NAVAL POLICY.

Dominion, Volume 7, Issue 1892, 29 October 1913, Page 9

NAVAL POLICY.

PACIFIC SUPREMACY. GOVERNMENT POLICY DRAFTED LOCAL SQUADRON. NEW ZEALANDERS TO SERVE. A statement embodying the naval defenco policy of tho Government and the result of recent correspondence on tho subject between the Imperial Government and that of the Dominion was made in tho House of Representatives yesterday, by tho Hon. W. F. Massey (Prime Minister). Tho Hon. Jas. Allen (Minister of Defence) was absent through indisposition. The statement was inado at 3.5 p.m. At that hour the Prime Minister said that before going on with tho Orders of tho Day ho wished to lay on the table a paper dealing with the naval defenco of tho Dominion. Ho .would read the paper, but before doing er; ho wanted to express regret that his colleague, the Minister ot Defence, was not able to be in his placo that'day. Mr. Allen, had, however, requested him j not to" delay laying tho paper before Parliament, but to proceed with it in tlio ordinary way. He hoped that his colleaguo would bq ill his place on the following day, and lie .(Mr. Allen]) would lay \beforo, Parliament 'the legislation which was to follow. The Prime Minister then' read tho printed statement <jf which the text is as follows:—' The First Subsidy. "In explaining tlib of tho New"Zealand.Government, in regard to uaval'dcfcnce, I desire to say that any delay, which has taken placo in making ti.is statement of tho Government's opinions and position lias been owing ■ to circumstances over whjch the Government had no control. "In order to mako the position clear it is necessary/ to go back to the first subsidy; granted by tho New Zealand Parliament on account of Imperial naval defence. By the Australasian Defence Act,- 1887, provision was'made for tho payment by tho colony of Now Zealand of a proportional part of the'cost af establishment ■ and maintenance of in additional naval force to bo employed for tho protection of our floating trade in Australasian wators, and an appropriation of an annual contribution was provided for ton years to givo effect to the agreement entered into between the colonial Government and tho Imperial authorities. This payment approximated £20,000 per annum. "Tho next step was in 1903, wjien the Australian and New- Zealand Naval Defenco Act was passed into law, increasing the annual contribution by NewZealand for the establishment and maintenance of an additional naval force to bo employed in Australian and New Zealand waters to a sum not exceeding £40,00'0. Tho Gift Dreadnought. "By the Naval Subsidy Act, 1008. the annual contribution :of tho Dominion was again increased to £100,000 for ten years from May 12, 1909. Then followed the gift of the battle-cruiser New Zealand in Maroh, 1909. In the same year the Imperial Defenco Conference met in London, and an agreement was arrived at for tho establishing of a Pacific fleet, to consist of three units in tho East Indies, Australia, and China Seas, each comprising, with some variations, a large'armoured cruiser, of Jtho now Indomitable type.'threo second-class ■ cruisers of tho Bristol type, six destroyers of the - Rivor class, and three 6iibmarines of 0 class. - "The battle-cruiser New Zealand was to be the flagship of the China unit; and by arrangement between the First Lord of the Admiralty (the Right Hon. Mr. M'Kenna) and the Right Hon. Sir J. G. Ward (representing'the Dominion), a portion of the China unit conBisting. of two Bristol cruisers, three destroyers, arid two submarines was to be stationed in peace time in New Zealand waters, tho ships to be manned as far as possiblo by Now Zealand officers and men The China Float. ''The following correspondence between Mr. M'Kenna and Sir Joseph -Ward sets out the position at that date:— .. "'Extract from letter from, t'ho liigjht Hon.' Sir J. G. Ward to tho Right Hon. M'Kenna. ... (No. 1.) ; " 'London. August 11, 1909. "'Dear Mr. M Kentia f — " ' New Zealand • will supply a '"'Dreadnought" for the British Navy, os already offered; the ship to be under the control of and stationed wherever tho. Admiralty considers advisable. ( "'I fully realise that tho creation /of specific units, one in tho East, one in Australia, and, if possible, ono in Can- ' ' ada, would bo a great improvement ■upon the existing condition of affairs, end, the fact that the New Zealand "Dreadnought''- was to be the flagship [Cf the Ohina-Pacific unit is, in my opinion, satisfactory. I, however, consider it is that a portion of' tho China-Pacific unit should remain in. New Zealand waters; and I would suggest that two of the lew "Bristol ci uisers,. together witlh threo • destroyers and two submarines, should be detached from the China station in time ■ of peace and stationed in New Zealand wators; that theso,vessels should < come under the flag of the Admiral of tho China unit; that the flagship should ■ make periodical visits to New Zealand waters; and_ that there should bo an interchange in the service of the crui- ■ (,ers between New and China, ■under conditions to bo laid down. '

