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BE KEPT U N D E R LOCK A N D K E Y
It is requested that special care m a y bo tak* -.
tnsuro thi secrecy of this document.
rO
.XS THE PROPERTY OP HXS
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WJPJ42)
A T S R J P L Y J
510
1
9
4
8
WAR CABINET
S H I P P I N G COMMITTEE
SECOND REPORT
'
THIS DOCUMENT I S T H E P R O P E R T Y OF H I S B R I T A N N I C M A J E S T Y ' S G O V E R N M E N T
Printed
for the War Cabinet.
SECRET.
July 1942.
'
Copy N o .
S.C. (42) 45 ( F i n a l ) .
July
21,
1942.
TO BE
KEPT
UNDER
LOCK
AND
KEY
I t is requested t h a t special care may be t a k e n to
ensure the secrecy of this document
WAR
CABINET.
S h i p p i n g Committee.
SECOND
REPORT.
I . — S U M M A R Y OF CONCLUSIONS.
I N our first r e p o r t (S.C. (42) 20) (Final), p a r a g r a p h s 18 and 19, we r e f e r r e d
to economies which m i g h t be secured in the use of shipping by the armed forces.
We now submit a f u r t h e r r e p o r t showing the progress which is being made in t h i s
direction. T h e results of our enquiry may be summarised as follows :—
Capacity of
troopships.
2. T h e capacity of troopships h a s recently been increased on an average by
29 per cent, from 129 to 166 men per 1,000 gross registered tons. A s a result,
2-24 million gross tons of personnel s h i p p i n g in service now carries as much as
would formerly have been c a r r i e d by 2-88 million gross tons. ( P a r a g r a p h 13.)
Shipment of supplies from the most economical
source.
3. T h e r e r e m a i n s some possibility for f u r t h e r economies in the use of
tonnage by the elimination of i m p o r t s into a n d exports from t h i s country of
vehicles of broadly similar types, a n d also of the import into this country of
materials for the m a n u f a c t u r e of vehicles for e x p o r t which could be supplied from
North America. The general W a r Office policy is not to import i n t o the U n i t e d
Kingdom a n y type of vehicle of which, the c o u n t e r p a r t is exported from the
United K i n g d o m . Every effort should be m a d e to persuade C a n a d i a n and U n i t e d
States m i l i t a r y a u t h o r i t i e s to agree to make use of British-made vehicles for t h e i r
forces in t h i s country. ( P a r a g r a p h s 18 to 20.)
4. I t should be noted t h a t the considerations set out in p a r a g r a p h 3 above
apply not only to vehicles but also to all types of warlike stores. T h i s subject is
under constant examination w i t h the A m e r i c a n s a n d considerable progress h a s
been made.
Trans-African
routes.
5. I t is estimated t h a t some 130,000 gross tons of s h i p p i n g could be released
permanently for employment elsewhere by the full development of a T r a n s African land route as an alternative to shipments via the Cape. Some deduction
from this figure m u s t be m a d e to allow for the shipment of m a t e r i a l s necessary to
develop and m a i n t a i n the route. ( P a r a g r a p h s 22 and 23.)
[24127]
B
^27
Packing
of vehicles.
- 6. U n t i l recently the m a j o r i t y of vehicles t r a n s p o r t e d from the United
K i n g d o m have been presented in an extremely uneconomical form for shipment
T h e percentage packed in May, however, was a p p r o x i m a t e l y 15 p e r cent, of the
t o t a l of W a r Office and A i r M i n i s t r y vehicles shipped, which i n this instance
represented a saving in i m p o r t i n g capacity of 80,000 tons. T h e development
of a new type of p a c k k n o w n as t h e ' ' Delta ' ' p a c k (estimated to take 3-4
months) should be pressed f o r w a r d as a m a t t e r of urgency. ( P a r a g r a p h s 24
to 28).
Scope for Further
Economies.
7. For t h e reasons set out in p a r a g r a p h 18 of our first report, we consider
t h a t the use of s h i p p i n g by t h e Services bulks . so l a r g e in the total t h a t any
significant reduction which m i g h t be effected would p e r m i t a s u b s t a n t i a l increase,
i n U n i t e d K i n g d o m i m p o r t s . I t should be remembered, however, t h a t the
Service use of s h i p p i n g includes tonnage r e q u i r e d for supplies to Russia and
a l l troopships.
