While the events described in the last chapter had been watched with interest and attention in all parts of the world, they were the subject of anxious consultation in the Council of the Governor-General. It was only natural that the Viceroy, himself, should view with abhorrence the prospect of military operations on a large scale, which must inevitably lead to closer and more involved relations with the tribes of the Afghan border. He belonged to that party in the State which has clung passionately, vainly, and often unwisely to a policy of peace and retrenchment. He was supported in his reluctance to embark on warlike enterprises by the whole force of the economic situation. No moment could have been less fitting: no man more disinclined. That Lord Elgin's Viceroyalty and the Famine year should have been marked by the greatest Frontier War in the history of the British Empire in India, vividly displays how little an individual, however earnest his motives, however great his authority, can really control the course of public affairs. The Council were called upon to decide on matters, which at once raised the widest and most intricate questions of frontier policy; which might involve great expense; which might well influence the development and progress of the great populations committed to their charge. It would be desirable to consider such matters from the most lofty and commanding standpoints; to reduce detail to its just proportions; to examine the past, and to peer into the future. And yet, those who sought to look thus on the whole situation, were immediately confronted with the picture of the rock of Chakdara, fringed and dotted with the white smoke of musketry, encircled by thousands of fierce assailants, its garrison fighting for their lives, but confident they would not be deserted. It was impossible to see further than this. All Governments, all Rulers, meet the same difficulties. Wide considerations of principle, of policy, of consequences or of economics are brushed aside by an impetuous emergency. They have to decide off-hand. The statesman has to deal with events. The historian, who has merely to record them, may amuse his leisure by constructing policies, to explain instances of successful opportunism. On the 30th of July the following order was officially published: "The Governor-General in Council sanctions the despatch of a force, to be styled the Malakand Field Force, for the purpose of holding the Malakand, and the adjacent posts, and of operating against the neighbouring tribes as may be required." The force was composed as follows:--