78 THE ZEMSTVOS DURING THE WAR 
government authorities certain methods by which they could, if they 
so desired, interfere with and even stop the regular zemstvo work, 
by standing upon the letter of the law or acting in strict compliance 
with ordinances that might be issued by the Ministry of the In- 
terior. In solving the problems which were now besetting the zem- 
stvos on every hand and required immediate action, there would be 
no time to engage in legal conflicts with the administration. In the 
abnormal conditions of war-time it would be impossible to accom- 
plish anything without genuine enthusiasm, in the face of official 
obstacles, and without rallying the public to the standard of the 
zemstvos. 
Half a century of bitter experience, however, had taught the 
zemstvos that it was precisely the unification and organization of 
the popular masses in their support that the Government was most 
afraid of. In the war zone, the zemstvos met with sympathy and con- 
fidence from the military authorities. But in the interior of Russia 
the officials of the Ministry of the Interior showed suspicion, fear, 
and even ill-concealed hostility. Here and there it was possible for 
the zemstvos to maintain friendly relations with a provincial gover- 
nor, but there was no certainty or security anywhere, while hostile 
orders might be expected at any moment from Petrograd. 
Provincial and District Committees. 
In view of all these circumstances, the leaders of the Union de- 
cided to leave it to the discretion of the local zemstvo workers to 
establish, if necessary, special committees of the Union—provincial, 
district, and for smaller areas—to operate side by side with the 
regular zemstvo institutions. As extraordinary organizations, such 
committees would not be subject to the limitations of the zemstvo 
statutes, and would be more free to act as might be necessary. It 
should also be borne in mind that the executive organs of the zem- 
stvos, composed of only a very few individuals, were overwhelmed 
with current business. The heavy demands of war work inevitably 
increased their burdens considerably and it became necessary to re- 
inforce them by the addition of specialists and expert workers, and 
by combining the zemstvos with other efficient and capable local 
organizations. 
This was precisely the intention of the resolution of the zemstvo 
representatives adopted on July 30, 1914, which provided that “the