"'The'ships should bo manned, as far as 'possible, by New Zealand officers and men;_an&, in order that New Zealanders might be attracted to servo in tho fleet, local ratea should be paid to thoso New Zealanders who enter, in the same manner as under tho present Australian and Ne-v Zealand agreement, such local rates boing treated as deferred pay "'Tho determination of the agreement, with Australia has of " necessity brought up t'he position of Now Zealand under that joint agreement. I thorebro suggest that on ( completion of the China unit tho present agreement with New Zealand should cease; that its contribution of £100,000 per annum should bo continued, and be used to pay tho difference in tho rates of pay to Ne.v Zealanders above what would be paid under the ordinary British rate. If tho contribution for tho advanced rate of pay did not amount to £100,000 por annum, any balance to be at the disposal of tho Admiralty. "'The whole of this fleet unit to he taken in hand and completed before the end of 1912, and I should bo glad if t'ho squadron as a whole would then visit Now Zealand on the way to China, leaving the New Zealand detachment there under its senior officer. " ' I am, etc., •"J. G. WARD.'"

Tho Admiralty View. "' Letter from the Right Hon. Mr. M'Kenna to tho Hon. Sir J. G. Ward. (No. 20 " 'London, August 18, 1809. " ' Dear Sir Joseph,— "'Tho suggestions made by .vou at tho meeting on tho 11th, and. recited by vou in your lotter to mo of tho samo dato havo been carefully considered and tonourred ill by tho Admiralty. lf 'Tlie present naval agreement with 'Australia and Now Zealand will not bo ronowed, and iu view, of this , fact

