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The Territorial Force was a part-time volunteer organisation, created in 1908 to help meet the military needs of the United Kingdom without resorting to conscription. It was established by the Secretary of State for War, Richard Haldane, as part of his reform of British land forces following the Second Boer War. The new organisation consolidated the 19th-century Volunteer Force and yeomanry auxiliaries into a unified body, commanded by the War Office but administered by local County Territorial Associations. The Territorial Force was designed to reinforce the regular British Army in expeditionary operations abroad, but because of political opposition it was assigned to home defence. Members were liable for service anywhere in the UK but could not be compelled to serve overseas. Fewer than 40 per cent of the men in the previous auxiliary institutions transferred into the force, and it was consistently under strength until the outbreak of the First World War. It was not considered to be an effective military force by the regular army and was denigrated by the proponents of conscription.