30 THE ZEMSTVOS DURING THE WAR 
vincial zemstvos to form an association, or union, for the reinsur- 
ance of the heavy fire risks assumed by the zemstvo insurance 
departments. 
Association of Zemstvos. 
Partial concessions, however, of this nature could not satisfy the 
zemstvo leaders, who were convinced of the urgent need of an all- 
inclusive, permanent zemstvo association that would serve to regu- 
late and coordinate their activities on a nationwide basis. As a sub- 
stitute for such an organization the presidents of the provincial 
zemstvo boards commenced as early as 1895, upon the initiative of 
D. N. Shipov, chairman of the Moscow provincial zemstvo board, to 
hold private conferences, at which the various problems of zemstvo 
administration were carefully discussed. In 1904, at the outbreak 
of the Japanese War, there was formed, on the initiative of one of 
these conferences, but without any sanction from the Government, a 
“General Zemstvo Organization for the Relief of Sick and Wounded 
Soldiers.” The authorities were thus confronted with an accom- 
plished fact, and since the aims of this body were of such a nature 
that it would have been dangerous to dissolve it, the Government 
could not do more than try to hamper its work. 
Under a special law passed in 1900, the organization of food sup- 
ply, until then in the hands of the zemstvos, was taken from their 
control. It should be frankly admitted, however, that this work had 
not been efficiently managed by the zemstvos. This was due, first, to 
the fact that the organization was built upon the antiquated food 
statutes of 1834 and, second, to the fact that, being unable to ob- 
tain concerted action, the several zemstvos were forced to make their 
purchases in a haphazard, uncoordinated fashion, competing in the 
market one with another and thus contributing to the inflation of 
grain prices. But after the food supply had been taken over by the 
Government its management became still worse, and this is why, in 
1905, when there was a famine in some of the fertile black-earth 
provinces, the Government not only refrained from interference, but 
even went so far as to place for two years in succession considerable 
funds at the disposal of the unauthorized organization of the zem- 
stvos for the relief of the victims of the famine. However, we must 
remember that times were then changing, for in the same year the 
revolution swept Russia from end to end.