III.
THE CHIEF OF NAVAL OPERATIONS—HIS STAFF AND DUTIES
A.
THE CHIEF OF NAVAL OPERATIONS
Admiral
H. R. Stark, USN was Chief of Naval Operations through the period when Admiral
Kimmel was Commander‑in‑Chief Pacific Fleet.
B.
ADMIRAL STARK'S STAFF
Admiral
Stark's principal advisers during this period, he said, were Admiral R. E.
Ingersoll, the Assistant Chief of Naval Operations, Vice Admiral R. K. Turner,
head of War Plans.
Captain Robert O. Glover was in the plans division of the
office of the Chief of Naval Operations and was assigned various planning
duties. (p. 171)
Rear Admiral R. E.
Schuirmann, head of Central Division, Admiral Wilkinson, Director of the Office
of Naval Intelligence.
From May until October, 1941, Admiral Howard F. Kingman was
head of the Domestic Intelligence Branch of ONI, and from October on was
Assistant Director of Naval Intelligence. As head of the Domestic Intelligence
Branch, he had general supervision of the activities of the several districts'
intelligence organizations. (p. 335‑6)
PROCEEDINGS OF
HEWITT INQUIRY 375
Captain L. F. Safford was in charge of the Communications
Security Section of Naval Communications during 1941. (p. 355)
the heads of the
Divisions of Ship Movements,
(3) During 1941,
Admiral Roland Munroe Brainard was Director of the Ship Movements Division,
Office of Chief of Naval Operations. (p. 399)
The duties of the Ship Movements Division were summarized by
Admiral Brainard as follows:
"The general functions of the Ship Movements Division
involved preparation of the publications "Operating Force Plan,"
"Assignment of Vessels to Fleets and Forces," "Assignment of
Vessels to Districts," assignment of home ports; and collaboration and
coordination with the Fleet Maintenance Division of overhauls, schedules of
Fleet activities as submitted by the Commanders of the forces afloat, these
tentative schedules being submitted to the Office of the Chief of Naval Operations
and circulated for the approval or modification by the divisions under the CNO,
and final approval; then returned to the forces afloat by the Chief of Naval
Operations; scheduling and itinerarying of NTS ships, the recording and
accountability of ship locations in rather detailed form as the result of
position reports and location reports from the ships operating individually and
from Fleet units, as reported by Fleet Commanders. During the period of my
incumbency, a War Information Room was started under the late Rear Admiral F.
T. Leighton for the purpose of plotting and keeping track of all combatant
ships of the navies of the world. Also a section of Convoy and Routing, as now
called, whose duties were the plotting and as close an accountability as
possible to keep track of the merchant shipping of the world. Positions of our
own naval vessels also was obtained through a movement report system.
Information on merchant shipping and foreign shipping and men‑of‑war
was obtained through the various sources of ONI, naval observers at ports of
the world, Naval Attachés, Maritime Commission, and other such sources. The acquisition
of small craft was accomplished by the NTS Section which, later, grew into a
sizeable division, and the assignments to Districts and Sea Frontiers was
determined by the Chief of Naval Operations as set forth in the publication
previously mentioned as prepared and distributed by this Division." (p.
399‑400)
Admiral Brainard said that the assignment of important naval
units was determined by echelons higher than his division. (p. 400)
Admiral Brainard said that the Ship Movements Division was
primarily a record keeping division and something of an information bureau,
available to proper authorities, as regards the location of shipping and that
he and his division did not participate in questions of broad general policy.
(p. 402)
Ship Maintenance,
Fleet Training, and his Flag Secretary (pages 2, 18).
During 1941, Captain John L. McCrea was an aide to Admiral
Stark. He was assigned special duties by Admiral Stark.
During 1941, Captain Charles Wellborn, Jr. was
Administrative Aide to the Chief of Naval Operations (p. 383).
Admiral
Royal Ingersoll said that he was Assistant Chief of Naval operations in 1941,
and as such generally acted for the Chief of Naval Operations in matters where
policy had been established, and in an advisory capacity. He knew generally
what was going on in the office of the Chief of Naval Operations (page 816).
During 1941, Admiral Ingersoll was Assistant Chief of Naval
Operations. He described his duties as follows:
"As Assistant Chief of Naval Operations, I had no
duties that pertained solely to the Assistant Chief of Naval Operations; that
is, I did not have original cognizance of any matters. All matters for the
consideration of Chief of Naval Operations were taken up with me before
presenting to the Chief of Naval Operations. All matters of policy, of course,
were referred to the Chief of Naval Operations. Once he had decided upon a
policy, I then endeavored to carry out the details without further reference to
him unless it was a question of which I thought he should know. I signed most
of the correspondence except letters going to heads of other government
departments or letters to Commanders‑in‑Chief which embodied orders
to them. I frequently released many dispatches that had previously been
376 CONGRESSIONAL
INVESTIGATION PEARL HARBOR ATTACK
considered
by the Chief of Naval Operations after I knew they were in the form in which he
wished them sent." (p. 417)
Concerning Admiral Ingersoll's familiarity with matters
coming before Admiral Stark, he said:
"Generally speaking, I now feel that Admiral Stark kept
me fully informed of all matters of which I should have had knowledge. I was
usually present when conferences were held with other officers of the Navy
Department or officers of the Office of the Chief of Naval Operations. I was
not always present when Admiral Stark conferred with officials of the State
Department or with officials of the War Department. Frequently these
conferences took place in the State Department or in the War Department and I
usually did not accompany Admiral Stark for such conferences. I felt, however,
that when these were over that Admiral Stark told me everything that I should
know. I do not recall now anything that transpired of which I was not told and
of which I thought I should have been told. There may have been conferences
between Admiral Stark and the President and the Secretary of State of which he
did not tell me all the details." (p. 417)
Vice
Admiral R. K. Turner said that between July and December 7, 1941, he was
Director of War Plans in the office of CNO. He was a professional adviser to
CNO in the preparation of plans for war (page 988).
