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Alexander also introduced other reforms and in 1864 he allowed each district to set up a Zemstvo. These were local councils with powers to provide roads, schools and medical services. However, the right to elect members was restricted to the wealthy.

Other reforms introduced by Alexander included improved municipal government (1870) and universal military training (1874). He also encouraged the expansion of industry and the railway network.

Alexander's reforms did not satisfy liberals and radicals who wanted a parliamentary democracy and the freedom of expression that was enjoyed in the United States and most other European states. The reforms in agricultural also disappointed the peasants. In some regions it took peasants nearly 20 years to obtain their land. Many were forced to pay more than the land was worth and others were given inadequate amounts for their needs.

In 1876 a group of reformers established Land and Liberty. As it was illegal to criticize the Russian government, the group had to hold its meetings in secret. Influenced by the ideas of Mikhail Bakunin, the group published literature demanding that Russia's land should be handed over to the peasants.

Some reformers favoured a policy of terrorism to obtain reform and on 14th April, 1879, Alexander Soloviev, a former schoolteacher, tried to kill Alexander. His attempt failed and he was executed the following month.