In February 2002, the National Security Council met to decide whether to expand ISAF beyond Kabul. In a dispute between Powell and Rumsfeld (a pattern repeated often through the Bush Administration) Rumsfeld's view that the force should not be expanded prevailed. Historians later wrote that the failure of ISAF to be deployed beyond Kabul drove Karzai to offer positions within the state to potential spoilers whose activities did great harm to the state's reputation. Because the rise of the insurgency was linked to grievances over governance, this became a serious problem.