NAVAL DEFENCE

Dominion, Volume 13, Issue 19, 17 October 1919, Page 8

NAVAL DEFENCE

LORD JELLICOE'S REPORT

5 The report of Admiral of tho Fleet ;V Lord Jellicoa on tho naval defenco of

; the' Pacific gonerally and of New Zea- \. land in particular was placed before tho T House of Representatives' yesterday. The

I report is a comprehensive document con- !''■ taining a large amount of detail relating to administration and organisation. ; It proposes tho creation of a Par East- •: ern Fleet, to bo maintained by Britain, i Australia, and New Zealand. The New I Zealand division of this fleet, to be stationed in Dominion waters, would conslet of three light cruisers, 6ix sub- ? marinos, a submarine parent ship, and [-'■ a naval air school. Tho annual cost -. would rise from =6357,100 in 1920-21 to ; 41,166,100 in 1925-26, but certain reduotions would be made.

?■ ' Lord Jellicoe recalls tho fact that an (Admiralty memorandum laid beforo tho :Imperial Conference in 1!X)9 stated that ■■ if the problem of Imperial naval defenco : were considered merely as a problem of i naval.'strategy it would bo found that ; .the greatest output of strength for a given expenditure is obtained by the maintenance of a eiuglo Navy with the . concomitant unity of training alul unity | Of command. In furtherance, then, of j tlio simplo strategical idea that maximum i: .of power would be gained if all parts of j tho Empire contributed, according to (/' their needs and to the mainl , tenance of tho British Navy." j:' This ideal is not obtainable for rea- : eons which are very fully recognised, i And. "the question of the organisation which will give both tho strongest navy numerically, and the most efficient orS eanisation of that navy becomes the point for consideration. Expsrienee lias 6nown i abundantly that responsibilities in the ' Blatter of naval defenco are far mors ! clearly recognised and far more ,cheerI fully shouldered if the result of the i; effort made is apparent to those making : it—in other words, if tho ships provided | are 6een by the peoplei who pay for ....them, lind are manned as far aa possible j iby their own kith, and kin. !l. FAR EASTERN FLEET. >. •' "With the adoption of such a policy," ; Bays Lord Jc-f.licoe, "there is still no I reason why the vessels should, not be j Apart and parcel of tho Koyal Navy, the ' . 6hips of the same type, tho personnel • actuated by the same motives, trained ' on the samo lines, imbued with the fame ' traditions, 1 governed by a practically common discipline, and aiming at tho tame i high standard of efficiency. The pro- ; posals which 1 lay before tho Government 'V of New Zealand are drawn' up with this Object in view. The general principle on I which the proposals are based is that New Zealand/should eo-operato in'the naval defence of the Empire, and assist : the Mother Country financially by paying • for the manning and maintenance of a certain proportion of the Far Eastern ; ,Fleet and of all the.vessels required for ' harbour defence in New Zealand, aa well , 'as by providing such portions' of the (personnel of tho ships as is practicable. W*"lf the proposals are Siccepted- tho ehips-thus maintained by New Zealand !-.|will be in all essentials a portion of the i!Royal Navy. They will ily the Whits V" .Ensign (wijh perhaps) tho New Zealand j'/jl'lag flown as a Jack in harbour); offiS.'cms and men will wear the'■uniform-of f.Ttfie BoycU Navy, and will be subject to ' I tho Naval Discipline Act. Officers will {lb© entered and trained under the samo ' regulations as are in force in the lioyal ' Navy. Officers' names will be placed on 1 the ordinary list of thb Royal 'Navy, and : - they.'will be promoted from this list in !, the 6ame manner as British officers. They ■ will be liable for sarvice in any ship of < the Eoya'l Navy, but will servo a major ; proportion of their easier career in tho ; ships maintained by New Zealand. It ■ may not, of cbwreo, bo possible to continue this procedure in the higher ranks if the proportion of Now Zealand offi- '' cera promoted to such ranks -excecds the number of appointments open to officers of the ranks m question. The advancement of the petty officers and men will take place in the ships maintained by ! New Zealand, or in other ships in which f they are serving, as vacancies occur, i These potty officers and men will be , liable for service in all ships of the Tar Eastern Fleet as weflj aa in ships : maintained by New Zealand, service in : other vessels being counted as foreign Bervicb. i, ■ "It is suggested that tho vessels which ' ere maintained by the people of New iZealand should be termed the "New Zealand' Division of tho Ttoyal Navy.' It t is not recommended that any steps should .