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Trafalgar of the East: Why the Russian Navy Failed in the Russo-Japanese War

By Aidan Clarke

The Russo-Japanese War saw the Imperial Russian Navy soundly beaten by the Imperial Japanese Navy. While much of the analysis on the Russo-Japanese War focuses on the Battle of Tsushima and the success of the Japanese Admiral Tōgō Heihachirō, one can also look to understand the deficiencies present in the Imperial Russian Navy that contributed to this defeat. The causes for this shocking defeat can be compared with the challenges of the Russian Empire as a whole. Russian naval culture, like that of its civilian society, had been built on an outdated system of social class, with nobles (particularly nobles with partial German ancestry) rising as officers, while talented sailors languished in the conscripted ranks. Just as the Tsar’s attempts at reforming Russian society failed to fully solve the deep-seated cultural problems of the Empire, and prevent the 1905 Revolution, Russian attempts at naval reform through the 1885 naval qualifications statute would also fail creating a new class of risk-averse and bureaucratic officers. The initial naval battle outside Port Arthur, and the ultimate defeat of the Port Arthur squadron in the Battle of the Yellow Sea, reflect these failings.

A Fish Rots from the Head

Of all the weaknesses which the Imperial Russian Navy suffered from during the Russo-Japanese War, none were so glaring as the failings of the officer corps. These officers were generally more concerned with their own advancement rather than success in battle. Tellingly, they suffered from over-bureaucratization and a failure to encourage initiative among their ranks.

Before the war, the Russian Navy was more superficial than substantive, suffering from general disorganization, as well as shortcomings of its personnel. While Tsar Nicholas “was attracted to military traditions and pageantry” he was also uninformed, and willing to tolerate “the often unproductive interference of uniformed Grand Dukes in the running of the army and navy.”1 The role of the nobility in the navy was a pernicious problem for Imperial Russia. In 1881, the highest position in the Imperial Navy, the General Admiral, was given to Grand Duke Alexei Alexandrovich, who was Tsar Nicholas’ uncle. Almost certainly his position was not given on his merit, as the Director of the Navy Ministry, Vice Admiral I.A. Shestakov, felt the Grand Duke was “not an efficient administrator, being more interested in external appearances and the opposite sex than tackling professional issues.”2 The professional problems of the Imperial Russian Navy also extended to the realm of strategic planning and discourse. Prior to the war, the navy had no general staff, and “until the outbreak of the war in 1904, the Navy Ministry had not issued a coherent official tactical doctrine.”3 There was almost no centralized planning at all in the navy, with operational strategy left to “makeshift fleet staffs in different geographical theaters” and subject to the “personal directions and whims” of regional commanders.4

In order to reduce nepotism in the advancement of naval officers and promote professionalism in the navy, the Russian state implemented the naval qualifications statute of 1885, under which “promotions were regulated by a rigid system hinging on specific terms spent at sea, available vacancies, and recommendations by superiors.”5 Ostensibly, this common-sense reform ought to have improved professionalism and efficiency within the fleet. Unfortunately, in most cases it had the opposite effect. The new promotion system “stifled talent and initiative”6 while encouraging officers to maintain a “bureaucratic temperament.” This meant that rather than adapting to the circumstances and seizing on enemy weaknesses, Russian officers “placed great stress on avoiding situations where they might attract criticism from above.”7 They focused on “external appearances and the superficial completion of service requirements.”8 In other words, captains and admirals spent more time inspecting brass pipes and white uniforms than they did testing the readiness of their men for war. This system meant that “the typical Russian officer seemed more at peace within himself when it was the enemy who had the initiative.”9 According to J.N. Westwood, “Russian naval officers were the product of a bureaucratic society in which avoidance of blame was more important than technical competence or imaginative enterprise.”10 This has been a common problem in naval history, perhaps most visible in the stagnation of the Royal Navy, laid bare in the Battle of Jutland.11

From the onset of the war, this failing reared its ugly head. The Commander of the Russian Pacific Squadron, Vice-Admiral Oscar Victorovich Stark, had recognized the dangers posed by Japan in light of the deteriorating diplomatic situation. He had repeatedly requested Admiral Yevgeni Ivanovich Alekseyev, Commander in Chief of Imperial Forces in Port Arthur and Manchuria, as well as Viceroy of the Imperial Russian Far East, “to permit him to prepare the fleet for war.”12 However, Alekseyev dismissed Stark’s fears on the grounds that they were “premature and escalatory.”13 Admiral Alekseyev did not see much of a threat from the Japanese, and a report from Vice-Admiral Wilhelm Withöft (a Russian-German noble) argued that the Russian “plan of operations should be based on the assumption that it is impossible for our fleet to be beaten.”14 Regardless, Vice-Admiral Stark did attempt to work around these restrictions, ordering his crews to put out torpedo nets and prepare for a Japanese surprise attack. However, he could not appear to undercut the noble Withöft or Alekseyev (who was a son of the Tsar), and in the end, “so low-key was the instruction in relation to the Supreme Commander’s known views that…nothing was done.”15 Captains and crews did not wish to contradict Admiral Alekseyev, regardless of the orders from the local commander, and few took any precautions.

Admiral Yevgeni Ivanovich Alekseyev (By Alexander Fedorovich Pershakov/Wikimedia Commons)

There is a common misperception of soldiers and sailors as mindless automatons, following orders like pieces on a chess board. In this image, there is little wrong with the decision of the officers of the Pacific Squadron to yield to the will of Alekseyev and not that of Vice Admiral Stark. However, by the time the Russo-Japanese War began, this model was already outdated, and had largely been replaced with the relatively new concept of auftragstaktik (commonly translated as mission command in English).16 Mission command requires junior officers to “use their own initiative” and adapt to their own circumstances in order to achieve a mission defined by “a superior commander’s concept of operations.”17 Mission command is ultimately a superior model because it recognizes that those on the frontlines often have the best perception of their own situation, and that communication in war is susceptible to interruption, confusion, and misunderstanding (the fog of war). Allowing local commanders to maneuver as best suits them will allow them to minimize their casualties and complete their objectives more rapidly, while avoiding wasted opportunities or fatal miscommunications. In this context, as the local commander, Vice-Admiral Stark had a much clearer view of the threat posed by Japan, while Alekseyev, concerned with Russian objectives across all of Asia, did not. Admiral Alekseyev’s failure to defer to the local awareness of Vice Admiral Stark reflects Russia’s failure to adapt to modern military thought. 

Admiral Alekseyev deserves special attention in considering the failures of the Russian officer corps. Directly beneath him in the chain of command were Vice-Admiral Makarov (after his replacement of Vice-Admiral Stark) and General Kuropatkin. It should be recognized that these two figures were viewed as “the two best officers for their respective posts.”18 Makarov in particular was “Russia’s most competent admiral” and “was certainly Tōgō’s equal.”19 Despite this, Russia’s cultural deference to the nobility left Makarov and Kuropatkin “under Alekseyev, whose ego far outstripped his energy and competence.”20 Stark, Makarov, and ultimately, Withöft all found themselves hamstrung by their superiors, while the Japanese left Admiral Tōgō Heihachirō free to operate as he saw fit. This was a critical difference, and it played a major role in Russia’s ultimate defeat.

That is not to say that Vice-Admiral Stark or any of his replacements should be absolved of blame. Frederic William Unger, an American war correspondent who followed and wrote extensively about the war, noted that when the first Japanese attack on Port Arthur began, “Many of the Russian naval officers were ashore, celebrating with appropriate festivities the birthday of Admiral Stark.”21 While others including J.N. Westwood dispute this claim, Richard Connaughton argues that the party was “entirely in keeping with his reputation as a fun-loving partygoer.”22 Perhaps more importantly, the party’s guests included Admiral Alekseyev himself, as well as several other critical officers. Thus, on the night of February 8th, when Admiral Tōgō launched his initial torpedo attack, the Russian pacific squadron was unprepared and leaderless. Within ten minutes a Russian cruiser, the Pallada, a battleship, the Retvizan, and worst of all, the pride of the Russian Navy and most powerful ship in the Pacific Squadron, the Tsarevitch, had all been hit by torpedoes and were at least temporarily disabled. The Retvizan in particular suffered badly. Having hit Retvizan in the bow, a Japanese torpedo was able to open “a hole through which a car could be driven.”23 

Port Arthur viewed from the Top of Gold Hill, after capitulation in 1905. From left wrecks of battleships: Peresvet, Poltava, Retvizan, Pobeda and Pallada cruiser. (Wikimedia Commons)

The loss of these ships, although temporary, would prove critical. Over the next several months, the Japanese enjoyed total control of the seas, while the Russian Navy could only attempt to rebuild its capabilities. This allowed the Japanese a free hand to land vast numbers of troops in Manchuria, forcing the hand of the Russian Navy, and creating the circumstances for Japan’s ultimate victory.

Battle of the Yellow Sea: The Death of the Pacific Squadron

As Japanese ground forces fought their way closer to Port Arthur, they began raining artillery down on the Pacific Squadron, which for the last six months had failed to even attempt to contest control of seas.24 Petrified as they were of failure, the death of Admiral Makarov in the entrance to the harbor as his ship hit a mine, paralyzed all ensuing Russian officers. In August 1904, as the land battle continued to rage, Viceroy Alekseyev demanded that the most recently appointed commander of the Pacific Squadron, Rear-Admiral Wilhelm Withöft, take the remainder of the Russian Pacific Squadron to Vladivostok. Withöft stalled as long as he could, but before long he “received orders of a more peremptory tone from both the Viceroy and the Tsar.”25 Despite the urging of his superior, Withöft held several councils of war, and together he and his captains agreed that their position dictated they stay in port. Alekseyev ignored Withöft and repeated that this decision was not only in contradiction to his orders, but was also against the wishes of the Tsar.26 Finally, after yet more protests from Withöft, Alekseyev informed the Vice-Admiral that “if the Port Arthur squadron failed to put to sea despite his and the Tsar’s wishes, and was destroyed in Port Arthur, it would be a shameful dishonor.” Furthermore, Alekseyev reminded Withöft of the example of “the cruiser Varyag” which had “put to sea fearlessly to fight a superior force.”27 Of course, Alekseyev did not mention the fate of the Varyag, though Withöft doubtless knew it had been demolished by heavy Japanese fire and had been scuttled at great cost to its crew.

The refusal of the squadron to put to sea appears as cowardice, but in truth, there was good logic to Withöft’s decision to stay in port. Firstly, Withöft was still under the impression that the Russian Baltic Squadron would arrive by October. So reinforced, the Russian Pacific Squadron would be able to concentrate their force, allowing them to confront Tōgō with “overwhelming Russian battleship superiority,” forcing the Japanese admiral to either abandon the field or face near certain defeat. Port Arthur only needed to hold on for three months, and the war could yet be won. Furthermore, the ships of the Port Arthur squadron were contributing supporting fire to the defenders of the Port, and their mere presence prevented the possibility of a Japanese amphibious attack. In short, “an inert Russian squadron in Port Arthur was of far greater strategic value than a bold squadron at the bottom of the sea.”28 

Withöft’s logic had one inherent flaw: the Baltic squadron would not arrive by October, in fact it would not even arrive for another nine months. Alekseyev was “probably aware”29 that this was the case, but neglected to inform the local commander, instead offering only strict and inflexible orders. Under these circumstances, bureaucratic Russian officers responded the only way they could, with fatalistic obedience. Accusations of cowardice on the part of Withöft and his captains are inaccurate: “they were more frightened of failure than death.”30

On August 10th, 1904, the Pacific Squadron put to sea with six battleships, four cruisers, and eight torpedo boats. The Japanese matched them with four battleships, six or seven cruisers, 17 destroyers, and 29 torpedo boats.31 While this did give the Russian fleet a nominal advantage in first-class battleships, two of the six “were the old, lumbering, Poltava and Sevastopol.32 There seemed to be no doubt of the outcome in the mind of Admiral Withöft, whose last words before stepping onto his flagship were: “Gentlemen, we shall meet in the next world.”33 As the ships of the Port Arthur squadron began their flight for Vladivostok, they “displayed the unwelcome effects of a fleet cooped up in port.”34 Stricken with mechanical issues, Russian engineers worked frantically to achieve the maximal speed of the squadron, while their ships lagged and the formation was repeatedly forced to stop and wait for others to catch up. Later, the Russian gunnery would suffer from a lack of practice as well. As the Russian ships affected their repairs, the faster Japanese ships were also allowed to catch up, and the battle began in earnest at 12:30 PM.35 

Japanese battleship Mikasa (Wikimedia Commons)

For the next five hours, the two fleets would shell each other from long range. For most of the battle, the Russians gave as good as they got, scoring powerful hits on the leading Japanese ships, Mikasa, Shikishima, and Asahi. As Mikasa took a number of hits, she, and the Japanese line, began to slow. Tōgō soon found himself trailing behind the Russian fleet. “He had been out-maneuvered” and Vice-Admiral Withöft “had secured the best position possible.”36 Then, as it so often does, pure chance completely changed the course of the battle.

At 5:45 PM, a pair of Japanese 12-inch shells slammed into the bridge of the Russian flagship Tsarevitch, killing Admiral Withöft and all of his staff, and jamming the wheel of Tsarevitch hard over, forcing the Russian flagship into a dramatic circle.37 It was at this point in the battle that the failings of the Russian officer corps became manifest. Contemporary accounts and modern historians agree that “the effort of the Russian ships to fight their way through the Japanese would probably have been successful…had it not been for the disaster to the battleship Tsarevich.”38 Without Withöft, chaos reigned in the Russian fleet. Withöft’s replacement as commander of the squadron was Prince Pavel Petrovich Ukhtomsky. Ukhtomsky’s immediate problem was that his signals mast and lines were shot away, forcing him to signal from the bridge, where only the ships nearest him could see them. However, this was probably the least of the Prince’s problems. As he signaled “follow me” to his ships, Prince Ukhtomsky turned back toward Port Arthur – a somewhat ironic decision given that he had been one of the officers pushing Vice Admiral Withöft to attempt a breakout to Vladivostok in the first place.

Ukhtomsky was not held in any high regard in the Russian Navy. Many in the fleet believed that “he owed his position to connections rather than ability” and he was derided as “a second rate man.”39 His decision to return to Port Arthur made little sense, as the Russian stronghold “could no longer offer a safe haven” and “there was a strong probability that that a significant part of the squadron could have reached Vladivostok.”40 Just as in the forthcoming 1905 revolution, some of the Russian ships simply refused to follow the orders of the nobility, personified by Prince Ukhtomsky. In particular, the light cruiser Novik made a dash for Vladivostok, but was finally defeated after being sighted by a Japanese freighter.41

While the majority of the Russian ships did return to Port Arthur, the Russian mission was a dramatic failure. Although it had lost only one battleship (Tsarevich was forced to shelter in a German port where she was interned), the Port Arthur squadron was so damaged that it would never put to sea again. Russian ground troops were disgusted by this failure, and according to a Russian correspondent, “there was nothing but abuse and curses for the naval officers, from the highest to the lowest.”42 Prince Ukhtomsky’s decision to turn around and return to Port Arthur was an enormous blunder. In so doing, he trapped himself and the squadron in the port, where they would be shelled and sunk, eliminating any value they could have offered to Admiral Rozhestvensky and the Baltic fleet. While he may have feared the loss of most of his ships, “even one battleship at Vladivostok would have been a serious embarrassment for Tōgō when he faced the oncoming Baltic squadron.”43 Instead, Ukhtomsky’s decision removed the Port Arthur squadron entirely from the playing field.  This was an immense strategic victory for Japan, who could now use their artillery to sink the Russian ships, while allowing Tōgō and the Navy to prepare for the upcoming battle with the Baltic Squadron. 

