THE ROYAL NAVY -21st CENTURY I

This article considers how the Royal Navy (RN) of the United Kingdom (UK) has evolved since the Cold War ended, and how it is likely to change in the future. In 1991, the RN was the world’s third most powerful navy, after the US Navy and the newly-formed Russian Navy. The service was also still benefiting from the prestige of its success in the 1982 Falklands War. Whilst it was expected that the ‘peace dividend’ being demanded by the public and politicians would mean a reduction in the RN’s size, no one anticipated that cuts would occur on a near-annual basis for the next twenty-five years. UK defence expenditure decreased from 4.1 per cent of GDP in 1990/91 to c. 2.0 per cent in 2015/16. The RN suffered disproportionately; excluding nuclear deterrent submarines it lost around two-thirds of its front-line strength during the period. The navies of China, France and India have all arguably now overtaken the RN in size and capabilities.

The current RN is undoubtedly at a low point in numbers, relative strength, and – perhaps – even in its institutional morale and prestige. The US Navy has become openly concerned about the declining capabilities of a navy that has been long been its key partner in arms.

STRATEGY, POLITICS & MONEY

The ‘downsizing’ of the RN between 1990 to 2015 is landmarked by the publication of a series of government ‘White Papers’, Ministry of Defence (MOD) policy documents, and various strategies; all intended to guide the changing mission, goals and objectives of the RN. Theoretically the required maritime capabilities and force levels could then be identified and provided. However, this never occurred as the necessary funding was not available. Many described in detail all of the maritime security challenges facing the UK, but then announced cuts to the RN. The most influential of these documents, in chronological order, were:

1990: Options for Change: During most of the Cold War the strategic context was clear – there was only one significant potential threat, the Soviet Union and its Warsaw Pact allies. As a result, the UK’s defence priorities were almost self-selecting in the 1970s and 1980s. For the RN, its focus was on providing Britain’s nuclear deterrent, contributing to NATO’s maritime forces in the Eastern Atlantic and the Channel and protecting home waters and ports. Anything that did not support these missions was always questioned, a notable example being the planned decommissioning of the ice patrol ship Endurance in 1982, which encouraged Argentina to invade the Falkland Islands. The only major out-of-area presence was the Armilla Patrol in the Arabian Gulf; this consisted of several frigates and destroyers to help protect UK and Allied merchant ships during the 1980’s Iraq-Iran War.

In 1989 the Berlin Wall came down and the Cold War was ending. The need to respond to the changing strategic environment and exploit cost-saving opportunities prompted the Options for Change review, published in July 1990. An unambitious document, its stated aim was for ‘smaller but better’ Armed Forces. For the RN this meant:

A reduction in personnel (trained and untrained) from 63,000 to 60,000.

Cutting the number of frigates and destroyers in service from ‘about fifty’ (actually forty-eight) to forty.

Reducing the number of nuclear attack submarines (SSN) to twelve, with five old boats decommissioning early.

Limiting the number of conventional submarines (SSK) to the four Upholder class already being built; the remaining Oberon class boats would decommission without replacement.

The aircraft carrier (three Invincible class light carriers with Sea Harrier fighter/attack aircraft) and amphibious forces (primarily two Fearless class assault ships) were untouched.

The RN performed well in the First Gulf War of 1990–1 but had a noticeable lack of influence in the command and conduct of operations, perhaps a sign of things to come. In 1991 a further reduction of 5,000 naval personnel was announced. Two years later, further cuts saw:

The number of frigates and destroyers reduced to thirty-five.

The disposal of twelve ‘River’ class minesweepers operated by the Royal Naval Reserve.

The withdrawal from service of the four new Upholder class SSKs, ultimately sold to Canada. This meant that the RN would now only operate nuclear submarines.

1994: Frontline First: The Defence Costs Study: The Defence Costs Study was a further assessment of spending, and was intended to maintain the fighting strength of the armed forces whilst achieving significant savings in support costs. In practice the cost savings achieved in the ‘tail’ were less than hoped, whilst the reduction in logistical support seriously impacted the effectiveness of the RN. The decline in personnel numbers continued, with the expectation that the naval services would be down to 44,000 by 1999.

Neither Options for Change or Frontline First redefined the role of the RN; they were essentially focused on reducing the defence budget. The main strategic theme of UK defence policy was still Eurocentric, and the MOD attempted to maintain balanced forces by just cutting everything a bit.

Lacking direction from government, senior officers in the RN had, by default, substantial freedom to develop new strategic concepts. Documents such as the Fundamentals of British Maritime Doctrine (published in 1995) and the Maritime Contribution to Joint Operations (1998) made a considerable impact beyond the service. The concept of expeditionary warfare outside the NATO area began to gain traction. Essential enablers for this would be new amphibious ships (already accepted by the government) and new aircraft carriers (not yet accepted, and potentially controversial given their cost). The RN seized every opportunity to demonstrate the operational flexibility and effectiveness of even small aircraft carriers. In the years 1993–5 the RN maintained a carrier in the Adriatic, helping to enforce the no-fly zone over Bosnia. The RN also regularly deployed a carrier task group to the Arabian Gulf, in support of sanctions against Iraq.

1998: The Strategic Defence Review (SDR): A new Labour government committed to a review of defence policy was elected in May 1997. This was to be a foreign-policy rather than cost-cutting exercise, with the declared goal that British forces would act as a ‘force for good’ in the world.

When the SDR was published in July 1998, it was clear that the RN’s new ideas had often prevailed. The review accepted that in a world of uncertain multi-centric threats, there was a need to create deployable expeditionary forces capable of operations at considerable distances from the UK. One of the SDR’s main decisions was to acquire two new large aircraft carriers to function as mobile airbases operating strike aircraft; another was greatly to enhance strategic sea and airlift capabilities. It also established a Joint Rapid Reaction Force (JRRF) which would provide a pool of readily available, rapidly deployable, high capability forces from all three Services. In other initiatives, the SDR created a Joint Helicopter Command, which incorporated British Army, Royal Air Force (RAF) and RN helicopter squadrons; and a combined RAF/RN Harrier and Sea Harrier force (Joint Force 2000, later renamed Joint Force Harrier).

In line with the emphasis on rapid deployment, the SDR required the RN to change its focus from open-ocean warfare in the North Atlantic to force projection and near-coast (littoral) operations worldwide. Shallow water operations in UK waters were also given less importance. There was, however, little immediate change to the composition of the RN, which retained responsibility for maintaining the UK’s independent nuclear deterrent. Small cuts in force levels included:

A reduction in destroyers and frigates from thirty-five to thirty-two.

A decline in SSN numbers from twelve to ten (but all equipped with Tomahawk cruise missiles).

A modest fall in naval personnel.

As well as the new aircraft carriers, SDR committed the government to building new submarines, destroyers, frigates, amphibious and auxiliary ships, as well as buying a ‘Future Carrier Borne Aircraft’ (later renamed the Joint Combat Aircraft, or JCA).

The validity of SDR’s thinking was vindicated when, in 2000, the UK decisively intervened in the civil war in Sierra Leone to support its government. The RN impressed by quickly assembling a substantial task group off-shore. This included the light carrier Illustrious and the ships of the Amphibious Ready Group, centred on the helicopter carrier Ocean.

2002: New Chapter to the Strategic Defence Review: On 11 September 2001, the al-Qaeda terrorist group launched a devastating series of terrorist attacks on the United States of America. Although not immediately clear, this would also have a devastating effect on the RN.

In late 2001, the UK conducted a major exercise in Oman, ‘Saif Sareea II’, to demonstrate the JRRF concept. The RN committed no less than twenty-one naval vessels, again including Illustrious and Ocean. Whilst a success, the exercise was overshadowed by the start of American and, soon, British military operations against al-Qaeda and the Taliban in Afghanistan.

In February 2002, the MOD unexpectedly announced that its Sea Harriers would be retired from service by April 2006. Joint Force Harrier (JFH) would operate only RAF-owned Harrier aircraft thereafter. The reason given was that the Sea Harrier required expensive upgrades to remain effective that could not be justified given the aircraft would be replaced from 2012 by the JCA (a date that has since slipped to the end of 2018). It was also decided to evaluate whether the SDR was still adequate ‘to cope with the threats faced’.