8. Short of a modification of m i l i t a r y p l a n s themselves—the imposition
of which by reason of scarcity of s h i p p i n g it is a p r i n c i p a l object of policy
to avoid—there a r e two directions in which such economy m i g h t be sought
(a) by p a r i n g down the scales of equipment, reserves a n d m a i n t e n a n c e of forces
o p e r a t i n g overseas, and (b) by reducing the volume of s h i p p i n g required to
t r a n s p o r t a given q u a n t i t y of w a r l i k e stores a n d personnel.
Encouraging
results, which we have described above, have a l r e a d y been achieved in this
respect.
9. W e have not felt competent to examine i n detail the present scales
of equipment, maintenance a n d reserves considered necessary for the Services
(see p a r a g r a p h s 15 a n d 16 below). B u t if s h i p p i n g were n o t available in
sufficient q u a n t i t y to meet all Service demands, i t would clearly be for
consideration w h e t h e r such scales could not in some cases be reduced without
loss of efficiency r a t h e r t h a n t h a t t h e scope of o u r m i l i t a r y o p e r a t i o n s themselves
should be restricted. W e u n d e r s t a n d t h a t a Committee is now examining the
possibility of r e d u c i n g the scale of vehicles r e q u i r e d by the A r m y .
10. A s r e g a r d s s h i p p i n g economies of the more technical type, considerable
progress has recently been m a d e a n d s u b s t a n t i a l economies have been effected.
F u r t h e r investigations are being made by the S h i p p i n g Space Economics
Committee a n d these a r e being rigorously followed u p . W e cannot emphasise
too strongly the importance of this field of economy.
11. The economies already effected or contemplated a r e very considerable,
b u t we would p o i n t out t h a t there must be a l i m i t to the p u r e l y " s h i p p i n g "
economies t h a t can be effected item by item a n d t h a t if, by a reconsideration
of establishments a n d reserves, a cut could be imposed i n m i l i t a r y cargo shipping
requirements considerable relief to our import p r o g r a m m e would be rendered
possible.
II.—THE
M O V E M E N T OF
PERSONNEL.
Elimination
of Unnecessary
Moves.
12. T h e r e is very little movement of Service personnel of a non-operational
character. Leave, and relief on medical grounds, a r e k e p t to a minimum, and,
wherever possible, naval personnel a r e given passages on H i s M a j e s t y ' s ships.
Increase in Capacity of
Troopships.
13. Since t h e beginning of this year, v a r i o u s steps have been taken,
i n c l u d i n g r e d u c t i o n to t h e m i n i m u m of facilities for exercise a n d other amenities,
to increase the numbers of men c a r r i e d per s h i p . T h e number of men carried
p e r 1,000 gross register tons h a s risen in the case of " Monsters " by 51 per cent,
from 87 to 131, i n t h e case of W . S . ships by 37 p e r cent., from 128 to 174,
a n d in the case of smaller ships engaged p e r m a n e n t l y in the I n d i a n Ocean by
2 per cent, from 164 to 167. On the average capacity h a s been increased by
29 p e r cent, from 129 to 166 men per 1,000 gross register tons. A s a result
of these improvements the 2 - 2 4 million gross tons of personnel s h i p p i n g i n
service a t mid-1942 h a d a t r o o p i n g capacity which would formerly have r e q u i r e d
an a d d i t i o n a l -64 million gross tons. No reliable i n f o r m a t i o n is available
regarding the c a p a c i t y of A m e r i c a n troopships.
Such information as is
available w o u l d i n d i c a t e a figure of about 195 men p e r 1,000 gross register tons,
but it is not k n o w n w h e t h e r U n i t e d States capacities a r e based on long or short
voyages, t r o p i c a l conditions or otherwise.
Use of cargo vessels
14. T h e extent
number of personnel
steps have, however,
for carrying
personnel.
to w h i c h c a r g o vessels can be a d a p t e d to c a r r y an increased
is limited by t h e loss of cargo space involved. The following
been t a k e n :—
(i) F o u r w h a l i n g factories a n d seven cargo liners have already been fitted
to c a r r y betweenfeteeaa56 a n d 165 personnel.
