The authorities then consider the Plan both from the view of general outlook and from that of detailed requirements. Let us suppose that the Plan is considered to be of value, and that no objections hold good as to the practicability of execution provided the ships and men are available. This latter proviso then requires attention. Many questions have to be considered. Can the ships be diverted from their present duties? What special alterations or additions are necessary? Can the dockyard undertake the work? If so, to what extent will other work in hand be interrupted? Will the men require special training? Are the necessary stores ready at hand? How long will the preparations take? And so on. A hundred and one points must be carefully enquired into. It is only after a great deal of investigation, correspondence with various departments, and conferences for co-ordinating the results of enquiries, that the details can be arranged. A plan served up in the form of a mosaic is of little more use than the works of a chronometer contained in half a dozen different boxes.
In course of time decisions are arrived at and orders are issued for the preparatory work to be taken in hand. But it is unlikely that all the proposals contained in the first edition of the plan have been agreed to. Modifications are almost sure to be necessary. Perhaps the suggested vessels are required for other purposes and substitutes must be forthcoming. The technical experts may decide that different types of material would lead to improvement. Possibly the facilities for special training of the personnel are not available at the moment. The plan must, therefore, be re-drafted on the basis of the personnel and material available, and must take into consideration the dates by which the various phases of the preparatory work can be completed. All this takes time and serves as a reminder, indeed, that patience is a virtue. The second edition of the plan is evolved and the next stage is reached.
But put aside, for a moment, the question of what material and personnel are available. When a plan, conveying a general idea, has come under the critical examination of the Higher Command to the extent of being "passed" for the commencement of detailed preparation, it has then to be gradually built up from the operational point of view. Additions will almost always be necessary as the investigation proceeds, and some time will elapse before the plan can be considered as complete in every particular.
A further duty then devolves upon the operational staff. They must produce the orders necessary to give effect to the plan as detailed in its final edition.
Writing of the Orders
This again is no small affair. The writing of orders is a high art in itself. Orders must not be too centralized or too cut-and-dried. Ample allowance must be made for initiative, while realising that mere go-as-you-please methods are likely to lead to disaster. It is usually the unexpected that happens in war. A single set of orders cannot cover every eventuality. And even if it could, nobody would have either the time or inclination to wade through such a voluminous document. This is clearly enough exemplified in legal matters. Laws are framed to cover every possible case, but as often as not they fail to attain such success. Even so, how many ordinary folk can be bothered to wade through a legal document? What with the alternatives, and saving clauses, such publications are dull to a degree. The marriage laws are typical of this. A man may not marry his grandmother. That clause was presumably inserted for the discomfiture of that unique individual who might contemplate such a peculiar alliance.
The issue of orders needs careful training and much experience. Orders must be fool-proof—that is the guiding axiom. If an order is misunderstood it is ten chances to one that the fault lies with the man who gives the order.
If I have sorely tried the patience of the reader it is because of my endeavour to emphasise the point that the order "carry on" is not sufficient to put a suggestion into execution in the matter of a few hours. New situations have to be met by fresh dispositions, and this fact has come very much to the fore in these days of strife.
The operations on the Flanders coast were the outcome of some months of hard work—mental as well as manual. A few details of the plan may now be worthy of consideration.
On December 3, 1917, the plan had emanated from an Admiralty Department under the direction of Rear-Admiral Keyes, Director of Plans, to give him his titles at that time. The nature of the operation and the customary procedure, having regard to the locality concerned, would entail its execution coming under the command of the Vice-Admiral at Dover. The latter apparently desired to modify the plan and submitted his proposals on December 18th. He suggested the idea that an attack on the Mole, not previously mentioned in the plan, should accompany the blocking operations. As a diversion (pardon the anticipation) this idea was eventually embodied after exhaustive consideration had shown it to be necessary.