In the previous Mishnah we learned about the three fasts that individuals - the Torah scholars - take upon themselves. Our Mishnah moves us to the next stage, in which the fast is placed upon the entire community.
The words of the Mishnah:
"Higia Rosh Chodesh Kislev v'lo yardu geshamim - beis din gozrin shalosh ta'aniyos al hatzibur" - once Rosh Chodesh Kislev has arrived and no rain has fallen, the court decrees three fasts upon the community.
Once Rosh Chodesh Kislev has arrived and rain still has not fallen, the fast is no longer placed upon individuals alone. At this stage the court decrees three fasts that apply to the entire community, and everyone is required to fast.
Even so, in terms of halachah these fasts are similar - in fact identical - to the three fasts that the Torah scholars took upon themselves, as the Mishnah goes on to spell out.
The laws of these fasts:
"Ochlin v'shosin mishtechshach" - the fast applies during the daytime hours only, and once night falls eating and drinking are permitted.
"U'mutarin bimlachah" - doing work is permitted.
"U'virchitzah" - washing is permitted.
"U'v'sichah" - anointing is permitted.
"U'vin'ilas hasandal" - wearing shoes, including leather shoes, is permitted.
"U'v'tashmish hamitah" - marital relations are permitted as well.
It emerges that their law is like that of all the fasts we observe nowadays, apart from Tishah B'Av and Yom Kippur.
In summary: This Mishnah teaches that when Rosh Chodesh Kislev arrives and no rain has fallen, the court widens the circle of the fast and decrees three fasts upon the entire community; yet these fasts are as lenient as the fasts of the Torah scholars - the fasting is by day only, while work, washing, anointing, wearing shoes and marital relations are all permitted.