Conclusion

The Battle of Tsushima was decided well before the Russian and Japanese Fleets met. Admiral Rozhestvensky’s words on the expedition indicate his feelings on the prospects of the mission: “We are doing now what needs to be done still, defending the honor of the flag. It was at a previous stage that another course ought to have been taken….Sacrifice the fleet if need be, but at the same time deliver a fatal blow to Japanese naval power.”44 These words, so drenched in the presumption of defeat and complete fatalism, rival those of Admiral Villeneuve on the eve of Trafalgar as some of the least inspiring in naval history. Rozhestvensky was right of course, he had little hope of defeating the Japanese. His fleet was comprised of untrained officers and crews on brand-new ships, which were as yet untested. He had to sail across the globe, hardly stopping for shore, and having to deal with embarrassments such as the Dogger Bank incident, when his untested and nervous crews mistook British fishing trawlers for Japanese torpedo boats, and began pouring fire into them. This incident caused a great deal of enmity towards Russia, causing the Royal Navy to shadow Rozhestvensky for much of his journey, and a number of other nations to deny him access to their port facilities for resupply. When the time for battle finally came, the Russians were disorganized and unprepared. Untested in battle, their fire was “indifferent and ineffective.”45 The exhausted and overwhelmed Rozhestvensky was badly wounded and could only watch as the Japanese picked his fleet apart.

However, Russia’s naval failures in the Russo-Japanese War cannot be laid entirely on his account. Had the Tsar been able to consolidate his squadrons before giving battle to the Japanese, the outcome of the war would likely have been vastly different. However, without any fleet-wide strategic or operational planning, the Imperial Navy was left disjointed and dispersed, while the Japanese could concentrate their forces in their home waters. What little planning there was took place on a localized level, and was hampered by feckless, disinterested officers, parochial interests, corruption, and nepotism, wasting Russia’s quantitative advantages. 

However, perhaps the decisive factor in the Russo-Japanese War was the bureaucratic and indecisive nature of the officers in the Russian Navy. Rather than encourage initiative and free their captains to adapt to the circumstances at hand, Russian naval culture rewarded paper pushers and officers whose crews spent more time cleaning their guns than firing them. Worse still, a gerontocratic Russian state meant that modern techniques and technologies were ignored in favor of the outdated practices of noble officers, who had little interest or ability in naval warfare. Russian officers were thus hesitant in the moments of crisis, incapable of decisive action. Meanwhile, their crews, filled with conscripts and trained for inspections rather than combat, were entirely outmatched by the remarkably professional and extremely well-motivated Imperial Japanese Navy.

Japanese victory in the Russo-Japanese War was undoubtedly the result of Japanese superiority in a number of critical areas. However, the most telling asymmetry between Japan and Russia in the war was the disparity between their leadership, laid bare in the heat of battle.

Aidan Clarke is an undergraduate student at Furman University, double majoring in History and Politics and International Affairs, with an interest in naval affairs. He has previously researched the U.S.-Soviet naval showdown during the Yom Kippur War, and is currently conducting a research project on the Russo-Japanese War.

References

1. Nicholas Papastratigakis, Russian Imperialism and Naval Power, Military Strategy and the Build-up to the Russo-Japanese War, 2011, (New York: I.B. Tauris & Co. Ltd), 45.

2. Ibid, 46.

3. Ibid, 47; Ibid, 42.

4. Ibid, 48.

5. Ibid, 53.

6. Ibid, 53; J.N. Westwood, Russia Against Japan, 1904-05. 1986, (New York: State University of New York Press), 1.

7. Ibid 29

8. Papastratigakis, Russian Imperialism and Naval Power, Military Strategy and the Build-up to the Russo-Japanese War, 53.

9. Westwood, Russia Against Japan, 1904-05. 29.

10. Ibid, 35.

11. Andrew Gordon, The Rules of the Game, 2012, (Annapolis, MD, US Naval Institute Press).   

12. Richard Connaughton, The War of the Rising Sun and the Tumbling Bear, 1991, (New York: Routledge, Chapman, and Hall, Inc.) 30.

13. Ibid

14. Westwood, Russia Against Japan, 1904-05, 37.

15. Connaughton, The War of the Rising Sun and the Tumbling Bear, 30.

16. Connaughton, The War of the Rising Sun and the Tumbling Bear, 117.

17. Ibid; “Concept of operations” should be understood as the overall strategic or operational objective.

18. Ibid, 38.

19. Westwood, Russia Against Japan, 1904-05, 46.

20. Connaughton, The War of the Rising Sun and the Tumbling Bear, 38.

21. Frederic William Unger, The Authentic History of the War between Russia and Japan, 1904, (Philadelphia: World Bible House), 345.

22. Connaughton, The War of the Rising Sun and the Tumbling Bear, 31.

23. Connaughton,The War of the Rising Sun and the Tumbling Bear, 32.

24. Unger, The Authentic History of the War between Russia and Japan, 344.

25. Westwood, Russia Against Japan, 1904-05, 80.

26. Ibid, 81.

27. Ibid, 80.

28. Ibid, 81.

29. Ibid.

30. Ibid.

31. Unger, The Authentic History of the War between Russia and Japan, 391; “Japanese Win Naval Battle in Corean Strait,” Chicago Tribune, August 14, 1904, Pg. 1, Accessed via ProQuest Historical Newspapers; Connaughton, The War of the Rising Sun and the Tumbling Bear, 172. 

32. Connaughton, The War of the Rising Sun and the Tumbling Bear, 171.

33. Ibid, 172.

34. Ibid.

35. Connaughton, The War of the Rising Sun and the Tumbling Bear, 172.

36. Westwood, Russia Against Japan, 1904-05, 83.

37. Westwood, Russia Against Japan, 1904-05, 85; Connaughton, The War of the Rising Sun and the Tumbling Bear, 173.

38. “Japanese Win Naval Battle in Corean Strait,” Chicago Tribune, August 14, 1904, Pg 1.

39. Connaughton, The War of the Rising Sun and the Tumbling Bear, 174.

40. Westwood, Russia Against Japan, 1904-05, 86.

41. Westwood, Russia Against Japan, 1904-05, 86; Connaughton, The War of the Rising Sun and the Tumbling Bear, 174.

42. Connaughton, The War of the Rising Sun and the Tumbling Bear, 174.

43. Westwood, Russia Against Japan, 1904-05, 86.

44. Westwood, Russia Against Japan, 1904-05, 138.

45. Connaughton, The War of the Rising Sun and the Tumbling Bear, 266.

Bibliography

Chicago Tribune (Chicago, IL). “Japanese Win Naval Battle in Corean Strait.” August 14, 1904. https://search-proquest-com.libproxy.furman.edu/docview/173171585/7CB7EBC23EDC4AE5PQ/13?accountid=11012.

Connaughton, Richard. The War of the Rising Sun and Tumbling Bear. 2nd ed. New York, NY: Routledge, 1991.

Gordon, Andrew. The Rules of the Game. Annapolis, MD: US Naval Institute Press, 2012.

Koda, Yoji. “The Russo-Japanese War—Primary Causes of Japanese Success.” Naval War College Review 58, no. 2.

Papastratigakis, Nicholas Papastratigakis. Russian Imperialism and Naval Power, Military Strategy and the Build-up to the Russo-Japanese War. New York, NY: I.B. Tauris, 2011.

Stone, David R. A Military History of Russia. Westport, CT: Praeger Security International, 2006.

Unger, Frederic William. The Authentic History of the War between Russia and Japan. Edited by Charles Morris. Philidelphia, PA: World Bible House, 1904.

Westwood, J.N. Russia against Japan, 1904-05. New York, NY: State University of New York Press, 1986.

Featured Image: Print shows, in the foreground, a Russian battleship exploding under bombardment from Japanese battleships; a line of Japanese battleships, positioned on the right, fire on a line of Russian battleships on the left, in a surprise naval assault on the Russian fleet at the Battle of Port Arthur (Lüshun) in the Russo-Japanese War. (Torajirō Kasai/Wikimedia Commons)

Pearl Harbor 1941: The First Energy War

This article originally featured in The Foreign Service Journal and is republished with permission. Read it in its original form here.

By Charles Maechling, Jr.

In the summer of 1941, Japan had been at war on the mainland of Asia for four years. After amputating Manchuria from China proper in 1931, and recreating it as Manchukuo under a puppet regime, she had plunged into a full-scale war of conquest with China in 1937. But although a Japanese army of well over a million men occupied vast stretches of the Chinese mainland, active hostilities showed no sign of diminishing. Despite the installation of a puppet regime in Nanking, and a campaign of intimidation and brutal reprisals to pacify the conquered areas, the drain of manpower and supplies continued unabated.

Just as today, Japan was wholly dependent on outside sources for the minerals, petroleum, and other raw materials necessary to fuel its economy, which in 1941 was already highly industrialized. In fact, the whole aim of Japan’s program of expansion on the Asian mainland was to carve out a continental economic system, insulated from the forces which had caused the world-wide economic depression, in which raw materials from China and Southeast Asia would flow into Japan for conversion into a stream of manufactured goods aimed at the limitless Asian market. The conquest of China—or more accurately, her forced conversion into a compliant economic partner—was the first step in a grand design called the Greater East Asian Co-Prosperity Sphere which was ultimately supposed to embrace Indo-China, Malaysia, and the Dutch colonies of Indonesia.

The Achilles’ heel of Japan’s economy—and the greatest drawback to military ambitions—was her energy resources. Despite the fact that civilian gasoline consumption was minimal, and the Japanese armies were largely unmechanized, Japanese oil consumption, including military, had since 1931 climbed steadily from a level—unbelievably low by modern standards—of about 21 million barrels a year to over 32 million barrels in 1941. (Japan’s current annual consumption is about 2 billion barrels.) The most imperative defense need, on which the safety of the island empire depended, was to ensure ample reserve stocks for the large and powerful imperial navy, and it was largely to this end that Japan, at great pains to her strained economy, had accumulated a stockpile of around 54 million barrels of which 29 million was reserved for the navy.

In 1941 Japan was just as dependent on outside sources for its oil supply as it is today. Domestic production of synthetic fuel amounted to only three million barrels annually; the rest of Japan’s needs—over 90 percent—were made up by imports. In the late ’30s total imports varied from a low of 30.6 million barrels in 1939 to 37.1 million in 1940, the excess over domestic requirements going into the stockpile. Fifteen percent of petroleum imports of all categories came from Venezuela, the Dutch East Indies, and the Middle East—the vast reserves of Saudi Arabia and the Persian Gulf had not yet been developed. Eighty five percent of imports came from one monolithic supplier—Japan’s own private OPEC—the United States of America. And by 1941 relations with the United States had deteriorated to the verge of war.

It had not always been so. The United States had been instrumental in securing a favorable settlement for Japan in the Russo-Japanese War of 1905, had been an ally in World War I, and was Japan’s most important trading partner. Despite resentment over the Japanese Exclusion Act, there was a considerable reservoir of good will for the United States among the educated classes of Japan and vast admiration for American education and technological achievement. But since 1931, the United States had been the principal and most outspoken opponent of Japanese expansion in Asia. Under the Stimson Doctrine the United States had refused to recognize the puppet regime in Manchukuo and regarded the program for a Greater East Asian Co-Prosperity Sphere with hostility and moral disapproval—attitudes reinforced by the barbaric atrocities perpetrated by the Japanese forces in the course of their slow advance through the Chinese provinces. But, until the late ’30s, isolationist sentiment and the rigid constraints of neutrality legislation not only prevented military assistance from being given directly to threatened friendly countries, but inhibited any form of economic sanctions against aggressor nations that might lead to military confrontation. When these policies were finally reversed, it was owing to the tide of German aggression in Europe and the threat to Britain rather than to events in Asia. Even then President Roosevelt was under pressure at first from the Western European powers to avoid a crisis in East Asia until the Nazi menace could be dealt with.

In late 1939, President Roosevelt took the first step toward economic sanctions by imposing a “moral embargo” on sales of aircraft and aviation material. Over the next year, this was expanded to include a wide range of metals and raw materials—rubber, tin, magnesium, molybdenum, aluminum, etc. But where Japan was concerned the administration was careful to avoid any interference with the flow of the most precious commodity of all, oil—this was regarded as too dangerous. In May, 1939. Ambassador Joseph C. Grew in Tokyo had warned the president that “…if we cut off Japanese supplies of oil…and she cannot obtain sufficient oil from other commercial sources to ensure her national security, she will probably send her fleet down to take the Dutch East Indies.”

The outbreak of war in Europe presented the United States with a policy dilemma that took the form of a conflict of priorities. The attention of the president, the press and the American public was riveted on Europe, and after the fall of France on the plight of Britain. The prevailing view was that the Nazi menace to European civilization was the overriding problem of the time. True, the United States was also committed to a policy of resistance to aggression in Asia and support for the Nationalist regime of Chiang Kai Shek. But while there was a growing consensus for all-out aid to Britain, opinion was divided on how to cope with the Japanese menace. Within the Cabinet, Secretary of the Treasury Morgenthau and Secretary of the Interior Ickes. along with elder statesman Henry L. Stimson (soon to become secretary of war) believed that there was “linkage” between all outbreaks of aggression. They pressed for “economic sanctions” against Japan, including the cut-off of scrap iron and oil. But Secretary of State Hull and the State Department, guided by the cautionary warnings of Ambassador Grew, were wary of pushing Japan into an act of desperation that would compound the difficulties of the European colonial powers and divert public attention from Hitler.

The U.S. Navy was even more cautious. Successive chiefs of naval operations had warned the president that until the 1934 naval building program was completed and outlying bases in the Philippines, the central Pacific, and Hawaii were reinforced and fortified, any military confrontation with Japan would find the navy at grave disadvantage. The navy had neither the auxiliary supply vessels nor the carrier air strength to fight its way through the Japanese-mandated Marshall and Caroline Islands, bristling with air bases, to face the formidable Japanese navy in its home waters.

The reluctance of the admirals to risk a military confrontation with Japan became even more pronounced in 1940, after the German submarine campaign to cut supply lines to Britain got underway. Substantial units of the Pacific Fleet, including the destroyers necessary to protect heavy ships from submarine attack, were now being transferred to the Atlantic for patrol and convoy duty. One chief of naval operations, the redoubtable Admiral James O. Richardson, had actually been replaced for pouring cold water on the president’s fantasy of running a cruiser patrol line from the Philippines to Hawaii, and for too outspokenly recommending that the fleet be withdrawn to its West Coast bases because of its vulnerability in Pearl Harbor. When a decision was finally made to give the Atlantic top priority, it made a temporizing stance in the Pacific almost mandatory.

The passage of the Export Control Act in July of 1940, however, gave the president a weapon for retaliating against Japanese expansion without appearing to be punitive. The rearmament program and aid to Britain had produced shortages in some materials and the prospect of future scarcity in others. When in September, 1940, the Japanese moved into bases in the northern region of French Indo-China, President Roosevelt promptly imposed an embargo on the export of scrap iron and steel, citing U.S. defense needs as justification. Soon afterwards he prohibited the export of aviation gasoline and lubricants to all but Britain and western hemisphere countries. But the flow of oil and regular gasoline to Japan continued without interruption. In the embargo year of 1940, Japan’s oil imports from the United States only dropped to 23 million barrels from 26 million the year before.

