To be sure, the Jews, in contradistinction to the rest of the population, are promised the high Imperial favor on condition of "due obedience." Yet the inviolability of their former rights was solemnly guaranteed, and Russian politics had henceforward to be guided by it.
Immediately on the annexation of the new province a general census was ordered. According to the testimony of a contemporary, the number of Jews in White Russia was found to amount to over forty thousand families, about two hundred thousand souls. An ukase of 1772 imposed upon them a _per capita_ tax of one rubel (50c.). The annexed territory was divided into two Governments, those of Moghilev and Polotzk, or, as it is called at present, Vitebsk. In the interest of the regular collection of taxes, the administration from the very beginning gave instructions "to have all Jews affiliate with the Kahals and to institute such [Kahals] as the governors may suggest or as necessity for them may arise."
The problems connected with the inner organization of the Jews were of a more complicated character. Far-reaching changes were taking place at that time in the provincial and the social organization of the Russian Empire. In 1775 was promulgated the "Regulation Concerning the Governments."[235] In 1785 was issued the "Act Concerning Municipal Administration,"[236] and the authorities were confronted by an alternative: either to place the Jews under the general laws, according to the estate to which they belonged (in the cities the mercantile class, the burghers, and the trade-unions), or, in view of their peculiar conditions of life and the Kahal autonomy inherited from Poland, allow them to retain their own institutions as part of their communal and spiritual self-government. It was a difficult problem, and Russian legislation at first wavered between these two ways of solving it, with the result that matters became muddled. The interference of the local administration and the old rivalry among the various estates made confusion worse confounded.
The ukase issued by the Senate in 1776 sanctioned the existence of the Kahal, regarding it primarily as a fiscal and legislative institution, which the Russian administration found convenient for its purposes. At the instance of Governor-General Chernyshev, the Jews of White Russia were set apart as a separate tax-unit and as an estate of their own. They were to be entered on special registers in the towns, townlets, villages, and hamlets, wherever a census was taken. The instructions read that