•[to talcm'in the direction.of making any f.arraiigementfi for building war vessolg in : {New. Zealand, or that any naval doek- : (yard shouEd for the present be contem- | i plated. Eepairs and refits should be : jcarriod out either in privato yards in ; 'New Zealand or in the Australian Gov- | eniment establishments,. It has. been : that repairs are not beyond 1 tthe capacity'of oommeroial yiards in Nrnv ;Zealand, although they would be oarrietl out under.same disadvantages. "It i 9 proposed that tho administration . Of tie division should be carried out : Ijy a 'board consisting of the Minister of ifefenoo and a. naval officer holding the : (rani of commodore. The provisions in tho Naval Defenco Act of 1913 for the ■ | division being placed under the control 'of the Ajdmiralty during war or when . j hostilities aro 1 imminent should con- ' tinno." , j NAVAL MEEDS. 1 j Lor*? Jellicoe surveys what New Zea- - / Jartd has done already in the matter of | ! naval defence, and 6ays that "very conJfiidarablondval efforts a.re required in tho ' future by the people of the British Emijire if wo are still to maintain that suipfemacy at eea. which is and has always been jheld to bo vital to the existence of - tho Empire, and which recent events have once again emphasised 60 "unmistakably." "The dependence of the Dominion for its security upon the power of the_ British Navy is very fully recognised in New Zealand, and it is the re- '• cognition of this fact that hag led the statesmen of tho Dominion in tho past . to press for the maintenance of an ade- ; quato naval force in the Pacific." lie continues. "It haa never been possible in any war for the British Navy'to obtain such complete command of the sea as to exclude an opponent from all access to r it, and modern conditions of naval warfare greatly increase the difficulty of preventing the escape of isolated raiders ; from a blockaded area. It therefore be- • come 3 increasingly necessary to keep sufficient naval force in various parts of the world to protect trade and to ensure tho ! early capturo or destruction of audi i enemy yessels as may escape tho main blockado with tho object of interrupting eur overseas communications by gunfire, torpedoes, mines, or aircraft." "War experience has shown that submarines can operato (successfully at imi mense distances from their bases, and this foot necessitates the provision of defence against this tyfo of attack in all . .parts of the Empire. The growing development of aircraft is yet another typo • of atfhck which must bo met locally to I feoma extent, oven when tho hostile nation is at somo - considerable distance. From the naval point of view tho danger of aerial attack in the case of New Zen- . land is but slight under present ccndi- ' tions. "In dealing with the problem? bofore 1 mo I considered it necessary to review the wholo naval question in its relation to Far Eastern waters from the Indian • Ocean to Canada., Tlie waters betwemt Africa io the west and America to tho enH must bo taken as a whole. All por. ' ttons of tho British Empire situated in these waters aro equally interested in their security as regards sea commumcations, and tho inevitablo conclusion is that the defenco of these communications should be entrusted to ono fleet composed of units from those parts of tho Empire which are directly interested. i • NEW ZEALAND'S SECURITY. "Tho trade of Now Zealand is dependjent on tho security of hor sea communi-

. PACIFIC FLEET PROPOSED

ANNUAL COST TO EXCEED A MILLION

cations. Her distance from neighbouring countries is a very great safeguard against invasion, but it cannot bo said that invasion irf impossible. The greatest immunity in this respect and tho only protection to sea-borne trade is given bv the naval forces of tho Em' pire. 1