and tho other special circumstances referred to by you the part of the China fleet unit*, as set out by you, will bo maintained in Now Zealand waters as thoir headquarters. Your wish that the bhipa of tlio fleet aa a whole, or, at «ny rato, the armoured ship and the cruisors, when completed, should pay a visit to New Zealand on tlio way to I China shall also bo carried out. " ' I tako this opportunity on behalf of tho Admiralty of repeating tlioir sincere thanks to tho New Zealand Government for taking so important a part ill the inception of tlio present Conference. Tho Admiralty feel that every effort should be mado to work out a schome acceptablo to the peoplo of New Zoaland, having regard to the patriotic action taken by yourself and your Ministers in Jlarch last. " ' I have, etc., • " 'REGINALD M'KENNA.' Tho New Zealand Squadron. "In the early part of 1912 tho New Zealand Government consented to the battle-cruiser being stationed wherever tho Admiralty deemed advisable. In that alteration of tho 1900 agreement tho present Government concurs: indeed, the Admiralty has been informed that tlio battle-<cniiser New Zealand is unreservedly placed at their disposal. Until. 1912 the Imperial Government maintained. in the ■ South Pacifio t'lie Australasian Squadron, but with tho comiug into operation of tlio new-"ar-rangement between the. Imperial Government and the Commonwealth of Australia, and the completion by tho Commonwealth of the Australian unit of the proposed Fleet, the Australasian Squadron .was withdrawn, with tlio exception of somo 'of t'ho smaller vessels, 'which wore -to Hiave their headquarters lit New' Zealand waters. _ " This was t'he position which was in sight prior to the visit cf tho Minister of Deience to England at the beginning of tliis year. Defenoc Minister in London. "The Defence' Minister-was commissioned by tho Government to interview the Imperial authorities on the subject, and to ondeavour to bring about a moro satisfactory state of affairs, so far as New Zealand naval defenco ' was concerned. Interviews were granted readily and willingly, and the utmost courtesy was extended to the Defence Minister by tlio Prime Minister (Mr. Asquith), by the First Lord of tho Admiralty (Mr. Churchill), and by overy one with whom he came in" contact. Up to tho time of the Defence Minister's visit littlo or nothing had been done by til i Admiralty to give effect to their part of the 1909 agreement, and an intimation was given to him by the Imperial .authorities that the position had changed so materially that it was not considered advisable to carry out tho agreoraent or to sond to New Zealand the ships referred to in the correspondonce between Mr. 1 M'Kenna and Sir Joseph Ward, quoted above. As a result of tho consultation between the Admiralty and tho Defenco Minister it was arranged that Now Zealand should train her own personnel, and that for this purpose the Admiralty should lend to New Zealand a sea-going trainingship and the necessary complement of officers and men. This ship and its complement to.be under the administration of tho Now Zealand Government, but to be at tho disposal of tile Admiralty when required. An Agreement Varied. "It was further arranged that, for Imperial purposes in the Pacific and to assist in the protection of commerce, the Admiralty should station in. Now Zealand wators two light cruisers which had constituted part of the Australasian Squadron. On his return to New Zealand, the Defence Minister submitted the arrangement for the; consideration of his colleagues, with an additional proposal that New Zealand should at an early date provide a cruiser of tho 'Mel- : bourne" type now forming part of the : Australian unit, this type of ship having boen recommended by tho Admiralty as most suitable for the protection of commerce. The Government, after duo consideration, came to. the conclusion that the. proposal for two light cruisers was too great a departure from the 1909 agreement, and approached tho Admiralty, asking that two crnisers of tho 'Bristol' typo should be substituted for the two light cruisers, in which case tho Government would . ask Parliament ito provide an additional £50,000, thus making tlio £100,000 now provided up to £150,000-per annum. This offer has not been accepted, and tho following extract from a telegram dated October 2, ; from the Secretary of State, will, I think, explain itself: — " 'It was confidently anticipated in 1909 that stationing of the Bristols in ! New Zealand waters could be arranged without interfering with fhe general strategic disposition of naval strength ; nc-fcssary in tho interests of the Em- ' piro as a whole. Available Bristols are • required elsewhere; in particular, two have been .sent temporarily to the East India and China Stations respectively. At present they would be superfluous in New Zealand waters, as thoro are no < possible enemy ships of equal speed to J be dealt with thore.' i

