s on this head.
When the Germans did move in this direction in 1918 it was too late; it
was by that time realized in the United States that the enemy could not
maintain submarines in sufficient numbers in their waters to exercise
any decisive effect, although the shipping losses might be considerable
for a time, and consequently no large change of policy was made.

As is well known, Admiral Sims, with the consent of the United States
Navy Department, placed all vessels which were dispatched to British
waters under the British flag officers in whose Command they were
working. This step, which at once produced unity of command, is typical
of the manner in which the two navies, under the guidance of their
senior officers, worked together throughout the war. The destroyers
operating from Queenstown came under Admiral Sir Lewis Bayly; Captain
Pringle, the senior United States officer on the spot, whose services
were ever of the utmost value, was appointed as Chief of the Staff to
Sir Lewis Bayly, whilst on the occasion of Sir Lewis Bayly, at my urgent
suggestion, consenting to take a few days' leave in the summer of 1917,
Admiral Sims, at our request, took his place at Queenstown, hoisting his
flag in command of the British and United States naval forces. The
relations between the officers and men of the two navies in this Command
were of the happiest possible nature, and form one of the pleasantest
episodes of the co-operation between the two nations. The United States
officers and men very quickly realized the strong personality of the
Commander-in-Chief at Queenstown, and became imbued with the same
feelings of great respect and admiration for him as were held by British
officers and men. Also he made the officers feel that Admiralty House,
Queenstown, was their home when in port, and saw that everything
possible was done for the comfort of the men. The very high standard of
duty set by Sir Lewis, and very fully sustained by him, was cheerfully
and willingly followed by the United States force, the personnel of
which earned his warmest admiration. I think it will be agreed in years
to come that the comradeship between the two navies, first initiated in
the Queenstown Command, went very far towards cementing the bonds of
union between the two great English-speaking nations.

This was the first step in co-operation. The next was taken when the
United States Navy Department, as the result of a request made by us to
Admiral