At the beginning of his reign, the Emperor somewhat eased conditions for peasants; redemption values were decreased and the poll-tax was annulled. A Peasant Bank was established to loan money for land redemption. Additionally, Old Believers received certain benefits. In 1882, the Emperor undertook the so-called counter-reforms. In 1882, "Temporary Rules for the Press" were issued which tightened censorship restrictions; in 1884, new university rules were issued which limited the autonomy of universities, reduced the number of students, strengthened disciplinary supervision. The counter-reforms of Alexander III included a Zemstvo Reform (1890) that increased the representation of the nobility in zemstvos; the City Reform replaced tax qualification with a property ownership requirement for elections to city Dumas and sharply reduced the number of the cities with organs of self-government. The Court Reform (1889) cancelled the institution of elected justices of the peace (except for St. Petersburg, Moscow, and Odessa).
In the cities, justices of peace were exchanged for city judges; in rural areas, they were exchanged for members of district courts appointed by the government. In place of justices of peace, peasant received zemstvo heads, who combined judicial and administrative authority.