In September 1944, the Admiralty concluded that the organisation for the maintenance of discipline on shore in the main naval port areas was unsatisfactory. Colonel D.H.C. Shepherd, R.M., previously the Naval Provost Marshal in Malta, carried out a study into the requirement for a naval provost organisation. He reported that the system of landing ships' patrols in major naval base areas was unsatisfactory because the petty officers and leading ratings in charge, (however well briefed) lacked the knowledge and experience to deal with incidents, and being unable to render lucid written reports, avoided taking action wherever possible. The men detailed for patrol disliked the duty intensely believing it to be a form of punishment.