The resulting Strategic Defence Review: A New Chapter, published in July 2002, concluded that the SDR’s decisions had been broadly correct, but that changes were needed in the allocation of investment, ‘for example to intelligence gathering, network-centric capability … improved mobility and fire power for more rapidly deployable lighter forces, temporary deployed accommodation for troops, and night operations’. Worryingly for the RN, it was not mentioned once in the document. At the end of 2002, the frigate Sheffield was paid off without replacement.

2003: Delivering Security in a Changing World: In May 2003, the Royal Navy and Royal Marines contributed significantly to the second Gulf War, the invasion of Iraq. A large force of ships was led by the light carrier Ark Royal (operating as a helicopter carrier) and Ocean. A particular success was the seizure of the Al Faw Peninsula by 3 Commando Brigade.

At the end of the year, the MOD published a White Paper which again revisited aspects of the SDR. It stated, ‘The UK will remain actively engaged in potential areas of instability in and around Europe, the Near East, North Africa and the Gulf. But we must extend our ability to project force further afield than the SDR envisaged. In particular, the potential for instability and crises occurring across sub-Saharan Africa and South Asia, and the wider threat from international terrorism, will require us both to engage proactively in conflict prevention and be ready to contribute to short-notice peace support and counter-terrorist operations.’

Unfortunately this policy could not be aligned with the immediate reality of costly military operations in Afghanistan and Iraq, and the need for new equipment to support these. As no additional funding was available, cuts had to be made elsewhere. Accordingly, the paper also said: ‘Some of our older [naval] vessels contribute less well to the pattern of operations that we envisage, and reductions in their numbers will be necessary.’ In practice, this meant:

The withdrawal of three Type 42 destroyers and three nearly-new Type 23 frigates; the latter sold to Chile.

The decommissioning of six mine-countermeasures vessels.

The loss of further SSNs, ultimately taking the force down to seven boats.

Reductions in planned naval construction, particularly the cancellation of four of twelve planned Type 45 destroyers (another two were cancelled in 2008).

A 1,500 reduction in the number of trained personnel to 36,000.

The only compensation was that the paper confirmed, ‘The introduction of the two new aircraft carriers [the Queen Elizabeth class, or QEC] … early in the next decade’. The White Paper also set out the future roles of each of the services; in the maritime sphere it placed an emphasis on land-attack missiles and amphibious ships to project power ashore.

By mid-2005, the RN was down to twenty-five frigates and destroyers, against a backdrop of increased rather than decreased operational demands. The carrier Invincible was withdrawn from operational service in May 2005, five years earlier than previously planned.

2006: The Future Navy Vision: By 2006, the RN faced the reality that its expeditionary strategy was in tatters, its internal plans unrealisable, and that it was in danger of it becoming seen as militarily irrelevant. One of the two remaining carriers was still kept operational in the strike role, but its flight deck was usually empty of fixed-wing aircraft as JFH was stretched maintaining a squadron in Afghanistan. The newly-built amphibious ships were being used for other tasks as the Royal Marines had been committed to Afghanistan. Whilst up to 5,000 naval personnel were sometimes in Afghanistan and Iraq with 3 Commando Brigade, JFH, Joint Helicopter Command and other formations, this was not publicly recognised.

In 2006 the RN tried to make a stand by publishing its own vision for the future. It was drafted under the direction of Admiral Sir Jonathon Band, the First Sea Lord, who wrote, ‘Britain is preeminently a maritime nation whose people will continue to rely on the unhindered use of the sea for their security, prosperity and well-being. The world faces an uncertain, rapidly changing and competitive global environment in the early decades of the 21st century. My vision envisages a Royal Navy that … will contribute vitally and decisively to the security of the UK, to the preservation of international order at sea and to the promotion of our national values and interests in the wider world.’ The vision required a navy capable of Maritime Force Projection (the employment of military power at sea and against the land) and Maritime Security (the defence of the UK home-land and sovereign territories), enabled by Maritime Manoeuvre (seaborne access).

The document further stated, ‘A broadly balanced Fleet represents the most effective means of delivering this capability, both at home and abroad, as well as providing a reasonable assurance against the unexpected. This means that we will project and sustain Amphibious and Carrier Strike Task Groups simultaneously … [Also] our Fleet should have sufficient flexibility and size to deploy single ships and submarines on sustained, independent tasks on a routine basis, with the potential and capacity to switch quickly to combat and group operations.’

The Future Navy Vision document has stood the passage of time well but, unfortunately, has also been largely ignored given subsequent developments.

2010: Strategic Defence and Security Review – SDSR 2010: SDSR 2010, released on 19 October 2015, was a rushed review by a new Conservative/Liberal Democrat coalition government, conducted in the context of economic depression and a projected £38bn ‘black hole’ in the equipment budget. In contrast to the new National Security Strategy (NSS) published a day previously, SDSR 2010’s focus was on immediate financial savings; a parliamentary committee could later find no evidence of strategic thinking in the document.

For the RN, the outcome was little short of a disaster. Decisions affecting it included:

Bringing only one of the two new Queen Elizabeth class carriers into service; the other would be placed in reserve or sold (the review seriously considered cancelling the ships; however, this would have cost more than completing them).

Joint Force Harrier would disband and the RN’s flagship and only operational fixed-wing carrier, Ark Royal, decommissioned.

Four Type 22 frigates would decommission, leaving an escort force of just six destroyers and thirteen frigates.

Three RFA ships would be withdrawn from service.

The RAF’s Nimrod MR4A replacement maritime patrol aircraft (MPA) project was axed.

Trained naval personnel would reduce from 35,000 to 30,000 by 2015.

SDSR stated that by 2020, the Royal Navy would be structured to provide:

Maritime defence of the UK and Overseas Territories, including the South Atlantic.

Nuclear Continuous at Sea Deterrence.

A credible and capable presence within priority regions of the world.

A very high readiness response force and a contribution to enduring land operations [by the Royal Marines].

The review was implemented as hastily as it had been conducted. Ark Royal arrived in Portsmouth on 3 December flying a decommissioning pennant, before being sold for scrap. Joint Force Harrier ceased to be operational on 15 December 2010; its Harriers were sold to the US Marine Corps for spare parts. Redundancy notices were soon being issued to naval personnel.

Critics of the review could take little satisfaction from the government’s discomfort when, in March 2011, it intervened in Libya’s civil war as part of an international coalition, and found that many of the required military assets had already been lost, or were about to be lost. For example, French and Italian aircraft carriers conducted intensive air attacks from positions just off the Libyan coast. Lacking an aircraft carrier, the main British air contribution was a small number of sorties by RAF strike aircraft, flying at considerable cost from bases in the UK and Italy. The decommissioning of the Type 22 frigate Cumberland had to be delayed by two months, as the ship was busy rescuing British and other foreign nationals from Libyan ports.

2014: National Strategy for Maritime Security: Presented by the Secretary of State for Defence in May 2014, this document defined ‘maritime security’ to be ‘the advancement and protection of the UK’s national interests, at home and abroad, through the active management of risks and opportunities in and from the maritime domain, in order to strengthen and extend the UK’s prosperity, security and resilience and to help shape a stable world.’ Building on the NSS, it established five maritime security objectives:

Promoting a secure international maritime domain and upholding international maritime norms.

Developing the maritime governance capacity and capabilities of states in areas of strategic maritime importance.

Protecting the UK, our citizens and our economy by supporting the safety and security of ports and offshore installations and Red Ensign Group-flagged passenger and cargo ships.

Assuring the security of vital maritime trade and energy transportation routes within the UK Marine Area, regionally and internationally.

Protecting the resources and population of the UK and the Overseas Territories from illegal and dangerous activity, including serious organised crime and terrorism.

The strategy only discussed at a very general level how the Royal Navy and other agencies might meet these objectives, and did not consider required funding and force levels. However, it did commit the RN to deploying ships in order to maintain vital trade routes and ensure freedom of navigation, and also to contributing to three military alliances which help deliver maritime security, namely NATO, the EU and Combined Maritime Forces (CMF).

