As soon as it became clear that no nation could without extreme peril to itself neglect the new weapon, the Government took up the problem in earnest. Private enterprise might, no doubt, have been trusted to improve and develop aircraft for the various uses of peace, but the question was a question of war. The purposes and ambitions of the German Empire had again and again been freely expressed, in no moderate language, and the German menace lay like a long vague shadow across the peace of Europe. Peaceful citizens, with many other things to think of, might fail to see it, but no such blindness was possible for those who had charge of the defences of the country. The Committee of Imperial Defence, in the few years before the war, took expert advice. The Government, acting on this advice, furnished us with the nucleus of an air force. They made their own flying school, and established their own factory for the output of aircraft. They organized an air service with naval and military wings. They formed advisory and consultative committees to grapple with the difficulties of organization and construction. They investigated the comparative merits and drawbacks of airships and aeroplanes. The airships, because they seemed fitter for reconnaissance over the sea, were eventually assigned wholly to the Naval Wing. No very swift progress was made with these in the years before the war. The expenses of adequate experiment were enormous, and the long tale of mishaps to Zeppelins seemed to show that the risks were great. The experts who were consulted pointed out that the only way to test the value of the larger type of airship was to build such airships ourselves, that Germany had patiently persevered in her airship policy in the face of disaster and loss, and that if we were to succeed with airships it would be necessary to warn the public that heavy losses, in the initial stage, were unavoidable. Opinion in this island, it is right to remember, was strong against the airship, or gas-bag, and Germany's enthusiastic championship of the Zeppelin made the aeroplane more popular in England. So our airship policy was tentative and experimental; a few small airships were in use, but none of the large size and wide range required for effective naval reconnaissance. Good and rapid progress, on the other hand, was made with aeroplanes and seaplanes, and when war broke out we had a small but healthy service, both naval and military, ready to take the air.