Meanwhile, Japanese foreign policy had been undergoing reappraisal through a convoluted process which can properly be described as agonizing in the literal sense of the word. The Japanese military—or more properly the army high command—had, since the Manchurian takeover, exercised a baleful influence over civilian cabinets, especially on matters of foreign policy. On several occasions this had reached the point of permitting the assassination, by fanatical young officers, of elderly and conservative ministers who were considered to have “become unworthy” of the Japanese imperial mission. The longer the campaign in China dragged on the more the army high command itself risked loss of face and disgrace in the eyes of the emperor and the people. Fearful of the Soviet menace on the long and exposed Manchurian flank, and frustrated over its inability to settle the “China incident,” the high command was the principal proponent both of closer ties with Germany and Italy and an aggressive move south to achieve the long-promised dream of self-sufficiency in Asia.

On the other side, strong forces were at work for a policy of moderation. These included the nobility, the business and financial leadership, the diplomatic service, and the imperial navy. Though dismayed and resentful over American policies past and present, these circles had a more healthy respect for American industrial might than the insular army and genuinely dreaded the unforeseeable consequences of war with the United States. Compared with the deep geographical, historical and economic bonds that linked the United States and Japan, the new ties with Japan’s far distant allies of expediency, Germany and Italy, seemed somehow flimsy and artificial. In these quarters the unrelenting opposition of the United States to Japan’s program in Asia was upsetting and threatening, but could be tolerated as long as the oil supply remained intact. In the meanwhile, there was always a chance that the “China incident” could be settled, or that the mounting involvement of the United States in the defense of Britain would make some kind of compromise possible.

Before a clean-cut policy could evolve, however, these differences had to be thrashed out within the imperial circle. Although crudely styled “fascist” by American politicians and the press, and lumped in with Germany and Italy as a grinning partner in iniquity, Japan and its political system had little in common with European dictatorships. Except for the predominant influence exercised by the military caste, which was deemed to incarnate the warrior virtues, Japanese society before World War II was no more, or rather no less, “totalitarian” than the “Japan Incorporated” of 1979. Under an overlay of parliamentary forms the Japanese decision-making process was almost morbidly traditional. In all vital questions concerning the future of the empire, decisions were not dictated by an upstart tyrant but reached after a painful process of soul-searching and mutual consultation between the traditional power groups. The resulting consensus, couched in the euphemistic and abstract style unique to Japanese culture, was then given a sort of mystical endorsement by the emperor, after an elaborate ritual called a “Throne Conference” in which all groups were represented.

Predictably, this system often produced policy compromises that embodied fatal contradictions. Typical was the decision reached in the summer of 1940 to install a civilian premier of impeccably conservative stripe, Prince Konoye, to pursue a policy of negotiation with the United States, while at the same time the army was given a limited mandate to obtain bases in French Indo-China. Then in September, 1940, under pressure from the army high command, Japan signed a defensive alliance with Germany and Italy known as the Tripartite Pact. The terms of the pact had no operative effect except in the event of a future attack on one of the parties by an unspecified outsider, but the Axis label it now gave Japan was to have a devastating political effect and prove a serious impediment to negotiations with the United States. It would henceforth be extraordinarily difficult for President Roosevelt and Secretary Hull to make meaningful concessions to Japan without the risk of being called appeasers.

At about the same time Japan took steps to solve the problem of its oil dependence. Civilian consumption of gasoline was cut from 6-7 million barrels annually to 1.6 million. By diversifying supply she managed in 1940 to reduce the proportion of oil imports from U.S. sources down to 60 percent as compared to the prior level of 80 percent. But the attitude of the United States, combined with disruption of the international oil market and competing demands of the warring powers, made reliance on distant sources imprudent to say the least. The one alternative closer at hand, on which Japan had cast covetous eyes for years, was the Dutch East Indies, now cut off from the mother country by the German sweep through Western Europe.

In June, 1940, immediately after the Nazi occupation of Holland, Japan demanded assurances from the colonial government in Batavia that exports of oil and mineral exports to Japan would be maintained at present levels. This was merely a stopgap, however, taken more out of fear of German intentions than anything else.

In September, 1940, a large Japanese mission was dispatched to Batavia to make “proposals” to the colonial government for access to raw materials on a greatly increased scale. Oil was given top priority: oil imports from the Dutch Indies were 4.5 million barrels a year, and now the Japanese demand was for a guarantee of 22 million barrels annually. This would have represented 40 percent of the annual production of the Indies at that time (55 million barrels) and a figure almost exactly equal to the current level of Japan’s oil dependence on the United States. The Dutch colonial administration, however, though well aware of its vulnerability, proved tough and obstinate. It protracted the negotiations over nearly three months, and when in November an agreement was finally reached, the Japanese were granted 14.5 million barrels annually and no more. Even this amount was made subject to the concurrence of the oil companies and hedged about with escape clauses.

In the winter of 1940-41 the war reached a condition of temporary stalemate with American attention increasingly focused on the plight of Britain. In April, 1941, Germany invaded Yugoslavia and Greece, and inflicted heavy defeats on the British in Crete and North Africa. In May, President Roosevelt proclaimed a state of unlimited national emergency. During this period the pendulum in Japan again oscillated and a new Japanese ambassador, Admiral Kichisaburo Nomura, known to be well-disposed to the United States, was sent to Washington with a fresh set of proposals. In essence these offered a freeze of Japanese military operations in Asia and a promise to negotiate peace with Chiang Kai Shek. In return, Japan requested from the United States a lifting of all embargoes on critical items, resumption of normal trade relations, American assistance in obtaining a continuing supply of raw materials from Southeast Asia, and the exercise of influence on Chiang Kai Shek to force him to negotiate peace terms with Japan in good faith. The State Department agreed to discuss these proposals, but after fifty private meetings between Secretary Hull and Ambassador Nomura in the Spring of 1941, no basis for agreement could be found. The United States clung to its rigid formulations—withdrawal from Indo-China, acceptance of the principle of non-interference in internal affairs, and respect for the territorial integrity of China as preconditions for negotiations. These Japan could not accept.

In June, 1941, Germany invaded the Soviet Union. In the same month the United States suspended all petroleum exports to Japan from East Coast and Gulf ports, throwing supply contracts into temporary disarray. The handwriting was now on the wall, even though once again genuine shortages caused by U.S. military demand and shipments to British forces in the Middle East had prompted the action. The new factor was that at long last the Soviet threat along the Manchurian border had been neutralized. Pressed by the army high command, the Japanese establishment again went into conclave, and in a Throne Conference in July it was agreed that the empire now had no choice but to resume the march southward. Planning was ordered for the military conquest of Malaysia, the Philippines and the Dutch East Indies, to be combined with preparations for war with the United States, Great Britain, and Holland. But no specific deadlines were set. On July 24th the Japanese, with the reluctant acquiescence of the Vichy government, occupied key positions throughout French Indo-China. Two days later the dreaded blow fell.

On July 26th President Roosevelt ordered the freezing of all Japanese funds and other assets in the United States and the placing of all petroleum exports to Japan under embargo subject to license. Britain and the Dutch East Indies quickly followed suit. It was originally intended to use the licensing authority as a lever for further bargaining or to avert a crisis. But it soon became apparent that in the current political climate no licenses could be issued and none ever were. The oil cut-off was now complete and Japan was thrown back on her stockpile. To quote from a leading historian of the period: “There was no way, no uncontrolled source of supply from which Japan could get as much as it would have to use even with the most rigid economy. Ton by ton, it could be foreseen, Japan would have to empty the tanks which had been filled with such zealous foresight…From now on the clock and the oil gauge stood side by side. Each fall in the level brought the hour of decision closer.” (Feis, The Road To Pearl Harbor, p. 244.)

The oil embargo represented a triumph for the hard-liners of the Roosevelt administration who were convinced that an oil cut-off would force Japan to its knees. The navy, however, again stressing U.S. naval inferiority in the Pacific—now outnumbered in aircraft carriers by 10-3—had strongly urged delay at least until air and ground forces of the Philippines could be strengthened. Ambassador Grew had once more cautioned that if pushed to the wall it was in the Japanese character to react violently and without warning. According to the historical records, President Roosevelt believed that although he was running a risk, it was one that did not close off his options or entail serious consequences to the United States. He was reassured in this regard by the virtual unanimity of his advisers that if Japan struck it would be against Malaysia and the Dutch East Indies. The safety of the United States was not considered at issue.

In Japan the freezing of its assets and the embargo on oil was greeted with shock and dismay. Any mitigation of popular feeling against the United States was prevented by sightings of U.S. tankers headed for Vladivostok with oil for Soviet armies. By August, 1941, there was only a 12-month supply of fuel left for the army, and an 18-month supply for the navy.

When the Japanese records and diplomatic cables of the four months preceding Pearl Harbor were published after the war they revealed an atmosphere of desperation. In October a hardline cabinet headed by General Hideki Tojo replaced the now discredited ministry of Prince Konoye. Three more Throne Conferences were held, of which the last, on November 5, 1941, committed the emperor irrevocably to war unless a last minute diplomatic solution could be found. At the same time a final effort was authorized to reach some kind of compromise or modus vivendi that would restore the flow of oil without forcing Japan to totally abandon her acquisitions in Asia. Accordingly, new proposals embodying further concessions were carried to Washington by a special envoy, Saburo Kurusu, who henceforth participated with Admiral Nomura in all negotiations. These went so far as to agree to immediate Japanese withdrawal from Indo-China, renunciation of further expansion in Asia, and withdrawal from most of China upon conclusion of a peace treaty with Chiang Kai Shek. It was made plain that Japan was prepared to treat the Tripartite Pact as a nullity. But in the end, like all previous diplomatic efforts, these proposals foundered on the rock of an irreconcilable conflict. Japan would not totally withdraw from the Asian mainland and return to a pinched and impoverished existence on its overcrowded islands. The United States would not accept a compromise that left Japan in physical domination of any part of China. Under pressure from Chiang Kai Shek, Secretary Hull on November 26th confronted the Japanese negotiators with a reversion to the earlier U.S. demand for complete Japanese withdrawal from China. Repeated Japanese pleas for a summit meeting between Prince Konoye and President Roosevelt were met with stony silence.

Throughout these events, the highest circles of the Roosevelt administration were at all times aware of Japan’s sincere desire for a negotiated settlement. Since August, 1940, the president, Secretary Hull, and the civilian and military heads of the army and navy had followed every twist and turn of Japanese policy through the secret cable and radio traffic of the Japanese themselves. Cryptographic experts of the United States Army Signal Corps, headed by the legendary William E. Friedman, had broken the Japanese diplomatic code, styled PURPLE. Thereafter, intercepts of messages from Tokyo to its overseas embassies and consular posts were on Secretary Hull’s desk within a few hours of receipt. After the oil cut-off in July 1941 the president and his advisers not only knew of Japan’s desperation, but of its intention to take drastic military measures unless the embargo was lifted. All indicators pointed to an outbreak of war on either the weekend of December 1st or December 7th, with Malaysia, the Dutch East Indies, and the Philippines to be the immediate objectives. But partly owing to the indirection employed by the Japanese in communicating with each other, and partly to the tight security imposed by the Japanese military—whose codes were still unbroken—there was no certainty precisely when and where the first blows would fall. On November 27, 1941 a general war warning was sent to the commander of the U.S. Pacific Fleet in Pearl Harbor, the army’s Hawaiian department, and General MacArthur in Manila. Not a hint of impending war was given to Congress, the press, or the American public.

The Japanese air raid on Pearl Harbor of December 7, 1941—the “date that will live in infamy”— lives in history as the military catastrophe that plunged America into World War II. But for the Japanese naval staff, the attack was essentially a sideshow introduced out of excessive deference to the “worst case scenario.” Admiral Yamamoto, the Japanese naval commander, had convinced himself, in the teeth of all the evidence of American naval inferiority in the Pacific, that only if the U.S. battle fleet was dealt a knockout blow would his convoys be secure from interception and time afforded to build a defensive ring around the new conquests.

That the attack on Pearl Harbor was a strategic and political blunder of the first magnitude became apparent only later. Instead of trapping underarmed battleships far from their home base, they were sunk in shallow water where they could be raised and modernized to fight again. Instead of confronting President Roosevelt with the dilemma of how to persuade a refractory Congress to declare war on Japan in defense of the British and Dutch colonial empires, while resisting the Nazi menace across the Atlantic, the attack brought a unified America headlong into war.

What followed can properly be called the first energy war. Oil was not the primary cause of the steady deterioration of relations between the United States and Japan, but once employed as a weapon it made hostilities inevitable. Historians continue to debate endlessly about the extent to which President Roosevelt provoked the attack, but two lessons stand out: Regardless of the legal and moral rectitude of its position, the United States recklessly cut the energy lifeline of a powerful adversary without taking due regard of its own preparedness and the predictably explosive consequences. When the victim struck back he blundered badly and thereby unleashed forces of incalculable fury.

It could all happen again—but in reverse!

Charles Maechling, Jr., Washington lawyer and former State Department officer, was on the secretariat of the Joint Chiefs of Staff 1943-1944. 

Featured Image: The attack on Pearl Harbor, December 7, 1941. USS-Arizona (BB-39) is in the center. To the left are USS Tennessee (BB-43) and the sunken USS West Virginia (BB-48). (Naval History and Heritage Command NH: 97378. Colorized by Irootoko Jr.)

The American Wolf Packs: A Case Study in Wartime Adaptation

This article originally featured on Joint Force Quarterly and is republished with permission. Read it in its original form here.

By Dr. F.G. Hoffman

To paraphrase an often ridiculed comment made by former Secretary of Defense Donald Rumsfeld, you go to war with the joint force you have, not necessarily the joint force you need. While some critics found the quip off base, this is actually a well-grounded historical reality. As one scholar has stressed, “War invariably throws up challenges that require states and their militaries to adapt. Indeed, it is virtually impossible for states and militaries to anticipate all of the problems they will face in war, however much they try to do so.”1 To succeed, most military organizations have to adapt in some way, whether in terms of doctrine, structure, weapons, or tasks.

USS Steelhead (SS-280) refitted with 5.25-inch deck gun, April 10, 1945 (retouched by wartime censors) (U.S. Navy)USS Steelhead (SS-280) refitted with 5.25-inch deck gun, April 10, 1945 (retouched by wartime censors) (U.S. Navy)

The Joint Staff’s assessment of the last decade of war recognizes this and suggests that U.S. forces can improve upon their capacity to adapt.2 In particular, that assessment calls for a reinvigoration of lessons learned and shared best practices. But there is much more to truly learning lessons than documenting and sharing experiences immediately after a conflict. If we require an adaptive joint force for the next war, we need a common understanding of what generates rapid learning and adaptability.

The naval Services recently recognized the importance of adaptation. The latest maritime strategy, signed by the leadership of the U.S. Marine Corps, Navy, and Coast Guard, defines the need to create “a true learning competency,” including “realistic simulation and live, virtual, and constructive scenarios before our people deploy.”3 History teaches that learning does not stop once the fleet deploys and that a true learning competency is based not only on games, drills, and simulations but also on a culture that accepts learning and adaptation as part of war.