(ii) T h r e e more cargo liners a r e now being fitted a n d three vessels under
construction will be so fitted. Three vessels released by the A d m i r a l t y
will also be fitted to c a r r y some personnel.
(iii) A number of cargo vessels have h a d their accommodation increased so
as to carry u p to about 24 personnel.
These increases in p a s s e n g e r c a r r y i n g capacity will be m a d e at little expense to
cargo c a r r y i n g capacity.
I n -view of the increased c a r r y i n g capacity of o u r troopships referred to i n
(b) above, it is n o t intended a t the moment to u n d e r t a k e f u r t h e r w o r k on i n c r e a s i n g
passenger accommodation in any cargo vessels.
I I I . — T H E S H I P M E N T OF S E R V I C E
SUPPLIES.
Scales of initial equipment,
maintenance and reserves.
15. W e have not h a d before us a n y q u a n t i t a t i v e i n f o r m a t i o n r e g a r d i n g
scales of e q u i p m e n t , m a i n t e n a n c e a n d reserves of a r m y a n d a i r force u n i t s . These
vary a g r e a t deal according to the n a t u r e of the u n i t a n d t h e t h e a t r e a n d c h a r a c t e r
of operations a n d we h a v e not felt it is w i t h i n our competence to e n q u i r e i n t o
these m a t t e r s in detail. W e u n d e r s t a n d , however, t h a t A r m y u n i t e q u i p m e n t is
kept u n d e r c o n s t a n t review by a S t a n d i n g Commission. I n a d d i t i o n a special
Committee i s now e x a m i n i n g the scale of vehicles r e q u i r e d by the A r m y , w i t h a
view to i t s reduction. A n y such reduction would r e s u l t in a s u b s t a n t i a l saving
in s h i p p i n g space. As r e g a r d s maintenance, s h i p m e n t s to established t h e a t r e s
of war a r e m a d e in response to specific demands for items actually deficient a n d
not on a u t o m a t i c book allocations. Similarly, the A i r M i n i s t r y also keep all
scales of e q u i p m e n t under constant review, a n d t h e e q u i p m e n t for each R . A . F .
unit going overseas is carefully checked to ensure t h a t only essential items a r e
included.
Scales of supplies and reserves of food.
16. T h e a g g r e g a t e w e i g h t of a r m y food r a t i o n s per m a n per month e q u a l s
117 lbs. net in the Middle E a s t (of which 55 lbs. is obtained w i t h i n the area) a n d
129 lbs. i n I n d i a (of which 98 lbs. is obtained locally). These figures a p p l y mainly
to troops in the base a r e a a n d slight a d j u s t m e n t s would be necessary for f o r w a r d
troops. W h e r e circumstances permit, the N . A . A . F . I . Corporation supplies beer,
spirits, a n d in suitable climates chocolate, which a r e t o g e t h e r equivalent to some
25 to 29 lb. p e r m a n per m o n t h a d d i t i o n a l to the A r m y r a t i o n . T h e General Staff
minimum reserve stock of food is equal to 90 days' s u p p l y in the Middle E a s t
and the same i n t h e a t r e s of operations in I n d i a . I n a d d i t i o n the Middle E a s t
has a fluctuating reserve a m o u n t i n g to up to 60 d a y s ' supply and the a r m y in
India h a s a second-line reserve equivalent to 6 m o n t h s ' supply.
17. Recent progress i n the production of foodstuffs in a concentrated form,
such as d r i e d eggs dried milk a n d d e h y d r a t e d root vegetables, offer a possible
field for economising s h i p p i n g space of which the m a x i m u m a d v a n t a g e should
be taken.
[24127]
A
Shipment
of supplies to theatres of war from the source most economical of
shipping.
18. A m o n g s t warlike stores the g r e a t e s t scope for economy is provided by
shipments of vehicles. Efforts have been m a d e to obtain as large a proportion
as possible of the vehicles r e q u i r e d for E a s t e r n t h e a t r e s of w a r from North
A m e r i c a r a t h e r t h a n from the U n i t e d Kingdom, t h u s avoiding any unnecessary
i m p o r t of m a t e r i a l s or finished vehicles i n t o t h i s country. T h e following table
shows the success w i t h which these efforts have been attended.
TABLE
Number
of Vehicles
I.