A Building proposal. "I have 110 doubt, that tho Imperial authorities are, in their judgment, doing tho host possible in the interests of tht> Empire as a whole, but the New Zealand Government think a- commencement should 1 bo made to improve the iiavnl position in tho South Pacific, and, if no satisfactory arrangement is -arrived at before next session;, Parliament will be asked to, agree to tho building in Britain of one fast modern cruiser, probablv of tho 'Bristol' type, costing about £400.000, to be used in the event of necessity requiring it for tho protection of our trade routes. _ This type of' ship costs £400.000, and is described by Jane n.s follows: —Length, 430 ft.; beam, 47ft.; mraii draught, 15} ft.; IcngtK over an, 4S3ft. Guns: Two 6in., ten 4in. Displacement, 4800 tons. Complement, 370. Designed horsepower, 22,000, equivalent to 25 knots. "It appears quite certain thatwe are on tho eve of great • changes in the Pacific, and it is well that we should commence to shoiflder our responsibilities and look to the future both of tho Emn'ire and our gr.aw,ui£_JDominion. "It is proposed that tlus ship or any ship that New Zealand may acquire shall bo under the administration! 'of New Zealand in /peace time, but shall automatically pass under the direct control of the Admiraltv immediately on the outbreak of hostilities, or shall be available for Admiralty purposes on any other occasion when urgently required. Tralnlng-stilp. "In the meantime H.M.S. Philomel will bo'taken over by tho New Zealand Government, and a commencement made with tho work of trainina cur own men, and in this connection the Government do not anticipate anv difficulty in securing as many rccruits as thev require. Tho native-born New Zealander of both races takes kindly to a seafaring life, and arrangements should certainly bo made for a proportion of tho Native race to bn trained as seamen. Opportunity will be given to New Zealanders now serving in the Royal Navy to form part o_F the crow of the sea-going train-ing-ship lent by the Admiralty to New Zealand. The following information regarding the Philomol will bo ■ of interest: Length. 2Gsft.; beam. 41ft.; maximum draught. 18{ft. Guns: F.iVht 4.7 in., eight 3-nr., four Nordonfeldts, one 7-pr. field. Displacement, 2575 tons. Complement, 219. Designed horsepower, 4000. equivalent to IG.y knots. Built in 1890. Training of Officers. "Tiie Admiralty has agreed to continuo the present arrangement by which two naval"eadetships for the Osborne and Dartmouth course will be anjiuailv at tho disposal of New Zealand oil the nomination of His Excellency.

