Chapter II

THE EFFECT OF DEFICIENT COAST-DEFENCE UPON THE MOVEMENTS OF
THE NAVY.--THE MILITARY AND NAVAL CONDITIONS OF SPAIN
AT THE OUTBREAK OF THE WAR.

The unsatisfactory condition of the coast defences, whereby the navy lost the support of its complementary factor in the scheme of national sea power, imposed a vicious, though inevitable, change in the initial plan of campaign, which should have been directed in full force against the coast of Cuba. The four newer monitors on the Atlantic coast, if distributed among our principal ports, were not adequate, singly, to resist the attack which was suggested by the possibilities of the case--though remote--and still more by the panic among certain of our citizens. On the other hand, if the four were massed and centrally placed, which is the correct disposition of any mobile force, military or naval, intended to counteract the attack of an enemy whose particular line of approach is as yet uncertain, their sluggishness and defective nautical qualities would make them comparatively inefficient. New York, for instance, is a singularly central and suitable point, relatively to our northern Atlantic seaboard, in which to station a division intended to meet and thwart the plans of a squadron like Cervera's, if directed against our coast ports, in accordance with the fertile imaginations of evil which were the fashion in that hour. Did the enemy appear off either Boston, the Delaware, or the Chesapeake, he could not effect material injury before a division of ships of the _Oregon_ class would be upon him; and within the limits named are found the major external commercial interests of the country as well as the ocean approaches along which they travel. But had the monitors been substituted for battleships, not to speak of their greater slowness, their inferiority as steady gun-platforms would have placed them at a serious disadvantage if the enemy were met outside, as he perfectly well might be.

It was probably such considerations as these, though the writer was not privy to them, that determined the division of the battle fleet, and the confiding to the section styled the Flying Squadron the defence of the Atlantic coast for the time being. The monitors were all sent to Key West, where they would be at hand to act against Havana; the narrowness of the field in which that city, Key West, and Matanzas are comprised making their slowness less of a drawback, while the moderate weather which might be expected to prevail would permit their shooting to be less inaccurate. The station of the Flying Squadron in Hampton Roads, though not so central as New York relatively to the more important commercial interests, upon which, if upon any, the Spanish attack might fall, was more central as regards the whole coast; and, above all, was nearer than New York to Havana and to Puerto Rico. The time element also entered the calculations in another way, for a fleet of heavy ships is more certainly able to put to sea at a moment's notice, in all conditions of tide and weather, from the Chesapeake than from New York Bay. In short, the position chosen may be taken to indicate that, in the opinion of the Navy Department and its advisers, Cervera was not likely to attempt a dash at an Atlantic port, and that it was more important to be able to reach the West Indies speedily than to protect New York or Boston,--a conclusion which the writer entirely shared.

The country, however, should not fail to note that the division of the armored fleet into two sections, nearly a thousand miles apart, though probably the best that could be done under all the circumstances of the moment, was contrary to sound practice; and that the conditions which made it necessary should not have existed. Thus, deficient coast protection reacts unfavorably upon the war fleet, which in all its movements should be free from any responsibility for the mere safety of the ports it quits. Under such conditions as then obtained, it might have been possible for Spain to force our entire battle fleet from its offensive undertaking against Cuba, and to relegate it to mere coast defence. Had Cervera's squadron, instead of being despatched alone to the Antilles, been recalled to Spain, as it should have been, and there reinforced by the two armored ships which afterwards went to Suez with Cámara, the approach of this compact body would have compelled our fleet to concentrate; for each of our divisions of three ships--prior to the arrival of the _Oregon_--would have been too weak to hazard an engagement with the enemy's six. When thus concentrated, where should it be placed? Off Havana, or at Hampton Roads? It could not be at both. The answer undoubtedly should be, "Off Havana;" for there it would be guarding the most important part of the enemy's coast, blocking the access to it of the Spanish fleet, and at the same time covering Key West, our naval base of operations. But if the condition of our coast defences at all corresponded to the tremors of our seaport citizens, the Government manifestly would be unable to hold the fleet thus at the front. Had it, on the contrary, been impossible for an enemy's fleet to approach nearer than three miles to our sea-coast without great and evident danger of having ships damaged which could not be replaced, and of wasting ammunition at ranges too long even for bombardments, the Spanish battle fleet would have kept away, and would have pursued its proper object of supporting their campaign in Cuba by driving off our fleet--if it could. It is true that no amount of fortification will secure the coasting trade beyond easy gunshot of the works; but as the enemy's battle fleet could not have devoted itself for long to molesting the coasters--because our fleet would thereby be drawn to the spot--that duty must have devolved upon vessels of another class, against which we also would have provided, and did provide, by the squadron of cruisers under Commodore Howell. In short, proper coast defence, the true and necessary complement of an efficient navy, releases the latter for its proper work,--offensive, upon the open seas, or off the enemy's shores.

