them could neither farm nor manage estates without their former serfs. In addition, the value of their government bonds fell as the peasants failed to make their redemption payments.

Reforms of local government closely followed emancipation. In 1864 most local government in the European part of Russia was organized into provincial and district zemstva (sing., zemstvo), which were made up of representatives of all classes and were responsible for local schools, public health, roads, prisons, food supply, and other concerns. In 1870 elected city councils, or dumy (sing., duma ), were formed. Dominated by property owners and constrained by provincial governors and the police, the zemstva and dumy raised taxes and levied labor to support their activities.

In 1864 the regime implemented judicial reforms. In major towns, it established Western-style courts with juries. In general, the judicial system functioned effectively, but the government lacked the finances and cultural influence to extend the court system to the villages, where traditional peasant justice continued to operate with minimal interference from provincial officials. In addition, the regime instructed judges to decide each case on its merits and not to use precedents, which would have enabled them to construct a body of law independent of state authority.

Other major reforms took place in the educational and cultural spheres. The accession of Alexander II brought a social restructuring that required a public discussion of issues and the lifting of some types of censorship. When an attempt was made to assassinate the tsar in 1866, the government reinstated censorship, but not with the severity of pre-1855 control. The government also put restrictions on universities in 1866, five years after they had gained autonomy. The central government attempted to act through the zemstva to establish uniform curricula for elementary schools and to impose conservative policies, but it lacked resources. Because many liberal teachers and school officials were only nominally subject to the reactionary Ministry of Education, however, the regime's educational achievements were mixed after 1866.

In the financial sphere, Russia established the State Bank in 1866, which put the national currency on a firmer footing. The Ministry of Finance supported railroad development, which facilitated vital export activity, but it was cautious and moderate in its foreign ventures. The ministry also founded the Peasant Land Bank in 1882 to enable enterprising farmers to acquire more land. The Ministry of Internal Affairs countered this policy, however, by establishing the Nobles' Land Bank in 1885 to forestall foreclosures of mortgages.

The regime also sought to reform the military. One of the chief reasons for the emancipation of the serfs was to facilitate the transition from a large standing army to a reserve army by instituting territorial levies and mobilization in times of need. Before emancipation, serfs could not receive military training and then return to their owners. Bureaucratic inertia, however, obstructed military reform until the Franco-Prussian War (1870-71) demonstrated the necessity of building a modern army. The levy system introduced in 1874 gave the army a role in teaching many peasants to read and in pioneering medical education for women. But the army remained backward despite these military reforms. Officers often preferred bayonets to bullets, expressing worry that long-range sights on rifles would induce cowardice. In spite of some notable achievements, Russia did not keep pace with Western technological developments in the construction of rifles, machine guns, artillery, ships, and naval ordnance. Russia also failed to use naval modernization as a means of developing its industrial base in the 1860s.

In 1881 revolutionaries assassinated Alexander II. His son Alexander III (r. 1881-94) initiated a period of political reaction, which intensified a counterreform movement that had begun in 1866. He strengthened the security police, reorganizing it into an agency known as the Okhrana, gave it extraordinary powers, and placed it under the Ministry of Internal Affairs. Dmitriy Tolstoy, Alexander's minister of internal affairs, instituted the use of land captains, who were noble overseers of districts, and he restricted the power of the zemstva and the dumy . Alexander III assigned his former tutor, the reactionary Konstantin Pobedonostsev, to be the procurator of the Holy Synod of the Orthodox Church and Ivan Delyanov to be the minister of education. In their attempts to "save" Russia from "modernism," they revived religious censorship, persecuted non-Orthodox and non-Russian populations, fostered anti-Semitism, and suppressed the autonomy of the universities. Their attacks on liberal and non-Russian elements alienated large segments of the population. The nationalities, particularly Poles, Finns, Latvians, Lithuanians, and Ukrainians, reacted to the regime's efforts to Russify them by intensifying their own nationalism. Many Jews emigrated or joined radical movements. Secret organizations and political movements continued to develop despite the regime's efforts to quell them.

