As fleets grew larger and commanders expected more complex maneuvers, including breaking the line, communication became a tactical requirement. George Pocock, Augustus Keppel, and Lord Howe had all experienced subordinates failing to follow orders and defending themselves by claiming ambiguity. Admirals answered the problem by producing private signal books, but those incompatible systems created a new obstacle whenever ships changed commands. Kempenfelt's later role as captain of the fleet under Sir Charles Hardy put him in a position to turn that accumulated frustration into a more coherent command language.
Notable Point · 3:42-4:59
Why larger fleets made signal ambiguity dangerous
Fleet growth and more demanding maneuvers made it increasingly costly when captains could treat an admiral's signals as ambiguous.