Administration
by
of the
Navy Department
in
World War II
Rear Admiral
JULIUS AUGUSTUS FURER
USN (Retired)with a Foreword by
The Honorable CHARLES EDISON
The Secretary of the Navy
1939-1940and in introduction by
Rear Admiral ERNEST McNEILL ELLER
USN (Retired)
Director, Naval History DivisionWASHINGTON 1959
This volume is "under development" and will be completed as time allows...
Contents
Chapter Page Foreword V Introduction VII Preface XI I. The Naval Establishment--An Overall Survey 1 Definitions 1 Navy Department, Shore Establishment, Operating Forces 1 U.S. Naval Policy and the Mission of the Navy 2 Early History 2 The Navy Commissioners 5 Underlying Reasons for Organizational Changes 7 Task Concept of Navy Department Administration 9 Policy Control 9 Naval Command 10 Logistics Administration and Control 10 Business Administration 11 Organizational Development of Navy Department in World War II 13 Civilian Executive Assistants 15 Professional Naval Assistants 15 Naval Command Assistant 15 Chief of Naval Operations 16 Deputy Chief for Air 16 Deputy Chief for Operations 16 Deputy Chief for Administration 17 Deputy Chief for Personnel 17 Deputy Chief for Logistics 17 Naval Inspector General 17 Naval Technical Assistants 18 Bureau of Yards and Docks 18 Bureau of Ships 18 Bureau of Supplies and Accounts 19 Bureau of Ordnance 19 Bureau of Medicine and Surgery 19 Bureau of Naval Personnel 19 Bureau of Aeronautics 19 Headquarters, United States Marine Corps 19 Coast Guard 20 Judge Advocate General 20 Office of Procurement and Material (later Office of Naval Material) 20 Coordinator of Research and Development (later Naval Research) 20 The Shore Establishment 20 Naval Districts 21 The Operating Forces 22 Personnel 25 Naval Personnel 26 Civilian Personnel 31 Statistical Summary 34 II. Secretary of the Navy 36 Introduction 36 Secretarial Backgrounds 39 Pre-Pearl Harbor International Situation 41 The President 44 Congress 47 Other Government Departments 50 Navy Department Office Buildings 51 Policy with respect to Personal Contacts 52 Assistant Secretaries 54 Under Secretary of the Navy 55 The Navy between World Wars I and II 56 Allocation of Duties of Secretary, Under and Assistant Secretary--1940 Initiation of Emergency Shipbuilding Program 63 The Paramount Task 64 The Executive Office of the Secretary 66 On 1 September 1939 68 On 10 March 1945 69 Management Surveys 70 Administrative Office 72 Administrative Assistant to Secretary 72 Budget Office 73 Statistical Division 73 Boards 73 Wage Board of Review 74 Board of Inspection and Survey 74 Naval Examining Board, Board of Medical Examiners, Naval Retiring Board 74 Naval Clemency and Prison Inspection Board; Board of Review, Discharges, and Dismissals; Naval Retiring Review Board 75 Board of Decorations and Medals 75 Board of Production Awards 75 Shore Station Development Board 76 Offices 76 Office of Petroleum Reserves 76 Coordinator of Research and Development 76 Office of Patents and Inventions 77 Office of Navy Photographic Services 77 Office of Public Relations 77 Office of Naval History 77 Responsibilities for Personnel 80 U.S. FLeet Commanders 83 Pearl Harbor Attack 87 The Investigations 88 Roberts Commission 88 Hart Inquiry 90 Navy Court of Inquiry 91 Hewitt Inquiry 92 Joint Congressional Committee 93 War Warnings 94 The Lessons of the Pearl Harbor Experience 100 III. Chief of Naval Operations--Commander-in-Chief, U.S. Fleet 102 Background 102 General Staff Argument 103 Operating Boards 105 General Board 107 Naval Aide System 108 Chief of Naval Operations 109 The CNO Authority Controversy 111 Organization of the Office of CNO 115 Assistant Chief of Naval Operations--Op-11 117 The Director of the Central Division--Op-13 118 Communications Division--Op 20 118 Naval Reserve Policy Division--Op-15 119 Naval Intelligence--Op-16 119 Inspection Division--Op-21 120 Fleet Training Division--Op-22 121 Fleet Maintenance