Foreign Affairs after the Crimean War

After the Crimean War, Russia pursued cautious and well-calculated foreign policies until nationalist passions and another Balkan crisis almost caused a catastrophic war in the late 1870s. The 1856 Treaty of Paris, signed at the end of the Crimean War, had demilitarized the Black Sea and deprived Russia of southern Bessarabia and a narrow strip of land at the mouth of the Danube River. The treaty gave the West European powers the nominal duty of protecting Christians living in the Ottoman Empire, removing that role from Russia, which had been designated as such a protector in the 1774 Treaty of Kuchuk-Kainarji. Russia's primary goal during the first phase of Alexander II's foreign policy was to alter the Treaty of Paris to regain naval access to the Black Sea. Russian statesmen viewed Britain and Austria (redesignated as Austria-Hungary in 1867) as opposed to that goal, so foreign policy concentrated on good relations with France, Prussia, and the United States. Prussia (Germany as of 1871) replaced Britain as Russia's chief banker in this period.

Following the Crimean War, the regime revived its expansionist policies. Russian troops first moved to gain control of the Caucasus region, where the revolts of Muslim tribesmen--Chechens, Cherkess, and Dagestanis--had continued despite numerous Russian campaigns in the nineteenth century. Once the forces of Aleksandr Baryatinskiy had captured the legendary Chechen rebel leader Shamil in 1859, the army resumed the expansion into Central Asia that had begun under Nicholas I. The capture of Tashkent was a significant victory over the Quqon (Kokand) Khanate, part of which was annexed in 1866. By 1867 Russian forces had captured enough territory to form the Guberniya (Governorate General) of Turkestan, the capital of which was Tashkent. The Bukhoro (Bukhara) Khanate then lost the crucial Samarqand area to Russian forces in 1868. To avoid alarming Britain, which had strong interests in protecting nearby India, Russia left the Bukhoran territories directly bordering Afghanistan and Persia nominally independent. The Central Asian khanates retained a degree of autonomy until 1917.

Russia followed the United States, Britain, and France in establishing relations with Japan, and, together with Britain and France, Russia obtained concessions from China consequent to the Second Opium War (1856-60). Under the Treaty of Aigun in 1858 and the Treaty of Beijing in 1860, China ceded to Russia extensive trading rights and regions adjacent to the Amur and Ussuri rivers and allowed Russia to begin building a port and naval base at Vladivostok. Meanwhile, in 1867 the logic of the balance of power and the cost of developing and defending the Amur-Ussuri region dictated that Russia sell Alaska to the United States in order to acquire much-needed funds.

As part of the regime's foreign policy goals in Europe, Russia initially gave guarded support to France's anti-Austrian diplomacy. A weak Franco-Russian entente soured, however, when France backed a Polish uprising against Russian rule in 1863. Russia then aligned itself more closely with Prussia by approving the unification of Germany in exchange for a revision of the Treaty of Paris and the remilitarization of the Black Sea. These diplomatic achievements came at a London conference in 1871, following France's defeat in the Franco-Prussian War. After 1871 Germany, united under Prussian leadership, was the strongest continental power in Europe. In 1873 Germany formed the loosely knit League of the Three Emperors with Russia and Austria-Hungary to prevent them from forming an alliance with France. Nevertheless, Austro-Hungarian and Russian ambitions clashed in the Balkans, where rivalries among Slavic nationalities and anti-Ottoman sentiments seethed. In the 1870s, Russian nationalist opinion became a serious domestic factor in its support for liberating Balkan Christians from Ottoman rule and making Bulgaria and Serbia quasi-protectorates of Russia. From 1875 to 1877, the Balkan crisis escalated with rebellions in Bosnia, Herzegovina, and Bulgaria, which the Ottoman Turks suppressed with such great cruelty that Serbia, but none of the West European powers, declared war.

In early 1877, Russia came to the rescue of beleaguered Serbian and Russian volunteer forces when it went to war with the Ottoman Empire. Within one year, Russian troops were nearing Constantinople, and the Ottomans surrendered. Russia's nationalist diplomats and generals persuaded Alexander II to force the Ottomans to sign the Treaty of San Stefano in March 1878, creating an enlarged, independent Bulgaria that stretched into the southwestern Balkans. When Britain threatened to declare war over the terms of the Treaty of San Stefano, an exhausted Russia backed down. At the Congress of Berlin in July 1878, Russia agreed to the creation of a smaller Bulgaria. Russian nationalists were furious with Austria-Hungary and Germany for failing to back Russia, but the tsar accepted a revived and strengthened League of the Three Emperors as well as Austro-Hungarian hegemony in the western Balkans.