The subject receives further illumination when we consider, in addition to the hypothetical case just discussed,--the approach of six Spanish ships,--the actual conditions at the opening of the campaign. We had chosen Cuba for our objective, had begun our operations, Cervera was on his way across the ocean, and our battle fleet was divided and posted as stated. It was reasonable for us to estimate each division of our ships--one comprising the _New York_, _Iowa_, and _Indiana_, the other the _Brooklyn_, _Massachusetts_, and _Texas_--as able to meet Cervera's four, these being of a class slightly inferior to the best of ours. We might at least flatter ourselves that, to use a frequent phrase of Nelson's, by the time they had soundly beaten one of these groups, they would give us no more trouble for the rest of the year. We could, therefore, with perfect military propriety, have applied the two divisions to separate tasks on the Cuban coast, if our own coast had been adequately fortified.

The advantage--nay, the necessity--of thus distributing our battleships, having only four enemies to fear, will appear from a glance at the map of Cuba. It will there be seen that the island is particularly narrow abreast of Havana, and that from there, for a couple of hundred miles to the eastward, extends the only tolerably developed railroad system, by which the capital is kept in communication with the seaports, on the north coast as far as Sagua la Grande, and on the south with Cienfuegos and Batabano. This narrowness, and the comparative facility of communication indicated by the railroads, enabled Spain, during her occupation, effectually to prevent combined movements between the insurgents in the east and those in the west; a power which Weyler endeavored to increase by the _trocha_ system,--a ditch or ditches, with closely supporting works, extending across the island. Individuals, or small parties, might slip by unperceived; but it should have been impossible for any serious co-operation to take place. The coast-wise railroads, again, kept Havana and the country adjacent to them in open, if limited, communication with the sea, so long as any one port upon their lines remained unblockaded. For reasons such as these, in this belt of land, from Havana to Sagua and Cienfuegos, lay the chief strength of the Spanish tenure, which centred upon Havana; and in it the greatest part of the Spanish army was massed. Until, therefore, we were ready to invade, which should not have been before the close of the rainy season, the one obvious course open to us was to isolate the capital and the army from the sea, through which supplies of all kinds--daily bread, almost, of food and ammunition--were introduced; for Cuba, in these respects, produces little.

To perfect such isolation, however, it was necessary not only to place before each port armed cruisers able to stop merchant steamers, but also to give to the vessels so stationed, as well on the south as on the north side, a backbone of support by the presence of an armored fleet, which should both close the great ports--Havana and Cienfuegos--and afford a rallying-point to the smaller ships, if driven in by the appearance of Cervera's division. The main fleet--three armored ships--on the north was thus used, although the blockade, from the fewness of available cruisers, was not at first extended beyond Cardenas. On the south a similar body--the Flying Squadron--should from the first have been stationed before Cienfuegos; for each division, as has been said, could with military propriety have been risked singly against Cervera's four ships. This was not done, because it was possible--though most improbable--that the Spanish squadron might attempt one of our own ports; because we had not perfect confidence in the harbor defences; and because, also, of the popular outcry. Consequently, the extremely important port of Cienfuegos, a back door to Havana, was blockaded only by a few light cruisers; and when the Spanish squadron was reported at Curaçao, these had to be withdrawn. One only was left to maintain in form the blockade which had been declared; and she had instructions to clear out quickly if the enemy appeared. Neither one, nor a dozen, of such ships would have been the slightest impediment to Cervera's entering Cienfuegos, raising our blockade by force; and this, it is needless to add, would have been hailed in Spain and throughout the Continent of Europe as a distinct defeat for us,--which, in truth, it would have been, carrying with it consequences political as well as military.

