Naval administration

“ Whole libraries have been written about fleets and expeditions, but there has never yet been any systematic history of the organisation that rendered action on a large scale possible, or of the naval administration generally, and although its record does not appear to the writer to be a matter for national pride, it has its importance as a corollary of—and if only as a foil to—that of the Navy proper. ”

“ It is born with naval administration. Corresponding roughly to these primary factors are the two principal activities in which administration is exerted—organization and execution. These also bear to each other the relation of means to end. Organization is not for itself, but is a means to an ultimate executive action; in the case of a navy, to war or to the prevention of 116war. It is, therefore, in its end—war—that organization must find the conditions dictating its character. Whatever the system adopted, it must aim above all at perfect efficiency in military action ”

“ The United States system of naval administration has progressed successively, and without breach of legislative continuity, from the simple rudimentary organ, the one man, in whom all functions as well 123as all responsibility were centered, through the phase of a complex organ with aggregate functions and responsibilities, defined, but still undifferentiated, into an organization elaborate in form, if not final in development. ”

“ A naval force has been created on those interior waters, and under many disadvantages, within little more than two years, exceeding in numbers the whole naval force of the country at the commencement of the present Administration. Satisfactory and important as have been the performances of the heroic men of the Navy at this interesting period, they are scarcely more wonderful than the success of our mechanics and artisans in the production of war vessels, which has created a new form of naval power. ”

“ At first called ‘Keeper and Governor’ of the king’s ships, later, ‘Clerk of the king’s ships,’ this official held, sometimes really and sometimes nominally, the control of naval organisation until the formation of the Navy Board in 1546. His duties included all those now performed by a multitude of highly placed Admiralty officials. If a man of energy, experience, and capacity, his name stands foremost in the maintenance of the royal fleets during peace and their preparation for war ”

“ The work of preparing any Navy Department necessitates the preparation and execution of plans, whereby the department itself and all the rest of the navy will be able to pass instantly from a peace footing to a war footing; will be able to pass instantly from a status of leisurely handling and supplying the existing fleet by means of the offices, bureaus, and naval stations, to the status of handling with the greatest possible despatch a force which will be not only much larger, but also much less disciplined and coherent. ”

“ On that national policy must be based not only the types of ships built and their numbers, but also the number and locale of the naval bases and the entire strategic plan. In the past there has been too little mutual understanding between the American navy and the American people. The navy—the Service, as it is appropriately called—is the trained servant of the republic. It is only fair to ask that the republic make clear what it expects that servant to do. ”

“ The duty of the Secretary of the Navy, by the act of April 30, 1798, creating the Navy Department, extends, under the orders of the President, to 'the procurement of naval stores and materials, and the construction, armament, equipment, and employment of vessels of war, as well as all other matters connected with the naval establishment of the United States.' 1 Stat. ”

“ The officers are responsible for the lives of the crew and the safety of the ship. They must be ready to think and act quickly in emergencies. In hours of peril they never leave their posts.
XI.—Some Facts about the Navy of 1898.
The Constitution of the United States provides that the President shall be commander-in-chief not only of the army but also of the navy. His chief assistant in the management of naval affairs is the Secretary of the Navy, who is also a member of his cabinet. ”

“ It is not the policy of the United States to maintain a large navy, but its reputation, honor, and prosperity require that such naval vessels as it possesses shall be the best which human ingenuity can devise and modern artificers construct. ”

“ The traditional naval policy of the country was thus not reflected in the action of the country’s government, because that policy had no representation in the Navy’s counsels. There is, perhaps, no single heresy for which so high and disastrous a price has been paid. ”

“ The Navy The peace and security of the Republic, and the maintenance of its rightful influence among the nations of the earth, demand a naval power commensurate with its position and responsibility. We therefore favor the continued enlargement of the navy and a complete system of harbor and seacoast defences. ”

“ Its changed fortunes can in part be easily accounted for. The transference of the scene of war to the Southern states late in 1778, removed a part of the British land and sea forces from the North, and thereby gave the Naval Department a freer hand in its operations, and rendered the movements of the fleet less perilous. The Department this year had larger success in manning and equipping its fleet. It was, therefore, able not only to send the armed vessels to sea more frequently, but also to send several of them cruising in company. ”

“ The Government hoped, by bringing about an amalgamation of the naval units, to evolve a navy capable of dealing with domestic as well as foreign quarrels. It also planned to increase the efficiency of the navy by sending cadets abroad—especially to the United States and England—for the purpose of training them in the methods of modern naval warfare. ”

“ I beg leave to renew the recommendation made in my last annual message respecting the enlistment of boys in our naval service, and to urge upon your attention the necessity of further appropriations to increase the number of ships afloat and to enlarge generally the capacity and force of the Navy. The increase of our commerce and our position in regard to the other powers of the world will always make it our policy and interest to cherish the great naval resources of our country. ”

“ No part of the government is increasing so rapidly as the naval service. When all men are enlisted for which legal provision has been made, the naval and marine force will reach 34,810 men, or nearly 8,000 more than were in the army prior to the war with Spain. By the Congressional acts of 1864, 1868, and 1876 the navy was fixed not to exceed 7,000 men ”