Russian diplomatic and military interests subsequently returned to Central Asia, where Russia had quelled a series of uprisings in the 1870s, and Russia incorporated hitherto independent amirates into the empire. Britain renewed its concerns in 1881 when Russian troops occupied Turkmen lands on the Persian and Afghan borders, but Germany lent diplomatic support to Russian advances, and an Anglo-Russian war was averted. Meanwhile, Russia's sponsorship of Bulgarian independence brought negative results as the Bulgarians, angry at Russia's continuing interference in domestic affairs, sought the support of Austria-Hungary. In the dispute that arose between Austria-Hungary and Russia, Germany took a firm position toward Russia while mollifying the tsar with a bilateral defensive alliance, the Reinsurance Treaty of 1887 between Germany and Russia. Within a year, Russo-German acrimony led to Bismarck's forbidding further loans to Russia, and France replaced Germany as Russia's financier. When Kaiser Wilhelm II dismissed Bismarck in 1890, the loose Russo-Prussian entente collapsed after having lasted for more than twenty-five years. Three years later, Russia allied itself with France by entering into a joint military convention, which matched the dual alliance formed in 1879 by Germany and Austria-Hungary.

The Rise of Revolutionary Movements

Alexander II's reforms, particularly the lifting of state censorship, fostered the expression of political and social thought. The regime relied on journals and newspapers to gain support for its domestic and foreign policies. But liberal, nationalist, and radical writers also helped to mold public opinion that was opposed to tsarism, private property, and the imperial state. Because many intellectuals, professionals, peasants, and workers shared these opposition sentiments, the regime regarded the publications and the radical organizations as dangerous. From the 1860s through the 1880s, Russian radicals, collectively known as Populists (Narodniki), focused chiefly on the peasantry, whom they identified as "the people" (narod ).

The leaders of the Populist movement included radical writers, idealists, and advocates of terrorism. In the 1860s, Nikolay Chernyshevskiy, the most important radical writer of the period, posited that Russia could bypass capitalism and move directly to socialism. His most influential work, What Is to Be Done? (1861), describes the role of an individual of a "superior nature" who guides a new, revolutionary generation. Other radicals such as the incendiary anarchist Mikhail Bakunin and his terrorist collaborator, Sergey Nechayev, urged direct action. The calmer Petr Tkachev argued against the advocates of Marxism, maintaining that a centralized revolutionary band had to seize power before capitalism could fully develop. Disputing his views, the moralist and individualist Petr Lavrov made a call "to the people," which hundreds of idealists heeded in 1873 and 1874 by leaving their schools for the countryside to try to generate a mass movement among the narod . The Populist campaign failed, however, when the peasants showed hostility to the urban idealists and the government began to consider nationalist opinion more seriously.

The radicals reconsidered their approach, and in 1876 they formed a propagandist organization called Land and Liberty (Zemlya i volya), which leaned toward terrorism. This orientation became stronger three years later, when the group renamed itself the People's Will (Narodnaya volya), the name under which the radicals were responsible for the assassination of Alexander II in 1881. In 1879 Georgiy Plekhanov formed a propagandist faction of Land and Liberty called Black Repartition (Chernyy peredel), which advocated redistributing all land to the peasantry. This group studied Marxism, which, paradoxically, was principally concerned with urban industrial workers. The People's Will remained underground, but in 1887 a young member of the group, Aleksandr Ul'yanov, attempted to assassinate Alexander III, and authorities arrested and executed him. The execution greatly affected Vladimir Ul'yanov, Aleksandr's brother. Influenced by Chernyshevskiy's writings, Vladimir joined the People's Will, and later, inspired by Plekhanov, he converted to Marxism. The younger Ul'yanov later changed his name to Lenin.

Witte and Accelerated Industrialization

In the late 1800s, Russia's domestic backwardness and vulnerability in foreign affairs reached crisis proportions. At home a famine claimed a half-million lives in 1891, and activities by Japan and China near Russia's borders were perceived as threats from abroad. In reaction, the regime was forced to adopt the ambitious but costly economic programs of Sergey Witte, the country's strong-willed minister of finance. Witte championed foreign loans, conversion to the gold standard, heavy taxation of the peasantry, accelerated development of heavy industry, and a trans-Siberian railroad. These policies were designed to modernize the country, secure the Russian Far East, and give Russia a commanding position with which to exploit the resources of China's northern territories, Korea, and Siberia. This expansionist foreign policy was Russia's version of the imperialist logic displayed in the nineteenth century by other large countries with vast undeveloped territories such as the United States. In 1894 the accession of the pliable Nicholas II upon the death of Alexander III gave Witte and other powerful ministers the opportunity to dominate the government.

