Navy War Council

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The Navy War Council was an ad hoc committee of the Royal Navy formed in October, 1909 to perform the basic function of a naval staff, and to formulate naval war plans and study naval strategy.

Background

In May, 1909, the Director of Naval Intelligence, Rear-Admiral The Honourable Alexander E. Bethell, submitted a proposal for a "Navy War Council", comprised of: the First Sea Lord as President; the Director of Naval Intelligence as Vice-President; an "Assistant Director for War"; the President, and the Captain of the Royal Naval War College; the Naval Assistant to the First Sea Lord. The head of the Naval Intelligence Department's War Division and the Commander of the Royal Naval War College were to act as Joint Secretaries.[1]

The Council was formed of four permanent ex-officio members, being assigned the following responsibilities;

Other department heads of the Admiralty could be summoned, to act as members of the council as and when their expertise was required.

The Assistant Secretary to the Admiralty, W. Graham Greene, admitted to a former Director of Naval Intelligence, Edmond J. W. Slade, that:

Of course the scheme is open to criticism, but its success or failure will depend upon how it is worked; and I am hopeful that it will be possible to make it a reality, & not a mere shadow.[2]

By contrast, Captain Herbert W. Richmond, Flag Captain to the Commander-in-Chief, Home Fleet, raged in his diary weeks later:

The next thing of importance is that the Admiralty have started a War Council: it is the most absurd bit of humbug that has ever been produced for a long time: it pretends to be the Basis of a General Staff, but its constitution shews that whoever devised it has no ideas of what a staff is wanted for, or the particular functions of such a body. The result of the Committee of Enquiry has therefore merely been to produce an absurd anomaly called a War Council, which means nothing: The study of war forms no part of its work. The 1st Sea Lord remains supreme & imposes his crude strategical ideas on the nation.[3]

Minutes

Taken from the Minute book of the Navy War Council held at the National Archives.[4]

13 October, 1909

Present

Procedure & general arrangements for carrying on the work of the Navy War Council set forth by President. Meetings to take place weekly on Wednesday morning.

First subject to be considered by Council was question of numbers to be provided in Estimates 1910-1911, having regard to manning requirements on mobilization under possible strategic conditions. As a preliminary DNM to enquire & prepare statement as to extent to which 129,000 Officers & Men could man existing fleet.

20 October, 1909

Present

The President briefly recapitulated the proceedings of the last meeting, referring to a statement made by Admiral of Fleet Sir A. Wilson at a C.I.D. meeting on the question of preparation of war plans. He read a paper on general protection of trade & the present arrangement for dealing with German Cruisers on distant stations. The question of the use of modern submarines in war with special reference to the North Sea was then touched upon.

3 November, 1909

Present
  • Admiral of the Fleet Sir John A. Fisher
  • Rear-Admiral The Hon. Alexander E. Bethell
  • Rear-Admiral Herbert G. King-Hall
  • W. Graham Greene

Vice-Adml Sir F. Bridgeman present for a time. general discussion upon manning requirements of the Navy with reference to Navy Estimates 1910-1911.

4 November, 1909

Present
  • Reginald McKenna
  • Vice-Admiral Sir Francis C. B. Bridgeman
  • Rear-Admiral The Hon. Alexander E. Bethell
  • Rear-Admiral Herbert G. King-Hall
  • W. Graham Greene

Question of manning requirements discussed. Adml King Hall explained the result of his enquiries to date & gave certain data as to the number of ships for which full crews would be required on mobilisation. A discussion followed as to the requirements under certain contingencies of war with Germany or Germany & another power, & the First Lord suggested that the War Council would do well to work out in the first place for consideration war plans based on the supposition of war with Germany or of war with Germany & Austria in combination. From the point of view of manning the First Sea Lord observed that the question turned upon whether (a) Special Service Battleships (b) S.S. Cruisers & (c) Fleet Auxiliaries would have to be manned at once on the issue of the warning telegram & what their duties would be in the early stages of the war operations & he urged that this should be given first consideration .._ No final decision arrived at.

1 February, 1910

Present
  • Admiral of the Fleet Sir Arthur K. Wilson
  • Rear-Admiral The Hon. Alexander E. Bethell
  • Rear-Admiral Herbert G. King-Hall
  • Captain Henry F. Oliver
  • W. Graham Greene

Papers were read before the Council, being certain War Office letters of 13th & 24th Nov 1909, on the subject of the measures to be taken during the Precautionary Period on the Clyde, at Barrow, & on East Coast of Scotland. After discussion it was decided that the War Office should be written to on lines indicated in minutes agreed to on the papers.

