Preheat the oven to 190°C/375°F/Gas mark 5
Cream together the butter and brown sugar. Mix in the orange rind/zest and juice. Sift together the flour, soda and baking powder, and add to the mixture, alternately with the milk. Mix thoroughly.
Drop by teaspoonsful onto a greased baking tray, 3 inches apart. Bake for 10 - 12 minutes or until golden brown. Remove and allow to cool.
Mix all the icing ingredients until smooth. Add a little water to mix. Cover each cookie with a little icing and allow to set.