Witte's policies had mixed results. In spite of a severe economic depression at the end of the century, Russia's coal, iron, steel, and oil production tripled between 1890 and 1900. Railroad mileage almost doubled, giving Russia the most track of any nation other than the United States. Yet Russian grain production and exports failed to rise significantly, and imports grew faster than exports. The state budget also more than doubled, absorbing some of the country's economic growth. Western historians differ as to the merits of Witte's reforms; some believe that domestic industry, which did not benefit from subsidies or contracts, suffered a setback. Most analysts agree that the Trans-Siberian Railroad (which was completed from Moscow to Vladivostok in 1904) and the ventures into Manchuria and Korea were economic losses for Russia and a drain on the treasury. Certainly the financial costs of his reforms contributed to Witte's dismissal as minister of finance in 1903.

Radical Political Parties Develop

During the 1890s, Russia's industrial development led to a significant increase in the size of the urban bourgeoisie and the working class, setting the stage for a more dynamic political atmosphere and the development of radical parties. Because the state and foreigners owned much of Russia's industry, the working class was comparatively stronger and the bourgeoisie comparatively weaker than in the West. The working class and peasants were the first to establish political parties because the nobility and the wealthy bourgeoisie were politically timid. During the 1890s and early 1900s, abysmal living and working conditions, high taxes, and land hunger gave rise to more frequent strikes and agrarian disorders. These activities prompted the bourgeoisie of various nationalities in the empire to develop a host of different parties, both liberal and conservative.

Socialists of different nationalities formed their own parties. Russian Poles, who had suffered significant administrative and educational Russification, founded the nationalistic Polish Socialist Party in Paris in 1892. That party's founders hoped that it would help reunite a divided Poland with the territories held by Austria-Hungary, Germany, and Russia. In 1897 Jewish workers in Russia created the Bund (league or union), an organization that subsequently became popular in western Ukraine, Belorussia, Lithuania, and Russian Poland. The Russian Social Democratic Labor Party was established in 1898. The Finnish Social Democrats remained separate, but the Latvians and Georgians associated themselves with the Russian Social Democrats. Armenians, inspired by both Russian and Balkan revolutionary traditions, were politically active in this period in Russia and in the Ottoman Empire. Politically minded Muslims living in Russia tended to be attracted to the pan-Islamic and pan-Turkic movements that were developing in Egypt and the Ottoman Empire. Russians who fused the ideas of the old Populists and urban socialists formed Russia's largest radical movement, the United Socialist Revolutionary Party, which combined the standard Populist mix of propaganda and terrorist activities.

Vladimir I. Ul'yanov was the most politically talented of the revolutionary socialists. In the 1890s, he labored to wean young radicals away from populism to Marxism. Exiled from 1895 to 1899 in Siberia, where he took the name Lenin from the mighty Siberian Lena River, he was the master tactician among the organizers of the Russian Social Democratic Labor Party. In December 1900, he founded the newspaper Iskra (Spark). In his book What Is to Be Done? (1902), Lenin developed the theory that a newspaper published abroad could aid in organizing a centralized revolutionary party to direct the overthrow of an autocratic government. He then worked to establish a tightly organized, highly disciplined party to do so in Russia. At the Second Party Congress of the Russian Social Democratic Labor Party in 1903, he forced the Bund to walk out and induced a split between his majority Bolshevik faction and the minority Menshevik faction, which believed more in worker spontaneity than in strict organizational tactics. Lenin's concept of a revolutionary party and a worker-peasant alliance owed more to Tkachev and to the People's Will than to Karl Marx and Friedrich Engels, the developers of Marxism. Young Bolsheviks, such as Joseph V. Stalin and Nikolay Bukharin, looked to Lenin as their leader.

Imperialism in Asia and the Russo-Japanese War

At the turn of the century, Russia gained room to maneuver in Asia because of its alliance with France and the growing rivalry between Britain and Germany. Tsar Nicholas failed to orchestrate a coherent Far Eastern policy because of ministerial conflicts, however. Russia's uncoordinated and aggressive moves in the region ultimately led to the Russo-Japanese War (1904-05).

