But these officers had only themselves to blame. They pursued a short-sighted, nagging policy, worrying those who were exempt--the state officials and the militia--because they were easy to reach, and neglecting the real conscript material.[229] The work was known to be useless, and the whole system was irritating to the last degree to all who came in contact with it. It was useless because there was little good material for conscription, except in the frontier country where no authority could be exerted. During 1862 and 1863 practically nothing was done by the Bureau in Alabama, and at the end of the latter year, Colonel E. D. Blake, the Superintendent of Special Registration, reported that there were 13,000 men in the state between the ages of seventeen and forty-five, and of these he estimated 4000 were under eighteen years of age, and hence, at that time, beyond the reach of the enrolling officers. More than 8000[230] were exempt under laws and orders. This left, he said, 1000 subject to enrolment. Nowhere, in any of the estimates, are found allowances for those physically and mentally disqualified. The number then exempted in Alabama by medical boards is unknown. In other states this number was sometimes more and sometimes less than the number exempted by law and by order. A year later, after all exemptions had been revoked, the number disqualified for physical disability by the examining boards amounted to 3933. Besides these there were the lame, the halt, the blind, and the insane, who were so clearly unfit for service that no enrolling officer ever brought them before the medical board. The 4000 between the ages of seventeen and eighteen, and also the 4600 between sixteen and seventeen, came under the enrolment law of February 17, 1864, as also several thousand who were over forty-five. But it is certain that many of these, especially the younger ones, were already in the general service as volunteers. It is also certain that many hundreds of all ages who were liable to service escaped conscription, especially in north Alabama. In a way, their places in the ranks were filled by those who did not become liable to enrolment until 1864, or even not at all, but who volunteered nevertheless.