Transported
Technical
Vehicles, &c.
in first
half of 1942.
Load
Carriers.
Cars and
Ambulances.
Total.
N o r t h A m e r i c a to U n i t e d K i n g d o m
2,242
3,673
878
6,793
U n i t e d K i n g d o m t o Africa, M i d d l e E a s t ,
I n d i a , A u s t r a l i a and New Z e a l a n d
Of which in o p e r a t i o n a l m o v e s ...
R e m a i n d e r ...
6,574
15,240
1,826
23,640
3,933
2,641
12,820
2,420
1,270
556
18,023
5,617
2,499
62,214
7,561
72,274
11,315
81,127
10,265
102,707
N o r t h A m e r i c a t o Africa, M i d d l e E a s t ,
P e r s i a n Gulf, I n d i a , A u s t r a l i a a n d
New Zealand
Total Shipments
...
*
* E x c l u d i n g a r m o u r e d fighting v e h i c l e s a n d c e r t a i n other t y p e s .
19. L o a d carriers, cars a n d ambulances a r e p r a c t i c a l l y ' all s h i p p e d from
N o r t h A m e r i c a , w i t h the exception of those accompanying o p e r a t i o n a l moves of
complete u n i t s from this country which are still held to r e q u i r e t h e full comple­
m e n t of vehicles of all types. Technical vehicles a r e still, in the m a i n , provided
from the U n i t e d Kingdom, b u t efforts a r e being m a d e to t a k e a s m a n y as possible
from N o r t h A m e r i c a . T h e R A F . send no load c a r r i e r s from t h i s country. Only
technical vehicles accompany u n i t s in o p e r a t i o n a l moves, the load carriers
provided from N o r t h America being d r a w n a t d e s t i n a t i o n from W a r Department
stocks.
20. I t is clear, however, t h a t there r e m a i n s some possibility of further
economies in t h e use of tonnage t h r o u g h (a) e l i m i n a t i n g t h e i m p o r t into and
e x p o r t from t h i s country of vehicles of broadly s i m i l a r types, a n d (b) eliminating
t h e import i n t o this country of m a t e r i a l s for t h e m a n u f a c t u r e of vehicles for
e x p o r t w h i c h could be supplied from N o r t h A m e r i c a . These considerations apply
equally to other types of w a r l i k e stores. T h e W a r Office policy on vehicles is to
avoid i m p o r t i n g i n t o the U n i t e d K i n g d o m a n y t y p e of which the counterpart is
e x p o r t e d from t h e U n i t e d K i n g d o m . E x c e p t i o n a l circumstances h a v e occasionally
been held i n t h e p a s t to necessitate a t e m p o r a r y d e p a r t u r e from this policy.
Every effort should be m a d e to p e r s u a d e the C a n a d i a n and- U n i t e d S t a t e s military
a u t h o r i t i e s t o agree to make use of B r i t i s h - m a d e vehicles a n d e q u i p m e n t for their
forces in t h i s country. T h e necessary c o u n t e r p a r t of t h i s would be t h e shipment
of a l a r g e r q u a n t i t y of vehicles from N o r t h A m e r i c a for the u s e of B r i t i s h forces
x
in the E a s t .
:
21. A s r e g a r d s warlike stores other t h a n vehicles, t h e possibilities of
m a k i n g economies of the k i n d mentioned a t (a) a n d (b) of p a r a g r a p h 20 above
a r e u n d e r constant examination witih the A m e r i c a n s a n d considerable progress
h a s been m a d e .
jj e of Trans-A frican route to the Middle
East.
22. A considerable saving in tonnage employed on the long haul t o t h e
Jiiddle E a s t t h e a t r e of w a r could be achieved by t h e full u t i l i s a t i o n of t r a n s African routes. T h e t a r g e t figure for the r o u t e via the Congo, the development of
nhich is largely a W a r Office responsibility, is at present 30,000 tons of "stores
and 800 vehicles p e r month.
s
23. I t is e s t i m a t e d t h a t , should t h i s figure be achieved for s h i p m e n t s from
the United K i n g d o m to M a t a d i , as an a l t e r n a t i v e to shipments via t h e Cape, some
130,000 gross tons of s h i p p i n g would be released p e r m a n e n t l y for employment
elsewhere. A g a i n s t this m u s t be set increased d e m a n d s on s h i p p i n g for p r o ­
vision of m a t e r i a l s , e q u i p m e n t , & c , to develop a n d m a i n t a i n t h e r o u t e .
