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35 Then Jesus went throughout all the towns and villages, teaching in their synagogues, preaching the good news of the kingdom, and healing every kind of disease and sickness.
36 When he saw the crowds, he had compassion on them because they were bewildered and helpless, like sheep without a shepherd.
37 Then he said to his disciples, “The harvest is plentiful, but the workers are few.
38 Therefore ask the Lord of the harvest to send out workers into his harvest-ready fields.” - Matthew 9:35-38 (NET Bible 2nd edition)
To me, Matthew 9:35-38 (Workers for the Harvest) should have really been the beginning of Chapter 10, and is understood in terms of the rest of Matthew 10. Good work Stephen Langton... don't quit your day job.
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9:35 Jesus himself is travelling and preaching, presumably some of which in turn would spread the Gospel to others after Jesus' departure. These new preachers are counted among the "few" in 9:37, and would already be at work before the Twelve are sent.
9:36 Establishes the "bewildered and helpless" nature of the Gospel-hungry crowds. These eager hearers are the "harvest" in 9:37.
9:37 Now addressing his disciples on the eve of the Sending of the Twelve, Jesus is simply acknowledging the need for more (i.e. in additional to any evangelization already being done by others) workers to gather the harvest. 10:1 naturally follows that it's the disciples he was referring to, with the added gift of cleansing authority.
My two cents at least... your milage may vary