By 1895 Germany was competing with France for Russia's favor, and British statesmen hoped to negotiate with the Russians to demarcate spheres of influence in Asia. This situation enabled Russia to intervene in northeastern Asia after Japan's victory over China in 1895. In the negotiations that followed, Japan was forced to make concessions in the Liaotung Peninsula and Port Arthur in southern Manchuria. The next year, Witte used French capital to establish the Russo-Chinese Bank. The goal of the bank was to finance the construction of a railroad across northern Manchuria and thus shorten the Trans-Siberian Railroad. Within two years, Russia had acquired leases on the Liaotung Peninsula and Port Arthur and had begun building a trunk line from Harbin in central Manchuria to Port Arthur on the coast.

In 1900 China reacted to foreign encroachments on its territory with an armed popular uprising, the Boxer Rebellion. Russian military contingents joined forces from Europe, Japan, and the United States to restore order in northern China. A force of 180,000 Russian troops fought to pacify part of Manchuria and to secure its railroads. The Japanese were backed by Britain and the United States, however, and insisted that Russia evacuate Manchuria. Witte and some Russian diplomats wanted to compromise with Japan and trade Manchuria for Korea, but a group of Witte's reactionary enemies, courtiers, and military and naval leaders refused to compromise. The tsar favored their viewpoint, and, disdaining Japan's threats--despite the latter's formal alliance with Britain--the Russian government equivocated until Japan declared war in early 1904.

In the war that followed, Japan's location, technological superiority, and superior morale gave it command of the seas, and Russia's sluggishness and incompetent commanders caused continuous setbacks on land. In January 1905, after an eight-month siege, Russia surrendered Port Arthur, and in March the Japanese forced the Russians to withdraw north of Mukden. In May, at the Tsushima Straits, the Japanese destroyed Russia's last hope in the war, a fleet assembled from the navy's Baltic and Mediterranean squadrons. Theoretically, Russian army reinforcements could have driven the Japanese from the Asian mainland, but revolution at home and diplomatic pressure forced the tsar to seek peace. Russia accepted mediation by United States president Theodore Roosevelt, ceded southern Sakhalin Island to Japan, and acknowledged Japan's ascendancy in Korea and southern Manchuria.

The Last Years of the Autocracy

The Russo-Japanese War was a turning point in Russian history. It led to a popular uprising against the government that forced the regime to respond with domestic economic and political reforms. In the same period, however, counterreform and special-interest groups exerted increasing influence on the regime's policies. In foreign affairs, Russia again became an intrusive participant in Balkan affairs and in the international political intrigues of the major European powers. As a consequence of its foreign policies, Russia was drawn into a world war for which its domestic policies rendered it unprepared. Severely weakened by internal turmoil and lacking leadership, the regime ultimately was unable to overcome the traumatic events that would lead to the fall of tsarism and initiate a new era in Russian and world history.

Revolution and Counterrevolution, 1905-07

The Russo-Japanese War accelerated the rise of political movements among all classes and the major nationalities, including propertied Russians. By early 1904, Russian liberal activists from the zemstva and from the professions had formed an organization called the Union of Liberation. In the same year, they joined with Finns, Poles, Georgians, Armenians, and Russian members of the Socialist Revolutionary Party to form an antiautocratic alliance.

In January 1905, Father Georgiy Gapon, a Russian Orthodox priest who headed a police-sponsored workers' association, led a huge, peaceful march in St. Petersburg to present a petition to the tsar. Nervous troops responded to the throng with gunfire, killing several hundred people and initiating the Revolution of 1905. This event, which came to be called Bloody Sunday, combined with the embarrassing failures in the war with Japan to prompt more strikes, agrarian disorders, army mutinies, and terrorist acts organized by opposition groups. Workers formed a council, or soviet, in St. Petersburg. Armed uprisings occurred in Moscow, the Urals, Latvia, and parts of Poland. Activists from the zemstva and the broad professional Union of Unions formed the Constitutional Democratic Party, whose initials lent the party its informal name, the Kadets.