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THE ROYAL NAVY -21st CENTURY II

2015: National Security Strategy and Strategic Defence and Security Review – SDSR 2015: On 23 November 2015, the recently-elected Conservative government published the results of another defence review. This was undertaken in a very different context to 2010. British combat operations had ended in Iraq (2009) and Afghanistan (2014) but new threats had emerged. Russia was re-asserting herself militarily; China had become a substantial naval power and was claiming sovereignty of large parts of the South China Sea; whilst the Islamic State of Iraq and the Levant (ISIL) was considered a serious threat to UK security. Also, after considerable American pressure, it had been announced on 10 July 2015 that Britain would commit to continuing to spend 2 per cent of its GDP on defence every year until 2020.

SDSR 2015 described how the UK’s armed forces might look in 2025 [above] — for the proposed Royal Navy structure – and sought to plug the worst of the capability gaps created by SDSR 2010. For the RN, there was mixed news. Positively, the review confirmed a decision announced in 2014 that both QEC carriers would, after all, enter service to ensure that one would be continuously available as the core of a maritime task group. More negatively, the previous plan to replace all thirteen remaining Type 23 frigates with the same number of new Type 26 Global Combat Ships was reduced to eight; the cost of the new ships was simply too high. Instead, design studies would begin for a less sophisticated but cheaper general-purpose light frigate, a concept the RN has long resisted. The carrot was that more than five may eventually be built, increasing the size of the escort force.

Other major announcements impacting the RN included:

Confirmation that four ‘Successor’ strategic missile submarines would be delivered, although later than previously planned, as part of renewal of the Trident nuclear deterrent.

Planned orders for two additional ‘River’ class patrol vessels, as well as three new logistic support ships for the RFA.

Investigation of the potential for the Type 45 class to operate in a ballistic missile defence role.

Acceleration of purchases of the F-35B Lightning II (selected for the JCA requirement) to ensure twenty-four will be available for carrier operations by 2023.

Planned acquisition of nine P-8 Poseidon MPAs to replace the Nimrods cancelled in 2010.

A slight increase in authorised (trained) personnel numbers to around 30,500 regulars.

PERSONNEL

  1. 32,500 regulars, including c.7,000 Royal Marines. There are also c. 5,500 reserves, of which around 1,800 are in the RFA.

NAVAL AVIATION

Main naval air stations (NAS) bases are at Yeovilton & Culdrose. Following the retirement of the Sea Harrier STOVL jets in 2006, front-line fixed wing aircraft operations are carried out jointly with the RAF, with the new F-35B squadrons to be based at RAF Marham. Up to 138 F-35s will ultimately be purchased, with 24 expected to be available for front-line use by 2023. Current main helicopter types are:

AW-101 ‘Merlin’ HM2 sea control helicopters: 30 in service

AW-101 ‘Merlin’: HC4 transport helicopters: 25 being converted to new shipborne standard from RAF HC3 configuration, replacing legacy Sea King types.

AW-159 ‘Wildcat’ HMA2 sea control helicopters: 28 in service or on order. Replacing legacy Lynx HMA8. Additional Wildcat AH1 reconnaissance helicopters drawn from a shared pool.

Additional British Army and RAF Apache attack and Chinook transport helicopters can be embarked as necessary.  Insitu Scan Eagle UAVs are also used. The RAF is to order 9 P-8 maritime patrol aircraft for entry into service from c. 2020 onwards.

The next defence review is expected in 2020.

THE ROYAL NAVY IN 2015

Force Structure: The current Royal Navy force structure is set out in Table above. The submarine flotilla is focused on four Vanguard class SSBN strategic submarines and seven SSN nuclear attack boats, whilst the force of major surface combatants comprises six modern destroyers and thirteen older frigates. Other key components include an amphibious force built around a helicopter carrier, two LPD amphibious transport docks and three auxiliary LSD dock landing ships (operated by the RFA) and an amphibious infantry brigade that includes three Commandos (battalions) of Royal Marines. The Future Force 2025 described by SDSR 2015 will be very similar with the notable exception of entry into service of the two new carriers Queen Elizabeth and Prince of Wales from 2017 onwards. This will result in the decommissioning (probably in 2018) of the current helicopter carrier Ocean, whose crew is needed to help man them. The last Invincible class carrier, Illustrious, has already been withdrawn from service, in 2014.

After the closure of numerous establishments in the 1990s and early part of the current millennium, most forces are based at or near the three remaining naval bases at the Clyde, Devonport and Portsmouth. In addition to its presence at its main air stations at Culdrose (HMS Seahawk) and Yeovilton (HMS Heron), the Fleet Air Arm has a growing presence at RAF Marham, from where it will jointly operate the F-35B from 2018.

Organisation: The command and the administrative structures of the Royal Navy had been greatly simplified since the early 1990s. For example, superfluous formations such as frigate and destroyer squadrons have gone, and many senior positions abolished or downgraded. Nevertheless, the RN still receives considerable negative publicity for having more admirals than major warships.

The First Sea Lord & Chief of Naval Staff (1SL) is the professional head of the Royal Navy. Until 1995 he was a 5* Admiral of the Fleet, thereafter a 4* Admiral. 1SL effectively reports to the Chief of the Defence Staff (CDS) – the professional head of the British Armed Forces and the most senior uniformed military adviser to the Secretary of State for Defence and the Prime Minister.

The 1SL is Chairman of the Naval Board, the body having practical responsibility for running the RN. His key lieutenants are the Second Sea Lord (2SL), a 3* Vice Admiral who is responsible for personnel and infrastructure, and the Fleet Commander & Deputy Chief of Naval Staff, a 3* Vice Admiral based at Navy Command Headquarters at Portsmouth.

Accountable to the Fleet Commander is the most senior sea-going post: Commander United Kingdom Maritime Forces (COMUKMARFOR). A 2* Rear Admiral; he will only go to sea for major exercises or combat operations. The two key RN operational formations in the first decade of the millennium were the UK Carrier Strike Group (UKCSG) and the UK Amphibious Task Group (UKATG), each commanded by a 1* Commodore. The UKCSG was disbanded following the elimination of the RN’s strike carrier capability in 2010, with UKATG being renamed the Response Force Task Group (RFTG). However, with the pending entry into service of Queen Elizabeth, the UKCSG organisation was re-established in 2015 and the commander of RFTG reverted to being titled Commander Amphibious Task Group.

Operations: By the start of the twenty-first century, the RN seemed to have successfully reorganised itself from its Cold War tasks. The previous focus on antisubmarine warfare in the North Atlantic had been swept away in favour of expeditionary forces capable of global deployment. Indeed, the RN’s frigates and destroyers were scattered around the world in a manner not seen since the 1960s.

In the immediate aftermath of SDSR 2010, the RN continued to operate at a high tempo. However, this was not sustainable, placing excessive demands on equipment and personnel. The RN has thus retrenched considerably, cutting some commitments altogether (e.g. participation in many standing NATO maritime groups), and making others part-time (e.g. its presence in the West Indies).

Since 1980, the RN has maintained a near continuous presence in the Arabian Gulf and Indian Ocean, under titles such as Armilla Patrol, Southern Watch and Operation ‘Kipion’. These operations were always considered temporary, so only ad-hoc support arrangements were made. The need for a permanent base in the region was finally recognised in December 2014 when the decision was announced to build the Mina Salman Support Facility in Bahrain, to be named HMS Juffair when completed in 2016. A 1* Commodore is already headquartered in Bahrain to command maritime forces in the region.

The new base will be the home port for four mine-countermeasures vessels, plus a ‘Bay’ class support ship and a repair ship. The base will also be frequently used by other RN assets in the region, typically including a Type 45 destroyer, a Type 23 frigate, a nuclear attack submarine and an RFA replenishment ship. The two escorts regularly participate in maritime security operations such as the multi-national Combined Task Force 150, the NATO-led Operation ‘Ocean Shield’, and the EU-led Operation ‘Atalanta’ – all essentially maritime security and counter-piracy operations in the Gulf of Aden and off the Horn of Africa.

Other standing RN commitments include:

One Vanguard class SSBN continuously on patrol, providing the UK’s nuclear deterrent.

One frigate or destroyer at high availability in UK waters (the fleet ready escort).

A frigate or destroyer, with an accompanying RFA support ship, in the South Atlantic.

A patrol vessel (normally Clyde) based in the Falkland Islands.

The ice patrol vessel Protector, on station in the Antarctic region for most of the year.

One ship in the West Indies during the winter hurricane season: in 2015 this was the patrol vessel Severn.