Division--Op-23 121 Ship Movements Division--Op-38 122 Naval Districts Division--Op-30 122 War Plans Division--Op-12 123 Coordinating Logistics 124 Commander-in-Chief, United States Fleet 125 Inception and Early Development 125 COMINCH Headquarters Personnel 129 CNO-COMINCH Relationships 130 CNO Interim Changes 135 COMINCH Headquarters Organization 138 Plans Division (F-1) 142 Operations Division (F-3) 149 Readiness Division (F-4) 152 Combat Intelligence Division (F-2) 156 Tenth Fleet (FX-01) 159 Naval Inspector General 162 CNO Organizational Developments 163 Deputy Chief of Naval Operations (Air) 164 Navy Inventory Control Office 165 Ship Characteristics Board 166 Demobilization 167 Post-war Organization 167 IV. Fleet Organization 171 Background 171 Modern Fleet Concepts 173 Organization by Types 174 Origin of United States Fleet 174 Amphibious Forces 176 Short-of-War Fleet Organization and Distribution 177 General Order No. 143 of 3 February 1941 178 Sea Frontier Forces 180 Internal Reorganization and Reallocations 181 The Atlantic Naval Deployment 183 Pacific Fleet 186 Task Forces and Numbered Fleets 188 Area Commanders 191 New Naval Ship Types 192 Summary 193 V. The Bureau System 195 Early History 195 The Bureaus Established 198 Additional Bureaus 199 Merger of C&R and Engineering 201 Cognizance 203 Structure of Naval Appropriation Acts 205 The Bureau System and the Operating Forces 206 Naval Personnel in the Bureaus 208 Summing Up 208 VI. Bureau of Ships 210 Origin and Early History 210 Decline in Shipbuilding after World War I 213 Merger of Shipbuilding Bureaus 217 Organization 222 Administrative Division 222 War Plans Division 224 Shipbuilding Division 225 Maintenance Division 225 Design Division 225 Radio Division 230 Inspection 233 Personnel 234 Master Plan for Maximum Ship Construction 238 Controlled Materials Plan 239 Plant Facilities 240 Financing the Expansion 244 Repairs and Conversions 245 Development in Ship Types during World War II 246 Battleships (BB) 246 Heavy Cruisers (CA) 247 Battle Cruisers (CB) 247 Light Cruisers (CL) 249 Aircraft Carriers (CV) 249 Destroyers (DD) 250 Destroyer Escorts (DE) 251 Submarines (SS) 251 Landing Craft 252 Auxiliaries and Miscellaneous Craft 253 Salvage 254 Manpower and Labor Relations 257 Selective Service 259 Summary 260 VII. Bureau of Naval Personnel 262 Background 262 Administrative Responsibilities and Organization 265 Procurement 269 Career Officers 269 The Naval Reserve 272 Direct Procurement of Naval Reserve Officers 273 Reserve Naval Aviator Procurement 274 Staff Corps and Specialists 274 Reserve Midshipmen Schools 275 V-12 Program 276 Officer Procurement from Warrant and Enlisted Ranks 277 Procurement of Enlisted Personnel 277 Wave Procurement 281 Wave Distribution 282 Training 282 Officers 285 Enlisted Personnel 286 Distribution 288 Officers 288 Enlisted Personnel 293 Performance 295 Officer Promotion 295 Spot Promotions 298 Enlisted Promotions 299 Decorations 301 Discipline 301 Discharges 302 Welfare 304 Chaplain's Corps 305 Negroes in the Navy 307 Planning and Control 309 Summary 311 VIII. Bureau of Ordnance 312 Mission and Background 312 Science and Weapons 315 Bureau Organization 316 Officer Personnel 323 Civilian Personnel 326 Inspection of Ordnance Material 326 Naval Ordnance Development in World War II 328 Weapons and Countermeasures 329 Armor and Major Caliber Guns 330 Ammunition 330 Projectiles 333 Mines and Mine Countermeasures 334 Gunnery and Fire Control 336 Torpedoes 337 Guns 341 The Proximity Fuze 344 Summary 351 IX. Bureau of Aeronautics 352 Introduction 352 Background 352 World War I 352 Mitchell Attack 357 Establishment of the Bureau 358 BuAer in the Short-of-War Period 1939-1941 362 Planning 367 Business Machines 369 Foreign Aviation Intelligence 369 Aircraft Procurement 370 Aircraft Production 372 Aircraft Inspection 374 Termination Procedures 375 Summary of Production Accomplishments 376 