This lesson is ably demonstrated by the Navy’s refinement of wolf pack tactics during the Pacific campaign of World War II. The tragic story of defects in U.S. torpedoes is well known, but the Navy’s reluctant adoption of the German U-boat tactics against convoys is not often studied.4 There are lessons in this case study for our joint warfighting community.

The success of the U.S. submarine force in the Pacific is a familiar story. The Sailors of the submarine fleet comprised just 2 percent of the total of U.S. naval manpower, but their boats accounted for 55 percent of all Japanese shipping losses in the war. The 1,300 ships lost included 20 major naval combatants (8 carriers, 1 battleship, and 11 cruisers). Japanese shipping lost 5.5 million tons of cargo, with U.S. submarines accounting for almost 5 million tons.5 This exceeded the total sunk by the Navy’s surface vessels, its carriers, and the U.S. Army Air Corps bombers combined. By August 1944, the Japanese merchant marine was in tatters and unable to support the needs of the civilian economy.6 The submarine campaign (aided by other joint means) thoroughly crippled the Japanese economy.7

This critical contribution was not foreseen during the vaunted war games held in the Naval War College’s Sims Hall or during the annual fleet exercises in the decades preceding the war. Perhaps the Navy hoped to ambush some Japanese navy ships, but the damage to Japanese sea lines of communication was barely studied and never gamed, much less practiced. A blockade employing surface and submarine forces was supposed to be the culminating phase of War Plan Orange, the strategic plan for the Pacific, but it was never expected to be the opening component of U.S. strategy. Submarines were to be used as scouts to identify the enemy’s battle fleet so the modern dreadnoughts and carrier task forces could attack. Alfred Thayer Mahan had eschewed war against commerce, or guerre de course, in his lectures, and his ghost haunted the Navy’s plans for “decisive battles.”8

The postwar assessment from inside the submarine community was telling: “Neither by training nor indoctrination was the U.S. Submarine Force readied for unrestricted warfare.”9 Rather than supporting a campaign of cataclysmic salvos by battleships or opposing battle lines of carrier groups, theirs was a war of attrition enabled by continuous learning and adaptation to create the competencies needed for ultimate success. This learning was not confined to material fixes and technical improvements. The story of the torpedo deficiencies that plagued the fleet in the first 18 months of the Pacific war has been told repeatedly, but the development of the Navy’s own wolf pack tactics is not as familiar a tale. Yet this became one of the key adaptations that enabled the Silent Service to wreak such havoc upon the Japanese war effort. Ironically, a Navy that dismissed commerce raiding, and invested little intellectual effort in studying it, proved ruthlessly effective at pursuing it.10

Learning Culture

One of the Navy’s secret weapons in the interwar era was its learning culture, part of which was Newport’s rigorous education program coupled with war games and simulations. The interaction between the Naval War College and the fleet served to cycle innovative ideas among theorists, strategists, and operators. A tight process of research, strategic concepts, operational simulations, and exercises linked innovative ideas with the realities of naval warfare. The Navy’s Fleet Exercises (FLEXs) were a combination of training and experimentation in innovative tactics and technologies.11 Framed against a clear and explicit operational problem, these FLEXs were conducted under unscripted conditions with opposing sides. Rules were established for evaluating performance and effectiveness, and umpires were assigned to regulate the contest and gauge success at these once-a-year evolutions.

Torpedoed Japanese destroyer IJN Yamakaze photographed through periscope of USS Nautilus, June 25, 1942 (U.S. Navy)Torpedoed Japanese destroyer IJN Yamakaze photographed through periscope of USS Nautilus, June 25, 1942 (U.S. Navy)

Conceptually framed by war games, these exercises became the “enforcers of strategic realism.”12 They provided the Navy’s operational leaders with a realistic laboratory to test steel ships at sea instead of cardboard markers on the floor at Sims Hall. Unlike so many “live” exercises today, these were remarkably free-play, unscripted battle experiments. The fleet’s performance was rigorously explored, critiqued, and ultimately refined by the men who would actually implement War Plan Orange.13 Both the games and exercises “provided a medium that facilitated the transmission of lessons learned, nurtured organizational memory and reinforced the Navy’s organizational ethos.”14 Brutally candid postexercise critiques occurred in open forums in which junior and senior officers examined moves and countermoves. These reflected the Navy’s culture of tackling operational problems in an intellectual, honest, and transparent manner. The Navy benefited from the low-cost “failures” from these exercises.15

Limitations of Peacetime

The exercises, however, had peacetime artificialities that reduced realism and retarded the development of the submarine. These severely limited Navy submarine offensive operations in the early part of World War II.16 With extensive naval aviation participation, the exercises convinced the fleet that submarines were easily found from the air. Thus, the importance of avoiding detection, either from the air or in approaches, became paramount. In the run-up to the war, the Asiatic Squadron commander threatened the relief of submarine commanders if their periscopes were even sighted in exercises or drills.17 This belief in the need for extreme stealth led to the development of and reliance on submerged attack techniques that required commanders to identify and attack targets from under water based entirely on sound bearings. Given the quality of sound detection and sonar technologies of the time, this was a precariously limited tactic of dubious effectiveness.

Technological limitations restricted the Navy’s appreciation for what the submarine could do. The Navy’s operational plans were dominated by high-speed carrier groups and battleships operating at no less than 17 to 20 knots for extended periods, but the Navy’s interwar boats could not keep pace. They were capable of 12 knots on the surface and half that when submerged. They would be far in the wake of the fleet during extended operations. This inadvertently promoted plans to use submarines for more independent operations, which eventually became the mode employed against Japanese commercial shipping in the opening years of the war.

Though they were a highly valuable source of insights at the fleet and campaign levels, the FLEXs had not enforced operational or tactical realism for the submarine crews at the tactical/procedural level. In fact, a generation of crews never heard a live torpedo detonated, proving a perfect match for a generation of torpedoes that were never tested.18 Nor did the Navy practice night attacks in peacetime, although it was quite evident well before Pearl Harbor that German night surface attacks were effective.19 Worse, operating at night was deemed unsafe, and thus night training was overlooked before the war.20 The submarine community’s official history found that the “lack of night experience saddled the American submariners entering the war with a heavy cargo of unsolved combat problems.”21 Once the war began, however, the old tactics had to be quickly discarded, and new attack techniques had to be learned in contact.

Overall, while invaluable for exploring naval aviation’s growing capability, the exercises induced conservative tactics and risk avoidance in the submarine world that were at odds with what the Navy would eventually need in the Pacific. As one Sailor-scholar observed:

Submarines were to be confined to service as scouts and “ambushers.” They were placed under restrictive operating conditions when exercising with surface ships. Years of neglect led to the erosion of tactical expertise and the “calculated recklessness” needed in a successful submarine commander. In its place emerged a pandemic of excessive cautiousness, which spread from the operational realm into the psychology of the submarine community.22

Unrestricted Warfare

Ultimately, as conflict began to look likely, with a correlation of forces not in America’s favor, students and strategists at Newport began to study the use of the submarine’s offensive striking power by attacking Japan’s merchant marine.23 During the spring semester of 1939, strategists argued for the establishment of “war zones” around the fleet upon commencement of hostilities. These areas would be a type of diplomatic exclusion zone, ostensibly to support fleet defense during war. However, the proponents’ intent was to conduct unrestricted warfare aimed at Japan’s long and vulnerable shipping lines.24

Yet there was a gap between what submarines could do and what the emergent plans to conduct unrestricted warfare were calling for. Well before Pearl Harbor, the Navy’s senior leaders understood that unrestricted warfare was a strategic necessity. However, the implications of this change were not acted upon at lower levels in the Navy in the brief era before Pearl Harbor. Doctrine, training, and ample working torpedoes were all lacking. This created the conditions for operational adaptation under fire later.

The Campaign

Due to an insufficient number of boats, limited doctrine, and faulty torpedoes, the submarine force could not claim great success. By the end of 1942, the Pacific Fleet had sent out 350 patrols. Postwar analyses credit these patrols with 180 ships sunk, with a total of 725,000 tons of cargo.25 Although this sounds impressive, over the course of the year, the Navy had sunk the same amount as the German U-boats had in just 2 months in the North Atlantic. This level of achievement was against a Japanese navy that had limited antisubmarine warfare (ASW) expertise and little in the way of radar. The damage inflicted had no impact on Japan’s import of critical resources and commodities, and the campaign could not be seen as a success. The war’s senior submariner, Vice Admiral Charles Lockwood, admitted that the submarine force was operating below its potential contribution.26

Tasked with the ruthless elimination of Japanese shipping, the Pacific Fleet was not producing results fast enough. Some of this shortfall was the result of faulty weapons, and some was attributed to the cautious doctrine of the interwar era. Chief of Naval Operations Admiral Ernest King directed a new approach. He wrote to Admiral Chester Nimitz at Pearl Harbor on April 1, 1943, noting that “effectiveness of operations and availability of submarines indicate desirability, even necessity, to form a tactical group of 4 to 6 submarines trained and indoctrinated in coordinated action for operations such as now set up in Solomons, to be stationed singly or in groups in enemy ship approaches to critical areas.”27 Nimitz immediately directed the implementation of King’s suggestion.28 Interestingly, despite his experience combating U-boats in the Atlantic and protecting the vital sea lines of communication to Europe, King was still oriented toward the employment of submarines against Japanese naval combatants. But in line with the pre–Pearl Harbor vision of unrestricted warfare, the U.S. submarine force was following a strategy of attrition against Tokyo’s merchant shipping, and the Navy submarine force continued to emphasize individual patrols and independent command. They had not been successful in dealing with Japanese warships in critical battles such as Midway. King apparently believed that if they could be properly “trained and indoctrinated in coordinated action,” this shortcoming might be rectified.

At the same time, King was fully engaged with responding to German Kriegsmarine wolf pack tactics, or Rudeltaktik. He was painfully aware how effective they were and was being strongly encouraged by both President Franklin D. Roosevelt and Prime Minister Winston Churchill to adopt defensive measures since the U-boats critically impaired Great Britain’s war effort.29 Moreover, King was aware that the U.S. Navy was not generating the same aggregate tonnage results as the German navy, and he may have concluded that emulating the Germans could produce better results.30 Lockwood, the commander of Submarine Force Pacific (COMSUBPAC), was certainly well aware of the comparisons; in mid-1942, he wrote that “Germans getting 3 ships a day, Pac not getting one ship.”31 Furthermore, his predecessor as COMSUBPAC issued a five-page summary of German wolf pack tactics via a widely distributed bulletin in January 1943.32

Comparisons between theaters may have driven King to propose the shift, but he may have also detected trends in Japanese ASW that would eventually weaken U.S. submarine effectiveness if changes were not put in place. The operational and tactical context facing the submarine force was increasing in complexity. By 1943, Japanese convoys were becoming larger, more organized, and better protected. The escort command was employing more airplanes and newer techniques for detection and attack.

As Lockwood noted in his memoir, collective action was not unknown to the submarine force. Before the war, experiments had attempted simultaneous attacks by several submarines, but communications between boats were not good enough to ensure safety in peacetime operations. These tactics were cursorily explored late in 1941 but were abandoned due to fears of blue-on-blue incidents and limited communications capabilities.33

Now, however, conditions were different, radar had been perfected, high-frequency radio phones were installed, and communications were vastly improved.34 Coordination could be achieved, but the American submariners had little practice at it. The submarine force would have to investigate new tactics on the fly in the midst of the war. (Somewhat ironically, King called for emulating German submarine tactics just as that force was passing the apex of its operational effectiveness. May 1943 was considered the blackest month for the U-boats in the cruel Battle of the Atlantic.35)

King’s message eliminated debate, but the Pacific submarine fleet took its time to interpret fully the doctrinal and tactical implications of the new approach. As a result, the U.S. Navy did not employ the same approach as the Germans. U-boat wolf packs in the Kriegsmarine were ad hoc and fluid. When Admiral Karl Dönitz received intelligence about the location and character of a convoy, he would direct a number of boats to converge on an area where he expected the convoy to be. He would thus direct the assembly of the wolf pack and coordinate its attack from long distance. There was no on-scene commander or collective attack.36 The U-boats were simply sharks, swarming and attacking at will, or swarming to designated areas when directed. The Atlantic convoys were rather large (30 or more ships), encompassing a relatively wide area. A convergence could bring together as many as a dozen boats swarming around a big convoy but without any on-scene battle management.37 A single U-boat would be easily driven off, but a pack would not be. They would stalk the merchant shipping and pick off the slowest quarry every time.

King’s intervention about collective action proved timely. The Japanese navy did eventually enhance its ASW efforts, employing land-based surveillance, better radars, and more coordination. As the U.S. boats were drawing closer to Japan’s home islands, their targets were hugging closer to shallow waters and staying within air coverage. This raised the risk that American submarines would be identified and attacked.

Concerted action by the submarines could offset these changes in the operating context. Singular attacks would draw all the attention of an escort, ensuring that the U.S. boats were driven deep and away from their wounded targets. Coordination by multiple boats would allow continuous pressure on a Japanese shipping convoy and increase the strangulation that Lockwood was aiming to achieve. Multiple threats would distract the convoy’s protective screen and generate more opportunities out of each convoy that was found.

The U.S. Navy did not embrace German wolf pack doctrine or terminology; the accepted term for the tactic was coordinated attack group (CAG). An innovative submariner, Captain Charles “Swede” Momsen, developed the tactics and commanded the initial U.S. wolf pack in the early fall of 1943.38 American CAGs would initially have a senior commander on scene, but it would not be one of the boat’s skippers, as Lockwood desired to have his older division commanders get wartime experience on boats.39

The investigative phase was exhaustive and deliberate over several months. Experienced submarine commanders, not staff officers, developed the required tactics and communication techniques. In an echo of prewar Newport, discussions evolved into small war games on the floor of a converted hotel, which conveniently had a chessboard floor of black and white tiles. The officers who would conduct these patrols developed their own doctrine and tactics.40 The staff and prospective boat captains tested various ways both to scout for targets and then to assemble into a fighting force once a convoy was detected. War games, drills, and ultimately at-sea trials were conducted to refine a formal doctrine. Momsen drilled his captains in tactics, planning to have three boats attack successively—one boat making the first attack on a convoy, then acting as a trailer while the other two attacked alternately on either flank. He also developed a simple code for use on the new “Talk Between Ships” system so that boats could communicate with each other without being detected or intercepted by the Japanese.