This naval mishap, had it occurred, would have been due mainly to inadequate armament of our coasts; for to retain the Flying Squadron in the Chesapeake, merely as a guard to the coasting trade, would have been a serious military error, subordinating an offensive operation--off Cienfuegos--to one merely defensive, and not absolutely vital. "The best protection against an enemy's fire," said Farragut, "is a well-directed fire from our own guns." Analogically, the best defence for one's own shores is to harass and threaten seriously those of the opponent; but this best defence cannot be employed to the utmost, if the inferior, passive defence of fortification has been neglected. The fencer who wears also a breastplate may be looser in his guard. Seaports cannot strike beyond the range of their guns; but if the great commercial ports and naval stations can strike effectively so far, the fleet can launch into the deep rejoicing, knowing that its home interests, behind the buckler of the fixed defences, are safe till it returns.

The broader determining conditions, and the consequent dispositions made by the Government of the United States and its naval authorities, in the recent campaign, have now been stated and discussed. In them is particularly to be noted the crippling effect upon naval operations produced by the consciousness of inadequate coast defences of the permanent type. The sane conclusion to be drawn is, that while sea-coast fortification can never take the place of fleets; that while, as a defence even, it, being passive, is far inferior to the active measure of offensive defence, which protects its own interests by carrying offensive war out on to the sea, and, it may be, to the enemy's shores; nevertheless, by the fearless freedom of movement it permits to the navy, it is to the latter complementary,--completes it; the two words being etymologically equivalent.

The other comments hitherto made upon our initial plan of operations--for example, the impropriety of attempting simultaneous movements against Puerto Rico and Cuba, and the advisability or necessity, under the same conditions, of moving against both Cienfuegos and Havana by the measure of a blockade--were simply special applications of general principles of warfare, universally true, to particular instances in this campaign. They address themselves, it may be said, chiefly to the soldier or seaman, as illustrating his especial business of directing war; and while their value to the civilian cannot be denied,--for whatever really enlightens public opinion in a country like ours facilitates military operations,--nevertheless the function of coast defence, as contributory to sea power, is a lesson most necessary to be absorbed by laymen; for it, as well as the maintenance of the fleet, is in this age the work of peace times, when the need of preparation for war is too little heeded to be understood. The illustrations of the embarrassment actually incurred from this deficiency in the late hostilities are of the nature of an object lesson, and as such should be pondered.

At the same time, however, that attention is thus called to the inevitable and far-reaching effect of such antecedent neglects, shown in directions where men would not ordinarily have expected them, it is necessary to check exaggeration of coast defence, in extent or in degree, by remarking that in any true conception of war, fortification, defence, inland and sea-coast alike, is of value merely in so far as it conduces to offensive operations. This is conspicuously illustrated by our recent experience. The great evil of our deficiencies in coast armament was that they neutralized temporarily a large part of our navy; prevented our sending it to Cuba; made possible that Cervera's squadron, during quite an interval, might do this or that thing of several things thus left open to him, the result of which would have been to encourage the enemy, and possibly to produce political action by our ill-wishers abroad. Directly upon this consideration--of the use that the Flying Squadron might have been, if not held up for coast defence--follows the further reflection how much more useful still would have been a third squadron; that is, a navy half as large again as we then had. Expecting Cervera's force alone, a navy of such size, free from anxiety about coast defence, could have barred to him San Juan de Puerto Rico as well as Cienfuegos and Havana; or had Cámara been joined to Cervera, as he should have been, such a force would have closed both Cienfuegos and Havana with divisions that need not have feared the combined enemy. If, further, there had been a fourth squadron--our coast defence in each case remaining the same--our evident naval supremacy would probably have kept the Spanish fleet in Europe. Not unlikely there would have been no war; in which event, the anti-imperialist may observe there would, thanks to a great and prepared navy, have been no question of the Philippines, and possibly none of Hawaii.

