@Marshal Bombast
I think i'm having a number of points on the table.
One of the major challenges of Russia is surely how to handle famine, as food supplement is poor to say at least.
Historically Russia managed to push south and west to seek for grain lands. But for the sake of discussion i'll consider those options unavailable.
I see that is to be expected that many of the towns are to be of less than 2,500 inhabitants. Historically i think Russia was a northern part of some trade tows and many scattered villages (were hunting and fishing was a concrete supplement to poor harvest) so i expect the number of "true towns" to be smaller that the 55 or 62 depending on maps.
Southern Russia should be about the same situation, with some trade towns and many scattered "Cossacks".
given that, you think it is possible to use recruits to increase the Town population? Would this be usefull in order to support HH or a better way is to assign them to a internal trade?
regarding administration, reading this thread i've come to the conclusion that a "roadmap" to develop administration in huge nations could be:
1. Trained admin to increase efficiency in government running. (this save 25% of Gov.Run.Cost).
2. Invest in Custom and excise and tax collector.
3. Introduce administrative division
4. Train further admin to meet the new amount of admin required for the increased complexity of the administration.
This has been historically done almost in every medium to big country. Sweden for example, Great Britain, France, UDP. Wonder if, since a significant number of recruits are required, this could bring some level off efficiency in the government, and witch?
instedad, the god guy guide to farming might be:
1. Night soil man in every named town (i think you have a point that a good number of named towns are scattered villages, but rules state that, in order to work, night soil man are to be raised in all named town of a said nation).
2. Discover hardly seed grain
3. train farmers
then things get quite confused.
1.farming tools (there are a number that can be discovered) are to be provided to population. This should bring benefits, but introducing for example improved ploughts in my russia has caused a reduction of production and hh damage
2. Farming mission to help introduce the Norfolk system?
3. introduce potatoes?