For generations, Russian Jews had been considered a special problem. Jews constituted only about 4% of the population, but were concentrated in the western borderlands. Like other minorities in Russia, the Jews lived "miserable and circumscribed lives, forbidden to settle or acquire land outside the cities and towns, legally limited in attendance at secondary school and higher schools, virtually barred from legal professions, denied the right to vote for municipal councilors, and excluded from services in the Navy or the Guards".