The zemstvo consisted of mostly feudal lords as they were in the majority of who had property ownership.
The minority had priests, merchants, industrialists and some former serfs who had been able to own property during the emancipation.
Since there was no apparatus that required the government to direct or co-ordinate the work, the zemstvo was left entirely independent and they primarily focused on local needs.
Intelligentsia – valuable opportunity for them to serve in a professional capacity – developing understanding of peasant life and local issues.