On September 26, 1904, the zemstvo assembly approved new Postal Regulations, according to which "correspondence received by the zemstvo post is paid for in favor of the zemstvo by a postal fee, by means of special zemstvo-postage stamps prepared by the zemstvo board in four denominations: 1, 2, 4, and 5 kopecks."
It was decided to introduce the Regulations from January 1, 1905. The new 5-kopeck stamps were intended to pay for registered letters, the cost of sending which had previously been 4 kopecks. The board's report for 1904 states: "For printing zemstvo postage stamps: 1 kopeck—20,400 pcs., 2 kopecks—52,200 pcs., 4 kopecks—11,500 pcs., 5 kopecks—19,000 pcs., total 103,100 pcs.; paid 96 rubles 06 kopecks, and for shipping 1 ruble 85 kopecks."