The American approach rejected the rigid, centralized theater command and ad hoc tactical structure of the Germans.41 Consistent with its culture, the U.S. Navy took the opposite approach. CAGs comprised three to four boats under a common tactical commander who was present on scene. Unlike the Germans, these attack groups trained and deployed together as a distinctive element. They patrolled in a designated area under a senior commander and followed a generic attack plan. Other than intelligence regarding potential target convoys, orders came from the senior tactical commander on scene and not from the fleet commander. This tactical doctrine called for successive rather than swarming attacks.42 Subsequently scholars have been critical of these deliberate and sequential attack tactics, which negated surprise and simplified the job of Japanese escorts.43

Strangely, there seems to have been little urgency behind COMSUBPAC’s doctrinal and organizational adaptation. This top-down direction from afar (from Admiral King) appears to have been resisted until met with bottom-up evidence derived from experienced skippers. In the records of this period, Lockwood appears to be guilty of delaying tactics, but captains John “Babe” Brown and Swede Momsen convinced him to have “a change of heart.”44

Lockwood and his team at Submarine Force Pacific did not merely take King’s directive and implement it. He and the commander of U.S. submarines based in Australia, Rear Admiral Ralph Christie, were not in favor of the change in tactics. In his memoirs, Lockwood noted in a single sentence that he was directed to conduct wolf pack tactics by King. He did apply groups of four to six boats in his packs. And while he did develop the doctrine King tasked them to create, he did not apply it as King desired, against military shipping or approaches to critical operational areas. Instead, Lockwood deployed the CAGs to his ruthless campaign of attrition against Japanese commerce. The developmental process was entirely consistent with bottom-up adaptation. Lockwood was permitted to develop the command and control process, tactics, and training program on his own. Centralized command from Pearl Harbor was rejected, which reflected both the traditional Navy culture of command responsibility and autonomy and Lockwood’s appreciation for how Allied direction finding and signals intelligence in the Atlantic were fed by Dönitz’s centralized control and extensive communications.

Even after his change of heart, Lockwood and the submarine force took their time to work out the required doctrine and tactics in an intensive investigatory phase. The first attack group, comprised of the Cero (SS-225), Shad (SS-235), and Grayback (SS-208), was not formed until the summer of 1943. Momsen, who had never been on a combat patrol, was the commodore and rode in Cero. The pack finished its preparations and deployed from Pearl Harbor in late September on its combat patrol from Midway on October 1, 1943, exactly 6 months to the day from King’s message. This was hardly rapid adaptation, given the lessons from both the German success story in the Atlantic and the lack of success in the Pacific.

The initial cruise was deemed a success. Momsen’s CAG arrived in the East China Sea on October 6, 1943. It made a single collective attack on a convoy and was credited with sinking five Japanese ships for 88,000 tons and damaging eight more with a gross tonnage of 63,000 tons. While this met the measures of success that Lockwood wanted, the commanders involved were less than enthusiastic. The comments from the participating captains were generally mixed, with many indicating they would prefer to hunt alone rather than as a member of a group. They believed that the problems of communication were technologically unsolvable and that the risk of fratricide was unavoidable. Moreover, commanders preferred operating and attacking alone—consistent with the Navy’s traditional culture and the community’s enduring preference for independent action (and the rewards that came with it). Momsen, perhaps reflecting an appreciation of the complementing role high-level intelligence could play, recommended centralized command from Pearl Harbor rather than an on-the-scene commander, something Lockwood immediately overruled.45 But various packs were planned and began training. Ingrained conservatism and fear of firing on a friendly vessel framed the emerging tactics. These in practice emphasized “cooperative search” over collective attack.46

Figure 1.

The need to explore innovative tactics was directed from the top, but the Navy leadership was patient in letting local leaders figure out the “how.” The validity of coordinated action grew on commanders such as Lockwood. Whatever reservations they might have held, the American wolf packs continued during the remainder of the year and were a common tactic during 1944. Unlike Dönitz’s Operation Paukenschlag(Drumbeat) in the Atlantic in early 1943, Lockwood’s force began to win the war of attrition in the Pacific. The success was likely due to the combination of finally having defect-free torpedoes and employing new search tactics. But as Lockwood noted in a tactical bulletin, for the first time, tonnage totals between the German effort and that of the American submarine force “now compare favorably.”47

One dramatic case gives an example of how effective CAGs could be. In late July 1944, Commander Lawson “Red” Ramage commanded the USS Parche, part of a wolf pack labeled “Park’s Pirates” after Captain Lew Parks, also aboard the Parche. The Pirates included the USS Steelhead, skippered by Lieutenant Commander Dave Whechel, and the USS Hammerhead, whose skipper was Commander Jack Martin. After a patch of bad weather and poor radio reporting, the Pirates found their quarry. Although frustrated by miscommunications, Martin identified a large Japanese convoy on the evening of July 30. Although it was a long shot, Parks ordered Ramage to give chase, and for 8 hours the Parche chased down the fleeing convoy.

What happened next was a maritime melee. Ramage surfaced inside the convoy in the dark and began a methodical attack, slicing in and around the larger tankers and setting up shots that ranged from only 500 to 800 yards. Ramage’s boat passed within 50 feet of one Japanese corvette on an opposite tack that could not depress its guns enough to strike it.48 The Parche was almost rammed once and was subjected to fire from numerous vessels as it raised havoc with the 17 merchant ships and 6 escorts of Convoy MI-11.

Within 34 minutes, Ramage fired 19 torpedoes and got at least 14 hits. Lockwood credited Parche with 4 ships sunk and 34,000 tons, while the Steelhead got credit for 2 ships of 14,000 tons. Ramage’s epic night surface attack earned him the Medal of Honor.49 His daring rampage was a perfect example of a loosely coordinated attack relying on individual initiative (not unlike a classic U-boat commander’s approach in its execution) rather than formal tactics or a set piece approach that failed to overwhelm the escorts.50

After mid-1944, there were no major adaptations in submarine warfare during the remainder of the Pacific campaign. Ships, doctrine, training, and weapons were highly effective. In a sense, the U.S. submarine war did not truly begin until the CAGs went to sea in late 1943. Until then, it “had been a learning period, a time of testing, of weeding out, of fixing defects in weapons, strategy, and tactics, of waiting for sufficient numbers of submarines and workable torpedoes.”51 Yet within a few months, Japan’s economic lifeline was in tatters.

Exploiting an increased number of boats and the shorter patrol distances afforded by advanced bases in Guam and Saipan, U.S. patrol numbers increased by 50 percent to 520 patrols in 1944. These patrols fired over 6,000 torpedoes, which had become both functional and plentiful. They sank over 600 ships for nearly 3 million tons of shipping. They reduced Japan’s critical imports by 36 percent and cut the merchant fleet in half (from 4.1 million to 2 million tons). While Japanese oil tanker production increased, oil imports dropped severely (see figure).52

Lockwood took wolf packs to a new level in 1945. Now a firmly convinced advocate, he carefully planned an operation with nine boats, operating in three wolf packs, that would traverse the heavily mined entrances of the Sea of Japan.53 The development of an early version of mine-detecting FM sonar allowed boats to detect mines at 700 yards and bypass them. Submarines could now enter mined waters such as the Straits of Tsushima surreptitiously and operate in areas the Japanese mistakenly believed were secure, cutting off the crucial foodstuffs and coal shipments transiting from Korea to Japan. Lockwood’s staff meticulously planned this operation, partially motivated by his desire to avenge the loss of the heroic Commander Dudley Morton and the USS Wahoo in the northern Sea of Japan in fall 1943. Each of the U.S. boats was fitted with FM sonar, and the crews received detailed training in its use. Once they had made the passage and were at their assigned stations in the Sea of Japan, the submarines, working in groups of three, were scheduled to begin a timed attack throughout the area of operations at sunset on June 9. This collective action group was unique in that, instead of gaining an advantage by concentrating their combat power on a single target or convoy, the Hellcats concentrated as a group for their entrance through the narrow Tsushima and then disaggregated. Their simultaneous but distributed attack was designed to shock the Japanese and overwhelm their ability to respond.

In Operation Barney, nine boats led by Captain Earl Hydeman successfully surprised the Japanese and sank 27 vessels in their backyard.54 But it cost Lockwood one of his own boats, as the USS Bonefishunder Lieutenant Commander Lawrence Edge was lost with all hands.55

Without King’s top-down intervention, the adaptation to the use of CAGs may not have been initiated. The success of its adoption, however, was a function of letting local commanders develop their own doctrine. By the end of the war, Lockwood was more enthusiastic about the prospects of the American wolf packs. A total of 65 different wolf packs deployed from Hawaii, and additional groups patrolled out of Australia as well.56 Ironically, they never focused on King’s original intent of serving as ambushers against naval combatants. Instead, the packs remained true to Lockwood’s guerre de course against Japan’s economy.

Cross-Domain Synergies

The historical requirement to adapt in the future may be complicated by the evolving character of modern conflict and the expectation that the joint force will need to gain and exploit cross-domain synergies. The Chairman of the Joint Chiefs of Staff Capstone Concept for Joint Operations (CCJO) is predicated upon creating cross-domain synergies to overcome operational challenges. Another element is to seize, retain, and exploit the initiative in time and across domains.57 Some of this synergy will no doubt be gained in peacetime through concerted efforts to improve interoperability. But if cross-domain synergy is to “become a core operating concept,” as suggested by former Chairman General Martin Dempsey (Ret.) in the CCJO, then we need to also expect to seek out new synergies in wartime.58 Here again, the submarine case study—with its numerous technological adaptations (surface and air search radars, sonars, and improved torpedoes) and cooperation with signals intelligence and the Army Air Corps—is evidence that trans-domain learning is both necessary and feasible, even in combat conditions.

This raises a set of critical questions about joint adaptation in tomorrow’s wars. In future conflicts, how prepared will the joint community be to establish test units and create synergistic combinations on the fly? How prepared are we to actively adapt “under fire” as a joint warfighting community? Do we have the right learning mechanisms to create, harvest, and exploit lessons horizontally across the joint force during combat operations? Such horizontal learning has been crucial in successful examples of adaptation in the past.59 Based on this case study, and several others conducted in a formal case study of U.S. military operations, the following recommendations are offered.

Leadership Development. Senior officers should understand how enhanced operational performance is tied to collaborative and open command climates in which junior commanders can be creative, and plans and tactics can be challenged or altered. The importance of mission command should not excuse commanders from oversight or learning, from providing support, or from recognizing good or bad practices for absorption into praxis by other units. Professional military education (PME) programs should develop and promote leaders who remain flexible, question existing paradigms, and can work within teams of diverse backgrounds to generate collaboration and greater creativity. Case studies in military adaptation should be part of PME strategic leadership syllabi.

Cultural Flexibility over Doctrinal Compliance. Joint force commanders should instill cultures and command climates that embrace collaborative and creative problem-solving and display a tolerance for free or critical thinking. Cultures that are controlling or doctrinally dogmatic or that reinforce conformity should not be expected to be adaptive. Commanders should learn how to create climates in which ideas and the advocates of new ideas are stimulated rather than simply tolerated. If institutions are to be successful over the long haul or adaptive in adverse circumstances, promoting imaginative thinking and adaptation is a must.

Learning Mechanisms. Commanders should be prepared to use operations assessments to allow themselves to interpret the many signals and forms of feedback that occur in combat situations. If needed, they may elect to create special action teams or exploit formalized learning teams to identify, capture, and harvest examples of successful adaptation. These teams or units might have to be created to experiment with new tactics or technologies. Commanders should codify a standard process to collect lessons from current operations for rapid horizontal sharing. They have to be prepared to translate insights laterally into modified praxis to operational forces and not just institutionalize these lessons for future campaigns via postconflict changes in doctrine, organization, or education.

Chief Torpedo man Donald E. Walters receives Bronze Star for service aboard USS Parche (SS-384) (U.S. Navy/Darryl L. Baker)Chief Torpedo man Donald E. Walters receives Bronze Star for service aboard USS Parche (SS-384) (U.S. Navy/Darryl L. Baker)

Dissemination. Commanders should invest time in ensuring that lessons and best practices are shared widely and horizontally in real time to enhance performance and are not just loaded into formal information systems. The Israel Defense Forces are exploring practices that make commanders more conscious about recognizing changes in the operating environment from either their own forces or the opponent.60 There may be something to practicing learning in this way and making it the responsibility of a commander instead of a special staff officer.

Conclusion

As Ovid suggested long ago, one can learn from one’s enemies. The U.S. Navy certainly did. The Service did not just emulate the Kriegsmarine; it improved upon its doctrine with tailored tactics and better command and control capabilities. To do so, Navy submarine leaders had to hold some of their own mental models in suspended animation and experiment in theater with alternative concepts. Lessons were not simply harvested from existing patrols and combat experience and plugged into a Joint Universal Lessons Learned System, as is done today. The submarine force had to carve out the resources, staff, and time to investigate new methods in a holistic way from concept to war games to training against live ships.

Because the eventual role of the Silent Service was not anticipated with great foresight, the Americans had to learn while fighting. They accomplished this with great effectiveness, learning and adapting their tactics, training, and techniques. But the ultimate victory was not due entirely to the strategic planning of War Plan Orange. Some success must be credited to the adaptation of the intrepid submarine community.

Ultimately, the U.S. Navy’s superior organizational learning capacity, while at times painfully slow, was brought to bear. The Navy dominated the seas by the end of World War II, and there is much credit to assign to the strategies developed and tested at the Naval War College and the Fleet Exercises of the interwar era. However, a nod must also be given to the Navy’s learning culture of the submarine force during the war. The Service’s wartime “organizational learning dominance” was as critical as the foresight in the interwar period.61 To meet future demands successfully, the ability of our joint force to rapidly create new knowledge and disseminate changes in tactics, doctrine, and hardware will face the same test. 

Dr. F.G. Hoffman is a Senior Research Fellow in the Center for Strategic Research, Institute for National Strategic Studies, at the National Defense University. The author would like to thank Dr. T.X. Hammes, Dr. Williamson Murray, and Colonel Pat Garrett, USMC (Ret.), for input on this article.

Notes

Theo Farrell, Military Adaptation in Afghanistan, ed. Theo Farrell, Frans Osinga, and James Russell (Stanford: Stanford University Press, 2012), 18.

Joint and Coalition Operational Analysis, Decade of War: Enduring Lessons from the Past Decade of Operations, vol. 1 (Suffolk, VA: The Joint Staff, June 15, 2012).

A Cooperative Strategy for 21st Century Seapower (Washington, DC: Department of the Navy, March 2015), 31.

For a good overview, see Anthony Newpower, Iron Men and Tin Fish: The Race to Build a Better Torpedo During World War II (Westport, CT: Praeger, 2006).

Theodore Roscoe, United States Submarine Operations in World War II (Annapolis, MD: U.S. Naval Institute, 1949), 479.

Wilfred Jay Holmes, Undersea Victory: The Influence of Submarine Operations on the War in the Pacific (Garden City, NY: Doubleday, 1966), 351.

James M. Scott, “America’s Undersea War on Shipping,” Naval History, December 2014, 18–26.

Ian W. Toll, Pacific Crucible: War at Sea in the Pacific, 1941–1942 (New York: Norton, 2012), xxxiv.

Roscoe, 18.

10 Joel Ira Holwitt, “Unrestricted Submarine Victory: The U.S. Submarine Campaign against Japan,” in Commerce Raiding: Historical Case Studies, 1755–2009, ed. Bruce A. Elleman and S.C.M. Paine (Newport, RI: Naval War College Press, October 2013).

11 Albert A. Nofi, To Train the Fleet for War: The U.S. Navy Fleet Problems, 1923–1940 (Newport, RI: Naval War College Press, 2010).

12 Michael Vlahos, “Wargaming, an Enforcer of Strategic Realism,” Naval War College Review (March–April 1986), 7.

13 Nofi, 271.

14 Craig C. Felker, Testing American Sea Power: U.S. Navy Strategic Exercises, 1923–1940 (College Station: Texas A&M University Press, 2007), 6.

15 Stephen Peter Rosen, Winning the Next War: Innovation and the Modern Military (Ithaca, NY: Cornell University Press, 1994), 75.

