176 THE ZEMSTVOS DURING THE WAR
was being encroached upon more and more by the orders of the Minister
 of the Interior. Thus, on November, 1915, the whole Empire
was divided into twelve areas and in each of these the Ministry appointed
 a special High Commissioner—endowed with very wide
powers “for the unification of the work of the local organizations.”
Under the “instruction” prepared by the Special Council and approved
 by the Minister on March 2, 1915, a similar task of ‘“unification”
 was given to the governors who, contrary to the law of
August 80, 1915, were placed at the head of the provincial committees.
 This multiplication of authorities resulted in bitter conflicts.*®
The proverb says that too many cooks spoil the broth. The conditions
 of Russian life were such as to complicate the already perplexng
 problem of refugee relief to such an extent that the unions and
unofficial organizations, who were at first quite prepared to cooperate
 loyally among themselves and with the Government, found
themselves in the end utterly disunited, competing with each other,
and openly in opposition to the Government. Naturally, those who
suffered most from this situation were the unfortunate refugees.
+8 See Isvestia (Bulletin), Nos. 41-42, pp. 105-119; also ibid., No. 40,
pp. 103-113.