Tacking of vehicles.
24. Vehicles a r e being s h i p p e d from N o r t h America a n d the U n i t e d
Kingdom in very l a r g e numbers a n d in various types of pack, w i t h various degrees
of breakdown, d e p e n d i n g on t h e destination, t y p e of vehicle, a n d the source of
supply. T h e following table gives figures for shipments of W a r Office vehicles to
the Eastern t h e a t r e s of w a r d u r i n g the p e r i o d J a n u a r y to J u n e 1 9 4 2 , according
to the type of p a c k employed : —
TABLE 2 .
Shipments of War Office Vehicles
to June
1 9 4 2 to Eastern
Theatres
of
N u m b e r of V e h i c l e s s h i p p e d .
Cubic
1 Measurements
of P a c k for
L o a d Carriers,
3-ton G . S .
3 t o n , 30 cwt.,
Other
Bodv
Total.
15 cwt. and
Types.
(cu. f t . ) .
smaller types.
T v p e of P a c k .
Fro
From
m Unite
United
d Kingdom—
On w h e e l s . ....
cases))
Case
Cased
d ( 2 v e h i c l e s i n 3 cases
January
War.
.. .
1,420
720
12,889
2,351
8,170
230
21,059
2,581
Fro
From
m Nort
North
h America—
case))
Alpha
Alpha ( 1 v e h i c l e i n 1 case
cases))
.. .
Beta
Beta (2 v e h i c l e s i n 3 cases
C.K.D.. (24
C.K.D
(2 4 v e h i c l e s i n 4 7 cases
cases))
1,013
762
326
201
39,030
' 22,983
6,062
2,430
1,568
6,263
41,460
24,551
77,454
18,460
95,914
Total
2 5 . I t will be seen t h a t t h e m a j o r i t y of vehicles from t h e U n i t e d K i n g d o m
have been p r e s e n t e d -in an extremely uneconomical form for shipment, namely
fully set u p on t h e i r wheels. Considerable p r o g r e s s h a s , however, been m a d e m
packing these vehicles i n recent months, a n d the percentage p a c k e d in M a y w a s
about 1 5 p e r cent, of t h e t o t a l W a r Office a n d A i r M i n i s t r y vehicles s h i p p e d t o
all destinations as compared w i t h 2 p e r cent, i n A p r i l . T h e p r o p o r t i o n packed
in June h a s risen to about 1 9 p e r cent. T h e a c t u a l saving m s h i p p i n g due to
the packing of some 1 , 1 2 6 W a r Office vehicles d u r i n g M a y h a s been e s t i m a t e d
as equivalent t o about 8 0 , 0 0 0 tons d e a d w e i g h t of imports on the N o r t h A t l a n t i c
route; though i t cannot of course be assumed t h a t on a l l occasions circumstances
would be similar, o r t h a t w e could count o n a s a v i n g of about 7 0 tons of imports
for every vehicle sent packed i n s t e a d of on wheels from the U n i t e d K i n g d o m to
the Middle E a s t . * Vehicles s h i p p e d from t h e U n i t e d K i n g d o m m a packed form
* I n t h i s p a r t i c u l a r i n s t a n c e t h e m a j o r i t y of p a c k e d v e h i c l e s were s h i p p e d on a divisional
"Mve and t h e a c t u a l d e s t i n a t i o n w a s n o t definite. H a d all t h e vehicles b e e n s h i p p e d u n b o x e d
certain n u m b e r of a d d i t i o n a l v e s s e l s w o u l d u n d o u b t e d l y h a v e b e e n n e c e s s a r y . T h e c a l c u l a t i o n ,
Wever, d o e s n o t allow for a n y n o n - d i v i s i o n a l c a r g o w h i c h would o t h e r w i s e h a v e b e e n s h i p p e d
* the vessels e l i m i n a t e d frorcTthe m o v e b y r e a s o n of t h e p a c k i n g of vehicles.
a
have so far been limited to the larger type load c a r r i e r s a n d some semi-technical
vehicles, but a new pack for 15-cwt. trucks h a s recently been developed. All
load c a r r i e r s a r e to be despatched packed a n d a t t e n t i o n is now being given to the
possibility of p a c k i n g certain types of technical vehicles a n d smaller types, such
a s 8-cwt. t r u c k s and cars.