22 February, 1910

Present
  • Admiral of the Fleet Sir Arthur K. Wilson
  • Rear-Admiral The Hon. Alexander E. Bethell
  • Rear-Admiral Herbert G. King-Hall
  • W. Graham Greene
  • Captain Henry F. Oliver
  • Captain Stuart Nicholson
  • J. W. Anderson
  • Alexander Flint
  • Lieutenant John A. Slee

First Sea Lord explained that the subject he wished to discuss was the arrangements to be made in order to mobilize partially the War Staff at the Admiralty during the period from 28 Feb - 9 March, when the Second Division of the Home Fleet & Second Cruiser Squadron were on the way to Vigo. During the time the system for reporting the movements of the various fleets, & squadrons & individual ships in Home Waters, as well as for the collection of information about foreign ships, &c., was to be brought into use & maintained as on a war footing. War signal stations, however, were not to be manned. A provisional statement by the Head of M Branch as to the anticipated position of the Fleet in Home Waters during the period in question was considered. Proposals by the DNI. & DNM & Head of M for the establishment of a system of attendance of their staff in watches was approved. The staffs of the DNI & DNM to be amalgamated for the purpose of maintaining watches in the War Room, certain members of the DNI's staff being detailed to deal particularly with intelligence as to trade protection & foreign movements & schemes as apart from foreign fleet movements. Decided that DNI or DNM would be always present & that one of the three wireless expert officers[,] Captain Nicholson, Lieut [Arthur E.] Silvertop or Lieut Slee should also be in constant attendance. Camp bedsteads to be provided for their use if desired. Also arrangements to be made with Luncheon Comee for refreshments during the nights. Question of telephonic communications between the Admiralty & First Sea Lord's house to be into with the view of improving it & preventing it from being tapped. Scheme of watches was to commence on Monday 28 Feb at 4 p.m.

12 April, 1910

Present
  • Admiral of the Fleet Sir Arthur K. Wilson
  • Rear-Admiral The Hon. Alexander E. Bethell
  • Rear-Admiral Herbert G. King-Hall
  • W. Graham Greene

Question of General Idea of Naval Manœuvres 1910 discussed & D.N.M's draft scheme elaborating the First Sea Lord's proposals being considered in detail up to page 22 of the memo: - One or two points were reserved for further consideration at next meeting.

22 April, 1910

Present
  • Admiral of the Fleet Sir Arthur K. Wilson
  • Rear-Admiral Herbert G. King-Hall
  • W. Graham Greene
  • Captain Stuart Nicholson
  • Lieutenant Arthur E. Silvertop
  • Lieutenant John A. Slee
  • Captain Henry F. Oliver

General Idea of Naval Manœuvres further considered. The arrangements as regards W. S. Stations & W.T. Stations were discussed with officers present & provisionally settled. Decided that Commodore (T) of Destroyer Flotillas should be instructed to prepare revised rules for putting Torpedo craft out of action, especially when flotillas are operating against each other. Question of engaging temporarily one or two Fleet Auxiliaries to be considered. In mean while paper to be printed.

10 June, 1911

Present
  • Admiral of the Fleet Sir Arthur K. Wilson
  • Rear-Admiral Herbert G. King-Hall
  • W. Graham Greene
  • Captain Henry F. Oliver

Revised draft of general scheme of Naval Manœuvres considered & amended. To be printed off finally & issued for general guidance.

Proposed future arrangements as to War Room & attendance of staff approved by First Sea Lord.

Footnotes

  1. "Proposals by Director of Naval Intelligence for carrying out the Duties of a General Staff and Re-organisation of the Naval Intelligence Department." 15 May, 1909. The National Archives. ADM 1/8047.
  2. Greene to Slade. Letter of 10 September, 1909. Slade Papers. National Maritime Museum. MRF/39/1.
  3. Diary entry for 27 October, 1909. Richmond Papers. National Maritime Museum. RIC/1/8.
  4. "Navy War Council: Minutes." The National Archives. ADM 116/3090.

Bibliography

  • Naval Staff, Training and Staff Duties Division (1929). The Naval Staff of the Admiralty. Its Work and Development. B.R. 1845 (late C.B. 3013). Copy at The National Archives. ADM 234/434.