Fishery, economic and maritime security protection duties around the UK.

In addition, the RFTG is exercised annually, usually by a four-month deployment to the Mediterranean.

ISSUES & CHALLENGES

The RN currently faces many challenges, the most significant of which include:

Maintaining Britain’s Nuclear Deterrent: The current four Vanguard class SSBNs are beginning to shows signs of their age and need replacing. They were due to start decommissioning in 2023 but this has had to be delayed, as the first of four new ‘Successor’ class submarines is not now expected to enter service until the early 2030s. Even this timetable assumes that detailed design and construction work proceeds to schedule.

If the ‘Successor’ project suffers from the lengthy delays that affected the Astute class submarines, there is a serious risk that the RN may eventually be unable to maintain a continuous at-sea nuclear deterrent.

Lack of Personnel: In October 2015, the Royal Navy had 22,480 trained regular personnel, and the Royal Marines 6,970, for a trained total of 29,450 regulars. There were another 3,030 regular personnel under training. This compares with a total of 35,240 trained personnel in October 2010.

Current manpower levels are insufficient to keep the fleet fully manned; in particular a shortage of 500 engineers badly affected operations during 2015. In smaller branches and specialisations (some with less than a hundred personnel), it is also difficult to maintain training capabilities, a coherent career path, and a reasonable work-life balance. The submarine service is a particular concern; it has become so small that the loss of just a few highly skilled and experienced senior rates and officers could cripple the service. Also new joiners (from commanding officers downwards) no longer have the opportunity to learn the ropes in conventional submarines; they now go straight to billion-pound nuclear submarines.

During the SDSR 2015 deliberations, the RN reportedly requested an extra 2,000 regular personnel, but got around 400, which will be slowly added to the 2015 authorised trained strength of 30,270. In spite of the increasing use of reservists, this may not be enough to stop a difficult situation getting worse.

Creating Carrier Enabled Power Projection: A big challenge facing the RN is regenerating its carrier force by bringing the two Queen Elizabeth class aircraft carriers in to service and then using these to deliver the concept of Carrier Enabled Power Projection (CEPP).

CEPP was an idea developed as the RN fought to save the carrier programme from cancellation in SDSR 2010. It shifted the rational for the new carriers beyond their original carrier strike role (operating up to thirty-six JCAs). Instead, it emphasised the flexibility of the Queen Elizabeth class – particularly with regard to operating helicopters and supporting amphibious operations. This has required changes to the design to allow them to embark a substantial military force and operate a mixed air-group comprising both fixed-wing aircraft and multiple rotary-wing types effectively. Prince of Wales will be completed to the revised design, with – presumably – Queen Elizabeth eventually being retrofitted. The operating concept is much closer to that of the US Navy’s LHDs than traditional carrier operations, and represents a huge learning curve for the RN. Although Queen Elizabeth will enter service in 2017/18, she is not expected to be fully operational and able to deliver all aspects of CEPP before 2022.

CEPP presents a number of risks which will have to be managed. Firstly, it is dependent on the continuous availability of a QEC carrier, and the RN will struggle to keep one always fully manned and operational. Secondly, the QEC will be a hugely expensive, high value unit; accordingly escorting and supporting the carriers will dominate future RN operations. Thirdly, CEPP is ‘joint’, its application requires the availability and integration of British Army and RAF assets into embarked operations. Finally, the concept has killed a tentative plan for a low-cost replacement for Ocean, though there will be occasions where a helicopter carrier would offer a more appropriate and cost-effective presence than a Queen Elizabeth-based group. The Queen Elizabeths are now going to have to work closely with amphibious ships such as the Albion class; for reasons as basic as differences in maximum speed this will not be easy. New tactics and operational procedures will have to be developed.

Too few Submarines and Escorts: The RN has too few attack submarines and escorts to meet all the demands placed on the force. Operational studies have repeatedly shown that the RN needs at least eight attack submarines but funding permits only seven. Indeed, there are often only six when a Trafalgar class boat decommissions before its replacement Astute class enters service. The RN currently struggles to deploy even two submarines simultaneously.

The availability of the six Type 45 destroyers is lower than hoped, whilst the availability of the Type 23 frigates is being affected by their life extension programme, involving lengthy refits. No more than five or six escorts can be deployed at the same time – barely enough to meet current commitments. Moreover, a high-value aircraft carrier will need escorting from 2018.

The RN is reluctantly being forced to use patrol vessels for tasks previously fulfilled by escorts. In the long term it is hoped that the new light frigate can be built in sufficient numbers to increase the size of the escort force.

Maintaining the Industrial Base: A Defence Industrial Strategy (DIS) published by the MOD in December 2005 said ‘For submarines we have endorsed, but not yet committed funding for a 24-month SSN build drumbeat … The longer-term surface ship production drumbeat is of the order of one new platform every one to two years.’ This was to prove optimistic.

Table above shows ships ordered in the years 1990 to 2015. It can be seen that these peaked in 2000–1 as the MOD began to implement SDR. Indeed, the proposed construction programme was so large that UK shipyard capacity was expected to be inadequate, and the RAND Corporation was asked to develop a plan to optimise its use. Unfortunately by the time RAND completed their report in 2005, much of the construction programme was already in doubt. Progress continued on the £6.5bn Queen Elizabeth class aircraft carrier project only by the RN sacrificing almost everything else.

In 2015, despite work on the Queen Elizabeth class winding down, SDSR 2015 delayed the first Type 26 order until 2017. As a stop-gap, the MOD is buying five ‘River’ Batch 2 patrol vessels – three were ordered in 2014, with two more planned for 2016. Capable of world-wide deployment and equipped with a helicopter deck, they are a big step-up from the three Batch 1 ships, which will presumably be sold.

As a result of the lack of RN orders, and a failure to win exports orders, many UK shipyards have closed, most recently the Vosper Thorneycroft (later BAE Systems) facility in Portsmouth in 2014. BAE Systems Maritime – Naval Ships is now the only UK company able to build major warships, with a facility for submarines at Barrow-in-Furness, and two yards in Glasgow (at Govan and Scotstoun) for surface ships. BAE Systems has effectively become a monopolistic supplier, and the MOD is struggling to maintain a UK naval construction capability without paying excessive prices. For example, the MOD has baulked at the price being quoted to it for the Type 26s, and even hinted that it was prepared to order them overseas – a serious threat given the MOD’s landmark order in 2012 for four Tidespring class Fleet Tankers from DSME of South Korea.

UK naval construction has become shaped not by the needs of the RN, but by budgets and what the Treasury considers to be the lowest rate of naval construction rate that will allow BAE Systems Maritime and key suppliers such as Rolls-Royce to survive and thus preserve critical industrial capabilities.

Poor Public Relations: The Royal Navy has suffered from a relatively poor public image in the early part of the twenty-first century. The glory days of appearances in James Bond films, and the 1970s TV series Warship and Sailor are long gone. When the RN does feature in the media, it is often in a negative context: cost overruns, ship groundings, excessive drinking and the like. A particular PR disaster was the seizure by Iran in 2007 of two small boats from the frigate Cornwall carrying fifteen RN/RM personnel; their subsequent parading in the glare of the world’s media was described by Admiral Sir Jonathon Band, then 1SL, as ‘one bad day in our proud 400-year history’. An attempt in 2010 to repeat the success of Sailor with the TV series Ark Royal backfired due to the carrier’s obvious lack of aircraft, and the untimely announcement that she was to be decommissioned as a defence cut.

Perhaps even worse is the lack of naval experience and advocacy in political circles; Minister of State for the Armed Forces Penelope Mordaunt (a Sub-Lieutenant in the RNR) being an important exception. It is also notable that no admiral has held the top post of Chief of the Defence Staff since 2003. One former First Sea Lord, Admiral Sir Jonathon Band, concluded in a speech he made in October 2011, ‘ … the nation as a whole has forgotten its maritime tradition and nature of existence’. The RN badly needs a high-profile success story. It is also to be hoped that the Queen Elizabeth class will become an impressive symbol of British military power in the same way the carrier Charles de Gaulle has become for France.

A FINAL COMMENT

The early years of the twenty-first century have been difficult time for the Royal Navy. The UK’s military focus on land conflicts during the period has had a negative impact in terms of funding and, consequently, force levels for the naval service.

