They were replaced by the soviets as a form of local government in 1917, mainly because they had served a vehicle for which Russian liberals had pushed through reform.  
It was first instituted in 1864, and representation in it was based on land ownership and elected bodies on the district level would vote for a provincial assembly, who would then appoint a committee that would take care of such matters as hospital maintenance and road construction.  They were replaced by the soviets as a form of local government in 1917, mainly because they had served a vehicle for which Russian liberals had pushed through reform.  Later curtailed by Alexander III, FTP, name these local governing bodies, one of the key reforms of the reign of Tsar Alexander II.
It was first instituted in 1864, and representation in it was based on land ownership and elected bodies on the district level would vote for a provincial assembly, who would then appoint a committee that would take care of such matters as hospital maintenance and road construction.  
zemstvos