The main effort of the Navy during the year 1917 was directed towards the defeat of the enemy's submarines, since the Central Powers confined their naval effort almost entirely to this form of warfare, but many other problems occupied our attention at the Admiralty, and some of these may be mentioned.

Considerable discussion took place in the early part of the year on the subject of the policy to be pursued in the Eastern theatre of war, and naval opinion on the possibility of effecting a landing in force at different points was invited and given. It need only be said here that the matter was brought forward more than once, and that the situation from the naval point of view was always clear. The feasible landing places so far as we were concerned were unsuited to the military strategy at that period; the time required to collect or build the great number of lighters, horse boats, etc., for the strong force required was not available, and it was a sheer impossibility to provide in a short period all the small craft needed for an operation of magnitude, whilst the provision of the necessary anti-submarine defences would have taxed our resources to the utmost and have prevented essential work of this nature in other theatres.

The work of the Navy, therefore, off the coast of Palestine was confined to protecting the left flank of the advancing army and assisting its operations, and to establishing, as the troops advanced, bases on the coast at which stores, etc., could be landed. This task was effectively carried out.

The anchorages on this coast are all entirely open to the sea, and become untenable at very short notice, so that the work of the Navy was always carried out under considerable difficulty. Nor could the ships working on the flank be adequately guarded against submarine attack, and some losses were experienced, the most important being the sinking of Monitor M15 and the destroyer Staunch by a submarine attack off Deir el Belah (nine miles south of Gaza) in November.

The Navy continued its co-operation with the Army in the Salonika theatre of war, assisted by the Royal Naval Air Service, and bombardments were continually carried out on military objectives. Similarly in the Adriatic our monitors and machines of the R.N.A.S. assisted the military forces of the Allies; particularly was this the case at the time of the Austrian advance to the Piave, where our monitors did much useful work in checking enemy attempts to cross that river.

Off the Gallipoli Peninsula the Naval watch on the mouth of the Dardanelles was continued; extensive new minefields were laid during the year, and were effective in sinking the Breslau and severely damaging the Goeben when those vessels attempted a sortie on January 20, 1918. The R.N.A.S. during the year carried out many long distance reconnaissance and bombing operations over Constantinople and the vicinity.

In the Red Sea Naval operations were carried out in conjunction with friendly Arabs, and the Arabian coast cleared of Turkish forces.

In the White Sea during the latter part of 1917 the whole of the Naval work fell upon British Naval forces when the Russian ships, which had co-operated hitherto, had come under the influence of the political situation. Our force in these waters consisted largely of trawlers engaged in minesweeping and escort work. The latter duty imposed a very heavy strain on officers and men, involving as it did the safe conduct during the year of no fewer than one thousand ships carrying stores and munitions for the Russian military forces.

In the Baltic the situation became very difficult owing first to the Russian revolution and, finally, to the Russian debacle. Our force in these waters consisted of seven submarines. It became evident at the beginning of October, 1917, that the Germans were intending to carry out some operations in the Baltic against Russia, and the question of affording assistance was at once considered by the Naval Staff. It was surmised that but little dependence could be placed on the Russian Baltic Fleet (events showed this surmise to be accurate), and in order to keep our control over the North Sea and ensure the safety of our communications with France it was obvious that for any action we might decide to take we should be obliged to divide the Grand Fleet, sending such portion of that Command into the Baltic as could successfully engage the High Sea Fleet if encountered, as well as to secure the return passage via the Great Belt, and retaining a sufficient force to deal with such German vessels as might attempt operations in the North Sea or Channel during our raid into the Baltic.

There were many ways in which the Germans might seriously hamper, if not entirely prevent, the return of our fleet from the Baltic unless we secured the exits. The Great Belt could easily be closed by block-ships at its narrowest points, and extensive minefields could be laid. It was obvious, therefore, that to secure the exit a strong force would be required, and that it would necessarily occupy a position where it would be open to serious attack.

The initial operation of gaining access to the Baltic via the Great Belt, though not impossible, was difficult, involving as it did sweeping passages through very extensive minefields, and even when our ships were in the Baltic fairly constant sweeping would be necessary.

Finally, the whole operation would be complicated by the question of fuel supply, especially to the destroyers and other small craft with a limited radius of action, since we could not depend upon Russian sources of supply. These were amongst the considerations which made it clear that the operation was not one that I could recommend. The Russian naval view is given in the following statement which appeared in the Russian Press in October:

The Naval General Staff categorically denies the rumours circulated in Petrograd on the 8th and 9th instant, to the effect that the British or French Fleet had broken through to the Baltic Sea.

At the same time it is pointed out that it would be a physical impossibility for the Allies' Fleet to come in from the western entrance, because it would be necessary to pass through the Sound or through one of the two Belts.

Entry to the Sound through Danish or Swedish waters could not also be affected owing to the fact that these waters in part are only 18 feet deep, while large-sized vessels would require at least 30 feet of water.

As regards the entry to the Belts, this would be an extremely hazardous undertaking as parts of the routes are under control of the Germans who have constructed their own defences consisting of mines and batteries.

In these circumstances, according to the opinion of our naval experts, an entrance into the Baltic by the Allies' Fleets could only be undertaken after gaining possession of these waters and the adjacent coast; and then only with the co-operation of land forces.

The Germans had an easy task in the Baltic, as the Russian resistance was not of a serious nature; our submarines attacked on every possible occasion, and scored some successes against German vessels. Towards the end of the year it became necessary to consider the action to be taken in regard to our submarines, as the German control of the Baltic became effective, and the demobilization of the Russian fleet became more and more pronounced. Many schemes for securing their escape from these waters were discussed, but the chances of success were so small, and the submarines themselves possessed so little fighting value owing to their age, that eventually instructions were sent to the senior officer to destroy the submarines before they could fall into German hands.