I always assumed it was Saruman or at least his phantom. If Gandalf had sent a phantom of himself he would have told the three hunters.
I always forget about this part until I read it, then for a few chapters I'm perplexed until I forget about it and the process starts anew when I reread.
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afterwards caused the horses to flee hoping to weaken the three Hunters that way.
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I seem to recall the horses may have fled not out of fear, but rather they met Shadowfax.
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Whether they fled at first in fear, or not, our horses met Shadowfax, their chieftain, and greeted him with joy.
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If Saruman was a phantom he had made this phantom with such perfection it was taken from flesh and blood which would mean he'd have to make a lot of noise or some great display to scare war horses off. I think rather Saruman (or phantom) was just out wandering about like he was prone to do.
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Remember the words of Eomer: he walks about like an old man hooded and cloaked.
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