The Continental Army that marched into Valley Forge consisted of about 12,000 people—soldiers, artificers, women, and children. Throughout the winter, patriot commanders and legislators faced the challenge of supplying a population the size of a colonial city. In May and June 1777, the Continental Congress had authorized the reorganization of the supply department. Implementation of those changes never fully took effect, because of the fighting surrounding Philadelphia. Consequently, the supply chain had broken down even before the Continental Army arrived at Valley Forge. In large part, supplies dried up through the neglect of Congress so that by the end of December 1777 Washington had no way to feed or to adequately clothe the soldiers. Washington chose the area partly for its strategic benefits, but wintertime road conditions impeded supply wagons on route to the encampment.