16 Nofi, 307.

17 Holmes, 47.

18 Clay Blair, Silent Victory: The U.S. Submarine War Against Japan (New York: Lippincott, 1975), 41; Ronald H. Spector, Eagle Against the SunThe American War with Japan (New York: Free Press, 1985), 484.

19 Charles A. Lockwood, Sink ’Em All: Submarine Warfare in the Pacific (New York: Dutton, 1951), 52.

20 I.J. Galantin, Take Her Deep! A Submarine Against Japan in World War II (Annapolis, MD: Naval Institute Press, 2007), 18.

21 Roscoe, 57.

22 Felker, 62.

23 See J.E. Talbott, “Weapons Development, War Planning, and Policy: The U.S. Navy and the Submarine, 1917–1941,” Naval War College Review (May–June 1984), 53–71; Spector, 54–68, 478–480.

24 Joel Ira Holwitt, “Execute Against Japan”: Freedom-of-the-Seas, the U.S. Navy, Fleet Submarines, and the U.S. Decision to Conduct Unrestricted Warfare, 1919–1941 (College Station: Texas A&M University Press, 2009), 479.

25 Blair, Silent Victory, 334–345.

26 Lockwood, Sink ’Em All, 27.

27 Steven Trent Smith, Wolf Pack: The American Submarine Strategy That Helped Defeat Japan (Hoboken, NJ: John Wiley, 2003), 50; Lockwood, Sink ’Em All, 87.

28 Smith, 51.

29 Ibid.

30 Galantin, 126.

31 Library of Congress, Lockwood Papers, box 12, folder 63, letter, Lockwood to Admiral Leary, July 11, 1942.

32 National Archives and Records Administration (NARA), RG 313/A16 3 (1), Commander, Submarine Forces Pacific, Tactical Bulletin #1-43, January 2, 1943.

33 Roscoe, 240.

34 Charles A. Lockwood and Hans Christian Adamson, Hellcats of the Sea (New York: Bantam, 1988), 88.

35 Peter Padfield, War Beneath the Sea: Submarine Conflict During World War II (New York: Wiley & Sons, 1995), 308–336; Michael Gannon, Black May: The Epic Story of the Allies’ Defeat of the German U-boats in May 1943 (New York: HarperCollins, 1998).

36 Blair, Silent Victory, 360.

37 Clay Blair, The Hunters, 1939–1942 (New York: Random House, 1998); Michael Gannon, Operation DrumbeatThe Dramatic True Story of Germany’s First U-Boat Attacks Along the American Coast in World War II (New York: Harper & Row, 1990), 89–90.

38 Blair, Silent Victory, 511–516; Roscoe, 240.

39 Library of Congress, Lockwood Papers, box 13, folder 69, letter, Lockwood to Nimitz, May 4, 1943.

40 Galantin, 124–129.

41 Padfield, 85–130.

42 Galantin, 129.

43 Padfield, 404–405.

44 Blair, Silent Victory, 479–480.

45 Roscoe, 241.

46 Ibid., 341.

47 NARA, RG 38, Naval Command Files, box 357, Commander, Submarine Forces Pacific, Tactical Bulletin #6-43, November 22, 1943.

48 Stephen L. Moore, Battle Surface: Lawson “Red” Ramage and the War Patrols of the USS Parche (Annapolis, MD: Naval Institute Press, 2011), 116.

49 Ibid., 110–116.

50 Padfield, 433. On the engagement, see Moore, 101–118. See also War Patrol Report #2, August 1944, available at <http://issuu.com/hnsa/docs/ss-384_parche>.

51 Blair, Silent Victory, 524.

52 Ibid., 791–793; Roscoe, 432–433.

53 The operation is covered in detail in Peter Sasgen, Hellcats: The Epic Story of World War II’s Most Daring Submarine Raid (New York: Caliber, 2010).

54 Holmes, 459–461.

55 NARA, RG 38, Naval Command Files, box 358, “Operation Barney” in Submarine Bulletin II, no. 3 (September 1945), 10–16.

56 See the list at <www.valoratsea.com/wolfpacks.htm>.

57 “Chairman Releases Plan to Build Joint Force 2020,” new release, September 28, 2012, available at <www.defense.gov/news/newsarticle.aspx?id=118043>.

58 Cross-domain synergy is a key concept in joint concepts such as the Joint Operational Access Concept and the Chairman’s Concept for Joint Operations. See Capstone Concept for Joint Operations, Joint Force 2020 (Washington, DC: The Joint Staff, September 10, 2012), 13.

59 Robert T. Foley, “A Case Study in Horizontal Military Innovation: The German Army, 1916–1918,” Journal of Strategic Studies 35, no. 6 (December 2012), 799–827.

60 Raphael D. Marcus, “Military Innovation and Tactical Adaptation in the Israel-Hizbollah Conflict: The Institutionalization of Lesson-Learning in the IDF,” Journal of Strategic Studies 38, no. 4 (2014), 1–29.

61 R. Evan Ellis, “Organizational Learning Dominance,” Comparative Strategy 18, no. 2 (Summer 1999), 191–202.

Featured Image: USS Cuttlefish submerging. (Official USN photo # 80-G-K-3348)

Changing Interpretations of Japan’s Pacific War Naval Demise

The following article originally appeared in the International Journal of Naval History under the title, “Strategy, Language, and the Culture of Defeat: Changing Interpretations of Japan’s Pacific War Naval Demise,” and is republished with permission. Read it in its original form here.

By Hal M. Friedman
Henry Ford Community College

Military historians say that military history is written from the perspective of the victor. Japan’s naval defeat in the Pacific War, however, provides a highly arguable case. Much of the translated postwar literature on the Pacific War has been written from an Allied perspective which overemphasizes Japanese weaknesses, deemphasizes the strengths of the Japanese military, and places defeat in a cultural and even racial context. This viewpoint raises the question of whether or not the Imperial Japanese Navy (IJN) lost the Pacific War because of national characteristics supposedly “unsuited” to twentieth century naval warfare, if Japan was defeated by the Allies because of strategic, operational, and logistical factors over which it had little or no control, or if Japan lost because of the poor strategic decisions it made, especially the gap between planning and operations? 1 Race and culture versus strategy, operations, and logistics are the two opposing views expressed by Japanese naval officers who wrote about their nation’s defeat after the Pacific War. The following paper is a limited review of translated post-1945 Japanese naval accounts written by two groups of authors. The first group consisted of officers who served during the Pacific War, as well as one journalist, all of whom wrote about the war during the 1950s from a cultural perspective. The second group consisted of officers writing since 1960 who had either served during the war or in the postwar Self-Defense Forces, as well as one historian, all of whom viewed Japan’s defeat from a more conventional strategic and operational perspective.

Culture, Language, and Defeat

Though most of the literature which concentrated on cultural factors analyzed Japan’s defeat in a negative context, there was at least one exception. Rear Admiral Tanaka Raizo, Commander of Japan’s crack Destroyer Squadron 2 in the Solomon Islands battles, offered a balanced military analysis of Japan’s defeat, blaming it on the failure to develop radar, a disunited naval command structure, and interservice rivalry with the Imperial Japanese Army (IJA). Yet even Tanaka explained Japan’s proficiency in night torpedo surface warfare partially in terms of cultural characteristics.2  Tanaka claimed, for example, that Japan excelled in night torpedo warfare until late 1942 because night surface engagements “. . . agreed with the character of Japanese sailors.”  This statement implies, of course, that other nations in the Pacific War failed at early night engagements because of a deficiency in “character” traits “suited” to nighttime naval warfare.  Tanaka’s statement similarly denotes that proficiency in warfare does not ultimately depend on doctrine, training, equipment, and tactics, but on “character” and “spirit”. The question to be asked, therefore, is whether or not Japanese naval officers thought that the IJN lost the war after 1942 because it ultimately lacked character and spirit? Tanaka does not address this issue, but the importance of cultural and national traits as an element of naval warfare is a theme which was highly prevalent in the literature from the 1950s.

The following Japanese literature overwhelmingly employed a cultural context to describe the IJN’s defeat in the Pacific War. It also largely perceived Japan’s national characteristics in negative cultural terms. Interestingly, this tendency to explain defeat in denigrating terminology was in complete contrast to most of Japan’s wartime propaganda, which emphasized Japanese strength, purity, and uniqueness in comparison to Western weaknesses.3

An example of this postwar literature can be seen in Oi Atsushi’s analysis of Japan’s antisubmarine warfare campaign against the United States. A former Captain in the IJN whose primary duties had been planning Japanese antisubmarine defenses against the United States submarine blockade, Oi forcefully asserted that Japan’s defeat in the submarine war in the Pacific was due to the cultural characteristics of the Japanese people. Oi claimed that Japan lost the submarine war because the Japanese were “racially intemperate” and “less tenacious” in a very “tedious” kind of warfare. Moreover, he argued that antisubmarine warfare was shunned by the “more impetuous” Japanese, who desired to focus on “colorful and offensive” fighting rather than “defensive” antisubmarine tactics.4

The vocabulary of Oi’s criticism is fascinating for at least two reasons. First, his use of words and phrases such as “racially intemperate,” “impetuous”, and “untenacious” immediately conjures up images of a nation of children who were ill-prepared for modern technological warfare. Second, this portrayal of non-whites as children coincides with a very strong element of nineteenth and twentieth century racist ideology which had been employed by the nations of Western Europe and by the United States to justify their claims to global hegemony. Oi’s vocabulary, in other words, implies a tacit acceptance of prewar Social Darwinist thought that non-white nations like Japan were inferior states. While Japan had certainly subscribed to its own strain of Social Darwinist thought during its grand days of empire, Oi seems to have completely turned the tables and accepted the Western idea that even Japan was inherently inferior because of its societal and cultural background.5

In a different vein, retired Vice Admiral Yokoi Toshiyuki, Chief of Staff of the Japanese Fifth Fleet when the war ended, more specifically blamed Japan’s defeat on the lack of a “well considered” strategy. He claimed that Japan’s defeat after 1943 was “inevitable” because of a “flawed” strategy which emphasized battleships over airpower. Completely ignoring the vast logistical disparities between Japan and the United States, especially after 1943, Yokoi argued that Japan was not only plagued by its own “flawed” strategy but also asserted that it was “outmatched” by an opponent ” . . . more skilled and powerful in strategy.”6  Since strategy is largely an intellectual exercise, at least in its initial formulation, Yokoi’s charge of a “flawed” or “weak” strategy subtly implies that Japan sported a flawed or weak intellectual foundation in its naval officer corps. On the one hand, Japan’s naval officer corps did demonstrate a weak strategic foundation with its fixation on battleships and the Decisive Battle Doctrine (see below).7

What Yokoi failed to point out is that the United States Navy experienced similar kinds of intraservice rivalry and lack of high-level strategic foresight during the 1920s and 1930s, a situation which resulted in a number of serious tactical reverses in 1941 and 1942. According to Yokoi, many of Japan’s naval leaders failed to grasp the potentialities and implications of their growing naval aviation capability because its early logistical and material superiority afforded it a comfort zone of mistakes. Yet at the same time, he fails to acknowledge the leaps and bounds Japan made in areas such as carrier aviation doctrine which were well ahead of other nations at the time.8

Strategic, operational, and logistical factors, however, seemed to matter very little in Yokoi’s argument. In fact, his article inferred that if Japanese naval strategy had been “strong”, the war might not have been lost or at least lost so badly. He concluded, however, that the strategy could not have been a “powerful” one because Japanese naval strategists were deficient. 9Similar to Oi’s subscription to Social Darwinist thought, Yokoi’s subtle allusions to Japanese intellectual inferiority seems to be another significant acceptance by Japanese naval officers of a central theme of Western racist ideology.

There is additional evidence of Japanese naval officers perceiving their officer corps and  nation in negative cultural terms. Former Commander Chihaya Masataka describes a very successful and stealthy Japanese withdrawal from Kiska in the Aleutians in 1943 and attributes the success of the operation to the talents of Rear Admiral Kimura Masatomi, the commander of the evacuation force. Chihaya’s analysis of the operation, however, denotes that Kimura’s talents were rare in the IJN officer corps in particular and in Japan as a whole. Chihaya described Admiral Kimura as very “calm” in a tense situation, “careful” in his planning and decision making, and “unimpetuous.” From Chihaya’s description, one receives the impression that almost the entire IJN officer corps was composed of hotheads and childlike personalities who reacted badly to complicated plans or combat situations. Chihaya’s generalizations again leave the reader with the impression that Japan was a nation of children which was defeated because of its own immaturity in military planning and decision making.10

Chihaya’s account, however, is not the strongest in its use of stereotyped Japanese character traits to explain defeat. In 1955, former Captain Fuchida Mitsuo, strike leader for the Japanese First Air Fleet and commander of the Pearl Harbor raid in 1941, and former Commander Okumiya Masatake, a carrier operations officer in the Pacific War, published Midway: The Battle That Doomed Japan. Not necessarily a scholarly account, Midway was nevertheless an early Japanese primary source about one of the war’s most decisive battles.11 Fuchida and Okumiya briefly detailed the IJN’s exploits in the Pacific from December 1941 until the Battle of Midway in June 1942 and then devoted most of the book to analyzing the events and outcome of the battle. The most interesting aspect of this work, however, is the concluding analysis and the language used to describe Japan’s defeat. The authors employed a variety of cultural stereotypes to explain Japan’s defeat at Midway and in the Pacific War. Their perspective might have to do with a generational change in the Japanese military officer corps after 1905. Older officers who had matured during the Meiji Restoration had had to be much more familiar with and adept at diplomatic exchange with foreign officers, especially as the Japanese military was modernizing. After 1905, it has been argued that the military officer corps became more insular and parochial in its professional education and training as well as more extreme in its attitudes toward both domestic and international political compromise as Japanese officers had to interact internationally less and less. Perhaps in this vein, both Fuchida and Okumiya, for example, attributed the defeat to the “technological backwardness” of the Japanese people themselves. Largely disregarding Japanese advances in weaponry such as the Long Lance Torpedo, the Fubuki-class destroyer, and the Zero fighter, the authors stated that “. . . Japan started out the Pacific War in an inferior [technological and material] position and remained there.”12  To Fuchida and Okumiya, this technological and material “inferiority” was not simply a product of a resource poor nation fighting a total war. Both officers believed that Japan’s defeat in the war “. . . lies deep in the Japanese national character . . .” and asserted that the Japanese people as a society were “naturally” unsuited to mass production work and were doomed to defeat in a total, industrialized war.  Other terms used to describe the Japanese were equally revealing. Fuchida and Okumiya claimed the Japanese were “impulsive,” “irrational,” “haphazard,” and “contradictory.” In addition, Japanese were portrayed as “narrow-minded,” “indecisive”, and “vacillating.” Worse, the Japanese were allegedly prone to confuse reality and fantasy.13 Even though the body of their analysis followed a conventional military critique of strategy, operations, tactics, training, and doctrine, the tone of the conclusion denoted that racial, cultural, and national characteristics were, in the authors’ views, the root cause of the defeat in the battle and in the Pacific War in general. The defeat, in other words, had little to do with material differences, strategy, or even luck, and everything to do with intellectual and cultural deficiencies arising out of racial inferiority.14

There are, of course, significant problems with Fuchida’s and Okumiya’s work, especially their claims about Japanese weaknesses, which are counterfactual to the available evidence. For example, the Japanese allegedly lacked imagination and daring, yet they were able to carry out an operation like the Pearl Harbor raid. Moreover, Japanese were supposedly unable to sacrifice short-term desires for long-term goals, yet they had industrialized their nation in just one generation during the Meiji Era.15  Contradictory and racist statements such as these detract from what was considered at the time to be a very credible military analysis of the Midway battle. Their work, however, is hardly unusual among the postwar analyses written by former naval officers in the 1950s. What sets Fuchida and Okumiya apart is the particularly strong language they used to describe Japanese culture and society.

