December 22, 1862, the governor issued a proclamation, in which, after mentioning the tardy response to his May proclamation and the failure of the legislature to reorganize the system, he again asked the people to volunteer in companies for home defence.[166] He begged the people to drive those who were shirking service to their duty by the force of public scorn. He requested that business houses be closed early in order to give time for drill. The response to this was the same as to his previous proclamation. There was no longer any material for a militia organization. Early in 1863, and in some sections even before, the need began to be felt for a militia force to execute the laws. Under the direction of the governor, small commands were organized here and there of those who were not likely to become subject to service in the Confederate army. These were state and Confederate officials, young boys, and sometimes old men. These organizations were later a source of constant conflict between the state authorities and the Confederate enrolling officers, who wanted to take such commands bodily into the Confederate service, and who usually did so with the full consent of most of the men and to the great indignation of the governor.[167] In August, 1863, the legislature finally passed a law to reorganize the militia system, or rather to establish a new system. By the law an official in each county, appointed by the governor, was to enroll as first-class militia all males under seventeen and over forty-five years of age, including all state and Confederate civil officials, and those physically disqualified for service in the Confederate army. The second class was to consist of those not in the first class, that is, of men between seventeen and forty-five years of age. But men of the second class were subject to enrolment by Confederate conscript officers, and consisted of the few thousand who were specially exempted by the Confederate authorities. Those of the first class who wished to do so might enroll in the second class. The governor was given the usual power over the militia, but it was ordered that the first-class militia was not to go beyond the limits of the county to which it belonged.[168] Presumably the second class might be ordered beyond the county limits, but there were so few in their class that they were not organized. The first-class militia in each county was under a commandant of reserves, militia now being called reserves. He had the power to call it out to repel invasion and execute the laws. Jealousy of Confederate authority had caused the legislature to take legal means of making the militia worthless to the Confederacy, and useful only for local defence and for executing the state laws in particular localities.[169] Still, the system seems to have been practically useless, and the governor continued to organize small irregular commands to execute the laws and to furnish military escorts to civil officials.