However, the security of the UK and its national interests are inextricably linked to the sea. The UK is physically an island nation dependent on seaborne trade; it is the fifth largest economy in the world; it has world-wide interests and commitments; and it wants to remain a permanent member of the UN Security Council. Given these factors, the RN may well have reached its nadir; indeed, the advent of the Queen Elizabeth class carriers may mark the start of a recovery.

The Last Majestic Sailing in Company

A second group of warships followed some 12km behind the vanguard with the battleship Kongo at its heart. She was surrounded by an inner ring of heavy ships – the battleship Haruna and the heavy cruisers Chikuma, Kumano, Suzuya and Tone, with the light cruiser Yahagi fulfilling the same role as the Noshiro did in the first group. An outer circle of six destroyers completed this rear group.

Admiral Halsey, commanding US 3rd Fleet, had decided that the time had come to give Kurita’s Centre Force a searching examination and had sent scout planes out at dawn on 24 October to try to find its whereabouts. It was not certain at this stage that Kurita was intent on reaching the invasion site and doing battle with the US 3rd Fleet. It was just as conceivable that he might be intent on making for Manila Bay to bring reinforcements for the IJA troops on the ground in southern Luzon. Despite the advantages of signals intelligence, the Americans didn’t know for certain where Kurita was headed but the mystery was soon solved when a lone scout plane from the carrier Intrepid made radar contact with these enemy ships at 0746 hours on 24 October. It located them a few minutes later and reported the find at 0810 hours as they were passing south of Mindoro and moving eastwards in the direction of the Sibuyan Sea. Such a route meant only one thing to Halsey. Manila was out of the reckoning and Leyte Gulf was the obvious intended destination. This would be reached by going through the San Bernardino Strait. He ordered all his three task groups to close up and signalled McCain to abandon his trip to Ulithi and rejoin the rest of the task groups in the Philippines. It would take a couple of days to do just that since by this stage McCain and his ships were already roughly 600nm (1111km) east of the Philippines. In their absence, Halsey ordered an all-out attack on the Centre Force. In all a total of 251 planes flew off from his carriers to the Sibuyan Sea in four waves to attack Kurita’s ships. A mix of forty-five Avengers, Hellcats and Helldivers were the first ones to leave the Cabot and the Intrepid at about 0910 hours and they were followed by another forty-two from the same carriers at 1045 hours. A third wave of sixty-eight planes left the Essex and the Lexington within minutes of the second wave getting airborne, while a final group of ninety-six planes from the Cabot, Enterprise, Franklin and Intrepid began their sortie at 1313 hours.

Locating Kurita’s fleet at 1026 hours, the first wave of American planes found the enemy ships sailing in a battle formation notable for the fact that they were divided into two quite separate groups some distance apart. Each of these groups operated on the basis of an inner and outer set of concentric circles. Kurita’s new flagship, the Yamato, lay at the heart of the leading group. She was surrounded by a circle of heavy ships consisting of the super-battleship Musashi, the battleship Nagato, along with the heavy cruisers Chokai, Haguro and Myoko – all of which were spearheaded by the light cruiser Noshiro. Each of these ships maintained a distance of 2km from the Yamato at all times. Beyond this ‘inner’ 2km diameter circle was an outer ring of seven destroyers which maintained their positions a further 1.5km away from the inner core. A second group of warships followed some 12km behind the vanguard with the battleship Kongo at its heart. She was surrounded by an inner ring of heavy ships – the battleship Haruna and the heavy cruisers Chikuma, Kumano, Suzuya and Tone, with the light cruiser Yahagi fulfilling the same role as the Noshiro did in the first group. An outer circle of six destroyers completed this rear group. Kurita had devised this battle formation because he felt he needed better cover against the possibility of any heavy air attack launched by the Americans and trusted that the Japanese A.A. potential was as good in practice as it might be judged on paper. It wasn’t.

Although confusion reigns to this day about just what happened in these air strikes and who did what to whom, there is sufficient evidence to suggest that the first strike succeeded initially in both torpedoing Myoko and knocking her out of the line and even more significantly obtaining both a bomb hit and torpedo strike against Musashi, one of the two behemoths in the Centre Force. Each wave thereafter targeted the super-battleship and more bombs and torpedoes struck home with devastating effect over the next few hours. At least thirty-two hits were recorded against her and she received eighteen near-misses before she finally sank at 1935 hours later that same day with the loss of 1,023 officers and crew. All the other battleships, including the Yamato, were bombed as well, but none of them received the treatment accorded to the Musashi, or were disabled even if they were hit. Four hours before Musashi sank, seeing his fleet worn away first by enemy submarines and then by Mitscher’s aircraft, Kurita had decided not to tempt fate any longer and to reverse course temporarily so as not to sail in daylight into the narrow confines of the San Bernardino Strait where his remaining warships could be subject to yet another deadly series of attacks. About an hour after Kurita turned round again and resumed his original course, he received an emphatic signal from Toyoda at 1815 hours that made it very clear where the Vice-Admiral’s duty lay. Attack was the only option and he was instructed to put his faith in divine assistance. Kurita knew what that meant. His presence in Leyte Gulf was essential regardless of what losses his Centre Force sustained in getting there. Abandoning his concentric circle formation, Kurita gathered his remaining ships into what Ugaki would later describe as a ‘compound column’ and pressed on towards his original destination.

Naval Bombardment of San Juan, Puerto Rico

Lithograph depicting the U.S. Navy bombardment of San Juan, Puerto Rico, on May 12, 1898. (Library of Congress)

Event Date: May 12, 1898

Naval bombardment of San Juan, Puerto Rico, by ships of the U.S. North American Squadron on May 12, 1898. Rear Admiral William T. Sampson sailed from Havana, Cuba, to San Juan in search of Rear Admiral Pascual Cervera y Topete’s Cádiz Squadron. Sampson’s ships arrived off San Juan in the early morning of May 12 and at 5:20 a.m. commenced a bombardment of Spanish military positions ashore. The American ships made three bombardment circuits. The cruiser Detroit led, followed by the battleships Iowa, Indiana, and New York; the double-turreted monitors Amphitrite and Terror; and the unprotected cruiser Montgomery.

The American warships fired a total of 1,360 shells before they broke off the engagement at 7:45 a.m. The Spanish shore batteries fired only 441 shells in reply. Neither side inflicted much damage on the other. American gunnery was abysmal. A majority of the U.S. shells went long, while others fell short. Probably only 20 percent of the shells hit in the general target area, and many of these failed to explode. In the exchange, the U.S. side suffered some minor damage, 1 man killed, and another 7 wounded. Spanish casualties amounted to 13 killed and perhaps 100 wounded, most of these civilians.

The shelling was controversial, for international law clearly required that noncombatants be warned before such an event, but Sampson claimed that his ships were firing not on the city but on its military installations and thus that no prior notification was required. The shelling made little sense, however. Sampson later justified it as a form of naval reconnaissance to ascertain, as he put it, enemy “positions and strength.” The shelling did serve to provide the American squadron with a baptism of fire. Secretary of the Navy John D. Long was not impressed and was also upset that Sampson had placed his ships at risk by shelling shore installations before he had concluded the pressing matter of locating and destroying Cervera’s squadron.

On May 13, Spanish governor-general of Puerto Rico Manuel Macías y Casado and the island press trumpeted the bombardment as the first Spanish victory of the war, and island merchants distributed food and gifts to the Spanish troops. Sampson, meanwhile, took his squadron to Haiti and then on to Key West, Florida, where he arrived on May 18.

Further Reading Mitchell, Donald W. History of the Modern American Navy: From 1883 through Pearl Harbor. New York: Knopf, 1946. Trask, David F. The War with Spain in 1898. Lincoln: University of Nebraska Press, 1996. West, Richard Sedgwick, Jr. Admirals of American Empire: The Combined Story of George Dewey, Alfred Thayer Mahan, Winfield Scott Schley, and William Thomas Sampson. Indianapolis: Bobbs-Merrill, 1948.

The Mississippi Squadron II

Bombardment and Capture of Island Number Ten on the Mississippi River, April 7, 1862

Colored lithograph published by Currier & Ives, New York, circa 1862.