In short, it is with coast defence and the navy as it is with numbers _versus_ size in battleships. Both being necessary, the question of proportion demands close attention, but in both cases the same single principle dominates: offensive power, not defensive, determines the issues of war. In the solution of the problem, the extent to be given coast defence by fortification depends, as do all military decisions, whether of preparation or of actual warfare, upon certain well-recognized principles; and for a given country or coast, since the natural conditions remain permanent, the general dispositions, and the relative power of the several works, if determined by men of competent military knowledge, will remain practically constant during long periods. It is true, doubtless, that purely military conclusions must submit to some modification, in deference to the liability of a population to panics. The fact illustrates again the urgent necessity for the spread of sound elementary ideas on military subjects among the people at large; but, if the great coast cities are satisfied of their safety, a government will be able to resist the unreasonable clamor--for such it is--of small towns and villages, which are protected by their own insignificance. The navy is a more variable element; for the demands upon it depend upon external conditions of a political character, which may undergo changes not only sudden, but extensive. The results of the war with Spain, for instance, have affected but little the question of passive coast defence, by fortification or otherwise; but they have greatly altered the circumstances which hitherto have dictated the size of our active forces, both land and sea. Upon the greater or less strength of the navy depends, in a maritime conflict, the aggressive efficiency which shortens war, and so mitigates its evils. In the general question of preparation for naval war, therefore, the important centres and internal waterways of commerce must receive local protection, where they are exposed to attack from the sea; the rest must trust, and can in such case safely trust, to the fleet, upon which, as the offensive arm, all other expenditure for military maritime efficiency should be made. The preposterous and humiliating terrors of the past months, that a hostile fleet would waste coal and ammunition in shelling villages and bathers on a beach, we may hope will not recur.

Before proceeding to study the operations of the war, the military and naval conditions of the enemy at its outbreak must be briefly considered.

Spain, being a state that maintains at all times a regular army, respectable in numbers as well as in personal valor, had at the beginning, and, from the shortness of the war, continued to the end to have a decided land superiority over ourselves. Whatever we might hope eventually to produce in the way of an effective army, large enough for the work in Cuba, time was needed for the result, and time was not allowed. In one respect only the condition of the Peninsula seems to have resembled our own; that was in the inadequacy of the coast defences. The matter there was even more serious than with us, because not only were the preparations less, but several large sea-coast cities--for instance, Barcelona, Malaga, Cadiz--lie immediately upon the sea-shore; whereas most of ours are at the head of considerable estuaries, remote from the entrance. The exposure of important commercial centres to bombardment, therefore, was for them much greater. This consideration was indeed so evident, that there was in the United States Navy a perceptible current of feeling in favor of carrying maritime war to the coast of Spain, and to its commercial approaches.

The objection to this, on the part of the Navy Department, was, with slight modifications, the same as to the undertaking of operations against Puerto Rico. There was not at our disposition, either in armored ships or in cruisers, any superfluity of force over and above the requirements of the projected blockade of Cuba. To divert ships from this object, therefore, would be false to the golden rule of concentration of effort,--to the single eye that gives light in warfare. Moreover, in such a movement, the reliance, as represented in the writer's hearing, would have been upon moral effect, upon the dismay of the enemy; for we should soon have come to the end of our physical coercion. As Nelson said of bombarding Copenhagen, "We should have done our worst, and no nearer friends." The influence of moral effect in war is indisputable, and often tremendous; but like some drugs in the pharmacopoeia, it is very uncertain in its action. The other party may not, as the boys say, "scare worth a cent;" whereas material forces can be closely measured beforehand, and their results reasonably predicted. This statement, generally true, is historically especially true of the Spaniard, attacked in his own land. The tenacity of the race has never come out so strongly as under such conditions, as was witnessed in the old War of the Spanish Succession, and during the usurpation of Napoleon.