“ The absence of system in the Naval Department was most conspicuous in the appointment of naval officers, from the captain to the coxswain. This work was shared by Congress, the Marine Committee, the Navy Boards, the Continental agents, the Commander-in-chief of the navy, the commanders of vessels, recruiting agents, the Commissioners at Paris, and the commercial agents residing in foreign countries. Appointments were sometimes actually determined by the governors of states, “conspicuous citizens,” and local governmental bodies. ”

“ According to this bill, it was to be lawful for States and Territories bordering on sea and lake coasts and navigable rivers to enroll and designate as the Naval Militia all seafaring men of whatever calling or occupation, and all men engaged in the navigation of the rivers, lakes, and other waters, or in the construction or management of ships and craft, together with ship-owners and their employees, yacht-owners, members of yacht clubs and other associations for aquatic sports, and all ex-officers and former enlisted men of the navy. ”

“ With these improvements, and such others as zealous watchfulness and mature consideration may suggest, there can be little doubt that under an energetic administration of its affairs the Navy may soon be made every thing that the nation wishes it to be. ”

“ The facts that modern ships cannot now as formerly carry a supernumerary force sufficient for such purposes, and are more dependent on fixed bases of supply and repair than in old days, point to a different method of using and applying the marine force to the sole purpose for which they are now necessary as a distinct branch of the naval service. If employed at the headquarters of a naval station, their efficiency as marines could be preserved by occasional embarcation of the officers and men in rotation. ”

“ With respect to the navy, it may be proper to remind you, that whatever may be the proposed object of its establishment, or whatever the prospect of temporary advantages resulting therefrom, it is demonstrated by the experience of all nations, who have adventured far into naval policy, that such prospect is ultimately delusive; and that a navy has ever in practice been known more as an instrument of power, a source of expense, and an occasion of collisions and wars with other nations, than as an instrument of defence, of economy, or of protection to commerce. ”

“ And while our vessels and our fighting men are playing their part on the high seas the counsel of our trained technical experts is eagerly sought and constantly employed by the admiralties of the Allied nations. When the naval history of this war is given to the world in freest detail we shall know just how much our officers have had to do with the strategy of operations adopted by all the Entente navies. ”

“ Though the Naval Department has generally been assumed to have emerged from that war with more credit as regards its organisation than the War Oflfice, the term 'mobilisation,' and its meaning, was entirely unknown in reference to any possible naval operation. If success has come in the past, it has been in spite of our system, not in consequence of it. ”

“ Each vessel was to be provided with 115 officers and seamen. No better proof of the rawness of the naval service is needed than that afforded by the regulation that recruits, whether officers, seamen, or marines, should furnish themselves with “a good effective Fire Arm, Cartouch Box, Cutlass, and Blanket.” The captains were ordered to recommend to the Council a list of inferior officers and to enlist the proposed number of seamen and marines. ”

“ The advent of aircraft has introduced new and, at present, only partially explored problems into naval warfare, and officers commanding naval forces will require frequent opportunities of studying them. They must be worked out with naval vessels and aircraft acting in close association. With the Air Service under separate control, financially as well as in an executive and administrative sense, is it certain that the Admiralty will be able to obtain machines and personnel in the necessary numbers to carry out all the experimental and training work that is essential for efficiency in action? ”

“ Many persons maintain, that a naval system of defence is indispensably necessary to a nation, whose seaboard extends more than 1,500 miles, with a shipping interest amounting to 1,300,000 tons—in this respect, ranking the second of modern nations. The argument is as specious as it is plausible; it is liable to many, and in my opinion, to insuperable objections. The proposition before us will be considered as leading to a permanent Naval Establishment. This course is warranted by the report of the Secretary of the Navy as well as by the mode which was pursued by my friend from South Carolina. ”

“ But if we desire to build ships for present usefulness instead of naval reminders of the days that are past, we must have a Department organized for the work, supplied with all the talent and ingenuity our country affords, prepared to take advantage of the experience of other nations, systematized so that all effort shall unite and lead in one direction, and fully imbued with the conviction that war vessels, though new, are useless unless they combine all that the ingenuity of man has up to this day brought forth relating to their construction. ”

“ The system provides no strictly professional unifying force, such as the Board of Admiralty, which has a numerical preponderance of combatant sea-officers, each of whom has in individual control one or more of the technical administrative departments, and may be supposed therefore to be fully informed of its arguments in any technical matter under discussion. ”

“ The Admiralty should never engage itself to lock up a single vessel even—not even a torpedo-boat, or submarine—anywhere on any consideration whatever. The whole principle of Sea fighting is to be free to go anywhere with every d—d thing the Navy possesses. The Admiralty should engage to do their best but to reserve entire freedom of action. ”

“ Nor at that time did we have men fit to handle a modern man-of-war. Under the wise legislation of the Congress and the successful administration of a succession of patriotic Secretaries of the Navy, belonging to both political parties, the work of upbuilding the Navy went on, and ships equal to any in the world of their kind were continually added ”

“ The character of the naval officers of the United States makes a regulation of this kind wholly unnecessary. Their enterprise, their courage, and intrepidity, are too well established to require a regulation of such severity. As then the gentleman does not intend to dispute the sovereignty even of our own seas with our expected enemy with this naval force, but intends to employ it in the destruction of merchant vessels, an increase of that force appears to me to be wholly unnecessary and impolitic. ”