But, whether it be prosecuted by sea or by land, war is largely a matter of efficient and adequate organization.

It is a common saying that we muddle through our wars, but we could not afford to muddle in face of the threat which the enemy's unrestricted submarine campaign represented.

It is impossible, therefore, to approach the history of the successful efforts made by sea to overcome this menace without describing in some detail the work of organization which was carried out at the Admiralty in order to enable the Fleet to fulfil its new mission.

In effect those responsible for the naval policy of the country conducted two wars simultaneously, the one on the surface, and the other under the surface.

The strategy, tactics and weapons which were appropriate to the former, were to a large extent useless in the contest against mines and submarines which the enemy employed with the utmost persistency and no little ingenuity.