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In late imperial Russia, women who engaged in prostitution were perceived as dangerous social elements. Regulation aimed both to control levels of venereal disease and extend central state control over prostitution. Hygiene was central to regulation policy: This also meant that regulation largely targeted lower-class women and raids were generally carried out in taverns and flop-houses in working-class areas.
Brothel-keepers were also required to comply with various restrictions: The brothel was to be hidden; they could not open onto the streets, their windows had to be kept permanently blackened and they could not be located within 30 metres of churches or schools to ensure that the reputation of an area was not tarnished. The Imperial system of regulation was spectacularly unsuccessful: Inadequate hospital facilities and ineffective treatments ensured that the central aim of controlling venereal disease was not achieved.
Kalinkin Hospital in St Petersburg, probably the best facility for the treatment of venereal disease in imperial Russia, was extremely crowded, with patients often having to share beds. For example records indicate that on January 1st , 8, hospital beds were occupied by 10, patients.
Stites estimates that three quarters of registered prostitutes were infected with venereal disease, and it is likely that levels of infection among those who remained unregistered were even higher.
In addition to medical concerns, imperial regulation can also be perceived as a product of the social stresses and strains resulting from modernization.