to the Council of State.

In the ministerial body, Valuyev, Minister of the Interior, favored the
idea of granting the right of settling outside the Pale to Jewish
artisans and mechanics, dependent on certain conditions, "by practising
caution and endeavoring to avert the rapid influx into the midst of the
population of the interior governments of an element hitherto foreign to
it." In reply to Baron Korff, who had advocated the admission of the
Jewish artisans beyond the Pale not only with their families but also
with Jewish domestics, Valuyev argued that this privilege "will enable
Jewish business men of all kinds to reside in the interior governments,
under the guise of employes of their coreligionists." "The Jews,"
according to Valuyev, "will endeavor to transfer their activity to a
field economically more favorable to them, and it goes without saying
that they will not fail to seize the first best opportunity of
exploiting the places of the Empire hitherto inaccessible to them." The
Council of State passed the law in the formulation of the Ministry of
the Interior, adding the necessary precautions against the entirely
legitimate endeavor of Jewish business men "to transfer their activity
to a field economically more favorable to them."

After nine years of preparation, on June 28, 1865, Alexander II. finally
gave his sanction to the law permitting Jewish artisans, mechanics and
distillers, including apprentices, to reside all over the Empire. Both
in the wording of the law and in its subsequent application the
privilege was hedged about by numerous safeguards. Thus, the artisan who
wished to settle outside the Pale had to produce not only a certificate
from his trade-union testifying to his professional ability but also a
testimony from the police that he was not under trial. At stated
intervals he had to procure a passport from his native town in the Pale,
since outside the Pale his status was that of a temporary resident. In
his new place of residence he was permitted to deal only in the wares of
his own workmanship. If he happened to be out of work, he was to be sent
back to the Pale.

While opening a valve in the suffocating Pale, the Government took good
care to prevent the artificially pent-up Jewish energy from rushing
through it. However, heaving cooped up for so long, the Jews began to
press through the opening. In the wake of the artisans, who, on account
of the indicated restrictions of the law or beca