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.