Chapter I: Preparation for War (2)

A notable feature in connection with the Army Service Corps was its employment, before the outbreak of hostilities, in a rôle that was essentially preparatory. For the first time in the history of the corps, transport companies and supply detachments were sent in advance of the troops whom they were to serve, and prepared the way for them. With the despatch of two companies in July to make good the transport of the existing force in South Africa, five officers also proceeded to South Africa to assist in organising the supply and transport duties in the event of a large force being sent out.[33] Further embarkations took place in September and October, and the remainder of the Army Service Corps units, detailed for duty with the army corps, embarked before war had actually been declared, and before any of the troops of the army corps had sailed. The advantages attending these measures were that not only did all units on arriving at their concentration stations in South Africa find their transport ready for them, but the transport and supply services generally were organised and in working order for their share of the operations.

[Footnote 33: The General Officer Commanding South Africa had
applied for special service officers acquainted with "B."
duties.]

_Royal Army Medical Corps._

In respect of preparations, even up to the two army corps standard, the Royal Army Medical Corps was weak in numbers. Barely sufficient in its personnel even for peace requirements, it possessed no organisation for expansion in war. The establishment of officers was designed to provide for the bearer companies and field hospitals of two army corps and a cavalry division, with seven stationary and three general hospitals on the lines of communication. This only allowed for under 3 per cent. of the troops having beds in general and stationary hospitals. Without withdrawing officers from the colonies,[34] the aid of 99 civil surgeons would be required. These gentlemen were to be selected when their services were needed, but as there was no registered list, no claim on the service of anyone could be exacted. When the field army was provided for, the home hospitals were entirely denuded of personnel. The work was carried on by retired officers and civil surgeons. The establishment of non-commissioned officers and men was designed only for peace purposes, and beyond the reserve there was no estimate for additions in case of war. A state of war was to be met by civilian assistance, increased employment of women nurses, and active recruiting. An increase of establishment which had been proposed for the estimates of 1893-4 and successive years had gradually obtained complete sanction by 1898.[35] The increase of the army as a whole and the known weakness in South Africa caused demands for yet larger numbers in the estimates of 1899-1900. The Army Board were not disposed to recommend more than a portion of these additions.[36] The difficulty of obtaining sanction for expenditure on measures of greater urgency required that that which was considered of less importance should be dispensed with, so the hospital orderly had to be rejected in favour of the soldier to fill the ranks. To provide the general and stationary hospitals that accompanied the First Army Corps with complete personnel, it became necessary to denude the bearer companies and field hospitals of the Second Army Corps. It is not surprising, therefore, that "war having been declared, and practically the whole available personnel having been swept off to South Africa with the first demands, it became necessary to seek for other means of supply."[37] Hospital equipment was dealt with by the Director-General of Ordnance, but with surgical and medical stores the Army Medical Department was itself concerned. Funds to replace the old-fashioned instruments then in use were asked for in 1896, and between that date and the outbreak of war great improvements had been made. The change, however, had not been universally completed, and on the outbreak of war a few instruments of comparatively antiquated type were still to be found in South Africa. A similar argument to that which prevailed against the increase of personnel met the several requests for storage room. It was represented that the indifferent storage available deteriorated the instruments and made the drugs worthless. On the other hand, the perishable nature of drugs renders it inadvisable to keep a large amount in store, besides which, ample supplies can always be purchased in the market. The subsequent experience went to prove that there was no difficulty in this matter. Throughout the war the department was wonderfully well equipped as regards drugs and instruments, and no branch was more successful than that concerned with medical supplies.

[Footnote 34: The establishment for India is distinct.]

[Footnote 35: An increase of 212 was asked for, and was
obtained by successive grants of 54, 53, 52 and 55--total,
214.]

[Footnote 36: The estimate was for 400 of all ranks, and 150
were granted. The balance was granted in November, 1899, and
the men were of course untrained.]

[Footnote 37: Statement by Surgeon-General Jameson, Royal
Commission on South African Hospitals.]

