THE ZEMSTVOS AND THE UNION TT 
the needs, and the result was that the zemstvos not only ceased prac- 
tically to spend their own funds for this purpose, but began to re- 
ceive from the Government, through the Zemstvo Union. enormous 
sums for the upkeep of their hospitals. 
The remaining zemstvo appropriations for the war needs were 
not only not reduced, but, on the contrary, showed a tendency to 
increase. In particular, the expenditure involved in caring for the 
families of zemstvo employees called to the colors became heavier. 
Moreover, a new item of expenditure appeared in the zemstvo 
budget in 1915, namely, the supply of food to the population, as a 
direct consequence of the War. Upon the whole, however, it may be 
said that, while the zemstvos during the first half year of the War 
did appropriate large sums out of their own funds for the general 
needs of the State, later on we observe a vast stream of government 
funds flowing into the zemstvo treasury. 
Local Institutions of the Union. 
During the first month of the War the specific war tasks of the 
zemstvos had been to provide a sufficient number of hospitals, equip 
them quickly, assist in evacuation and distribution of the sick and 
the wounded, organize public collections of funds and articles, and 
aid the families of those who were called to the front, or families 
who had suffered in one way or another as a consequence of the 
War. In course of time, new needs arose. The zemstvos had to take 
part in the purchasing operations for the supply of provisions and 
munitions for the army, assist millions of refugees sweeping into the 
interior from the war zone, take measures to combat the epidemics 
following in their wake, aid in the general food supply campaign, 
help to fight the high cost of living, take steps to counteract the 
curtailment of the area of agricultural cultivation which was al- 
ready threatening, and, in general, help in preventing the decline of 
agricultural production. 
Such were the tasks confronting the Union of Zemstvos. As the 
Union represented a combination of the zemstvos, it was natural to 
expect that this work would be carried out locally by the indi- 
vidual zemstvos. The creators of the Union, however, were fully 
alive to conditions as they existed locally and they were aware that, 
as has been noted previously, these local bodies were not quite free 
to act as they saw fit. Half a century of experience had taught the