A kind of helpless victimization occurred in other works as well. Among some authors, there was a tendency to blame defeat on spiritual occurrences or suppositions. Bad luck, good fortune, and even religion are common in any military organization which trains its people for combat and death. Still, it is interesting to note that spiritual and supernatural forces were given credit for victories and defeats on numerous occasions in this literature. Journalist Ito Masanori, for instance, essentially blamed Japan’s defeat on the “genius” of American radar, which was, of course, a British invention. More importantly, Ito downgraded and demeaned Japan’s victories in 1942 by implying that the victories had less to do with skill and more to do with luck. Ito even called the victory streak a matter of “good fortune.”16 Similarly, defeat at Midway was a matter of an “avenging God” turning against Japan, while defeat in the Solomons was the result of the “superior zeal and fighting spirit” of the enemy.17 Defeat in the Pacific War in general was also attributed at various times to “bad omens” and “abandonment by the Gods of War.”18

Agawa Hiroyuki, a junior information officer in the IJN during the Pacific War and author of a major postwar biography on Admiral Yamamoto Isoroku, placed the Midway defeat primarily in terms of “bad” or “fool’s luck.”  As elements in the defeat, Agawa cited and emphasized such things as the “bad luck” of Commander Fuchida’s last minute sickness and the “misfortune” of malfunctioning scout planes. Agawa essentially ignored the strategic, operational, and tactical mistakes of dividing the strike forces over a large geographic area, the failure to establish operational priorities, or Vice Admiral Nagumo Chuichi’s indecisiveness as the senior officer on the spot.19

How are historians to explain these protestations on the part of Japan’s Pacific War veterans? There are several possible explanations, though no very definitive answers. First, these works may have merely been the product of a clever marketing tactic, aimed at selling books to a 1950s American audience through the reinforcement of dearly held Western cultural stereotypes about “inferior” Asian peoples and their alleged inability to fight protracted, modern wars. This theory, however, seems too simplistic and crass for officers who had dedicated their previous lives to serving the Emperor and were now writing as social outcasts in postwar Japan.

Second, the books and articles may have simply been a way for the naval officers to vent their frustrations about mistakes made during the war or to project blame for the defeat away from the Imperial Navy and its officer corps. By singling out cultural or national characteristics as the cause of defeat, the authors suggest that any human action taken was meaningless because Japan was destined to be defeated. Thus, no matter what they or other officers had done during the war, defeat was inevitable and the officer corps should not be blamed for the consequences. Defeat, in other words, was not an outgrowth of flawed strategy, tactics, or doctrine but was inevitable because of the loss of a heavenly mandate, though this last reason is not a Japanese monopoly.20 The third possibility was provided by retired Maritime Self-Defense Force Rear Admiral Hirama Yoichi during a conversation with the author. Admiral Hirama asserted that the naval officers were not just writing in a context of defeat and were not just seeking to explain the reasons for Japan’s defeat. Instead, he argued that military officers in 1950s Japan were seen as criminals who had been entirely blamed for the defeat and occupation. If correct, Admiral Hirama’s conclusion would mean that these officers may have been attempting to bring an end to their outlaw status in postwar Japan by demonstrating to the nation that defeat was caused by deeply ingrained flaws in the national polity rather than by a criminal military officer corps which had run amuk.21

Fourth, fortune, luck, and heavenly favor are particularly interesting when placed in their historical and political contexts. Ito’s account provides a particularly useful vehicle for analyzing these motives. Published in 1956, the language about “abandonment” by the “Gods of War” could very well have been an admission of guilt to a largely American audience about Japan’s conduct in the war, especially the Pearl Harbor operation. The context of the time period may have been the key to this admission, since the United States and Japan signed the Mutual Security Treaty just a few years later, in 1960. At a time when Japan’s economic, political, and military health was increasingly dependent on its relationship with the United States, unofficial admission of war guilt may have been a step by the authors to mend the fences and begin relations anew with the US.

Finally, the naval officers writing in the 1950s may have simply been too close to the actual events to provide any kind of detached analysis of their own defeat. As the late Craig Cameron asserted in his study of the 1st Marine Division during the 1940s, veterans’ viewpoints about their role in the war became fixed and selective over time. This phenomenon among former Japanese naval officers may explain why one group from the 1950s blamed culture for their defeat and why a different group of officers writing after 1960 found culture to be a largely insignificant factor.22

Strategy, Logistics, and Defeat

A dramatic change in explaining Japan’s naval defeat occurred in the 1960s and 1970s. In these decades, some officers who had fought in the war, as well as a younger generation of officers serving in the Self-Defense Forces, began to explain Japan’s loss of the Pacific War in more conventional military terms. The authors reviewed in this section sought to explain Japan’s naval defeat in terms of military, rather than cultural, strengths and weaknesses. Essentially, they contended that the Imperial Navy was as proficient at various aspects of twentieth century naval warfare as foreign navies, but that Japan was defeated because of strategic, logistical, and technical deficiencies over which it had very little control, because of the negative results of fallible human decision making, and because of the bureaucratic inertia found in many modern military organizations.

Writing in 1961, Captain Hara Tameichi, one of Japan’s ablest destroyer leaders, saw very specific strategic and tactical reasons for Japan’s naval defeat in the Pacific War. Hara made clear his belief that the IJN, especially the surface forces, excelled in quality over the Allied navies because of its difficult and realistic peacetime training program. To Hara, defeat came about because of weaknesses in industrial, material, and logistical capability and the failure to fully exploit technologies like radar and airpower.23 Hara also saw major problems with the IJN’s training doctrine. He believed that most IJN officers were indecisive when it came to battle, not because of any inherent cultural or racial characteristic, but because of a rigid and even brutal training regimen at Eta Jima Naval Academy which produced “sheepish”, unaggressive, and bureaucratic officers who were unimaginative in their strategic and tactical thinking. Hara attributed senior officers’ continuing fixation with battleships during the interwar period to this bureaucratic inertia. He also attributed the battleship officers’ dominance of the Decisive Battle Doctrine–the Mahanian line-of-battle engagement in the Central and Western Pacific which IJN officers believed would decide victory or defeat in any war with the United States–to this bureaucratic inertia.24 As evidence for his assertion, Hara cited numerous instances when successful battle tactics were repeatedly used until they lacked an element of surprise for the United States Navy. These tactics then resulted in heavy casualties for the IJN, yet they continued to be used until long after their effectiveness had clearly dissipated. Hara argued that a more realistic and flexible training program at Eta Jima and Japan’s Naval War College could have produced a less bureaucratic and more proficient naval officer corps.25 To Hara, this stagnant leadership, combined with the Navy’s failure to avoid attrition battles after Guadalcanal, were the main reasons for Japan’s defeat.26 Cultural factors had little, if anything, to do with his analysis.

The idea that training was at the root of the problem was taken up by Asada Sadao in his very thorough and scholarly account of the IJN in the 1930s. The sole naval historian studied in this paper, Asada also saw a very stale, unimaginative, and bureaucratic officer corps coming out of Eta Jima and the Naval War College. Being taught to unquestioningly obey and subscribe to the validity of battleship superiority and the Decisive Battle Doctrine, the officer corps was highly resistant to innovation in terms of a reorientation toward naval airpower.27 Yet this fact alone does not fully explain Japan’s defeat. The same kind of bureaucratic inertia and resistance to innovation was evident at times in the United States Navy in the 1920s and 1930s, and it is still debated to what degree the American Navy had reoriented itself from surface to naval airpower by 1941. Only the defeat at Pearl Harbor forced the United States Navy to rely fully on its aircraft carriers in the following months. In fact, the IJN had a greater number of aircraft carriers in operation in 1941 and seemed to have a more serious commitment to naval aviation at the beginning of the war.28 Thus, numbers, as Hara stressed, seem to have become the determining factor by 1942-1943, as opposed to training policy, which Asada asserted more strongly. Still, Asada, like Hara, deemphasized culture as a debilitating factor and demonstrated with primary sources that the IJN suffered from bureaucratic problems similar to other military organizations in the early twentieth century.29

Numbers and numerical inferiority, especially in naval airpower and radar-equipped ships, were the main reasons which retired Air Self-Defense Forces General Genda Minoru cited for Japan’s defeat in the Pacific War. Genda was one of the IJN’s first fighter pilots and helped plan the Pearl Harbor and Midway operations as the Air Operations Officer for the First Air Fleet. Genda asserted that the IJN was superior to the United States Navy in terms of flying, navigation, night fighting, torpedo warfare, and bombing skills.30 According to Genda, the reason the war was lost was a tendency in the IJN to try to compensate for material shortages with “spirit.” This tendency was not, however, attributed to any national or cultural characteristic, but was simply a tactic used by a resource poor nation to redress inherent logistical deficiencies. Genda argued that Japan’s primary mistake was getting involved in a long war with the United States. The fact that Genda never recanted Japan’s role in the war itself suggests that he found nothing wrong with the war or its goals, in complete contrast to the officers writing in the 1950s. To Genda, the war was merely badly planned and poorly executed in terms of its objective timetables. Japan, in other words, flawed when it failed to quickly destroy the American carrier forces, secure a comprehensive Pacific Basin defense perimeter, and negotiate a peace. It did not flaw in launching the Pearl Harbor operation itself. 31

The most scholarly and well-researched work which was reviewed was Admiral Hirama’s article. Hirama, writing in 1991, was one of the few authors, in addition to Asada, to extensively use IJN planning documents as his sources. Hirama admits that the interwar worship of the battleship may have been too strong for the IJN’s own good, but he does not believe that the Navy’s concentration on surface power was as strong as previous scholars have alleged. Nor does he believe that the Decisive Battle Doctrine was as inflexible as previously asserted.32 In fact, Hirama demonstrates that the Decisive Battle Doctrine changed over time by illustrating that the doctrine was defensive and based on surface power only in the 1920s, before submarines and naval airpower became viable agents to implement a more offensive strategy.33  Hirama cites force strengths and planning documents to show that as submarines and naval airpower grew in numbers and capability,they also grew in importance for IJN operations.34

In addition, he claims that the IJN’s strategy evolved from an “interception” strategy, whereby the Navy would intercept the American Fleet as it moved close to Japan, to one of “interception-attrition,” whereby the Navy would use its bases in Micronesia, its longer-ranged submarines, and its carrier fleet built in the 1930s to intercept the American Fleet much closer to Hawaii than previously planned. Only more powerful submarines, more capable carrier airpower, and the integration of these forces into line-of-battle tactics allowed the Navy to revise the strategy in this way.35 To Hirama, the only reason the IJN continued to emphasize night torpedo warfare after the 1920s was that nighttime surface training was a useful support in battle vis-a-vis the air and subsurface arms, and because it was valued as a way to keep the IJN’s battle skills honed in peacetime. He also argued that Japan’s fatal mistake in the Pacific War was not an overemphasis on surface power, but an overemphasis on land-based naval airpower and an inability to counter highly mobile American carrier groups which outnumbered IJN forces after 1943.36

Another fascinating paper was that presented in the fall of 1991 at the United States Naval Academy’s Tenth Naval History Symposium in Annapolis, Maryland, by retired Maritime Self-Defense Force Captain Akihiko Yoshida. Akihiko presented research on the Pearl Harbor strike and contended that the air assault on Battleship Row could have been conducted in a more “organized” and “effective” manner! 37 Akihiko’s interpretation was that the air assault was generally successful, but that it could have been much more effective if veteran flyers had been used in the initial assault, neophyte flyers had flown the second wave, and radio communications had been used to coordinate strikes after the attack force arrived over Pearl Harbor. 38  Apparently, there was confusion about Commander Fuchida’s flare signals for the attack and the manner in which the aerial units were to coordinate their strikes.39  As reasons for the “confused” air assault, Akihiko found fault in the policy of mixing veteran and neophyte air groups which had not trained together for very long. He also found fault with the Navy air arm’s lack of training in high and very high frequency (HF/VHF) radio communications, and with its obsession with radio silence even after the strike force arrived over Pearl Harbor.40  Akihiko’s interpretation must have proved particularly interesting to his audience, considering that it was predominantly composed of American naval officers marking the fiftieth anniversary of the Pearl Harbor raid!

The works by Hara, Asada, Hirama, and Akihiko illustrate another side to the debate over Japan’s naval defeat. These authors consistently saw Japan’s defeat as the result of military-technical factors over which Japan had little control, or as a consequence of bureaucratic inertia that was fairly common in military organizations, or as the result of poor decisions made by fallible human beings under tremendous pressures. National or cultural characteristics as factors in military defeat had little, if any, place in their analyses.

Conclusion

A number of conclusions can be drawn from these most recent examples of post-1945 accounts. One, the historical analysis of Japan’s naval defeat became more sophisticated over time as naval historians and naval officers trained in historical research techniques took over strategic, operational, and tactical analysis from officers who actually fought in the war. A second conclusion is that as the war  receded into the past and professional historians with fewer political axes to grind  came to dominate the debates, explanations for Japan’s defeat  became more precise, more intellectually sound and debatable, and certainly less grounded in over-generalized, stereotyped, racist, and even self-flagellating terminology. Third, and most obvious, the explanations about Japan’s naval defeat have entailed more complex comparisons with other naval powers and the problems these powers encountered in projecting and employing their naval forces during wartime. This greater complexity can especially be seen with the thoughts of Vice Admiral Yoji Koda, retired Commander of the Japanese Maritime Self-Defense Fleet, who argued that while the Japanese Government and military began to exhibit “emotional” characteristics in its strategic formulations in the 1930s this phenomenon could happen to any nation because of human nature, bureaucratic inertia, and a gap between planning and operations.