_Army Veterinary Department._

On the outbreak of war the Director-General of the Army Veterinary department was responsible to the Adjutant-General for the efficiency of his department and the maintenance of veterinary supplies. The superior control was subsequently transferred to the Quartermaster-General. The proportion of the veterinary service which should accompany a force on active service was not laid down. Not only was there no organisation to admit of expansion but, owing to the unattractive conditions attaching to service in the department, the number of officers was actually below the authorised establishment. In addition to the discharge of ordinary duty, heavy demands were made by the Remount department for veterinary officers to assist in the purchase and transport of horses and mules. It was necessary, therefore, almost from the first, to engage civilian veterinary surgeons.[38] The personnel of the department did not include any subordinate staff. The Director-General[39] of the department was in process of adopting, with improvements, the Indian system of equipment, for which he had himself been responsible. The amount of this equipment which it had been possible to prepare before the outbreak of war was insufficient, but the deficiency was remedied by indenting on India for four field veterinary hospitals and 100 field chests, which enabled the supply to be kept up to the subsequent demands.

[Footnote 38: The home establishment of the department was
63; 121 civilian veterinary surgeons were employed in South
Africa, besides those engaged by local Volunteers.]

[Footnote 39: Veterinary Colonel F. Duck, C.B., F.R.C.V.S.]

_Inspector-General of Fortifications._

This officer was responsible for engineer stores. The nature of those required depends largely on the country in which the campaign is to be carried on; therefore, practically no reserve was maintained of such ordinary items as can easily be bought in the market. Of manufactured goods, such as railway plant, telegraph material and pontoons, which require time for production, there was an insufficient reserve, notably of the last named. In order to send out a number sufficient to meet the probable requirements in South Africa, all reserve pontoons, including some of questionable value, were collected, and the country was denuded. This deficiency had been represented on different occasions, but for want of funds nothing could be done towards the provision of new pontoons until October, 1899.

_Ordnance._

Of all the departments, this was subjected to the greatest strain and was the least prepared to meet it. The reasons were as follows. For some years previous to 1897 the system in force was that, although the Director-General of Ordnance was charged with the supply of stores to the army, the financial control and the entire direction of the ordnance factories rested with the Financial Secretary to the War Office, who belonged to the Ministry of the day. No supplies could be obtained by the former unless with the permission and by the order of the latter. The system conduced to a lack of sympathy of motive, which caused a disinclination on the one part to ask for what on the other there would be more than a disinclination to give. This tended to crystallise the national proneness to defer until the emergency arose the measures necessary to meet it. It followed, then, that while attention was given to the needs of the moment, practically all provision for the requirements of the future was relegated to the background. A further defect in the system was that it resulted in there being no proper understanding between those who had intimate knowledge of what was required by the army and those who were responsible for manufacture.

[Sidenote: Sir Henry Brackenbury's appointment.]

During the three years that Lieutenant-General Sir Henry Brackenbury had been President of the Ordnance Committee at Woolwich he had been impressed by the unsatisfactory working of the system and, on being offered the appointment of Director-General of Ordnance, in November, 1898, he urged that the direction of the ordnance factories should be transferred to the holder of that appointment. The matter was discussed by the Cabinet and, on its being decided to make the transfer, Sir H. Brackenbury took up the appointment in February, 1899. The transfer was effected by the Order in Council of March 7th, 1899, which enumerated the duties with which the Director-General of Ordnance was charged,[40] and included in them that of the direction of the manufacturing departments of the army. The financial control of the factories still remained with the Financial Secretary.

[Footnote 40: The duties are detailed in Sir Henry
Brackenbury's reply to the Royal Commission, A. 1,555.]

[Sidenote: State of ordnance stores.]

The Secretary of State himself had felt some concern as to the condition of affairs in the Ordnance department and it was on his initiative that Sir Henry Brackenbury was selected to set matters right. On taking up the duties of Director-General of Ordnance, the new chief commenced an enquiry into the condition of the armament and the state of reserves of all ordnance stores. In the early months of the year the greater part of his time and attention was taken up by the important question of replacing the obsolete armament of our sea defences. From June onwards the whole energies of the department were directed towards meeting the requirements of the force which might possibly have to take the field. It was not until the despatch of this force that the true barrenness of the land came to be revealed, and melancholy was the outlook it presented.

[Sidenote: Warning to G.Os.C.]

Early in 1899 the Director-General of Ordnance issued confidential instructions to General Officers Commanding districts regarding special scales of clothing and equipment for the field force contemplated for service in South Africa. These instructions enabled demands to be prepared, so that they could be put forward without delay on the order to mobilise.

[Sidenote: Method of keeping equipment.]

Wherever storage buildings were available the war equipment of units was kept on their charge. In other cases it was apportioned to units but held in store for them by the Ordnance department. When mobilisation was ordered, there was war equipment practically complete to enable two army corps, a cavalry division, and lines of communication troops to take the field.

[Sidenote: Clothing.]