It depicts the bombardment of the Confederate fortifications on Island Number Ten by Federal gunboats and mortar boats. Ships seen include (from left to right): Mound City, Louisville, USS Pittsburg, Carondelet, Flagship Benton, Cincinnati, Saint Louis and Conestoga (timberclad). Mortar boats are firing from along the river bank.

Captain A. M. Pennock, commandant of the naval station, and Walke of the Carondelet welcomed the new Mississippi Squadron commander. Although no records survive of their first meeting, Porter reportedly found Walke “an active, impatient man” with ideas similar to his own. The squadron needed attention. The army had signed up many recruits at ratings and pay levels higher than they deserved, causing old hands to grumble. Porter would have to ease some of those men out and discharge hundreds who had come down with river fevers. The squadron’s leaky, makeshift vessels were overdue for repairs, and poor conditions aboard had undoubtedly contributed to the number of ill sailors. Clearly, commanding the Mississippi Squadron would be no easy task.

In his cabin on the Benton, Porter assessed the squadron’s resources for fighting the war on western waters and found them wanting. He told the Navy Department he needed more of everything—gunboats, auxiliary craft, artillery, officers, crewmen, and, most of all, river craft suited for narrow, shallow rivers. Porter would retain the city-class ironclads, but to escort convoys and support the infantry, his squadron needed more versatile vessels. To meet Porter’s demands, the navy built dozens of what became known as tinclads, as well as two stern-wheeled monitors, the Neosho and Osage. The navy would also commission three ironclads, the Tuscumbia, Indianola, and Chillicothe, all launched in 1862, and convert the captured Eastport to carry 6.5-inch armor and eight guns. For his flagship, however, Porter chose the 260-foot tinclad Black Hawk, a former luxury cruise boat converted to carry thirteen guns. Never one to pass up an opportunity for amenities, Porter kept the rich wood paneling and chandeliers in the Black Hawk’s officers’ quarters and installed stalls for horses.

Just prior to the change of command, and for weeks afterward, Phelps carried on the squadron’s active operations at Helena. Without Kilty, Stembel, and Paulding, he had only Walke, Winslow, Dove, Bryant, and Thompson as captains. Phelps thought Winslow and Dove inefficient commanders but considered Walke a “fighting captain.” Fortuitously for Phelps, Winslow asked for a transfer, and Phelps managed to replace Dove with Richard W. Meade as captain of the Louisville. Bryant had fallen ill, so the Cairo also received a new captain, twenty-six-year-old Lieutenant Commander Thomas O. Selfridge Jr. “Received on board Commander Selfridge as our captain,” George Yost wrote on September 12, 1862. “Capt. Bryant being in ill health he was sent home.”

The state of the flotilla’s gunboats appalled Phelps. The Cincinnati had sprung countless leaks, and its engines needed repair. The Carondelet had gone to the yard in Cairo after the engagement with the Arkansas. A survey had found the Louisville in a “disgraceful and dirty condition” and its executive officer, two masters, and surgeons incompetent. The situation in Ellet’s ram fleet was even worse. Disputes were rife, and the rams’ men had taken to plundering, stealing, and luring blacks from plantations. Fortunately, Lincoln realized the ram fleet needed to be under the Navy Department’s command. Consequently, on November 8, 1862, Alfred Ellet was promoted to brigadier general, and his rams were renamed the Mississippi Marine Brigade.

On October 19, with its engines repaired, the Carondelet headed downriver to Helena. It passed Island No. 10 on October 21 and then took on coal at Memphis. Bright and early on October 23, the Carondelet took a pilot on board and, Morison noted, “dropped down amongst the fleet. Came to anchor abreast the city. Here we found Benton, Bragg, Mound City, Louisville, and Cairo.” All the gunboat captains, including Selfridge, the Cairo’s new commanding officer, came on board and visited with Walke. According to Yost, Selfridge had clearly set out to make the Cairo a proper man-of-war with a regular routine. “We drilled considerable to day and I think that our Captain intends to try to soon have the best drilled crew in the fleet,” he wrote in his diary on October 13. “The boat looks much cleaner and nicer now than it ever did before.”

Meanwhile, the Cincinnati had completed repairs at Cairo and had received some new recruits, among them Daniel F. Kemp. On September 16, 1862, Kemp had enlisted in the navy for one year. Rated a landsman, he went by rail to Cairo, Illinois, to the receiving ship Clara Dolsen. Most of the recruits, Kemp recalled, were made guards, as the ship had no marines “to keep the crew in order.” Then, he wrote, “a gunboat came up the river one day. . . . This was the gunboat Cincinnati. We were taken on board the Cincinnati on November 6, 1862.” The new recruits’ first assignment was to take on coal. Kemp observed, “This was a hard, unpleasant job as none of us boys had been used to hard work. However, we were in Uncle Sam’s Navy now, and had to do whatever we were told to do whether we liked it or not. We were getting ready to go down to Vicksburg, and the firemen had to have coal.” Kemp vividly recalled their trip downstream: “We left Cairo one Sunday and started down the Mississippi for our destination, but the river was very low and our progress was very slow, for we had to take soundings quite often so as not to run aground.” The gunboat anchored a short distance from Island No. 10 for several days, due to low water and heavy fog. Then, as the gunboat steamed down the Mississippi, Kemp explained that they “took on board a lot of contrabands, and they were a jolly lot of darkies right from the plantation. They would get together at night and give us a gay old time, a regular plantation jig. The names of their leaders were Alex, Charley, and Black Hawk. Alex would do the patting, and Charley and Black Hawk would do the dancing and the usual shouting and yah yahing.” The Cincinnati continued past Columbus, Hickman, Fort Pillow, Memphis, and Napoleon before arriving at Helena. “We finally reached the fleet, and found anchored there, the Signal, Marmora (Mosquito), Mound City, Carondelet, and Pittsburgh. Also a packet boat and the Lexington, a wooden gunboat.”

The Carondelet had spent the first part of November at Helena, tasked to convoy any vessels running between Memphis and Helena, provided there was sufficient depth of water. Navigating the Mississippi River still proved a challenge, for there was barely enough water for his ironclad boats to move up or down the river, Walke reported to Porter on November 8. He requested any light-draft, armed steamers that were available. He had sent a number of sick sailors to Cairo but cautioned the admiral, “There is still quite a number of officers and men who are very much debilitated by the fever and ague this fall, and I am afraid they will not be fit for duty this winter.”

By the fall of 1862, officials in Washington had grown weary with the lack of progress in the West. Generals Buell and McClellan had been pursuing a style of warfare that reflected their limited war aims. The halting Union advances had prolonged the fighting, and now the president resolved to prosecute the war more aggressively. “The army, like the nation, has become demoralized by the idea that the war is to be ended, the nation reunited, and peace restored by strategy, and not by hard, desperate fighting,” Lincoln said. In late October he replaced Buell with William S. Rosecrans as commander of the Army of the Cumberland, and on November 7 he informed McClellan that Ambrose Burnside would supersede him. Lincoln urged his generals to renew the attack on Vicksburg, which had been delayed by military crises in Kentucky and Maryland and by a Confederate attempt to lever Grant’s forces out of northern Mississippi. Grant had initially declined to renew operations against Vicksburg, citing the need to rebuild railroads in northern Mississippi and Tennessee. In November, however, Lincoln replaced Butler with Nathaniel P. Banks as commander of Union forces in southern Louisiana and gave him the mission of opening the Mississippi River by coordinating an attack on Vicksburg and Port Hudson. Finally, Grant proposed a move south to Grenada, Mississippi, which he expected would engage Confederate forces and enable Sherman to make an amphibious assault downstream from Memphis to Vicksburg.

Naturally, Porter knew the reputation of the man everyone now called U. S., or “Unconditional Surrender,” Grant, but he had never met the general and knew nothing of his plans. One evening, the admiral attended a dinner party on board an army quartermaster’s riverboat. When a man in a rumpled brown coat and gray trousers appeared, the host said, “Admiral Porter, meet General Grant.” The two found a table away from the party guests and sat down. Without fanfare, Grant explained his plan to take Vicksburg. “I need your assistance, Porter,” Grant said, “all you can provide.” Impressed with Grant’s calm demeanor and his determination, Porter pledged his full support for the coming campaign. Then, without taking a bite of supper, Grant rose, clamped down on the cigar in his mouth, and announced he was going to ride back the way he had come.