Aviation Shore Establishment 376 Summary of Aviation Shore Establishment Development 381 Aviation Personnel and Training 382 Operating Activities 388 Relations with other activities 390 Deputy Chief of Naval Operations (Air) 391 Effect on BuAer Administration 393 Integrated Aeronautic Program (IAP) 394 Summary 397 X. Bureau of Yards and Docks 399 Background 399 Shore Station Development 401 Bureau Organization 406 Management Survey 408 Reorganization of December 1941 410 Administration and Personnel Department 410 Progress Control and Statistical Department 411 Finance and Operating Department 412 Planning and Design Department 413 Construction Department 414 Advance Base Department 416 Chief Planning Officer 417 Chief Inspector 418 Assistant Chief of Bureau 418 Field Organizations 419 The Seabees 421 Seabee Specials 423 Seabee Organization 423 The Civil Engineer Corps 424 Officer Training 426 Summary 426 XI. The Bureau of Supplies and Accounts 429 Early History 429 Summary of Duties in World War II 433 Procurement 436 Negotiated Contracts 437 Procurement Responsibilities 442 Revolving Funds 443 Naval Stock Fund 443 Inventory Control 445 Navy Standard Stock Catalog 446 Decentralization of Purchasing 448 Contract Termination 449 Storage 449 Fuel 450 Food 452 Clothing 455 Ship's Stores 456 Transportation 458 Fiscal Responsibilities 460 Disbursing 460 Accounting 464 Cost Inspection 470 Aviation Supply 472 Planning Division 473 Civilian Personnel 476 Officer Personnel 477 General Inspector of the Supply Corps 479 Summing up 479 XII. Bureau of Medicine and Surgery 480 Historical Background 480 Naval Personnel of the Medical Department 483 Medical Corps 483 Dental Corps 483 Hospital Corps 484 Medical Service Corps 485 Nurse Corps 485 Procurement of Medical Department Personnel 485 Planning 486 Procurement and Assignment Service 488 V-12 Program 490 Nurse Procurement 491 Personnel Training 491 Naval Medical School 491 Naval Dental School 492 Hospital Corps Officers School 492 Medical Department Facilities 492 Mobile and Base Hospitals 495 Fleet Hospitals 496 Naval Dispensaries 496 Medical Facilities Afloat 497 Sick Bays 500 Air Conditioning 500 BuMed Organization 500 Special Civilian Assistant 505 Professional Divisions 506 Assistant for Dentistry 507 Assistant for Inspections 508 Medical Statistics 508 Medical Supply 509 Naval Medical Material Board 510 Shipment of Blood 512 Planning Division 513 Medical Research 513 Summary 516 XIII. The Shore Establishment 518 Early History 518 Naval Districts 520 Navy Yards and the Bureaus 523 General Order No. 9 525 Navy Yard Division in Secretary's Office 526 Division of Personnel Supervision and Management (PS&M) 528 Shore Establishment Division (SOSED) Organization 529 Shore Establishment Administration and the CNO 530 Division of Shore Establishment and Civilian Personnel (SECP) 533 Boards 534 Hepburn and Greenslade Boards 535 Shore Station Development Board 535 Navy Manpower Survey Board 538 Industrial Survey Division 538 War End Reorganization 540 General Order No. 223 542 Navy Yard Management Control Assigned to BuShips 543 Summary 544 XIV. The United States Marine Corps 547 Origin, Legal Status, and Mission 547 Fleet Marine Force 549 Administrative Organization 551 Headquarters Staff Developments 554 Administrative Operations--Personnel 559 Personnel Planning and Policy 559 Personnel Procurement 564 Enlisted Procurement 564 Officer Procurement 568 Marine Corps Women's Reserve 571 Classification 573 Training 575 Training Facilities 575 Camp Lejeune 575 Camp Pendleton 578 Enlisted Personnel Training 578 Officer Training 581 Administrative Operations--Supply 586 Supplies in General 586 Landing Craft 590 Storage 592 Summary 594 XV. The United States Coast Guard 596 Relationship with U.S. Navy 596 Historical Background 1790-1939 598 Coast Guard Expansion July 1939 to November 1941 600 Joint Coast Guard-Navy Department Planning 600 