The special clothing prescribed for South Africa entailed an entire change of dress--helmet, body-clothing, and boots. Sanction had been given in April, 1899, for the storage of a reserve of khaki drill suits,[41] of which the amount authorised would have been insufficient, but fortunately the Clothing department had a surplus which enabled a complete issue to be made on mobilisation. It had been represented from South Africa, with the support of the Director-General of the Army Medical Service at home, that serge was more appropriate to the climate than cotton drill, and the substitution had been approved by the Commander-in-Chief on August 18th. No steps towards effecting the change could be taken until the grant of September 22nd, and the first three divisions embarked with cotton drill clothing.[42] It is probable, however, that even had the money been forthcoming when the change was first approved, not more than half the amount required could have been obtained in the time. One difficulty experienced in connection with the issue of clothing was that of providing each unit with the right number of suits of particular sizes. Many of the reservists who presented themselves on mobilisation were found to have increased considerably in figure, and consequently much fitting and alteration was necessary. This caused delay. At that time the boot for foreign service differed in pattern from that for home service, and an issue of the former was made. The supply on hand was only sufficient to allow a complete issue to men of the mounted services, while dismounted soldiers had one pair of each pattern, reservists having home service pattern entirely. The sudden demand on the market for the materials necessary for these articles of clothing entailed a considerable increase of cost, without, at the outset at least, ensuring provision of the best quality.

[Footnote 41: This reserve consisted of 40,000 suits; the
number actually issued was sufficient to equip the force
completely.]

[Footnote 42: At the time of year this was suitable, and
serge clothing was eventually sent out. Troops subsequently,
up to May, 1900, took one suit of drill and one suit of
serge. Later each man took two suits of serge.]

[Sidenote: War equipment.]

At the outbreak of war the authorised war equipment was practically complete, and there remained the equipment for a third army corps, but suitable only for service at home. Beyond this, there was no provision of special reserves to meet the continual drain by service in the field abroad. Such reserve material as there was for batteries of both horse and field artillery was speedily exhausted; while to provide heavier ordnance it was necessary to draw upon the movable armament for home defence. More speedy still was the exhaustion of gun ammunition, and not even the suspension of Naval orders in the factories, with loans from the Navy and from India, could enable demands to be complied with quickly enough. Similarly, the deficiencies in other stores, such as camp equipment, vehicles, harness, saddlery and horse-shoes, made themselves apparent at a very early date in the war.[43]

[Footnote 43: In the matter of hospital equipment previous to
mobilisation there had been stores for field hospitals of
three army corps; but there was no reserve of equipment for
stationary hospitals or general hospitals, except for one
general hospital and two stationary hospitals, which were not
included in the army corps organisation.]

[Sidenote: Purchases abroad.]

[Sidenote: Mark IV.]

Any idea that may have existed that the ordnance factories and the trade would be able to meet all demands from week to week was quickly dispelled. The supply could not keep pace with the need, and in some cases the exhaustion of the home market necessitated large purchases in Europe, Canada, and the United States. Of rifles and other weapons at this time the store was ample, except in the case of sabres, of which, owing to a contemplated change in pattern, the reserve had been allowed to fall very low. There was a complete reserve of ball ammunition of the kinds approved for use in the earlier part of 1899, viz.: Mark II. and Mark IV., the latter having an expanding bullet. During the summer of 1899 it was found that under certain conditions the Mark IV. ammunition developed such serious defects that, apart from the inexpediency of using a bullet which the signatories to the Hague Convention[44] had condemned, it was deemed advisable to withdraw this particular kind of ammunition as unsuitable for war purposes. This meant that two-fifths of the reserve was unserviceable.

[Footnote 44: The British Government was not a party to this
clause.]

[Sidenote: Alarming minute from D.G.O.]

On 15th December, 1899, as the result of his enquiry, Sir Henry Brackenbury put forward his report to the Commander-in-Chief, in which he enumerated in detail the various deficiencies of stores brought to light by the war in South Africa. The condition of affairs was such as to cause grave apprehension. To use his own words: "That war has now disclosed a situation as regards armaments, and reserves of guns, ammunition, stores and clothing, and as regards the power of output of material of war in emergency which is, in my opinion, full of peril to the Empire; and I, therefore, think it my duty, without waiting to elaborate details, to lay before you at once the state of affairs, and to make proposals, to which I invite, through you, the earnest and immediate attention of the Secretary of State." These proposals dealt with the provision of armaments, reserves of ammunition, stores and clothing, and the improvement of factories and storage-buildings, with the object of putting the country in a condition of safety and preventing the possibility of the recurrence of the state of affairs disclosed.[45]

[Footnote 45: Sir H. Brackenbury's representation was laid
before the Cabinet and resulted, on the recommendations of
the Mowatt and Grant Committees, in a grant of £10,500,900 to
be distributed over a period of three years.]

