
12 • THE ROAD TO VICTORY: From Pearl Harbor to Okinawa 
World War I. The combination of even more 
powerful British-made warships and Togo's 
leadership enabled the Japanese to defeat the 
strong fleet that Russia sent to the Far East at 
the battle of Tsushima in 1905. As a result, 
Japan was fully established as a major Pacific 
naval power. 
It took remarkably little time for the 
Japanese to develop naval airpower. In 
September 1914 they made the first successful 
attack by naval aircraft in the history of warfare 
when they struck the Germans in the battle of 
Tsingtao, China. Having removed the German 
Navy from western Pacific waters, the only 
potential rival that the bold, thrusting Japanese 
naval leadership then faced was the United 
States Navy. The Americans had been keeping 
a close eye on the Japanese since their victory 
over the Russians in 1905, and in 1906 the US 
moved ahead to develop a war plan to defeat 
any future Japanese naval threat to US interests 
in the Pacific. American authorities formally 
adopted the final version of this plan, Plan 
Orange, in 1924, although it had its origins in 
the thinking of Rear Admiral Raymond P. 
Rodgers from as early as 1911. It assumed that, 
in the event of hostilities, the initial Japanese 
pressure would be applied to the Philippines 
and the small Pacific island bases of the US. 
The American response, after a period of 
mobilization and force concentration, would 
be to re-take their own island bases, and 
remove the Japanese from theirs, while US 
naval forces were en route to relieve the 
Philippines. The US fleet would then confront 
the Imperial Japanese Navy in a fight to the 
finish. Japan was then to be brought to her 
knees by a naval blockade. 
The Japanese, for their part, correctly 
assessed the nature of the US war plan and 
made their own which would allow a US fleet 
to reach the Philippines, while suffering losses 
from Japanese naval air and submarine 
attacks along the way. This weakened fleet 
would then be annihilated by the Japanese in 
a great naval battle, similar to the one that the 
US Plan Orange envisaged. 
The development of the striking power of 
the respective fleets in the 1920s and 30s was 
thus crucial to the course of the war in 
the Pacific. Another factor strengthening the 
Japanese hand was its acquisition of mandates 
from the League of Nations to govern the 
former German islands of the northern and 
central Pacific: the Carolines, the Marianas, 
and the Marshalls. These mandates placed the 
islands virtually under Japanese law but, like 
all mandate holders, they were not permitted 
to fortify them. Nonetheless, that is what the 
Japanese did, creating a strategic barrier 
through which US forces intending to relieve 
the Philippines in a future war would have to 
fight their way. 
The Japanese became the object of US 
diplomatic pressure soon after World War I. 
The Americans wanted to end the Anglo-
Japanese alliance and to constrain the further 
growth of Japanese naval power. Both 
objectives were secured at the Washington 
Naval Conference of 1921-22. The Japanese 
were both humiliated and angry at this 
outcome, and this in turn fed the tensions 
that caused the war in the Pacific. Severe 
limitations on Japanese migration to the US, 
pressure to withdraw from former German 
territory in China, and trade restrictions 
aggravated the Japanese further during the 
1920s and 30s. All of this played into the 
hands of military and political leaders who 
wanted to exploit Japan's naval strength in the 
Pacific to create a new international order 
there and in China.