why the order?

[spang_b]

No: HPFGUIDX 89185

hi,
  Dumbledore starts the order of phoenix the second time in the 
fifth book. That's  I suppose, after Fudge's reaction to the news of 
Voldemort's arrival. Dumbledore thought that he won't be getting any 
official support from the ministry and that any resistance has to be 
underground.
 But what was the reason for starting it the first time? The 
ministry then was fully involved in resisting Voldemort so why the 
need to start a secret group in the first place?

spangb