These measures were introduced due to the collapse of the army during the Soviet intervention. Before the invasion the army could field 100,000 troops, after the invasion only 25,000. Desertions were pandemic, and the recruitment campaigns for young people often drove them to the opposition. To better organize the military, seven military zones were established, each with its own Defence Council. The Defence Councils were established at the national, provincial and district level to empower the local PDPA. It is estimated that the Afghan government spent as much as 40 percent of government revenue on defense.