[Sidenote: A free hand.]

In his minute Sir Henry Brackenbury also insisted on the necessity of a free hand being given in time of war to the Inspector-General of Fortifications as regards works and buildings, and to the Director-General of Ordnance as regards armaments, stores and clothing. He had, through the Army Board, on the 22nd September, brought to the notice of the Secretary of State the difficulties and delays inseparable from the financial system which obtained in peace time, and had been granted practically what he asked in his expenditure for the supply of the army during the war. On this point Sir Henry Brackenbury remarked in his report:--

"It is only by such a free hand having been given to us since the outbreak of war in October that it has been possible to supply the army in the field, and even so, owing to the want of reserves, we have been too late with many of the most important articles."

The tale of deficiencies was thus summed up by the Secretary of State:--

[Sidenote: Lord Lansdowne's note.]

"It is, I think, abundantly clear from Sir H. Brackenbury's Report, that we were not sufficiently prepared even for the equipment of the comparatively small force which we had always contemplated might be employed beyond the limits of this country in the initial stages of a campaign. For the much larger force which we have actually found it necessary to employ our resources were absolutely and miserably inadequate. The result has been that the department, even by working under conditions which have nearly led to a breakdown, has been barely able to keep pace with the requirements of the army."[46]

[Footnote 46: Extract from memorandum of May 21st, 1900, by
the Marquess of Lansdowne.]

_Colonies._

Offers of assistance had poured in from Greater Britain from the moment that the imminence of war in South Africa was realised. It was not the first time that our kinsmen had sent their sons for the general service of the Empire. In 1881, within twenty-four hours of the receipt of the news of the action at Laing's Nek, two thousand men of the Australian local forces had volunteered for employment in South Africa, but were not accepted. Four years later, eight hundred colonists from New South Wales were welcomed for service at Suakim, while a special corps of Canadian voyageurs was enlisted for the advance up the Nile. But on neither of these occasions was the tender of patriotic help so welcome to the Mother Country as in the present instance, for it was felt that the whole Empire was concerned in the contest for the establishment in South Africa of equal rights for all white men independent of race, and that it was, therefore, peculiarly fitting that the younger States of the great Imperial Commonwealth should make the quarrel their own. As early as July, 1899, Queensland, Victoria, New South Wales, the Malay States and Lagos, had tendered their services, and Her Majesty's Government, though not then able to accept the offers made, had gratefully acknowledged them. In September, Queensland and Victoria renewed their proposals, and further offers of assistance were received from Canada, New Zealand, Western Australia, South Australia, Tasmania, and Hong Kong. The majority of a squadron of the New South Wales Lancers, which had been sent to England to undergo a special course of training at Aldershot, also volunteered for South Africa. As regards Natal and Cape Colony, it was assumed as a matter of course, both by the Colonial troops themselves and by the Imperial and Colonial Governments, that they would cheerfully do their duty if called out for local defence. The whole of the Natal local forces were mobilised for active service on 29th September,[47] the day after President Kruger commandeered his burghers. A portion of the Cape Volunteers were called out on 5th October, and the remainder during the first month of the war.[48] On the 3rd October the Secretary of State for the Colonies telegraphed to various Colonial Governments a grateful acceptance by Her Majesty's Government of the services of their contingents, indicating in each case the units considered desirable. It was not found possible to take advantage of the offers of some of the Crown Colonies, but from the self-governing Colonies, troops numbering about 2,500 of all ranks were accepted.[49] These proved but the advance guard to the total force of nearly 30,000 men from Canada, Australia, New Zealand, India and Ceylon, who at various times represented Greater Britain in the army of South Africa.

[Footnote 47: The corps mobilised were Natal Naval
Volunteers, Natal Field Artillery, Natal Royal Rifles, Durban
Light Infantry, Natal Mounted Rifles, Natal Carbineers,
Umvoti Mounted Rifles, Border Mounted Rifles.]

[Footnote 48: For the local forces called out in Cape Colony,
see Chapter II., p. 53.]

[Footnote 49: For arrivals of "Oversea Colonials," see
Appendix 9. The whole subject is treated more fully in Vol.
II. in a chapter on the Colonial Corps.]