Coast Guard Headquarters Administration under Plan One 601 District Administration under Plan One 601 Plan One Logistics 601 Personnel and Equipment Build-up 602 Lighthouse Bureau-Coast Guard Amalgamation: Reorganization 603 Neutrality Enforcement and Harbor Security 604 Preliminary Executive Actions and Deliberations 605 Coast Guard Administration Within the Navy, November 1, 1941-January 1, 1946 606 Executive Order 8929 of November 1, 1941 606 Secretary of the Navy Letter of 30 March 1942 608 The Coast Guard Commandant's Status in the Navy Department 611 Coast Guard within the Naval Districts--Status 613 Extent of Naval District Commandant's Control 613 Coast Guard Logistics 614 Personnel Procurement and Distribution 614 Vessel and Shore Facilities Expansion 616 Supply Program 621 Medical Program 623 Training Program 624 Aviation Program 625 Administrative Aspects of Special Projects Performed by Coast Guard During World War II 625 Communication and Electronic Program 625 Loran 626 Radio Direction Finder, Radar Beacon Programs 627 Radio Communication Program 627 Port Security and Beach Patrol 628 Air-Sea Rescue 629 Demobilization and Return to Treasury 635 XVI. The Judge Advocate General and the General Counsel 636 Lawyers in the Navy Department 636 The Judge Advocate General 637 Negotiated Contracts 643 Procurement Legal Division 644 Office of the General Counsel 647 XVII. External Relations 648 Introduction 648 Inter-Allied and Inter-Service Military Agencies 648 Joint Board 648 Combined Chiefs of Staff 649 Joint Chiefs of Staff 651 Committees of the Combined and Joint Chiefs of Staff 651 Secretariat 652 Joint Staff Planners 653 Intelligence Committees 654 Military Transportation Committees 654 Communications Board 655 Meteorological Committee 655 Administrative and Logistics Committee 656 Civil Affairs Committee 656 Munitions Assignments Board in Washington 657 Committees of the Joint Chiefs of Staff 657 Joint Strategic Survey Committee 657 Joint Deputy Chiefs of Staff 658 Joint Committee on New Weapons and Equipment 658 Army and Navy Petroleum Board 658 Joint Security Control Committee 659 Joint Production Survey Committee 659 Joint Post-War Committee 659 Office of Strategic Services 659 Combined and Joint Chiefs of Staff. General Policies and Procedures 660 Combined Chiefs of Staff Procedures 660 Joint Chiefs of Staff Procedures 663 State-War-Navy Coordinating Committee 665 Logistic Aid to Allies (Lend-Lease) 668 Background of Lend-Lease 668 Destroyers for Bases 670 Lend-Lease Act 672 Lend-Lease Procedures 672 Naval Ship Construction for Lend-Lease 675 Russian Protocol 676 Reverse Lend-Lease 677 Coast and Geodetic Survey 678 Background 678 Duties 679 Administration 679 Officer Personnel 680 Ships and Equipment 681 Latin American Relations 681 Naval Missions 681 Naval Mission to Brazil 683 Naval Missions to Other Countries 685 Western Hemisphere Defense 688 Inter-American Defense Board 689 Joint Advisory Board on American Republics 689 Joint Mexican-United States Defense Commission 689 Joint Brazilian-United States Defense Commission 690 Summary 690 XVIII. Naval Logistics 691 Definition of Logistics 691 Elements of Logistics 694 Advance Bases 696 Limitation of Armaments 697 Operation "BOBCAT" 703 Type Bases 706 Lion, Cub, and Acorn 706 Advance Base FUnctional Components 708 Mobile Logistic Support 709 Service Squadron Ten 712 Distribution 714 Railroad Transportation 715 Sea Transportation 717 War Shipping Administration 720 Sea Traffic Management 721 Navy Department Transportation 722 Office of Defense Transportation 726 Planning Developments 728 Logistic Organization Planning Unit (LOPU) 729 Overall Logistic Plan 731 Progress Review and Inventory Control 732 Summary 734 XIX. Research and Development 737 Definitions and Fundamentals 737 Research Environment 740 Early Naval Research and Development 742 Navigation and Oceanography 743 Hydrographic Office 744 