15. It is insistently asked (was asked by myself) why shipping
is not directed to and concentrated at various rendezvous and
from these convoyed through the dangerous areas. The answer
is the same the area is too large ; the necessary vessels are
not available.
16. However, I am now consulting with the Director of Shipping as to the practicability and advisability of attempting some approach to such a plan in case the United States is able to put in operation sufficient tonnage to warrant it.
17. After trying various methods of controlling shipping, the Admiralty now believes the best policy to be one of dispersion. They use about six relatively large avenues or arcs of approach to the United Kingdom and Channel, changing their limits or area periodically if necessity demands.
Generally speaking, one is to the north of Scotland, another to the north of Ireland, and three or four others covering the Irish Sea and Channel. Individual ships coming into any of these areas of approach are instructed, generally before sailing, to cross the twentieth meridian at certain and different latitudes and thence steer certain courses to port.
At times in the past they have found one of these avenues of approach free of submarines under such conditions as to lead them to concentrate shipping therein, but invariably the enemy has become aware of the course pursued.
18. The great difficulty in any method of shipping control is communication with the shipping itself and full co-operation by the merchant personnel. The moment a ship is captured the code either becomes dangerous or useless. The merchant code is being continually changed, and at all times it cannot be counted upon for more than a fortnight. The immense difficulty of changing the code and keeping shipping all over the world in touch with changes is apparent.
19. Continual trouble is experienced with some merchant Captains taking the law into their own hands and exhibiting contempt, or at least indifference, for Admiralty instruc- tions. The American Liner New York upon which I took passage furnishes a typical example. She was instructed to make Fastnet Light at daylight but she passed it about nine P.M., thus passing in daylight through the most dangerous area.
20. The Admiralty has had frequent conferences with Merchant masters and sought their advice. Their most unanimous demand is " Give us a gun and let us look out for ourselves." They are also insistent that it is impracticable for merchant vessels to proceed in formation, at least in any considerable numbers, due principally to difficulty in controlling their speed and to the inexperience of their subordinate officers.
