as a whole, there is no necessity for any high sea protection on our own coast. The submarine as a type of war vessel possesses no unusual characteristics different from those of other naval craft, with the single exception of its ability to submerge for a limited time. The difficulty of maintaining distant bases is the same for the submarine as it is for other craft. As long as we maintain control of the sea as far as surface craft are concerned, there can be no fear of the enemy establishing submarine bases in the Western Hemisphere.
10. To take an extreme illustration, if the enemy could be led or forced into diverting part of his submarine effort to the United States coast, or to any other area distant from the critical area surrounding the coast of France and the United Kingdom, the anti-submarine campaign would at once be won. The enemy labours under severe difficulties in carrying out his campaign, even in this restricted area, owing to the material limitations and the distances they must operate from their bases, through extremely dangerous localities. The extent of the United States coastline and the distances between its principal commercial ports preclude the possibility of any submarine effort in that part of the world except limited operations of diversion designed to affect public opinion, and thereby hold our forces from the vital field of action.
11. The difficulties confronting the convoy system are, of course, considerable. They are primarily involved in the widely dispersed ports of origin of merchant shipping; the difficulty of communication by cable; the time involved by communications by mail; and the difficulties of obtaining a co-operation and co-ordination between Allied Governments.
As reported by cable despatch, the British Government has definitely reached the decision to put the convoy system into operation as far as its ability goes. Convoys from Hampton Roads, Canada, Mediterranean, and Scandinavian countries are already in operation. Convoys from New York will be put in operation as soon as ships are available. The British navy is already strained beyond its capacity, and I therefore urgently recommend that we co-operate, at least to the extent of handling convoys from New York.
12. The dangers to convoys from high sea raiders is remote, but, of course, must be provided against, and hence the necessity for escorting cruisers or reserve battleships. The necessity is even greater, however, for anti-submarine craft in the submarine war zone.
13. As stated in my despatches, the arming of merchantmen is not a solution of the submarine menace, it serves the single purpose of forcing the submarine to use torpedoes instead of guns and bombs. The facts that men-of-war cannot proceed
