pre-occupation of our industries in meeting the needs of our Armies in equipment and munitions; but, generally speaking, it may be said that in April, 1917, the losses reached their maximum, and that from the following month and onwards the battle was being slowly but gradually won. By the end of the year it was becoming apparent that success was assured.

The volume describes the changes carried out in the Admiralty Staff organization; the position of affairs in regard to submarine warfare in the early part of 1917; and the numerous anti-submarine measures which were devised and brought into operation during the year. The introduction and working of the convoy system is also dealt with. The entry of the United States of America into the war marked the opening of a new phase of the operations by sea, and it has been a pleasure to give particulars of our cordial co-operation with the United States Navy. The splendid work of the patrol craft and minesweepers is described all too briefly, and I have had to be content to give only a brief summary of the great services of the Dover and Harwich forces.

Finally, an effort has been made to suggest the range and character of the work of the Production Departments at the Admiralty. It is impossible to tell this part of the story without conveying some suggestion of criticism since the output never satisfied our requirements. I have endeavoured also to indicate where it seemed to me that changes in organization were not justified by results, so that in future years we may benefit by the experience gained. But I would not like it to be thought that I did not, and do not, realize the difficulties which handicapped production, or that I did not appreciate to the full the work done by all concerned.

It is unfortunate that attempts to draw attention to the lessons taught us by the war are regarded by many people either as complaints of lack of devotion to the country's interests on the part of some, or as criticisms of others who, in the years before the war or during the war, were responsible for the administration of the Navy. In anticipation of such an attitude, I wish to state emphatically that, where mention is made of apparent shortcomings or of action which, judged by results, did not seem, to meet a particular situation, this is done solely in order that on any future occasion of a similar character—and may the day be long postponed—the nation may profit by experience.

Those who are inclined to indulge in criticism should ever bear in mind that the Navy was faced with problems which were never foreseen, and could not have been foreseen, by anyone in this country. Who, for instance, would have ever had the temerity to predict that the Navy, confronted by the second greatest Naval Power in the world, would be called upon to maintain free communications across the Channel for many months until the months became years, in face of the naval forces of the enemy established on the Belgian coast, passing millions of men across in safety, as well as vast quantities of stores and munitions? Who would have prophesied that the Navy would have to safeguard the passage of hundreds of thousands of troops from the Dominions to Europe, as well as the movement of tens of thousands of labourers from China and elsewhere? Or who, moreover, would have been believed had he stated that the Navy would be required to keep open the sea communications of huge armies in Macedonia, Egypt, Palestine, Mesopotamia and East Africa, against attack by surface vessels, submarines and mines, whilst at the same time protecting the merchant shipping of ourselves, our Allies, and neutral Powers against similar perils, and assisting to ensure the safety of the troops of the United States when they, in due course, were brought across the Atlantic? Compare those varied tasks with the comparatively modest duties which in pre-war days were generally assigned to the Navy, and it will be seen how much there may be to learn of the lessons of experience, and how sparing we should be of criticism. Wisdom distilled from events which were unforeseeable should find expression not in criticisms of those who did their duty to the best of their ability, but in the taking of wise precautions for the future.

Little mention is made in this volume of the work of the Grand Fleet during the year 1917, but, although that Fleet had no opportunity of showing its fighting power, it must never be forgotten that without the Grand Fleet, under the distinguished officer who succeeded me as Commander-in-Chief at the end of 1916, all effort would have been of no avail, since every operation by sea, as well as by land, was carried out under the sure protecting shield of that Fleet, which the enemy could not face.

I am conscious of many shortcomings in the book, but it may prove of interest to those who desire to know something of the measures which gradually wore down the German submarine effort, and, at any rate, it is the only record likely to be available in the near future of the work of fighting the submarines in 1917.

June, 1920.

CHAPTER I

It is perhaps as well that the nation generally remained to a great extent unconscious of the extreme gravity of the situation which developed during the Great War, when the Germans were sinking an increasing volume of merchant tonnage week by week. The people of this country as a whole rose superior to many disheartening events and never lost their sure belief in final victory, but full knowledge of the supreme crisis in our history might have tended to undermine in some quarters that confidence in victory which it was essential should be maintained, and, in any event, the facts could not be disclosed without benefiting the enemy. But the position at times was undoubtedly extremely serious.

At the opening of the war we possessed approximately half the merchant tonnage of the world, but experience during the early part of the struggle revealed that we had not a single ship too many for the great and increasing oversea military liabilities which we were steadily incurring, over and above the responsibility of bringing to these shores the greater part of the food for a population of forty-five million people, as well as nearly all the raw materials which were essential for the manufacture of munitions. The whole of our war efforts, ashore as well as afloat, depended first and last on an adequate volume of merchant shipping.

It is small wonder, therefore, that those who watched from day to day the increasing toll which the enemy took of the country's sea-carrying power, were sometimes filled with deep concern for the future. Particularly was this the case during the early months of unrestricted submarine warfare in 1917. For if the menace had not been mastered to a considerable extent, and that speedily, not only would the victory of the Allies have been imperilled, but this country would have been brought face to face with conditions approaching starvation. In pre-war days the possibility of these islands being blockaded was frequently discussed; but during the dark days of the unrestricted submarine campaign there was ample excuse for those with imagination to picture the implication of events which were happening from week to week. The memories of those days are already becoming somewhat dim, and as a matter of history and a guide to the future, it is perhaps well that some account should be given, however inadequate, of the dangers which confronted the country and of the means which were adopted to avert the worst consequences of the enemy's campaign without ceasing to exert the increasing pressure of our sea power upon his fighting efficiency, and without diminishing our military efforts overseas.

The latter points were of great importance. It was always necessary to keep the Grand Fleet at a strength that would ensure its instant readiness to move in waters which might be infested by submarines in large numbers