use as transports or supply ships, required
a considerable force of destroyers and other small craft. These
commitments greatly reduced the means at our disposal for dealing with
the hostile submarines that were attempting to prevent the import of
food and raw materials into the country.

Readers of books, and particularly books dealing with war, show a
natural avidity for what may be described as the human side of a contest
as well as for the dramatic events. But, whether it be prosecuted by sea
or by land, war is largely a matter of efficient and adequate
organization. It is a common saying that we muddle through our wars, but
we could not afford to muddle in face of the threat which the enemy's
unrestricted submarine campaign represented. It is impossible,
therefore, to approach the history of the successful efforts made by sea
to overcome this menace without describing in some detail the work of
organization which was carried out at the Admiralty in order to enable
the Fleet to fulfil its new mission. In effect those responsible for the
naval policy of the country conducted two wars simultaneously, the one
on the surface, and the other under the surface. The strategy, tactics
and weapons which were appropriate to the former, were to a large extent
useless in the contest against mines and submarines which the enemy
employed with the utmost persistency and no little ingenuity. Even in
the Russo-Japanese war, where the mine was little used, it exerted a
marked influence on the course of the war; the Germans based their hopes
of victory in the early days of the struggle entirely on a war of
attrition, waged against men-of-war, as well as merchant ships. The
submarine, which was thrown into the struggle in increasing numbers,
represented an entirely new development, for the submarine is a vessel
which can travel unseen beneath the water and, while still unseen,
except for a possible momentary glimpse of a few inches of periscope,
can launch a torpedo at long or short range and with deadly accuracy. In
these circumstances it became imperative to organize the Admiralty
administration to meet new needs, and to press into the service of the
central administration a large number of officers charged with the sole
duty of studying the new forms of warfare which the enemy had adopted
and of evolving with scientific assistance novel methods of defeating
his tactics.

Whilst the enemy's campaign against merchant shipping always g