- tho Governor under tho saino regulnj tions hitherto in force. Tho Admiralty o will also be glad to consider applicas tions on behalf of Now Zealand 1 for 0 'special entry' under regulations govt orning this mode of entry. Tho ordinary 5 channel of entry and training for naval 1 ca\lnts will bo through tho - Itoyal Aus- > tralian Naval Collego, subject to tho New Zealand Government making tho f necessary arrangements with tlio Comr moiuvoiiith. Tho Admiralty has intim- [ ated that as at present advised this l training will be regarded as equivalent ; to tho training at Osborno and Dartmouth. Until tho future requirements . for oflicors can. bo moro accurately esti- | mated, it is suggested that tho maxi- , mum number of cadets entered, yearly [ should bo eight—i.e., two at Osborno or Dartmouth, and six at the Australian College. The 'special entry cadets' would' be in addition to these. Training the Men. "For tho mciii there will be two i methods of entry to tho New Zealand • Naval Force: (1) As boys between tlio ;. ages of fourteen and a half and sixteen to serve up to tho age of eighteen and for seven years afterwards; (2) as youths and mem botwecn the ages of seventeen and twenty-five to servo for seven years. In each case tho engagement will include liability to sorve ' in any ships of the Royal Navy. "Tho method of training the lads is not yet decided on, it being thought best to await the advice of tlio officer to bo appointed to command tho train-ing-ship and adviso New Zealand. _ The training of tho youth and men is to be in the New Zealand sea-going training-ship, and in such other ships of tho Royal Navy as may bo stationed in Now Zealand waters and detailed for that purpose. After completing their training, men belonging to the New Zealand Naval Force will bo availablo for serving in any ships that may in future bo maintained by the Now Zealand Government or in the ships of tho Royal Navy. Facilities will be provided for men belonging to tho New Zealand Naval Force to transfer to the Royal Navy at any .stage during or at the conclusion of their service. A New Zealand Force. , "Legislation will b? introduced to enable tho New Zealand Government to establish a Naval Force of officers and men for service either in any ships that may in tho future bo maintained by tho New Zealand Government or in tho ships of tho Royal Navy, and for the application of tho Naval Discipline Acts and the Admiralty Instructions to this Force, and, further, to reconstitute tho New Zealand Royal Naval Reserve. "It is proposed that , the officer in command of the sea-going trainingcruiser lent to tho New Zealand Government shall be senior officer of the New Zea land Nav?J Force, and Adviser of the New Zealand Government (through the Minister who may be placed in charge of naval defence) on all matters affect ing the organisation of tho New Zealand Naval Forco. Making a Career. "A career for officers and men belong* ing to the New Zealand Naval Force will be availablo in ships that may in tlio future bo maintained by the Now Zealand Government, or in'the ships of tho Royal Navy; the manning of ships in New Zenland waters will bo regarded as the primary object. "The Now Zealand Royal Naval Reserve will bo reconstituted so as to consist in future of men who have joined in the New Zealand Naval Force, and who volunteer on discharge to join tho reserve, and of men who havo served in the Royal Navy, many of whom now live in New Zealand. Dock-yard Acoommodation. "Provision will be mado by the New Zealand Government, in tho way of suitable accommodation at Auckland for a naval dopot for tho joint uso of the ships of tho Royal Navy and tho New Zealand Naval Forco; the establishment, for the time being, to be maintained by and under the control of the Admiralty. Repairs and supplies for tho Now Zealand Force will bo charged for on repayment. basis. ' Rates of Pay. "The scale of pay of officers of tho Royal Navy lent to New Zealand shall bo the same scale of pay os in the Royal Navy, unless a separate New Zealand service is established. "Men lent from the Royal Navy to the New Zealand Naval Forco will receive New Zealand ratos of pay.. "The rates of pay, etc., in the Now Zealand ship or ships will he the aamo as thoso fixed in the Royal Australian Force. "This 6cale will apply to men belonging to the New Zealand Naval : 'Force serving in ships of the Royal Navy in New Zealand waters. Service in the Royal Navy beyond Now Zealand waters will bo considered as 'foreign service,' and will bo paid at Royal Navy rates only, the balance between such rates and those fixed for the New Zealand Forco being allowed to accumulate. Finance. "In addition to tho annual payment of about :M<{o,ooo to meet tho sinking fund and other interest charges on account of tho cost of tho battle-cruiser Now (tho sinking fund will bo sufficient to redoom tho loan-money raised for this purpose in fifteen years from date—i.e., about tho year 1928), an annual appropriation for the present timo of £100,000 (being the amount of tho present naval subsidy) to bo used for tno purposos of paying rt (a) The maintenance of tho train-ing-ship lont to Now Zealand as from the timo of her transfer, including tho cost of any stores supplied after transfer. "(b) Tho cost of all officers and men lent to New Zealand, including tho usual contribution towards retired pay and pensions and tho ■ cost of passages. "(c) Tho cost, inclusive of all personnel charges—e.g., victualling, clothing, medical issues,. etc.— of all men belonging to the New , Zealand Naval Force, whether ■ serving in ships belonging to the Now Zealand Government or tho ; Royal Navy, and also the cost of the freight of men sent for ser- , vico elsowhero in the Royal < Navy. *'(d) Tho cost of training New Zea- ' landers for officers for tho Royal Navy or tho Now Zealand Naval Force if trained at tho Royal Australian Naval College, but no | contribution to bo paid by Now Zealand if the officers are trained in England. j "(o) Tho cost of the New Zealand Royal Naval Reserve. j Providing Men. "Tlio balance remaining will bo paid * to tho Admiralty. J "It will probably in tho future be ■ moro and more difficult for tho Mother < Country to obtain tho requisite num- j bers to satisfy tho increasing demand , for officers and men. Consequently it would seem that the greatest servico New Zealand can render just- at present ' to Imperial defenco is to commence tho j training of personnel for the Navy. ; "With regard to the acquiring of i ships by New Zealand in tlio future, 1 it has been pointed out to tho Admir- | alty— i "(a) That the great demand for , money for developmental work and tlio difficulty of our finance < in 1914 would probably prevent ] our doing anything till lUlu. "(b) That any ships built by New ' Zealand or acquired would be.at ; 1 tho call of tho Admiralty _ whenever war took place or if war were imminent. ■"(<;) That in such case New Zealand recognised the-absolute necessity for ono control and that this control must for the timo being rest with tho British Govern- j ment, Jj