On the other hand, such an enterprise on our part, if directed against Spanish commerce on the seas, as was suggested by several excellent officers, would have had but a trivial objective. The commerce of Spain was cut up, root and branch, by our expeditions against her colonies, Cuba and Manila; for her most important trade depended upon monopoly of the colonial markets. The slight stream of traffic maintained in Spanish bottoms between the English Channel and the Peninsula, was so small that it could readily have been transferred to neutral ships, whose flag we had for this war engaged should protect enemy's goods. Under these circumstances, the coasts of the Philippines and of Cuba were to us the coast of Spain, and far more conveniently so than that of the home country would have been. A Spanish merchant captain, writing from Barcelona as early as the 7th of May, had said: "At this moment we have shut up in this port the [steam] fleets of five transatlantic companies," which he names. "The sailing-vessels are tied up permanently. Several [named] ships have fallen into the hands of the enemy. Meantime the blockade of Cuba, Puerto Rico, and Manila continues, at least for our flag, and maritime commerce is at a standstill. In Barcelona some foreign firms, exporters to the Philippines, have failed, as well as several custom-house brokers, owing to the total cessation of mercantile movement. The losses already suffered by our trade are incalculable, amounting to much more than the millions needed to maintain a half-dozen armored ships, which would have prevented the Yankees from daring so much." These vessels continued to lie idle in Barcelona until the dread of Commodore Watson's threatened approach caused them to be sent to Marseilles, seeking the protection of the neutral port. A few weeks later the same Spanish writer comments: "The result of our mistakes," in the management of the navy, "is the loss of the markets of Cuba, Puerto Rico, and the Philippines, and, in consequence, the death of our merchant marine." Inquiries were addressed by the state to the Chambers of Commerce, for suggestions as to the opening of new markets, to compensate for the existing suspension of communications with "the over-sea provinces."

With such results from our operations in the Antilles and the Philippines, there was no inducement, and indeed no justification, for sending cruisers across the ocean, until we had enough and to spare for the blockade of Cuba and Puerto Rico. This was at no time the case, up to the close of the war, owing to a combination of causes. The work of paralyzing Spanish trade was being effectually done by the same measures that tended to strangle the Spanish armies in Cuba and the Philippines, and which, when fully developed, would entirely sever their necessary communications with the outside world. Besides all this, the concentration of our efforts upon Cuba, with a subsequent slight extension to the single port of San Juan in Puerto Rico, imposed upon Spain the burden of sustaining the war between three and four thousand miles from home, and spared us the like additional strain. Every consideration so far entertained, therefore, of energy as well as of prudence, dictated the application of all the pressure at our disposal at the beginning of hostilities, and until the destruction of Cervera's squadron, upon Cuba, and in a very minor degree upon Puerto Rico. Indeed, the ships placed before San Juan were not for blockade, properly so called, but to check any mischievous display of energy by the torpedo cruiser within.

After thus noting briefly the conditions of the enemy's coast defences and commerce, there remains to consider the one other element of his sea power--the combatant navy--with regard to its force and to its disposition when war began.

As was before said, the disparity between the armored fleets of the two nations was nominally inconsiderable; and the Spaniards possessed one extremely valuable--and by us unrivalled--advantage in a nearly homogeneous group of five[1] armored cruisers, very fast, and very similar both in nautical qualities and in armament. It is difficult to estimate too highly the possibilities open to such a body of ships, regarded as a "fleet in being," to use an expression that many of our readers may have seen, but perhaps scarcely fully understood.

The phrase "fleet in being," having within recent years gained much currency in naval writing, demands--like the word "jingo"--preciseness of definition; and this, in general acceptance, it has not yet attained. It remains, therefore, somewhat vague, and so occasions misunderstandings between men whose opinions perhaps do not materially differ. The writer will not attempt to define, but a brief explanation of the term and its origin may not be amiss. It was first used, in 1690, by the British admiral Lord Torrington, when defending his course in declining to engage decisively, with an inferior force, a French fleet, then dominating in the Channel, and under cover of which it was expected that a descent upon the English coast would be made by a great French army. "Had I fought otherwise," he said, "our fleet had been totally lost, and the kingdom had lain open to invasion. As it was, most men were in fear that the French would invade; but I was always of another opinion, for I always said that whilst we had a fleet in being, they would not dare to make an attempt."

