The great mass of the people suffered severely by Peter's reforms. The peasants as tenants of the large landowners had enjoyed some liberty and were legally free men; they were by him assigned to the soil, which they were not permitted to leave. Thus they, too, passed into serfdom. If the proprietor sold the estate, the rural population (p. 166) went with it. The owners paid a poll-tax for their serfs. These unfortunates could also be sold without the land, but the czar made a law that "If the sale cannot be abolished completely, serfs must be sold by families without separating husbands from wives, parents from children, and no longer like cattle, a thing unheard of in the whole world."
The citizens of towns were divided into three classes; to the first class belonged bankers, manufacturers, rich merchants, physicians, chemists, capitalists, jewelers, workers in metal, and artists; storekeepers and master mechanics were in the second; all other people belonged to the third. Foreigners could engage in business, acquire real estate; but they could not depart from the country without paying to the government one tenth of all they possessed.
Cities and towns were administered by burgomasters elected by the citizens; this board selected its own president or mayor. If an important question arose, representatives of the first two classes were summoned for consultation. All the mayors of Russia were subject to a magistrate selected from the Council of St. Petersburg, and appointed by the czar. This official watched over the interests of commerce and agriculture, settled disputes between citizens and burgomasters, confirmed local elections, authorized executions when a death sentence was pronounced by provincial authorities, and made reports to the tsar.
The _voïevodes_ or governors of a province directed all the affairs of their jurisdiction and disbursed the revenues as they thought (p. 167) best. "Help yourself first!" was the unwritten law, and it was universally obeyed. Peter divided his empire into forty-three provinces, forming twelve governments each under a viceroy and deputy, who were assisted by a council elected by the nobles.
The courts were crude and mediæval, but not more so than in the west of Europe. Justice, such as it was, was administered by the General Police Inspector, and in large cities there was a police officer for every ten houses. Servants who failed to keep the house front clean were punished with the knout. Peter created the Bureau of Information, a court of secret police, and thus inaugurated the terrible spy system which still disgraces Russia.