of territorial administration, and from which radiates the Imperial will
all over the Empire.

For the purpose of territorial administration Russia proper--that is to
say, European Russia, exclusive of Poland, the Baltic Provinces, Finland
and the Caucasus--is divided into forty-nine provinces or "Governments"
(gubernii), and each Government is subdivided into Districts (uyezdi).
The average area of a province is about the size of Portugal, but some
are as small as Belgium, whilst one at least is twenty-five times as
big. The population, however, does not correspond to the amount of
territory. In the largest province, that of Archangel, there are only
about 350,000 inhabitants, whilst in two of the smaller ones there are
over three millions. The districts likewise vary greatly in size. Some
are smaller than Oxfordshire or Buckingham, and others are bigger than
the whole of the United Kingdom.

Over each province is placed a Governor, who is assisted in his duties
by a Vice-Governor and a small council. According to the legislation
of Catherine II., which still appears in the Code and has only
been partially repealed, the Governor is termed "the steward of the
province," and is entrusted with so many and such delicate duties, that
in order to obtain qualified men for the post it would be necessary to
realise the great Empress's design of creating, by education, "a new
race of people." Down to the time of the Crimean War the Governors
understood the term "stewards" in a very literal sense, and ruled in
a most arbitrary, high-handed style, often exercising an important
influence on the civil and criminal tribunals. These extensive and
vaguely defined powers have now been very much curtailed, partly by
positive legislation, and partly by increased publicity and improved
means of communication. All judicial matters have been placed
theoretically beyond the Governor's control, and many of his former
functions are now fulfilled by the Zemstvo--the new organ of local
self-government. Besides this, all ordinary current affairs are
regulated by an already big and ever-growing body of instructions, in
the form of Imperial orders and ministerial circulars, and as soon as
anything not provided for by the instructions happens to occur, the
minister is consulted through the post-office or by telegraph.

Even within the sphere of their lawful authority the Governors have now
a certain respect for public opinion and occasionally a v