A "fleet in being," therefore, is one the existence and maintenance of which, although inferior, on or near the scene of operations, is a perpetual menace to the various more or less exposed interests of the enemy, who cannot tell when a blow may fall, and who is therefore compelled to restrict his operations, otherwise possible, until that fleet can be destroyed or neutralized. It corresponds very closely to "a position on the flank and rear" of an enemy, where the presence of a smaller force, as every military student knows, harasses, and may even paralyze offensive movements. When such a force is extremely mobile, as a fleet of armored cruisers may be, its power of mischief is very great; potentially, it is forever on the flank and rear, threatening the lines of communications. It is indeed as a threat to communications that the "fleet in being" is chiefly formidable.

The theory received concrete and convincing illustration during the recent hostilities, from the effect exerted--and justly exerted--upon our plans and movements by Cervera's squadron, until there had been assembled before Santiago a force at once so strong and so numerous as to make his escape very improbable. Even so, when a telegram was received from a capable officer that he had identified by night, off the north coast of Cuba, an armored cruiser,--which, if of that class, was most probably an enemy,--the sailing of Shafter's expedition was stopped until the report could be verified. So much for the positive, material influence--in the judgment of the writer, the reasonable influence--of a "fleet in being." As regards the moral effect, the effect upon the imagination, it is scarcely necessary more than to allude to the extraordinary play of the fancy, the kaleidoscopic effects elicited from our own people, and from some foreign critics, in propounding dangers for ourselves and ubiquity for Cervera. Against the infection of such tremors it is one of the tasks of those in responsibility to guard themselves and, if possible, their people. "Don't make pictures for yourself," was Napoleon's warning to his generals. "Every naval operation since I became head of the government has failed, because my admirals see double and have learned--where I don't know--that war can be made without running risks."

The probable value of a "fleet in being" has, in the opinion of the writer, been much overstated; for, even at the best, the game of evasion, which this is, if persisted in, can have but one issue. The superior force will in the end run the inferior to earth. In the meanwhile, however, vital time may have been lost. It is conceivable, for instance, that Cervera's squadron, if thoroughly effective, might, by swift and well-concealed movements, have detained our fleet in the West Indies until the hurricane of September, 1898, swept over the Caribbean. We had then no reserve to replace armored ships lost or damaged. But, for such persistence of action, there is needed in each unit of the "fleet in being" an efficiency rarely attainable, and liable to be lost by unforeseen accident at a critical moment. Where effect, nay, safety, depends upon mere celerity of movement, as in retreat, a crippled ship means a lost ship; or a lost fleet, if the body sticks to its disabled member. Such efficiency it is probable Cervera's division never possessed. The length of its passage across the Atlantic, however increased by the embarrassment of frequently recoaling the torpedo destroyers, so far over-passed the extreme calculations of our naval authorities, that ready credence was given to an apparently authentic report that it had returned to Spain; the more so that such concentration was strategically correct, and it was incorrect to adventure an important detachment so far from home, without the reinforcement it might have received in Cadiz. This delay, in ships whose individual speed had originally been very high, has been commonly attributed in our service to the inefficiency of the engine-room force; and this opinion is confirmed by a Spanish officer writing in their "Revista de la Marina." "The Americans," he says, "keep their ships cruising constantly, in every sea, and therefore have a large and qualified engine-room force. We have but few machinists, and are almost destitute of firemen." This inequality, however, is fundamentally due to the essential differences of mechanical capacity and development in the two nations. An amusing story was told the writer some years ago by one of our consuls in Cuba. Making a rather rough passage between two ports, he saw an elderly Cuban or Spanish gentleman peering frequently into the engine-room, with evident uneasiness. When asked the cause of his concern, the reply was, "I don't feel comfortable unless the man in charge of the engines talks English to them."