Some upper-class and propertied activists called for compromise with opposition groups to avoid further disorders. In late 1905, Witte pressured Nicholas to issue the so-called October Manifesto, which gave Russia a constitution and proclaimed basic civil liberties for all citizens. In an effort to stop the activity of liberal factions, the constitution included most of their demands, including a ministerial government responsible to the tsar, and a national Duma--a parliament to be elected on a broad, but not wholly equitable, franchise. Those who accepted this arrangement formed a center-right political party, the Octobrists, and named Witte the first prime minister. Meanwhile, the Kadets held out for a ministerial government and equal, universal suffrage. Because of their political principles and continued armed uprisings, Russia's leftist parties were undecided whether to participate in the Duma elections, which had been called for early 1906. At the same time, rightist factions actively opposed the reforms. Several new monarchist and protofascist groups also arose to subvert the new order. Nevertheless, the regime continued to function through the chaotic year of 1905, eventually restoring order in the cities, the countryside, and the army. In the process, terrorists murdered several thousand officials, and the government executed an equal number of terrorists. Because the government had been able to restore order and to secure a loan from France before the first Duma met, Nicholas was in a strong position that enabled him to replace Witte with the much less independent functionary Petr Stolypin.

The First Duma was elected in March 1906. The Kadets and their allies dominated it, with the mainly nonparty radical leftists slightly weaker than the Octobrists and the nonparty center-rightists combined. The socialists had boycotted the election, but several socialist delegates were elected. Relations between the Duma and the Stolypin government were hostile from the beginning. A deadlock of the Kadets and the government over the adoption of a constitution and peasant reform led to the dissolution of the Duma and the scheduling of new elections. In spite of an upsurge of leftist terror, radical leftist parties participated in the election, and, together with the nonparty left, they gained a plurality of seats, followed by a loose coalition of Kadets with Poles and other nationalities in the political center. The impasse continued, however, when the Second Duma met in 1907.

The Stolypin and Kokovtsov Governments

In 1907 Stolypin instituted a series of major reforms. In June 1907, he dissolved the Second Duma and promulgated a new electoral law, which vastly reduced the electoral weight of lower-class and non-Russian voters and increased the weight of the nobility. This political coup had the desired short-term result of restoring order. New elections in the fall returned a more conservative Third Duma, which Octobrists dominated. Even this Duma quarreled with the government over a variety of issues, however, including the composition of the naval staff, the autonomous status of Finland, the introduction of zemstva in the western provinces, the reform of the peasant court system, and the establishment of workers' insurance organizations under police supervision. In these disputes, the Duma, with its appointed aristocratic-bureaucratic upper house, was sometimes more conservative than the government, and at other times it was more constitutionally minded. The Fourth Duma, elected in 1912, was similar in composition to the third, but a progressive faction of Octobrists split from the right and joined the political center.

Stolypin's boldest measure was his peasant reform program. It allowed, and sometimes forced, the breakup of communes as well as the establishment of full private property. Stolypin hoped that the reform program would create a class of conservative landowning farmers loyal to the tsar. Most peasants did not want to lose the safety of the commune or to permit outsiders to buy village land, however. By 1914 only about 10 percent of all peasant communes had been dissolved. Nevertheless, the economy recovered and grew impressively from 1907 to 1914, both quantitatively and through the formation of rural cooperatives and banks and the generation of domestic capital. By 1914 Russian steel production equaled that of France and Austria-Hungary, and Russia's economic growth rate was one of the highest in the world. Although external debt was very high, it was declining as a percentage of the gross national product (GNP--see Glossary), and the empire's overall trade balance was favorable.

In 1911 a double agent working for the Okhrana assassinated Stolypin, and Finance Minister Vladimir Kokovtsov replaced him. The cautious Kokovtsov was very able and a supporter of the tsar, but he could not compete with the powerful court factions that dominated the government.

Historians have debated whether Russia had the potential to develop a constitutional government between 1905 and 1914. The failure to do so was partly because the tsar was not willing to give up autocratic rule or share power. By manipulating the franchise, the government obtained progressively more conservative, but less representative, Dumas. Moreover, the regime sometimes bypassed the conservative Dumas and ruled by decree.

During this period, the government's policies waivered from reformist to repressive. Historians have speculated about whether Witte's and Stolypin's bold reform plans could have "saved" the Russian Empire. But court politics, together with the continuing isolation of the tsar and the bureaucracy from the rest of society, hampered all reforms. Suspensions of civil liberties and the rule of law continued in many places, and neither workers nor the Orthodox Church had the right to organize themselves as they chose. Discrimination against Poles, Jews, Ukrainians, and Old Believers was common. Domestic unrest was on the rise while the empire's foreign policy was becoming more adventurous.

