In the first section of the poem, a bunch of Hollow Men are leaning together like scarecrows.In the fourth section, the hollow man from Section 2 continues to describe his vacant, desolate surroundings, in which are no "eyes." The Hollow Men are afraid to look at people or to be looked at.
The fifth and final section the speaker describes how a "shadow" has paralyzed all of their activities, so they are unable to act, create, respond, or even exist.They exist in a state like Hell, except they were too timid and cowardly to commit the violent acts that would have gained them access to Hell.Everything they say and do 
is meaningless.