When to the need of constant and sustained ability to move at high speed is added the necessity of frequent recoaling, allowing the hostile navy time to come up, it is evident that the active use of a "fleet in being," however perplexing to the enemy, must be both anxious and precarious to its own commander. The contest is one of strategic wits, and it is quite possible that the stronger, though slower, force, centrally placed, may, in these days of cables, be able to receive word and to corner its antagonist before the latter can fill his bunkers. Of this fact we should probably have received a very convincing illustration, had a satisfactory condition of our coast defences permitted the Flying Squadron to be off Cienfuegos, or even off Havana, instead of in Hampton Roads. Cervera's entrance to Santiago was known to us within twenty-four hours. In twenty-four more it could have been communicated off Cienfuegos by a fast despatch boat, after which less than forty-eight would have placed our division before Santiago. The uncertainty felt by Commodore Schley, when he arrived off Cienfuegos, as to whether the Spanish division was inside or no, would not have existed had his squadron been previously blockading; and his consequent delay of over forty-eight hours--with the rare chance thus offered to Cervera--would not have occurred. To coal four great ships within that time was probably beyond the resources of Santiago; whereas the speed predicated for our own movements is rather below than above the dispositions contemplated to ensure it.

The great end of a war fleet, however, is not to chase, nor to fly, but to control the seas. Had Cervera escaped our pursuit at Santiago, it would have been only to be again paralyzed at Cienfuegos or at Havana. When speed, not force, is the reliance, destruction may be postponed, but can be escaped only by remaining in port. Let it not, therefore, be inferred, from the possible, though temporary, effect of a "fleet in being," that speed is the chief of all factors in the battleship. This plausible, superficial notion, too easily accepted in these days of hurry and of unreflecting dependence upon machinery as the all in all, threatens much harm to the future efficiency of the navy. Not speed, but power of offensive action, is the dominant factor in war. The decisive preponderant element of great land forces has ever been the infantry, which, it is needless to say, is also the slowest. The homely summary of the art of war, "To get there first with the most men," has with strange perverseness been so distorted in naval--and still more in popular--conception, that the second and more important consideration has been subordinated to the former and less essential. Force does not exist for mobility, but mobility for force. It is of no use to get there first unless, when the enemy in turn arrives, you have also the most men,--the greater force. This is especially true of the sea, because there inferiority of force--of gun power--cannot be compensated, as on land it at times may be, by judiciously using accidents of the ground. I do not propose to fall into an absurdity of my own by questioning the usefulness of higher speed, _provided_ the increase is not purchased at the expense of strictly offensive power; but the time has come to say plainly that its value is being exaggerated; that it is in the battleship secondary to gun power; that a battle fleet can never attain, nor maintain, the highest rate of any ship in it, except of that one which at the moment is the slowest, for it is a commonplace of naval action that fleet speed is that of the slowest ship; that not exaggerated speed, but uniform speed--sustained speed--is the requisite of the battle fleet; that it is not machinery, as is often affirmed, but brains and guns, that win battles and control the sea. The true speed of war is not headlong precipitancy, but the unremitting energy which wastes no time.

For the reasons that have been given, the safest, though not the most effective, disposition of an inferior "fleet in being" is to lock it up in an impregnable port or ports, imposing upon the enemy the intense and continuous strain of watchfulness against escape. This it was that Torrington, the author of the phrase, proposed for the time to do. Thus it was that Napoleon, to some extent before Trafalgar, but afterward with set and exclusive purpose, used the French Navy, which he was continually augmenting, and yet never, to the end of his reign, permitted again to undertake any serious expedition. The mere maintenance of several formidable detachments, in apparent readiness, from the Scheldt round to Toulon, presented to the British so many possibilities of mischief that they were compelled to keep constantly before each of the French ports a force superior to that within, entailing an expense and an anxiety by which the Emperor hoped to exhaust their endurance. To some extent this was Cervera's position and function in Santiago, whence followed logically the advisability of a land attack upon the port, to force to a decisive issue a situation which was endurable only if incurable. "The destruction of Cervera's squadron," justly commented an Italian writer, before the result was known, "is the only really decisive fact that can result from the expedition to Santiago, because it will reduce to impotence the naval power of Spain. The determination of the conflict will depend throughout upon the destruction of the Spanish sea power, and not upon territorial descents, although the latter may aggravate the situation." The American admiral from before Santiago, when urging the expedition of a land force to make the bay untenable, telegraphed, "The destruction of this squadron will end the war;" and it did.