Active Balkan Policy, 1906-13

Russia's earlier Far Eastern policy required holding Balkan issues in abeyance, a strategy Austria-Hungary also followed between 1897 and 1906. Japan's victory in 1905 had forced Russia to make deals with the British and the Japanese. In 1907 Russia's new foreign minister, Aleksandr Izvol'skiy, concluded agreements with both nations. To maintain its sphere of influence in northern Manchuria and northern Persia, Russia agreed to Japanese ascendancy in southern Manchuria and Korea, and to British ascendancy in southern Persia, Afghanistan, and Tibet. The logic of this policy demanded that Russia and Japan unite to prevent the United States from establishing a base in China by organizing a consortium to develop Chinese railroads. After China's republican revolution of 1911, Russia and Japan recognized each other's spheres of influence in Outer Mongolia. In an extension of this reasoning, Russia traded recognition of German economic interests in the Ottoman Empire and Persia for German recognition of various Russian security interests in the region. Russia also protected its strategic and financial position by entering the informal Triple Entente with Britain and France, without antagonizing Germany.

In spite of these careful measures, after the Russo-Japanese War Russia and Austria-Hungary resumed their Balkan rivalry, focusing on the Kingdom of Serbia and the provinces of Bosnia and Herzegovina, which Austria-Hungary had occupied since 1878. In 1881 Russia secretly had agreed in principle to Austria's future annexation of Bosnia and Herzegovina. But in 1908, Izvol'skiy foolishly consented to support formal annexation in return for Austria's support for revision of the agreement on the neutrality of the Bosporus and Dardanelles--a change that would give Russia special navigational rights of passage. Britain stymied the Russian gambit by blocking the revision, but Austria proceeded with the annexation. Then, backed by German threats of war, Austria-Hungary exposed Russia's weakness by forcing Russia to disavow support for Serbia.

After Austria-Hungary's annexation of Bosnia and Herzegovina, Russia became a major part of the increased tension and conflict in the Balkans. In 1912 Bulgaria, Serbia, Greece, and Montenegro defeated the Ottoman Empire in the First Balkan War, but the putative allies continued to quarrel among themselves. Then in 1913, the alliance split, and the Serbs, Greeks, and Romanians defeated Bulgaria in the Second Balkan War. Austria-Hungary became the patron of Bulgaria, which now was Serbia's territorial rival in the region, and Germany remained the Ottoman Empire's protector. Russia tied itself more closely to Serbia than it had previously. The complex system of alliances and Great Power support was extremely unstable; among the Balkan parties harboring resentments over past defeats, the Serbs maintained particular animosity toward the Austro-Hungarian annexation of Bosnia and Herzegovina.

In June 1914, a Serbian terrorist assassinated Archduke Franz Ferdinand, heir to the throne of Austria-Hungary, which then held the Serbian government responsible. Austria-Hungary delivered an ultimatum to Serbia, believing that the terms were too humiliating to accept. Although Serbia submitted to the ultimatum, Austria-Hungary declared the response unsatisfactory and recalled its ambassador. Russia, fearing another humiliation in the Balkans, supported Serbia. Once the Serbian response was rejected, the system of alliances began to operate automatically, with Germany supporting Austria-Hungary and France backing Russia. When Germany invaded France through Belgium, the conflict escalated into a world war.

Russia at War, 1914-16

Russia's large population enabled it to field a greater number of troops than Austria-Hungary and Germany combined, but its underdeveloped industrial base meant that its soldiers were as poorly armed as those of the Austro-Hungarian army. Russian forces were inferior to Germany's in every respect except numbers. In most engagements, the larger Russian armies defeated the Austro-Hungarians but suffered reverses against German forces.