26. L o a d c a r r i e r s for the R . A . F . are mainly d r a w n at destination from
W a r D e p a r t m e n t stocks, b u t some success h a s already been achieved in reducing
the height of R . A . F . technical vehicles s h i p p e d from the U n i t e d Kingdom.
27. T h e g r e a t e r the number of packages per vehicle the easier it will be to
stow them, b u t a g a i n s t this m u s t be set the h i g h e r r i s k t h a t i m p o r t a n t components
may be lost in t r a n s i t a n d the increased difficulty of assembly. For instance,
shipments in a C.K.D. form (the most economical type of pack) require compli­
cated assembly facilities a n d can therefore only be u n d e r t a k e n to areas where
suitable p l a n t exists, e.g., I n d i a a n d A u s t r a l a s i a .
28. N u m e r o u s types of pack are already in use for shipments from United
States and C a n a d a . A new t v p e of pack (Delta) has now been adopted as a
s t a n d a r d form of pack for shipments to t h e M i d d l e E a s t from. N o r t h America
a n d the U n i t e d Kingdom. I t s cubic measurements are 394 cubic feet for the
s t a n d a r d 3-ton lorry a s compared w i t h 762 cubic feet for t h e existing Beta pack
from N o r t h America. W h i l e t h i s pack is i n course of development (which it is
estimated will take 3-4 months), a n i n t e r m e d i a t e type (Gamma) will be utilised.
I t is understood t h a t t h i s l a t t e r pack, which, like the D e l t a pack, shows a con­
siderable s a v i n g over the e x i s t i n g packs used for the M i d d l e East, can be
introduced almost immediately for s h i p m e n t s from N o r t h A m e r i c a .
Signed on behalf of the Committee :
HARCOURT
Great George Street,
S.W.1.
July 2 1 , 1942. JOHNSTONE,
Chairman.
have so far been l i m i t e d to the l a r g e r type load c a r r i e r s a n d some semi-technical
vehicles, b u t a n e w pack for 15-cwt. trucks h a s recently been developed. All
load c a r r i e r s are t o be despatched packed a n d a t t e n t i o n is now being given to the
possibility of p a c k i n g certain types of technical vehicles a n d smaller types, such
a s 8-cwt. t r u c k s a n d cars.
26. L o a d c a r r i e r s for the R . A . F . are mainly d r a w n at destination from
W a r D e p a r t m e n t stocks, b u t some success has already been achieved in reducing
the h e i g h t of R . A . F . technical vehicles shipped from the U n i t e d Kingdom.
27. T h e g r e a t e r the number of packages per vehicle the easier it will be to
stow them, b u t a g a i n s t this m u s t be set t h e h i g h e r r i s k t h a t i m p o r t a n t components
may be lost in t r a n s i t and the increased difficulty of assembly. For instance,
shipments i n a C.K.D. form (the most economical type of pack) r e q u i r e compli­
cated assembly facilities a n d can therefore only be u n d e r t a k e n to areas where
suitable p l a n t exists, e.g., I n d i a a n d A u s t r a l a s i a .
28. N u m e r o u s types of pack a r e already in use for shipments from United
S t a t e s and C a n a d a . A new type of pack (Delta) has now been adopted as a
s t a n d a r d form of pack for shipments to the M i d d l e E a s t from N o r t h America
and the U n i t e d K i n g d o m , I t s cubic measurements a r e 394 cubic feet for the
s t a n d a r d 3-ton lorry a s compared w i t h 762 cubic feet for the existing Beta pack
from N o r t h America. W h i l e this pack is in course of development (which it is
estimated will t a k e 3 - 4 months), an i n t e r m e d i a t e type (Gamma) will be utilised,
i t is understood t h a t this latter pack, which, like "the Delta pack, shows a con­
siderable saving over the existing packs used for the M i d d l e East, can be
introduced almost immediately for shipments from N o r t h America.
Signed on behalf of the Committee :
HARCOURT
Great
George Street,
S.W.1,
July 2 1 , 1942. JORNSTONE.
Chairman.