Pius IX was severely tried, and it is not to his discredit that he was perplexed. He stood between two imminent and threatening dangers--with Austria supported by other sovereign powers, a faction of retrogressive cardinals, and the Jesuits, upon one side, and the revolutionists upon the other. The circumstances would have put to a severe test the courage and firmness of a more experienced statesman. In the face of these surroundings he entered upon a series of reforms, the necessity for which proves how extensive and oppressive had been the misgovernment of his predecessor, and how little liberty the people were permitted to enjoy under him. These had reference to measures of administration, and were designed to improve the public service in the hospitals, prisons, and religious institutions. Provision was made for the punishment of fraud and extortion. Useful works were encouraged and industry stimulated. Some oppressive taxes were remitted. Companies were authorized to build railroads and to introduce gas. Laymen were allowed to hold some inferior offices. Partial freedom of the press was provided for; but it was only partial, inasmuch as papal censorship was preserved. Infant, Sunday, and evening schools were established. And in a public circular he announced that he proposed to assemble a Board of Councilors to advise with in reference to the administration of public affairs. The names of these were to be proposed by the governors of the provinces, and he was to select the Board from the number proposed.[180]