Back on board the Black Hawk, Porter finalized the squadron’s plans to support Sherman’s expedition up the Yazoo River. Walke, who was now in charge of the Mississippi Squadron’s vessels based at Helena, was given the mission of securing all the landings on the Yazoo where the Confederates could erect batteries, determining the water’s depth, and dragging the river for mines. Porter then sent orders to his commanders to proceed to Helena and report to Walke.

On November 21 Walke, who was still suffering from what he called “Yazoo fever,” received orders to leave for the Yazoo as soon as possible. He was supposed to prevent the erection of batteries at the mouth of the river, or as far as federal guns would reach. If there was insufficient water in the Yazoo for his large vessels, he was instructed to send the Signal and Marmora with some good marksmen to secure a landing for General McClernand’s troops. The admiral also ordered Walke to take all the ironclads at Helena, except for the Benton and the former Confederate Bragg, plus the Lexington and Tyler, and secure control of as much of the Yazoo as possible. “Pick up all the good contrabands you can get, and something may be learned from the most intelligent of them and dispatch it to me,” Porter instructed. He explained that in about ten days he would be pushing downriver with all the light-draft boats he could get finished. Selfridge in the Cairo would be joining Walke at Memphis. The Cincinnati, Pittsburg, and Baron de Kalb, Porter wrote, “will be off on Monday.” With the Carondelet short fifty men, Walke realized he would have to take men from the Mound City and the Benton to fill his complement.

On November 24 the gunboat Marmora arrived with mail, and Morison reported that “dispatches also came in for our captain and immediately all hands were in motion, getting ready for a start down river to Vicksburg.” The next day Walke left Helena in the Carondelet with the Mound City, Signal, and Marmora. The Lexington, led by Lieutenant Commander James W. Shirk, was on its way to Helena with some refugee families. After dropping them off, the Lexington went down to Ashton, Louisiana, destroying every ferryboat it came across. Shirk brought back twenty-four contrabands, all of whom told him “that they are to be free on the 1st of January, but that their owners are getting ready to move them back from the river as soon as possible.” Lincoln’s Emancipation Proclamation would go into effect on New Year’s Day 1863.

The Carondelet headed downstream accompanied by the Marmora and Signal, each towing a coal barge. On Wednesday, November 26, they met the Lexington, which followed them. The next day Morison wrote, “Picked [up] some more ‘contrabands,’ one of them having lived in the woods for over five months. Passed one plantation where all the slaves on it apparently wanted to come off, but being rather short of provisions, had to decline the honor.” The contrabands claimed that rebel troops had gone to Holly Springs and that all the blacks employed there had been sent to work on the forts at Vicksburg, as well as at another fort about forty miles below it.

The federal gunboats came to anchor off Milliken’s Bend at 4:00 p.m. on November 28, and Walke sent an armed boat crew from the Marmora on a tug. “As they landed, some guerillas in the woods fired on them and wounded one of ‘Marmora’s’ officers in the right side.” After this, they kept a lookout for enemy batteries along the shore. When the little flotilla reached the mouth of the Yazoo the next day, Walke sent the Marmora and Signal up to reconnoiter, accompanied by twenty men and the gunner from the Carondelet. The expedition ascended the Yazoo about forty miles but returned after encountering a masked battery. Although they did not engage the enemy battery, “they shelled the woods, thereby driving in the pickets from the river banks and killing a few of them,” Morison explained. They took two prisoners and a contraband on board and “found that the rebs were busy erecting some more batteries down towards the mouth of the river.”

Observing the water level, Walke decided not to take his ironclads up the river; instead, he sent the tinclads Marmora and Signal to sound the river and look for rebel activity. Suspecting rebel guerrillas in the area, Walke then sent a detachment of twenty armed men, under the command of gunner William Beaufort, to the Marmora to protect the crew while they sounded the river. At 2:15 p.m. his suspicions were confirmed when a party of men fired a volley of musketry at the Carondelet from shore. The gunboat immediately replied with four solid shots and two five-second shells.

Lieutenant Robert Getty took the Marmora and Signal up the Yazoo, and at Twelve Mile Bayou guerrillas fired down on the federal gunboats from the high banks. Getty shelled them, and they disappeared. Upon reaching Anthony’s Ferry, some twenty-one miles up the Yazoo, Getty reported, “I was again subjected to a severe and rapid guerilla fire, which was promptly returned with howitzers and rifles, silencing the enemy.” Finally, at Drumgould’s Bluff, Getty found the enemy’s fortifications. He studied them through his spyglass, determined they were indeed formidable, and then steamed back down to the mouth of the Yazoo. In his report to Walke, Getty claimed that his reconnaissance had confirmed the presence of rebel pickets and some cavalry. The guerrillas were active, he told Walke, but the Confederates had no batteries for twenty-three miles up the Yazoo from its mouth.

On December 1 Walke issued special orders to his commanders. He told them to keep a quarter watch during the night and to maintain sufficient steam to work their engines. Should the enemy fire on any of the vessels, the nearest one would fire immediately. If fired upon by a battery or field battery, then all vessels should go to quarters and place themselves in a position to engage the enemy to the best advantage. Recalling the friendly fire taken by the Carondelet after running past Island No. 10, Walke instructed his commanders to engage any enemy gunboat approaching the squadron with their bow guns in the first order of sailing, “being careful not to fire into each other.”

Walke also sat down to write a report to Porter. He informed Porter that the Confederate fort on the Yazoo “was said to be on a very high bluff concealed from view by another high point.” The passage up the Yazoo was clear to the fort, but he noted that “a land force would be needed to capture it.” He told Porter that he really needed more rams and noted, “The rebels have some good, large steamers at Vicksburg, and I suppose they will come out and surprise us, if they can, but I will keep a bright lookout for that. They can not attack us except with rams, or by boarding in the fog with large steamers.” Walke commented that the weather was “quite pleasant” but added that, having been on blockade duty on the Mississippi since September 1861, he would be happy to see the river open again, “as the ague and fever of this country is, like the rebels themselves, obstinate and treacherous.”

 

To Leyte Gulf

 
Sailing towards Leyte Gulf from left to right CA Chikuma, BB Nagato, BC Haruna, BC Kongo and CA Tone.
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Toyoda readied his various forces on 20 October for the decisive action to come. Setting dawn of 25 October 1944 as ‘X-Day’, he ordered Kurita and Vice- Admiral Shoji Nishimura’s forces to leave Brunei Bay on 22 October and instructed the three other components of the plan: the transport unit of Vice- Admiral Naomasa Sakonju from Manila, the 2nd Striking Force of Vice- Admiral Kiyohide Shima from the islands of the Pescadores in the waters off Formosa, and the diversionary force of Jisaburo Ozawa from the Inland Sea to set out on their travels so that they could meet the requirements of the plan. Despite their major setbacks in the recent past, the Japanese were still able to put a formidable naval force together for this latest and most decisive battle with the Americans. Apart from Musashi and Yamato, the two super-battleships that formed the apex of his designated Centre Force, Kurita could rely upon the substantial battleship Nagato, the two fast ex-battlecruisers that had been reclassified as battleships Haruna and Kongo, ten heavy cruisers, two light cruisers and fifteen destroyers. Shoji Nishimura’s warships, which were expected to form the southern part of the pincer movement against the invasion fleet in Leyte Gulf, were much less impressive both in quantitative and qualitative terms than Kurita’s Centre Force. Although the southern force contained two battleships (Fuso and Yamashiro), the heavy cruiser Mogami and four destroyers, both of the battleships were relatively old, slow and ponderous. Because their route to Leyte Gulf by way of the Surigao Strait was more direct than that to be taken by Kurita, Nishimura left Brunei Bay seven hours after the cutting edge of Shō–Gō- 1 had left port at 0805 hours on 22 October for its longer, more circuitous voyage through the Philippines to Leyte Gulf via the Sibuyan Sea, the San Bernardino Strait and along the east coast of Samar – a distance of some 1400nm (2,593km). Shima’s group was meant to join it in the Sulu Sea west of Leyte and bring a further mix of two cruisers and seven destroyers to bear when the southern part of the pincer snapped shut. That at least was the theory, but would it work out in practice? Much hung on theory and speculation at this time. Ozawa’s appearance with the 1st Mobile Fleet was a case in point. It was to be a decoy force meant to lure Admiral Halsey 3rd Fleet away from Leyte to the north and enable Kurita, Nishimura and Shima to execute a brilliant pincer movement trapping and eliminating Vice-Admiral Thomas Kinkaid’s 7th Fleet off the invasion beaches in Leyte Gulf. Despite losing so many planes and, even more importantly, experienced pilots in the Pacific campaign, Ozawa could muster more than 100 aircraft for the fleet carrier Zuikaku and the light carriers Chitose, Chiyoda and Zuiho to use. Along with him, Ozawa brought two old battleships (Hyuga and Ise) which, despite having been converted into seaplane carriers, were carrying only guns – a battery of over a hundred light A.A. guns and six rocket launchers – and no aircraft for this operation. Their main purpose was to be the initial magnet for Halsey’s carrier fleet and then subsequently to defend the rest of Ozawa’s carriers with their A.A. armament. Rounding off his force were three light cruisers, eight destroyers and a supply force that brought together a further destroyer, two tankers and six corvettes. Commanding a decoy force with few aircraft at his disposal was no easy undertaking, but if any Japanese naval officer could pull off this risky manoeuvre Ozawa had the fearless qualities to do so.

