304 THE ZEMSTVOS DURING THE WAR
stvo conferences. These measures merely aggravated the difficulties,
with the result that at the end of 1916 the Government and the public
 formed two hostile camps and a clash seemed inevitable.
In the meantime, as a result of two and a half years of exhausting
 warfare, the sentiments of the public had completely changed.
After the first wave of enthusiasm had passed, it became evident that
the country would have to face months and possibly even years of
unprecedented trials. The enormous losses sustained by the army,
the glaring unpreparedness for war, a series of crushing defeats on
the battlefield—all this could not but create widespread depression
and discouragement. Within the country a complete paralysis was
already threatening the principal branches of economic life, and
there was no hope that the Government would be able to stem the
rising tide of chaos and anarchy.
Under these circumstances the general process of disintegration
was bound also to affect the Zemstvo Union. The work of this Union
had been started by a comparatively small group of men. Everything
 had been organized on the principles that were traditional in
the zemstvo work. The representatives of the Zemstvo Union enjoyed
 the full confidence of the Central Committee that had appointed
 them, and, as has been explained, they were at first practically
 unhampered by any rules or regulations. Inspired by eagerness
to serve the needs of the army, they endeavored to pass on this enthusiasm
 to their collaborators and subordinates and to create an atmosphere
 of cheerful and unfettered activity. At first, no doubt, sufficient
 experience, technical knowledge, and general ability were in
some cases lacking; but this deficiency was more than compensated
by enthusiasm, youth, energy, and bold initiative. In course of time
it was inevitable that weariness should begin to make itself felt and
that enthusiasm should gradually cool off. We must also remember
that the character of the work itself and the conditions under which
it had to be carried on underwent constant and considerable changes,
and that the number of workers on the rolls of the Union increased
with amazing rapidity. According to the official report of the General
 Staff submitted to the Provisional Government, the total number
 of employees of the Union of Zemstvos on April 1, 1917, was
about 170,000.* We have had no opportunity of verifying this figt
 Trudi (Report) of the Commission for the Investigation of the Effects
on Public Health of the War of 1914-1920, Moscow, 1923, p. 211.