In other respects it is probable that the Spanish admiral had little confidence in a squadron which, whatever the courage or other qualities of the officers and seamen, had never manoeuvred together until it left the Cape de Verde Islands. Since its destruction, a writer in a Spanish naval magazine has told the following incident: "A little more than a year ago we visited General Cervera in La Carraca, [the Cadiz arsenal], and we said to him: 'You appear to be indicated, by professional opinion, for the command of the squadron in case war is declared.' 'In that case,' he replied, 'I shall accept, knowing, however, that I am going to a Trafalgar.' 'And how could that disaster be avoided?' 'By allowing me to expend beforehand fifty thousand tons of coal in evolutions and ten thousand projectiles in target practice. Otherwise we shall go to a Trafalgar. Remember what I say.'"

It is curious to contrast with this well-founded fear of an experienced and gallant officer, expressed in private conversation, the opinion of another Spanish officer, lately Minister of Marine, reported to the Madrid public through a newspaper,--the "Heraldo," of April 6, 1898. It illustrates, further, the curious illusions entertained in high quarters in Spain:

"We had an opportunity to-day of talking for a long time with General Beranger, the last Secretary of the Navy under the Conservative Cabinet. To the questions which we directed to him concerning the conflict pending with the United States, he was kind enough to inform us that he confided absolutely in the triumph of our naval forces.... 'We shall conquer on the sea, and I am now going to give you my reasons. The first of these is the remarkable discipline that prevails on our warships; and the second, as soon as fire is opened, the crews of the American ships will commence to desert, since we all know that among them are people of all nationalities. Ship against ship, therefore, a failure is not to be feared. I believe that the squadron detained at Cape de Verde, and particularly the destroyers, should have, and could have, continued the voyage to Cuba, since they have nothing to fear from the American fleet.'"

The review from which Cervera's opinion is quoted has, since the disasters to the Spanish Navy, been full of complaints and of detailed statements concerning the neglect of the navy, both in its material and in drills, during the antecedent months of peace, owing to the practice of a misplaced, if necessary, economy. But that economy, it is justly argued, would not have been required to a disabling degree, if so disproportionate an amount of money had not been expended upon the army, by a state whose great colonial system could in war be sustained only by a fleet. "In more than a year," writes a captain in the Spanish Navy, "we have had only one target practice, and that limited in extent, in order to expend the least possible amount of ammunition." The short brilliant moments of triumph in war are the sign and the seal of the long hours of obscure preparations, of which target practice is but one item. Had even the nominal force of Spain been kept in efficient condition for immediate action, the task of the United States would have been greatly prolonged and far from so easy as it has been since declared by those among our people who delight to belittle the great work our country has just achieved, and to undervalue the magnanimity of its resolution to put a stop to outrages at our doors which were well said to have become intolerable. Neither by land nor by sea was the state of the case so judged by professional men, either at home or abroad. It was indeed evident that, if we persevered, there could be but one issue; but this might have been postponed, by an active opponent, long enough to have disheartened our nation, if it was as easily to be discouraged by the difficulties and dangers, now past, as it is in some quarters represented again to be by the problems arising out of the war and its conquests. Such discouragement, perplexity, and consequent frustration of the adversary's purposes are indeed the prime function of a "fleet in being,"--to create and to maintain moral effect, in short, rather than physical, unless indeed the enemy, yielding to moral effect, divides his forces in such wise as to give a chance for a blow at one portion of them. The tendency to this also received illustration in our war. "Our sea-coast," said a person then in authority to the present writer, "was in a condition of unreasoning panic, and fought to have little squadrons scattered along it everywhere, according to the theory of defence always favored by stupid terror." The "stupidity," by all military experience, was absolute--unqualified; but the Navy Department succeeded in withstanding the "terror"--the moral effect--so far as to compromise on the Flying Squadron; a rational solution, though not unimpeachable. We thus, instead of a half-dozen naval groups, had only two, the combination of which might perhaps be effected in time enough.

FOOTNOTES:

[1] In this number is included the _Emperador Carlos V._; which, however, did not accompany the other four under Cervera.