As part of the plan to shore up resistance on Leyte to assist the 20,000 Japanese troops already there, Naomasa Sakonju was made responsible for bringing in troop reinforcements in the shape of the 30th and 102nd Infantry Divisions to Ormoc, a port on the northwest coast of the island. His force, consisting of the heavy cruiser Aoba and the old light cruiser Kinu, a destroyer and four fast transports, stayed well clear of the invasion sites in Leyte Gulf, but was still found a few miles south of Cape Calavite off the northeast coast of the island of Mindoro at 0325 hours on 23 October by the US submarine Bream which managed to torpedo the Aoba before making good her escape. That hadn’t been in the script and neither were the activities of two other American submarines, Dace and Darter, which were to strike with even more telling effect a few hours after Bream’s moment of partial success. Cruising off the west coast of the island of Palawan, the two submarines picked up Kurita’s Centre Force on their radar screens at 0116 hours on 23 October. They reported the contact to Halsey and closed in on the warships which were intent on conserving fuel and only making about 15 knots during the hours of darkness. Manoeuvring their way into position before dawn broke, the two submarines waited for the Centre Force to pass before Darter fired a spread of six torpedoes at Kurita’s flagship Atago at 980 yards (274m) distance at 0632 hours. Four of them hit home with deadly effect a minute later. Atago took on an almost immediate 25* list and sank within twenty minutes. Darter was far from finished. She also managed to hit the Takao twice two minutes later on her starboard side totally destroying her rudder, carving two sizable holes in her hull, smashing two of her four propellers and flooding three of her boiler rooms. Not surprisingly, she took on a 10* list to starboard. Her day was done. She was forced to limp back to port in Brunei Bay in the company of the two destroyers Asashimo and the Naganami. Well before arrangements could be carried out to save the Takao, however, Dace announced her entrance onto the scene by firing four torpedoes at the heavy cruiser Maya – all of which hit her port side at 0657 hours and literally blew her apart. She took a few minutes to join her flagship in sinking. Rescued from the wreck of the Atago before she foundered, Kurita quickly transferred his flag to the Yamato (much to Ugaki’s chagrin) and forged on ahead determined that he would fulfil his part of the Shō–Gō- 1 plan even if the element of surprise had been lost, which it obviously had been!

PLAN ‘Z’

Stefan Dramiński.

Thus far, construction plans had been conceived in an atmosphere of ‘no war with Britain’. Raeder informed Hitler on several occasions that Germany’s naval development was not sufficient to cope with a war against a major sea power, but each time the Führer replied by saying there would be no war against Britain because such an act would signal the end of the Reich. Not until early 1938 did Hitler tell Raeder that the Kriegsmarine might have to consider meeting the Royal Navy on a war footing. Even then, he stressed that it would not be before 1948 at the earliest.

By 1937, warship development had progressed sufficiently for the first long-term planning policy to be effected. The plan was intended to remain in force for the years from 1938 until 1948, and would see the fleet develop to the limits of the Anglo-German Naval Agreement. All the original demands and suggestions for new warships were evaluated by Kpt.z.S. Werner Fuchs, and put down on paper as Plan ‘X’. (X being the ‘unknown’ from algebraic equations.) This was an immense document and could not be considered under the terms of the Naval Agreement, so he modified the details and reduced the plan to a practical size. His tailored version was designated as ‘Plan Y’ and was laid before the Supreme Naval Command, who modified the ideas still further. The final version then became known as ‘Plan Z’. It has been suggested that the ‘Z’ stood for ‘Ziel’ or ‘goal’ but the sequence simply progressed from the letter ‘X’ – often used for an unknown quantity in algebra – and just happened to end with ‘Z’.)

Plan ‘Z’ had been conceived under the ideal of ‘no war with Britain’, but matters had to be reconsidered after Hitler told Raeder that there were voices in Britain who were clamouring for another war and Germany might have to fight the Royal Navy after all. However, there were no alternative options and plans went ahead the way they had been formulated.

When the ‘Z’ Plan was being formulated, there were two distinct opinions on naval warfare in the German Navy. One idea, which received the backing of the Supreme Naval Command, was to build a powerful surface fleet consisting of mainly battleships and cruisers. The other idea was to develop a navy centred on submarines and small craft such as torpedo-boats.

Plan ‘Z’ was strongly opposed by Kpt.z.S. Karl Dönitz, who could only muster a long list of foul adjectives to describe the decision. Another opponent of Plan ‘Z’ was Fregkpt. Hellmuth Heye who, acting on an instruction from Raeder, produced a thesis on the subject of war with Britain. He concluded that it would not be possible to defeat Britain by pitting German battleships against her merchant shipping. But it appears that nobody took much notice of Heye during the summer of 1938. Perhaps this was because he was an individualist with unconventional and ‘quite mad ideas’ – which he fully demonstrated towards the end of the war by building up the Midget Weapons Unit to a fantastically high standard, against terrific odds and in an incredibly short time. In addition to Heye, there were several other submarine supporters in the Supreme Naval Command: Hermann Boehm, Fleet Commander, and Hermann Densch, Commander-in-Chief of Reconnaissance Forces, were both in favour of U-boats. In fact, Densch had a pet-saying: ‘We must build submarines on every meadow, in every shed and on every stream – it is our only hope of winning.’

But theirs were only faint cries in the wilderness, for the majority were in favour of a battleship navy. Many in the Supreme Naval Command kept repeating their stereotype views that there would be no war with Britain, and that, under war conditions, Dönitz’s submarine tactics would be found wanting. Several powerful men in the High Command maintained their belief that only the mightiest and heaviest battleships would penetrate the shipping lanes of the Atlantic. They considered submarines to be outdated and obsolete weapons.

The High Command also had some knowledge of Britain’s asdic, which, it was thought, might prevent a successful submarine war. Similarly, they pointed to the Prize Ordinance Regulations (pages 41 and 201), which imposed numerous operational limitations on submarines and further restricted their effectiveness.

The final decision on the type of construction policy to adopt was made by Hitler. The Naval High Command gave him two alternatives: either a battleship fleet or a U-boat dominated navy. Hitler chose the surface fleet outlined in the ‘Z’ Plan and, on 27 January 1939, gave the programme top priority – just over six months before the outbreak of the Second World War. So, it is safe to say that the ‘Z’ Plan had little influence on the outcome of the war.

The new capital ships were to be equipped with eight 406mm (16 inch) and twelve 150mm (6 inch) guns; they would carry four aeroplanes, have a top speed of thirty knots, and a range of over 12,000 nautical miles at a cruising speed of just under twenty knots. (Construction of Bismarck and Tirpitz had, of course, already started before the ‘Z’ Plan was formulated.) The Chiefs of Staff also examined what had been Germany’s main weakness during the First World War – that of trying to operate far out in the Atlantic from bases in the German Bight. This problem was solved by planning to put the new long-range battleships based on the Deutschland into the South Atlantic where they would be serviced by supply and repair ships seeking out remote spots in the Southern Ocean for the more lengthy repairs.