Despite Catherine's personal weaknesses, she was above all a ruler. Truly dedicated to her adopted country, she intended to make Russia a prosperous and powerful state. Since her early days in Russia she had dreamed of establishing a reign of order and justice, of spreading education, creating a court to rival Versailles, and developing a national culture that would be more than an imitation of French models. Her projects obviously were too numerous to carry out, even if she could have given her full attention to them.
Her most pressing practical problem, however, was to replenish the state treasury, which was empty when Elisabeth died; this she did in 1762 by secularising the property of the clergy, who owned one-third of the land and serfs in Russia. The Russian clergy was reduced to a group of state-paid functionaries, losing what little power had been left to it by the reforms of Peter the Great.
Since her coup d'etat and Peter's suspicious death demanded both discretion and stability in her dealings with other nations, she continued to preserve friendly relations with Prussia, Russia's old enemy, as well as with the country's traditional allies, France and Austria.
In 1764 she resolved the problem of Poland, a kingdom lacking definite boundaries and coveted by three neighbouring powers, by installing one of her old lovers, Stanislaw Poniatowski, a weak man entirely devoted to her, as king of Poland.
Her attempts at reform, however, were less than satisfying. A disciple of the English and French liberal philosophers, she saw very quickly that the reforms advocated by Montesquieu or Jean-Jacques Rousseau, which were difficult enough to put into practice in Europe, did not at all correspond to the realities of an anarchic and backward Russia.
In 1767 she convened a commission composed of delegates from all the provinces and from all social classes (except the serfs) for the purpose of ascertaining the true wishes of her people and framing a constitution. The debates went on for months and came to nothing. Catherine's Instruction to the commission was a draft of a constitution and a code of laws. It was considered too liberal for publication in France and remained a dead letter in Russia.
Frustrated in her attempts at reform, Catherine seized the pretext of war with Turkey in 1768 (see Russo-Turkish wars)to change her policy; henceforth, emphasis would be placed above all on national grandeur. Since the reign of Peter the Great, the Ottoman Empire had been the traditional enemy of Russia; inevitably, the war fired the patriotism and zeal of Catherine's subjects.
Although the naval victory at Cesme in 1770 brought military glory to the Empress, Turkey had not yet been defeated and continued fighting. At that point, Russia encountered unforeseen difficulties.
First, a terrible plague broke out in Moscow; along with the hardships imposed by the war, it created a climate of disaffection and popular agitation. In 1773 Yemelyan Pugachov, a former officer of the Don Cossacks, pretending to be the dead emperor Peter III, incited the greatest uprising of Russian history prior to the revolution of 1917. Starting in the Ural region, the movement spread rapidly through the vast southeasternprovinces, and in June 1774 Pugachov's Cossack troops prepared to march on Moscow.
At this point, the war with Turkey ended in a Russian victory, and Catherine sent her crack troops to crush the rebellion. Defeated and captured, Pugachov was beheaded in 1775, but the terror and chaos he inspired were not soon forgotten. Catherine now realised that for her the people were more to be feared than pitied, and that, rather than freeing them, she must tighten their bonds.
Before her accession to power, Catherine had planned to emancipate the serfs, on whom the economy of Russia, which was 95 percent agricultural, was based. The serf was the property of the master, and the fortune of a noble was evaluated not in lands but in the "souls" he owned.
When confronted with the realities of power, however, Catherine saw very quickly that emancipation of the serfs would never be tolerated by the owners, whom she depended upon for support, and who would throw the country into disorder once they lost their own means of support. Reconciling herself to an unavoidable evil without much difficulty, Catherine turned her attention to organising and strengthening a system that she herself had condemned as inhuman.
She imposed serfdom on the Ukrainians who had until then been free. By distributing the so-called crown lands to her favourites and ministers, she worsened the lot of the peasants, who had enjoyed a certain autonomy. At the end of her reign, there was scarcely a free peasant left in Russia, and, because of more systematised control, the condition of the serf was worse than it had been before Catherine's rule.
Thus, 95 percent of the Russian people did not in any way benefit directly from the achievements of Catherine's reign. Rather, their forced labour financed the immense expenditures required for her ever-growing economic, military, and cultural projects. In these undertakings, at least, she proved herself to be a good administrator and could claim that the blood and sweat of the people had not been wasted.