"While the final decision of war must depend on the result in the main theatre. wherever that may be, tho presence of strong naval forces in Far Eastern waters is necessary to ensure the safety of the sea communications from "the outset, and to act as a deterrent to other forms of attack, should the conditions render them possible, as might bp the case. The inevitable numerical weakness of the military forces due to tho small population increases tho importance of naval defence. "It is not possible to consider the naval requirements of New Zealand' without taking account also of the naval requirements (if tho Pacific and Indian Oceans as iv whole. The question is one of cooperation between the naval forces of the Empire stationed in Far Eastern waters. Sea communications in Indian and Chinese waters, as well ns in the remainder of the Pacific, are matters of concern to the people of New Zealand and Australia: and, conversely, the safetv of sea communications in the South Pacific and in China lire of interest to the people of India. Similarly the safety of the bases at Colombo and Singapore is vital to New Zealand and Australia: and the safety of Sydney and other naval bases in the South raclflc, and of Singapore and Colombo, is tho greatest importance to India._ Even tho prosperity of South Africa is associated, though in a lesser degree, with this question, whilst Canada is greatly concerned in the matter.

" It will be fcen, therefore, that .the Far Eastern naval problem is ono which concerns the Empire as a whole. Only one conclusion can bo drawn—viz., that tlm Far Eastern Fleet should be provided bv those constituent parts of the Empire, including Great Britain, for which it,is of vital necessity, and that there should be the closest co-operation, with unity of direction in war, between tho various squadrons composing that fleet A SEAGOING FLEET. • "It is considered, then, that the naval interests of tho Umpire may leqinro within the next few years a seagoing Far Eastern Fleet, comprising vessels of every class. This fleet, comprising ships of the Royal Navy, the; East Indies Squadron, the Eoyal Australian Navy, and any vessels stationed in_ Far I'.iastern waters furnished or maintained by New Zealand, Canada, and the Malay Straits, should, together with the vessels TPfjuired for the direct protection of trado by convoy, be organised to acf) under one single direction in war, and for the general safety of British Far Eastern possessions and sea communications, Tlw lleet to additional to all ships required for- tho defenco of harbour*. "Ii is suggested that, whilst the general defence afforded by seagoing fleets and convoy vessels is. shared by the .different parts of the Empire, each Dominion and India, ns well as the Mother Country, should bear tho cost of tho vessels specially allocated to i'p own harboui no- : fences. War experience lias trade is best protected against attack by means of a ennvov system. This experience only confirms that gained in earlier wars; but it was' impossible to put a convoy system into force in tho late war until the middle cf fihc year 1917. becauso there was an insufficient number of cruisers for tho ocean work and of destroyers for the anti-flubmarinn Bcreening work required in tho vicinity of porta. It is assumed that the people of tho Empire will not bo satisfied with such a condition of affairs in the future." ALLOTTING THE COST. Lord Jellicoe calculates tlm proper percentage contribution of tho States of the Empire to naval expenditure on a basis of population, and of trade. The mean of the two percentages is as iollows:— United Kingdom 74.12 Commonwealth of Australia 7.71 ' i Dominion of New Zealand... ' . Dominion of Canada 12.30 Union of South Africa 3X ■ 100.00 "In considering means for the provision of the ships to form the Far Eastern Fleet, and for tho M<*3=ary convoy work,", says Lord Jellicoe, "it agpears to be logical to put forward the following suggestions:— . (a) That Canada's share might be that necessary to provide and main- . tain a small force of ligitf cruisers on her western seaboard for the protection of her trade in those waters, as well as a naval force on her eastern seaboard. (b) That South Africa's share might bo that necessary to provide ana maintain .i squadron stationed at the Capo of Good Hope, and having the primary duty of keeping open tho trade route round tho Cape and protecting the trade on the west const of Africa leaving the trade to tho eastward'to tho protection of the Far Eastern Fleet. (c) That India might provido a certain fixed sum annually in relief of the estimates—suctl a siim, fur instance, as would provide for the dafence'of her harbours, and would pay for the upkeep of the East indies Squadron of five light cruisevs, six submarines, anfl one aircraft-carrier, without, perhaps, paying the first cost of the ships, or for their replacement, for the reasons given in para- . eraph 17. The sum required would ' I &> approximately £2.200,000 annually "Since New 'Zealand and Australia would bear no part of the_ expenses of naval defence in tho Atlantic, it is suggested'that their share in the Pacific should bo increased. The suggested proDortion of tho cost, of provision and maintenance of the Far Eastern Fleet is then, approximatelyGreat Britain 75 per cent. Australia » New Zealand •> - . "If these suggestions are accepted, it remains to formulate proposals for the best method of using tho total sum to be spent annually on the Far Eastern Fleet by the United Kingdom, New Zealand, and Australia. The methcid surgested is to ascertain the annual cost of maintenance of the lar Lastern I'leet when it reaches the strength mentioned in paragraph 11, and the annual sum that should be set apart for tho depreciation duo to the necessity for leplacement of the ships after a certain l'e«otl, and then, having obtained th*e r«. to divide the cost in the proportion given in' the table above.

