The weather during the latter part of 1917 was exceptionally bad, and great congestion and consequent delay to shipping occurred both at Lerwick and in the Norwegian ports.

As the result of this congestion it became necessary to increase largely the number of ships in each convoy, thereby enhancing the difficulty of handling the convoy.
At the commencement it had been decided to limit the size of a Scandinavian convoy to six or eight vessels, but as the congestion increased it became necessary to exceed this number considerably, occasional convoys composed of as many as thirty to forty ships being formed.

A contributory cause to the increase in the size of convoys was due to the fact that the trade between Lerwick and the White Sea, which had been proceeding direct between those places during the first half of 1917, became the target of persistent submarine attack during the summer, and in order to afford them protection it was necessary in the autumn to include these ships also in the Scandinavian convoy for the passage across the North Sea.

Between the coast of Norway and the White Sea they proceeded independently, hugging territorial waters as far as possible.
It will be realized that the institution of the convoy system of sailing for the Scandinavian trade necessitated an extensive organization on the Norwegian as well as on the British side of the North Sea.

For this reason Captain Arthur Halsey, R.N., was appointed in March, 1917, as Naval Vice-Consul at Bergen, and the whole of the arrangements in regard to the working of the convoys, the issue of orders, etc., from the Norwegian side came under him and his staff, to which additions were made from time to time.