References

  1. See Vice Admiral Koda Yoji, Japanese Maritime Self-Defense Force (JMSDF) (RET),”Doctrine And Strategy in IJN” (lecture, U.S. Naval War College, 20 January 2011). 
  2. Ibid.  According to John Dower, the idea that a nation could be classified by “character traits” was also the basis for much of the Allied wartime study of Japan.  In fact, these wartime studies were called “national character studies”; see John W. Dower, War Without Mercy:  Race & Power in the Pacific War (New York:  Pantheon Books, 1986), 9 and 120-123. 
  3. Dower believes that Japanese wartime propaganda had more to do with self-promotion and the negation of Western stereotypes rather than the denigration of Westerners themselves.  For an analysis of this wartime propaganda, see ibid, 203-233 and 262-290. 
  4. Captain Oi Atsushi, “Why Japan’s Antisubmarine Warfare Campaign Failed,” in David C. Evans, ed., Japanese Navy in World War IIIn the Words of Former Japanese Naval Officers(Annapolis, Maryland:  Naval Institute Press, 1986), 387 and 414. 
  5. Again, the allusions to immaturity are analyzed by Dower.  The pre-1941 language and terminology used in the West to describe the Japanese significantly parallels the language used by Japanese naval officers during the 1950s to explain their own defeat; see Dower, War Without Mercy, 9, 122, 133, and 145. 
  6. According to Admiral Koda, the entire Japanese strategic planning apparatus demonstrated major and basic flaws, but not because of any racial or cultural mindset.  Admiral Koda demonstrated that it was Japan’s inexperience with modern total war, stemming from its lack of participation in the European phase of World War One that created the vast gulf between planning and operations that became so prevalent in the 1920s and especially the 1930s; see Koda, “Doctrine and Strategy of IJN,” 20 January 2011. 
  7. Vice Admiral Yokoi Toshiyuki, “Thoughts on Japan’s Naval Defeat,” in Evans, Japanese Navy in World War II, 515. 
  8. For the Decisive Battle doctrine, see footnote 24.  For aspects of American wartime strategy, see D. Clayton James, “American and Japanese Strategies in the Pacific War,” in Peter Paret, ed., Makers of Modern Strategy:  From Machiavelli to the Nuclear Age (Princeton:  Princeton University Press, 1986), 726-727.  For evidence that some senior American naval officers may not have appreciated or even understood the potentiality of carrier forces, see Clark G. Reynolds’ account of Admiral William Halsey’s conduct as Commander of the US Third Fleet during the Battle of Leyte Gulf in The Fast Carriers:  The Forging of an Air Navy  (Annapolis, Maryland:  Naval Institute Press, 1992), 253-300.  See also Vice Admiral John Towers’ frustration over American carrier forces being commanded by surface officers in 1942.  Towers, the United States Navy’s third naval aviator, one of its first “air admirals,” and Nimitz’ Commander of Pacific Fleet Air Forces (COMAIRPAC), specifically blamed heavy carrier losses in 1942 on the ships being commanded by surface officers who allegedly did not know how to employ these vessels; see Reynolds, Admiral John H. Towers:  The Struggle for Naval Air Supremacy (Annapolis, Maryland:  Naval Institute Press, 1991), 406-454.  For a highly cogent demonstration that some senior surface officers in the United States Navy did, in fact, know how to fight the carrier forces effectively, see John Lundstrom, Black Shoe Carrier Admiral:  Frank Jack Fletcher at Coral Sea, Midway and Guadalcanal (Annapolis, Maryland:  Naval Institute Press, 2006).  In addition, it needs to be understood that numerous naval historians have significantly recast the interwar United States Navy and the senior officer corps.  Based on reexaminations of primary sources, post-Cold war historians have demonstrated that the interwar American naval officer corps experimented with naval aviation, submarine warfare, and amphibious assault doctrine to a much greater degree than the Japanese Navy did or than Cold War-era historians such as Reynolds were willing to admit.  For detailed accounts of interwar American naval doctrine, see Joel Davidson, The Unsinkable Fleet:  The Politics of U.S. Navy Expansion in World War II  (Annapolis, Maryland:  Naval Institute Press, 1996), 11, 12, 14, 15-16, 19-21, 23, 24, 32, 34, 60, 96, and 97; Thomas Wildenberg, Destined for Glory:  Dive Bombing, Midway, and the Evolution of Carrier Airpower (Annapolis, Maryland:  Naval Institute Press, 1998), 48-64, 83-98, 126-128, 141, 155, 157-160, 163-164, and 170-171; William McBride, Technological Change and the United States Navy, 1865-1945 (Baltimore, Maryland:  Johns Hopkins University Press, 2000), 111-212; Thomas Hone and Trent Hone, Battleline:  The United States Navy, 1919-1939 (Annapolis, Maryland:  Naval Institute Press, 2006), 110-125; Craig Felker, Testing American Sea Power:  U.S. Navy Strategic Exercises, 1923-1940 (College Station, Texas:  Texas A&M University Press, 2007), 61-75; John Kuehn, Agents of Innovation: The General Board and the Design of the Fleet that Defeated the Japanese Navy (Annapolis, Maryland: Naval Institute Press, 2008), 87-92, 173-175, and 205; Joel Holwitt, “Execute Against Japan”:  The U.S. Decision to Conduct Unrestricted Submarine Warfare (College Station, Texas:  Texas A&M University Press, 2009), 22, 62, and 63-83; and Albert Nofi, To Train the Fleet for War:  The U.S. Navy Fleet Problems, 1923-1940 (Newport, Rhode Island:  Naval War College Press, 2010), 25, 51-56, 60, 62, 64, 65, 66, 74, 76-77, 80, 85-86, 93-94, 100-102, 104, 105, 110-117, 121-125, 129-136, 139-146, 151, 155, 156-159, 169,197-203, 207-216, 219-227, 229-237, 253-263, and 287-288.  For interwar Japanese carrier doctrine development, see Jonathan Parshall and Anthony Tully, Shattered Sword:  The Untold Story of the Battle of Midway (Washington, D.C.:  Potomac Books, 2005), 82-86, 158, 163, 167, 168, 171, 397, 414, and 442 
  9. See Dower, War Without Mercy, 103, for pre-1941 Western perceptions about “inflexible” Japanese strategies and tactics and ibid., 97-98, 122, 123, 145, and 153-154, for Western views on alleged Japanese intellectual inferiority which were highly similar to views expressed by Japanese naval officers such as Captain Oi. 
  10. Captain Fuchida Mitsuo and Commander Okumiya Masatake, Midway:  The Battle That Doomed Japan (Annapolis, Maryland:  Naval Institute Press, 1955). 
  11. Ibid., 243.  Similarly, former Lieutenant Commander Hashimoto Mochitsura, writing about the destruction of the IJN’s submarine force in the Pacific War, claimed that the IJN’s major fault was in failing to develop sophisticated radar before 1943.  Hashimoto asserted that the lack of this sophisticated technology was like going to war with a “bamboo lance.”  The phrase conjures up images of “primitive” weapons and “native” warriors fighting “civilized” Western Techno-soldiers.  In effect, the phrase implies that the Japanese military was somehow culturally inferior to the American military in World War Two and was thus defeated; see Hashimoto, Sunk: The Story of the Japanese Submarine Fleet, 1941-1945 (New York:  Henry Holt And Company, 1954), vi; see also Dower, War Without Mercy, 94-117 and 121-122.  Dowers offers a great deal of evidence from pre-1941 Western sources that the Japanese were perceived as “subhuman creatures” who were incapable of producing “modern” weaponry or conducting “modern” warfare.  After the Japanese victories of 1941-1942, however, much of this propaganda gave way to stereotypes painting the Japanese as quasi-supermen.  For the changes in Japanese military leaders attitudes after the Russo-Japanese War, see Yuki Tanaka, Hidden Horrors: Japanese War Crimes in World War II(Boulder, Colorado:  Westview Press, 1996), 206-211. 
  12. See Fuchida and Okumiya, Midway, 243-244 and 247-248; see also Dower, War Without Mercy, 121-122. 
  13. Fuchida and Okumiya, Midway, 247-248. 
  14. Ibid., 232-248. 
  15. For this transformation from “sub-humans” to “supermen”, see Dower, War Without Mercy, 97-98 and 112-116. 
  16. Ito Masanori, The End of The Imperial Japanese Navy (W.W. Norton & Company, Inc., 1956), 44-53.  Ito was the only author from the 1950s studied for this paper who was not a professional naval officer.  He was, in fact, a journalist, but his viewpoints about Japan’s defeat closely coincided with the naval officers writing in the 1950s. 
  17. Ibid., 69 and 83. 
  18. Ibid., 93 and 107.  The reader should note, however, that blaming military defeat on luck or metaphysics was not limited to the Japanese or even to the military personnel of a defeated power.  Craig Cameron has demonstrated that Richard Tregaskis, author of Guadalcanal Diary, described the men of the 1st Marine Division as “pawns in a battle of the gods” when the situation looked “in doubt” after the United States Navy withdrew its carrier forces from the Solomons area in August 1942; see Tregaskis, Guadalcanal Diary (New York:  Random House,1943), 62, as quoted by Cameron, American Samurai:  Myth, Imagination, And The Conduct Of Battle In The First Marine Division, 1941-1951 (Cambridge, England:  Cambridge University Press, 1994), 98. 
  19. Agawa Hiroyuki, The Reluctant Admiral:  Yamamoto and the Imperial Navy  (New York: Kodansha International, Ltd., 1979), 312 and 314-315.  For a balanced critique of battles such as Midway and the Japanese defeat because of a gap between planning and operations rather than race and culture, see Koda, “Doctrine and Strategy of IJN,” U.S. Naval War College lecture, 20 January 2011. 
  20. In May 1993, Dr. Raymond O’Connor, Professor Emeritus of History at the University of Miami, told this author that Japanese naval officers using cultural arguments to explain their defeat was “endemic”.  O’Connor’s observations were based on numerous conversations he had had with his California neighbor, retired Rear Admiral Edwin Layton, who had been the Combat Intelligence Officer on the staff of the Commander-in-Chief of the U.S. Pacific Fleet (CINCPACFLT) immediately before and during most of the Pacific War.  Layton had been involved in interrogating Japanese naval officers after the September 1945 surrender, and he told O’Connor that this phenomenon had been a widespread occurrence; conversation between Dr. O’Connor and the author, 60th Annual Conference of the Society for Military History, Royal Military College of Canada, Kingston, Ontario, May 21, 1993.  While General Robert E. Lee did employ similar types of fatalism to denote Confederate victories and defeats in the American Civil War, this author would suggest that perhaps Lee’s nineteenth century context should be taken into account in any analytical comparison to twentieth century military officers; see Thomas Buell, The Warrior Generals:  Combat Leadership in the Civil War (New York:  Three Rivers Press, 1997), 49, 80, 98, 131, 210, and 233. 
  21. Conversation between the author and Rear Admiral Hirama Yoichi, World War II in the Pacific Conference, U.S. Navy Museum, Washington Navy Yard, Washington, D.C., August 10, 1994. 
  22. See Cameron, American Samurai, 10, 34, and 249. 
  23. See Captain Hara Tameichi, Japanese Destroyer Captain (New York:  Ballantine Books, 1961), 1-25, 58, and 61. 
  24. The Decisive Battle Doctrine was a strategy which was based on the battleship strength of the IJN.  The role of battleships in the victories over China and Russia in 1894-1895 and 1904-1905, respectively, produced a nearly unshakeable confidence among many Japanese naval officers in the ability of battleships to destroy the American Pacific Fleet if it ever attempted to interfere in Japan’s sphere of influence on the East Asian mainland.  The strategy evolved, however, through a number of revisions, and Admiral Hirama argues that the centrality of the battleship gave way to an emphasis on carrier and submarine forces by the 1930s.  Nevertheless, battleship operations continued to remain a major focus until the Pacific War and the Doctrine continued to envision the US Pacific Fleet advancing from Hawaii, being reduced by air and submarine forces along the route to Japan, and then being decisively engaged near Micronesia by the main battleship fleet.  For the development of the Decisive Battle Doctrine, see Mark R. Peattie, “Akiyama Saneyuki and the Emergence of Modern Japanese Naval Doctrine,” U.S. Naval Institute Proceedings 103 (January 1977):  60-69; Peattie and David C. Evans, “Sato Tetsutaro and Japanese Strategy,” Naval History 4 (Fall 1990):  34-39; and Carlos R. Rivera, “Akiyama Saneyuki and Sato Tetsutaro:  Preparing for Imperial Navy for the Hypothetical Enemy, 1906-1916,” paper presented at the 29th Annual Northern Great Plains History Conference, St. Paul, Minnesota, September 28-October 1, 1994.  For changes in the Decisive Battle Doctrine as new technology was introduced in the 1920s and 1930s, see Rear Admiral Hirama Yoichi, Japanese Maritime Self-Defense Force (Retired), “Japanese Naval Preparations for World War Two,” Naval War College Review 44 (Spring 1991):  63-81. For more recent work in this area, see David Evans and Mark Peattie, Kaigun:  Strategy, Tactics, and Technology in the Imperial Japanese Navy, 1887-1941 (Annapolis, Maryland:  Naval Institute Press, 1997); Mark Peattie, Sunburst:  The Rise of Japanese Naval Air Power, 1909-1941 (Annapolis, Maryland:  Naval Institute Press, 2001); and Asada Sadao, From Mahan to Pearl Harbor:  The Imperial Japanese Navy and the United States (Annapolis, Maryland:  Naval Institute Press, 2006). 
  25. See Hara, Japanese Destroyer Captain, 11-17, 117, 118, 120-121, 134-157, and 157-176.  Western observers in the 1930s and 1940s believed that Japanese tactics were inflexible because of “national characteristics,” especially a predilection to “short tempers” in stressful combat situations.  Hara, however, sees a bureaucratic, rather than a cultural, reason for this phenomenon and believed this bureaucratic inertia could infect and negate the efficiency of any naval organization.  So does Admiral Koda; see Koda, “Doctrine and Strategy of IJN,” U.S. Naval War College, 20 January 2011.  For the Western literature, see Dower, War Without Mercy, passim. 
  26. See Hara, Japanese Destroyer Captain, 3. 
  27. Asada Sadao, “The Japanese Navy and the United States,” in Dorothy Borg and Okamoto Shumpei, eds., Pearl Harbor as History:  Japanese-American Relations, 1931-1941  (New York: Columbia University Press, 1973), 225-259; see also Asada, From Mahan to Pearl Harbor, 287-296, especially for the perspective that much of IJN strategic thought was a response to bureaucratic rivalry with the IJA, not really an orientation to fight the United States Navy. 
  28. See Hirama, “Japanese Naval Preparations,” 69-71; see also Parshall and Tully, Shattered Sword, 3-18 and 60-114. 
  29. See Asada, “The Japanese Navy and the United States,” passim. 
  30. General Genda Minoru, Japanese Air Self-Defense Force (Retired), “Tactical Planning In The Imperial Japanese Navy,” Naval War College Review 22 (October 1969):  45-50. 
  31. Ibid. 
  32. See Hirama, “Japanese Naval Preparations,” 63-81. 
  33. Ibid., 64-67. 
  34. These consisted of a series of “Replenishment Plans,” or programs designed to build up the submarine and air strength of the IJN in the late 1930s.  For example, larger submarines for ocean cruising were developed, as were submarine command and control vessels to ensure tactical control over large submarine flotillas operating at long distances in the central and eastern Pacific.  In addition, the famous Zero fighter and the Betty land-based torpedo bomber were developed at this time and the strength of the naval air force grew from 7.5 air groups and 120 aircraft in 1931 to over 3300 aircraft and ten aircraft carriers in 1941; see Hirama, “Japanese Naval Preparations,” 70. 
  35. Ibid., 67-71 and 73-74. 
  36. Ibid., 78-79. 
  37. Captain Akihiko Yoshida, Japanese Maritime Self-Defense Force (Retired), “The Disorderly Air Assault on Battleship Row,” paper delivered at the Tenth Annual Symposium on Naval History, United States Naval Academy, Annapolis, Maryland, September 13, 1991, 1-4.  For a more recent and even more critical, though probably overdone, critique of the Japanese strike on Pearl Harbor, see Alan Zimm, Attack on Pearl Harbor:  Strategy, Combat, Myths, Deceptions(Philadelphia, Pennsylvania:  Casemate Publishers, 2011). 
  38. Ibid. 
  39. Ibid., 3. 
  40. Ibid., 3-4. 

Featured Image: Imperial Japanese Navy’s aircraft carrier Amagi capsized after U.S. navy air raid, Kure, Japan, 1946.