In the initial phase of the war, Russia's offensives into East Prussia drew enough German troops from the western front to allow the French, Belgians, and British to stop the German advance. One of Russia's two invading armies was almost totally destroyed, however, at the disastrous Battle of Tannenberg--the same site at which Lithuanian, Polish, and Russian troops had defeated the German Teutonic Knights in 1410. Meanwhile, the Russians turned back an Austrian offensive and pushed into eastern Galicia, the northeastern region of the Austro-Hungarian Empire. The Russians halted a combined German-Austrian winter counteroffensive into Russian Poland, and in early 1915 they pushed more deeply into Galicia. Then in the spring and summer of that year, a German-Austrian offensive drove the Russians out of Galicia and Poland and destroyed several Russian army corps. In 1916 the Germans planned to drive France out of the war with a large-scale attack in the Verdun area, but a new Russian offensive against Austria-Hungary once again drew German troops from the west. These actions left both major fronts stable and both Russia and Germany despairing of victory--Russia because of exhaustion, Germany because of its opponents' superior resources. Toward the end of 1916, Russia came to the rescue of Romania, which had just entered the war, and extended the eastern front south to the Black Sea.

Wartime agreements among the Allies reflected the Triple Entente's imperialist aims and the Russian Empire's relative weakness outside Eastern Europe. Russia nonetheless expected impressive gains from a victory: territorial acquisitions in eastern Galicia from Austria, in East Prussia from Germany, and in Armenia from the Ottoman Empire, which joined the war on the German side; control of Constantinople and the Bosporus and Dardanelles straits; and territorial and political alteration of Austria-Hungary in the interests of Romania and the Slavic peoples of the region. Britain was to acquire the middle zone of Persia and share much of the Arab Middle East with France; Italy--not Russia's ally Serbia--was to acquire Dalmatia along the Adriatic coast; Japan, another ally of the entente, was to control more territory in China; and France was to regain Alsace-Lorraine, which it had lost to Germany in the Franco-Prussian War, and to have increased influence in western Germany.

The Fatal Weakening of Tsarism

The onset of World War I exposed the weakness of Nicholas II's government. A show of national unity had accompanied Russia's entrance into the war, with defense of the Slavic Serbs the main battle cry. In the summer of 1914, the Duma and the zemstva expressed full support for the government's war effort. The initial conscription was well organized and peaceful, and the early phase of Russia's military buildup showed that the empire had learned lessons from the Russo-Japanese War. But military reversals and the government's incompetence soon soured much of the population. German control of the Baltic Sea and German-Ottoman control of the Black Sea severed Russia from most of its foreign supplies and potential markets. In addition, inept Russian preparations for war and ineffective economic policies hurt the country financially, logistically, and militarily. Inflation became a serious problem. Because of inadequate matÈriel support for military operations, the War Industries Committee was formed to ensure that necessary supplies reached the front. But army officers quarreled with civilian leaders, seized administrative control of front areas, and refused to cooperate with the committee. The central government distrusted the independent war support activities that were organized by zemstva and cities. The Duma quarreled with the war bureaucracy of the government, and center and center-left deputies eventually formed the Progressive Bloc to create a genuinely constitutional government.

After Russian military reversals in 1915, Nicholas II went to the front to assume nominal leadership of the army, leaving behind his German-born wife, Alexandra, and Rasputin, a member of her entourage, who exercised influence on policy and ministerial appointments. Rasputin was a debauched faith healer who initially impressed Alexandra because he was able to stop the bleeding of the royal couple's hemophiliac son and heir presumptive. Although their true influence has been debated, Alexandra and Rasputin undoubtedly decreased the regime's prestige and credibility.

While the central government was hampered by court intrigue, the strain of the war began to cause popular unrest. In 1916 high food prices and fuel shortages caused strikes in some cities. Workers, who had won the right to representation in sections of the War Industries Committee, used those sections as organs of political opposition. The countryside also was becoming restive. Soldiers were increasingly insubordinate, particularly the newly recruited peasants who faced the prospect of being used as cannon fodder in the inept conduct of the war.

The situation continued to deteriorate. In an attempt to alleviate the morass at the tsar's court, a group of nobles murdered Rasputin in December 1916. But the death of the mysterious "healer" brought little change. Increasing conflict between the tsar and the Duma weakened both parts of the government and increased the impression of incompetence. In early 1917, deteriorating rail transport caused acute food and fuel shortages, which resulted in riots and strikes. Authorities summoned troops to quell the disorders in Petrograd (as St. Petersburg had been called since 1914, to Russianize the Germanic name). In 1905 troops had fired on demonstrators and saved the monarchy, but in 1917 the troops turned their guns over to the angry crowds. Public support for the tsarist regime simply evaporated in 1917, ending three centuries of Romanov rule.