Three such sections were marked off from the rest: merchants of the first guild, university graduates, and incorporated artisans.
The resuscitated "Committee for the Amelioration of the Jews" [1] displayed an intense activity during that period (1856-1863).

For fully two years (1857-1859) the question of granting the right of permanent residence in the interior governments to merchants of the first guild occupied the attention of that Committee and of the Council of State.
The Committee had originally proposed to restrict this privilege by imposing a series of exceedingly onerous conditions.

Thus, the merchants intending to settle in the Russian interior were to be required to have belonged to the first guild within the Pale for ten years previously, and they were to be allowed to leave the Pale only after securing in each case a permit from the Ministers of the Interior and of Finance.
But the Council of State found that, circumscribed in this manner, the privilege would benefit only a negligible fraction of the Jewish merchant class--there were altogether one hundred and eight Jewish first-guild merchants within the Pale--and, therefore, considered it necessary to reduce the requirements for settling in the interior.
[Footnote 1: Compare above, p.

49.] A long succession of meetings of this august body was taken up with the perplexing problem how to attract big Jewish capital into the central governments and at the same time safeguard the latter against the excessive influx of Jews, who, for the sake of settling there, would register in the first guild and, under the disguise of relatives, would bring with them, as one of the members of the Council put it, "the whole tribe of Israel." After protracted discussions, a resolution was adopted which was in substance as follows: The Jewish merchants who have belonged to the first guild for not less than two years prior to the issuance of the present law shall be permitted to settle permanently in the interior governments, accompanied by their families and a limited number of servants and clerks.

These merchants shall be entitled to live and trade on equal terms with the Russian merchants, with the proviso that, after the settlement, they shall continue their membership in the first guild as well as their payment of the appertaining membership dues for no less than ten years, failing which they shall be sent back into the Pale.