NEW ZEALAND'S SHARE,

Lord Jellicoe calculates that the approximate annual cost of the Far Eastern fleet as being <£19,701,700. He does not give the composition of- the fleet in detail, but he seta out the Now Zealanc. division as follows: Annual cost of maintenance and depreciaSliips, etc. t'O' l < t,ncll ) '''"J" 1 - JXSS"-== "88 SS 1 submarine parent ' ( sm nll) 58,1)00 58,500 Naval Air School 33,000 M.OM Total - M New Zealand's share of tho total expenditure, according to this estimate, would be 4.8 per cent. It must be recognised that the political and strategic situation may at anytime necessitate alteration in the composition of tho .Far Eastern Fleet. Any, considerable alteration might completely

alter the bnsi on which the contributions of tho 11.1 ions Dominions and of the United Kingdom have been assessed. There is, however, no tray out of this difficulty other than that Of reviewing the question at intervals of, say, five years. Unless somo basis is assumed it 8 old destroyers or "P" boats 1 18 mine-sweepers of the trawler type ... ( 4 boom defence vessels It is recommended that the old destroyers or "P" boats should be acquired by -ISXS. It seems probable that Great Britain could supply"these vessels from'those available at home. The provision of mine-sweepers is largely dependent on tho institution of a trnwler fishery service, which, it is strongly urged, should be taken up at an early moment. A RISING CHARGE. » Tho report assumes that the ships of the New Zealand division, with reserves and ammunition and stores,- would be riven without charge by the Imperial Government. The ships would require to be replaced later and provision is made, therefore, for depreciation. The draft naval estimates for New Zealand, on the basis of the report, are as follow .-—

1020-21 ...» 357. 00 1921-H2 500,050 • 1022-23 CM,OOO 1923-24 070,300 }i) 24-25 1,072,800 1 <125-26 1.1GG.100 The growth in the expenditure is _ duo primarily to the growth of the division, which would not reach its full strength until 102(1. The division would (start with ono light cruiser in 1921. One submarine and a. submarine parent ship would be added . in 1921-22, two moro submarines in 1022-23, another light cruiser in 1023-24, three more submarines in 192-1-25, and a third light cruiser in 1925-2(5. A gift of eight destroyers in 1021-23 for 'harbour defence is aWumed. The. Hmires do not include payments in connection with the battlecruiser' New Zealand, which will be completed in 1928-29. , question of control. "In war it is necessary that tho whole fleet of tho Umpire should be placed under the single control of tllie British Admiralty," says tho report. "It is highly desirablo that tho samo procedure should be followed when dinger of war exists. It is also necessary that the units comprising tho Far Eastern licet Should pass under one command if they are to be employed in Far Eastern waters. ... ~ , ~ "I am therefore of opinion that the general direction of the operations of the Far Eastern Fleet would be best carried

ADMINISTRATION

The report deals in detail with the administration of the proposed New Zealand Navy. Control wonfil rest with the Slinister and tho Chief of the Na\al Staff. The division would bo commanded by a naval officer with tho rank of commodore. , T Tift division would bo manned bv Now Zoalandow, any balanco of complement required being provided by tho Mother Country. Tho officers of the Now Zealand Division should be considered available for service in II.M. ships in all parts of the world. The men should bo considered available for sen-ice m any ship that may in the future bo maintained by the New Zealand Government, or in ships of the Boyal Navy employed in the Far Eastern Fleet, which includes the China and East Indies Squadron. A Now Zealand Division of the Itoyal Naval Reserve should be formed. _ Training should follow the practice of tho British Navy in all details m order to secure uniformity and efficiency. discipline. Lord Jellicoe stresses the importance of discipline. Without sacrifice no figlitinff force can be efficient. There are certain directions in which improvement is necessary in tho daily lives of .the peisonnel of tho Navy. Matters of this natui-o are constantly under consideration