Supremacy in the Pacific. "In placing thoir opinions on the subject of naval dcfcnco before tlio House, tlio Government are not thinking only of the present, or even of the immediate futuro, lint of what may happen in years to eomo and tho necessity of making preparation therefor. Tho British Dominions in tho Pacific should aim at nothing less than. British naval supremacy for this hemisphere. It may tako many years to bring it about, but more difficult tasks have been accomplished by people of the British race. The co-operation of the Imperial authorities with Canada, Australia, and Now Zealand, tlio encouragement, of the aspirations of, these young countries by consulting them when possible with regard to Imperial defence matters, the prido of possession, the traditions of tho past, are all factors which ninko for unity, strength, and nationhood, and which will in.time give us tho same position iu the way of naval supremacy, in thoso seas that is held by our kinsmen on the other Bide of tho world."

SOME QUESTIONS. A PRELIMINARY DISCUSSION. Sir Joseph Ward, on behalf of tho Opposition, expressed regret at the absence of the Minister of Defence through indisposition. He asked whether, when, the Naval Defence Bill was before tho House, a full opportunity would bo given of discussing the proposals contained in tho Prime Minister's statement. Mr. Massoy: Oh, yes. Sir J. Ward asked whether the Minister of Defence could furnish any authoritative information in regard' to the training-ship. His recollection was that ho was informed, when lie was at Homo some time ago, that tho best method of training was by means of shore stations. Mr. G. W. Russell (Avon) expressed a _ hope that tho Government would furnish a statement of tlio financial operations involved iu connection with tho scheme. It would bo quite impossible for _ honourable members to accurately review and compare the figures of tlio Government if the only information supplied was that given by tho Minister in introdiicing the Bill. ' Tlio_ Prime Minister, said that all possible information (other than confidential information) m the possession of tho Government would be supplied. Tho Government wanted to tako tho representatives of tho people fully into their confidence. In regard to finance, so far as tho first i>ortion of the scheme was concerned, tliero would bo no greater financial obligations than at present. Tho decision .to establish a training-ship liad been arrived at with tho advice and by tho assistance of the Imperial authorities. Tho Imperial Government thoroughly approved the scheme so far as training was concerned. He was quite ccrtain that tho Minister of Finance would placo no difficulty in tho way' of members fully criticising tho proposals in tho statement and in tho Bill which was to como down.

Sir J. Ward asked what reasons tho Imperial authorities had given for departing from tho provisions of tlio. 1909 agreemont. Tho -Primo Minister said that the only reason ho could supply was embodied in tho statement. Tho Government had received a mass of confidential correspondence with regard to this matter which ho could not possibly lay beforo Parliament. Now that ,the statement had been laid beforo the House, members would understand that tho delay that had occurred was not tho fault of tlio Now Zealand Government, and not of its making. Mr. T. H. Davoy asked what tho increased annual cost to tho Dominion would bo if tho schonio outlined in tho statement wero carried into full effect. The Prime Minister said that so far as the training ship and the other vessels to be stationed meantime in New Zealand waters , wero concerned, there would bo no increase upon tho £100,000 per annum paid at present. The increased annual cost in connection with tho proposal to build a Bristol cruiser would bo loss than £50,000. This would include tho cost of maintaining tho ship. n Sir Joseph "Ward askod whether tho position was that the Imperial Government did not. mean to send any ships out to New Zealand waters at all. Tho ships of tho Navy had been withdrawn absolutely ' from Australia because of tho creation of tho Australian Squadron. Tho Prime Minister said that tho proposal of tho Imperial Government was to station in New Zealand waters meantime tho Psyche and the Pyramus, which wore already here. Of course, tho lion, gentleman would recogniso that they could hardly bo considered as fighting ships—they were more or less obsolete. i Sir J. Ward: I can only hope that tho Prime Minister has riot informed the Imperial Government that Now Zealand will bo satisfied with these ships. Tho Primo Minister: I am delighted to hear that expression of opinion from tho right hon. gentleman, because that is tho point which led to all tho correspondence and to all tho delay. We could not, in justico to our country and even in justice to tho Empire, express ourselvos as satisfied with theso two ships in New Zealand waters,