ality
that was needed. It was a very difficult matter for those in authority
in the United States, separated as they were by 3,000 miles of sea from
the theatres of war, to realize the conditions in European waters, for
the Admiralty was not concerned only with the North Sea and Atlantic,
and the terse and straightforward reports of Admiral Sims, and his
convincing statements, went a long way towards bringing home to the
United States people at that time the extreme gravity of the situation
and the need for immediate action. He was consistently backed up by that
great ambassador, the late Mr. W.H. Page, who also honoured me with his
confidence, and to whom I spoke perfectly freely on all occasions.

The assistance from the United States that it was hoped was now in sight
made the prospect of success following on the adoption of the convoy
system far more favourable, and preparations were put in hand for the
institution of an ocean convoy system on a large scale. In order to gain
some experience of the difficulties attending the working of cargo
ships, directions were given for an experimental convoy to be collected
at Gibraltar. The necessary officers were sent out to Gibraltar with
orders to assemble the convoy, to instruct the masters in the work that
lay before them, and to explain to them the system of sailing, the
manner in which the convoy would be handled, and the protection that
would be afforded. This naturally took time, and the convoy did not
arrive in England until after the middle of May. The experience gained
showed, however, that the difficulties apprehended by the officers of
the Mercantile Marine were not insuperable, and that, given adequate
protection by cruisers and small fast craft, the system was at least
practicable. It was accordingly decided to put it into operation at
once, and to extend it as rapidly as the increase in the numbers of our
destroyers and sloops permitted.

The North Atlantic homeward-bound trade was brought under convoy in May,
1917, and the Gibraltar homeward-bound trade in July, but for some
months it was impossible to provide for the institution of a complete
convoy system. At first some 40 per cent, of the homeward-bound trade
was convoyed. Then the system was gradually extended to include first 60
per cent., then 80 per cent., and finally 100 per cent, of the homeward
Atlantic trade and the trade from Gibraltar, trawlers being used as
escorts for the Gibraltar trade, as th