Early Ordnance 745 Early Research under the Bureaus 746 Research Boards 749 Naval Model Basin 750 Engineering Experimental Station 751 Ship Bottom Fouling 751 Rubber Research 752 Naval Research Laboratory 753 Naval Ordnance Laboratory 756 National Academy of Sciences 756 National Advisory Committee for Aeronautics 758 Expenditures for Naval Research 758 National Defense Research Committee 761 Office of Scientific Research and Development 766 Office of FIeld Service 766 Procurement and Business Methods (OSRD) 769 Science in the Axis Countries 773 The Coordinating Link 775 National Inventors Council 777 The Coordinator of Research and Development 779 The Coordinator's Staff 782 Conference Procedures 785 Navy Liaison with Research Establishments 786 Scientific Manpower 788 The Intelligence Analysis Unit 791 The Homing Torpedo 793 Interchange of Scientific Information with Great Britain 796 Protection of Commercial Interests 798 The Magnitudes 799 Plans for Postwar Scientific Research 800 A Postwar Look 805 XX. Industrial Mobilization and Material Procurement 809 Procurement Fundamentals 809 World War I Experience 813 Procurement Planning after World War I 815 Army Industrial College 817 The Army and Navy Munitions Board 818 The Super Agencies 823 The War Resources Board 823 The Council of National Defense and its Advisory Commission 825 The Advisory Commission 826 The Office of Production Management 831 The War Production Board 833 Office of Procurement and Material 838 Planning and Statistics Branch 842 Production Branch 842 Procurement Branch 843 Industrial Readjustment Branch 845 Post-War Developments 845 Spreading War Work 846 Negotiated Contracts and Price Control 850 Financing Plant Facilities 854 Controlling Plant Expansions 859 Controlled Materials Plan 861 Financing War Production 863 The Inspection Service 870 Supervisors of Shipbuilding 872 Inspectors of Machinery 872 Inspectors of Naval Aircraft 873 Inspectors of Ordnance 873 Inspectors of Naval Material 873 Cost Inspectors 874 World War II Material Inspection 874 Summary 879 The Magnitudes 879 XXI. Civilian Personnel 882 Introduction and Background 882 Navy Yard Division 885 Expansion Problems 887 Administrative Responsibilities 891 War Plans 894 Division of Personnel Supervision and Management (PS&M) 897 Division of Shore Establishments and Civilian Personnel (SECP) 898 The Bureaus and Civilian Personnel before SECP 901 Departmental Services Unit 904 Expansion and Ceilings 904 DCPO's in Naval District Organizations 905 Personnel Relations Officer (PRO) 908 Employee Group Relations 908 Wages and Salaries 910 Classified Employees 911 Recruitment 913 Selective Service 914 Training 916 Utilization 917 Navy Manpower Survey Board 918 Industrial Survey Division 919 Civilian Personnel at Overseas Bases 919 Organization of SECP in June 1945 922 Investigation by House of Representatives Subcommittee 923 Office of Industrial Relations 925 Summary 926 Epilogue 929 Appendix 1: Adm E.J. King's Philosophy of Command 943 Appendix 2: Distribution of duties between CNO and COMINCH (Dec. 18, 1941) 947 Appendix 3: Executive Order No. 9635, of Sept. 298, 1945, prescribing organization of the Navy Department 949 Bibliography 951 Abbreviations 969 Chronology 975 Index 997
List of Photographs
Page Secretaries of the Navy in World War II: Charles Edison, 1939-1940; Frank Knox, 1940-1944; James Forrestal, 1944-1947 ii
List of Charts
End Papers: The chart used in the End Papers was taken from the Manual of Organization Charts of Bureaus and Offices of the Navy Department, dated 15 June 1943.
Fig. Title Page 1 Organization of the Navy Department (21 Dec. 1940) 8 2 Organization for the Executive Administration of the Naval Establishment (Chart accompnaying SecNavy's Annual Report for 1945) 12 3 Organization of the Navy Department immediately after World War II (8 Feb. 1946) 14 4 Organization of the U.S. Navy (July 1945) 24 5 6 7 8 9