However, a decision was necessary, and in 1905 a board of consulting or advisory engineers was appointed, mainly to consider whether the canal should be constructed at high-level or sea-level. Five members were appointed by European governments, and the president was Major-General George W. Davis, formerly of the United States army. The instructions given to this board by President Roosevelt will afford a very clear idea of the problem it had to solve:-- There are two or three considerations which I trust you will steadily keep before your minds in coming to a conclusion as to the proper type of canal. I hope that ultimately it will prove possible to build a sea-level canal. Such a canal would undoubtedly be best in the end, if feasible; and I feel that one of the chief advantages of the Panama route is that ultimately a sea-level canal will be a possibility. But while paying due heed to the ideal perfectibility of the scheme from an engineer's standpoint, remember the need of having a plan which shall provide for the immediate building of a canal on the safest terms and in the shortest possible time. If to build a sea-level canal will but slightly increase the risk, then, of course, it is preferable. But if to adopt the plan of a sea-level canal means to incur a hazard, and to insure indefinite delay, then it is not preferable. If the advantages and disadvantages are closely balanced, I expect you to say so. I desire also to know whether, if you recommend a high-level multi-lock canal, it will be possible, after it is completed, to turn it into or substitute for it, in time, a sea-level canal without interrupting the traffic upon it. Two of the prime considerations to be kept steadily in mind are: First.--The utmost practicable speed of construction. Second.--Practical certainty that the plan proposed will be feasible; that it can be carried out with the minimum risk. The quantity of work and the amount of work should be minimized as far as possible.