is impossible for the Dominion to find f any system on which to work. HARBOUR DEFENCE. , "Tjio provision of the necessary vessels ' for harbour defence purposes in New Zca- ' land will now bo considered. The re- •' quirements are:— Full lieservo Special Commission. Commission. Deserve. ■1 - i 2 • (Remainder assumed to (For instruc- bo fishing-trawlers.) tional purposes.) ■ out by n flag officer of high rank resid- . ing on shore at Singapore, and assisted : by a strong staff. The (?on>.nmnder-in-i chief afloat and the flag officers commanding the units of the Far Eastern . i'ieet should all come under him in war, • although, except when placed tinder his ■ command for file purpose of fleet exer- ■ cises. the Dominion navies would not comc under him in peace. The admiral in chief command at Singapore s'.hould , visit such places in the Pacific and Indian Oceans as are of importance for naval purposes in war, in order that he may have a very intimate knowledge of tho general situation. It would also bo most desirable that lie should visit the Dominions so that he may become familiar with tho problems which confront them. lie should be assisted in his duties by information furnished to him by the Naval Boards of New Zealand and Australia and the Naval authorities in other Dominions; and ho should, of course, be in constant touch with the Admiralty and the officers commanding the British squadrons in China and. t'.he East Indies." THE CAPITAL SHIP. Surveying the naval situation generally, Lord Jellieoe stresses the importanco of the capital ship, which :s "tho strongest engine of war which exists for operating on tho spas." He sees no apparent prospect of the submarine or tho aircraft defeating the capital ship in the next soventeen years—the lifts of a. modern battleship. On the completion of H.M.'S. Hood this yw Great Britain i will, have no capital ships-building. It is-'understood that America, cai the other hand, is proposing to proceed with the building of the sixteen capital ships authorised in August, 1916. Since Ifllfi' the Hood will bo the only British capital ship built. Since that year Japan has kid down the four battleships of tho Kagti class. As the effective life of a capital ship is limited, unless some special steps are taken by Great Britain, India, and tho Dominions, the situation as regards 6iich ships will bo unsatisfactory in a fow years' time, when the older Dreadnoughts are obsolete, or nearly 60. Tho report contains, the following comparative table of the capital ships of the Great Powers—built and building:—

Super- SuiievCountry. Dreadnoughts. over under 30,000 30,000 •• to "i S ' 8 ' 10 plus 4* second-class battle-eruiscrs, Great Britain 1 "? 8 ■ United States of America 23 n 5 plus 3 powerful cruisers of less Japan strength than the i British Bee-ond-clnEs battle-cruisers. Franco ® '5 IVab ' •Inciudes'the battle-cnusers New Zealand and Australia.

by the Admiralty; and possible reforms, when carried out, will reniovo some of tho just causes of complaint of the lower ranks of tho Navy at the present timo; but it is inevitable that life at sea can never compa.ro in comfort with life on shore; and" if tho manhood of a nation" is not prepared to put nip with, the inherent discomforts of sea life, and to submit to discipline, that, nation cannot hop© to become a sea power. GIFT SHIPS. A postscript to Lord Jellicoe's report is as follows:—"Since . tho report was completed I received a telegram from the Lords Commissioners of the Admiralty informing ino that, as steps aro being taken to reduce the Hoot to a post-war standard, certain vessels are now available for tho Dominions, if reriuircd.. I havo inquired of Their Lordships as to the types of each class of vessel that can be supplied, tho terms on which supply will be made,, and the dates by which it would bo necessary for the Dominions to take possession. On roceipt of the reply I will submit a further report to Your Excellency. It may bo that the desirability* of acqufring vessels' now and the consequent necessity for incurring early expense for maintenanco will render a modification of tho proposals necessary." The proposals referred to are tho naval estimates for New Zealand.