Admiral
Schuirmann testified that he was Director of the Central Division during 1941
and was the liaison with the State Department.
The liaison between the Chief of Naval Operations and the
State Department was summarized by Admiral Turner as follows:
"The Chief of Naval Operations had, a close personal
association with the Secretary of State and Under Secretary of State. He
consulted them frequently and they consulted him, I might say invariably,
before making any particular diplomatic move. In the Office of Naval
Operations, the Chief of the Central Division was appointed as liaison officer
with the State Department. He visited the State Department and discussed
problems with them practically every day. There was a weekly meeting in the
State Department conducted by the Under Secretary of State, Mr. Welles, usually
attended by the Chief of Naval Operations, the Chief of Staff of the Army,
Chief of the War Plans of the Army, Chief of War Plans of the Navy, the Chief,
of the Central Division of the Office of Naval Operations, an officer of the
General Staff not in the War Plans Division, and two or three representatives
of the State Department. The matters discussed at these meetings usually
related to events in Western Hemisphere countries. The Army was building a lot
of air fields in the Caribbean and South America. The Navy and the Army, both,
had sent missions to those countries, and at the meetings with the Under
Secretary it was chiefly American affairs that were discussed. Occasionally,
possibly once a month, the Secretary of State would hold a conference with
representatives of the War and Navy Departments, and at these meetings events
outside of the Americas were discussed. From time to time, the Secretary of
State would call individuals from the War and Navy Department to discuss
particular aspects of world events. There were other unscheduled conferences
between the State and War and Navy Departments. I participated in a great many
such conferences. From time to time, informal memoranda were exchanged between
individuals of the State and Navy Departments or exchanged between the
Secretary of State and the Chief of Naval Operations. I would say that
relations between the State and War and State and Navy Departments were very
close and were characterized by good feeling." (p. 257)
Admiral Turner summarized the situation in regard to the
State Department by stating that on the whole, he was satisfied and had no
complaint or criticism on the attitude of the State Department. (p. 258)
Captain Wellborn discussed the general exchange of
information with the State Department. (p. 385)
The records kept of the meetings with the State Department
officers were described by Admiral Schuirmann as follows:
"A 'Liaison Committee' consisting of the Chief of Naval
Operations, the Chief of Staff, U. S. Army, and the Under Secretary of State
was set up while Admiral Leahy was Chief of Naval Operations. This Committee
was mainly occupied with questions other than the Far East, but occasionally
questions relating to the Far East were discussed. About the middle of May,
1941, the practice of having a stenographer present to record the discussion
was
PROCEEDINGS OF
HEWITT INQUIRY 377
commenced;
prior to that time I would make notes of the meetings in order to be able to
follow up such matters as required action, and I believe one of Mr. Welles'
assistants made a precis of the meetings. At times there were 'off the record'
discussions at these liaison committee meetings. I made notes of some of these
'off the record' discussions. Aside from the meetings of the Liaison
Committee, Secretary Hull held meetings with various officials of the Navy
Department, and I maintained liaison with Dr. Hornbeck and Mr. Hamilton of the
Far Eastern Division of the State Department by visit and by telephone. I know
of no official record of these meetings and discussions. Fragmentary notes of
some are in the files of the Central Division as are such records of the
Liaison Committee as are in the possession of the Navy Department. It is
possible that the State Department representatives may have made notes of some
of these meetings and discussions with Secretary Hull and other State
Department officials." (p. 405)
"Memo: The examining officer has identified the records
mentioned by the witness as being contained in file titled 'Record of Liaison
Meetings and some other special papers,' now on file in the Central Division
(Op 13) of the Chief of Naval Operations' Office, Navy Department." (p.
405 and 406) Admiral Schuirmann said that he had some informal memorandums
which would be in the files of the Central Division. (p. 406)
Liaison
was made by personal visits, conferences, and by telephone. He dealt with Dr.
Hornbeck, Maxwell Hamilton, Joseph Ballantine; Under Secretary Welles, and
Secretary Hull. Incomplete minutes were kept by the Central Division of State
Department meetings. ONI kept him informed, he said, but there was no
established system for getting information to him. He also received
information, for some time prior to the attack, during daily morning
conferences conducted by the Secretary of the Navy, at which the War Plans
Officer, who kept a current estimate, was present (pages 195‑198).
C.
THE DUTIES OF THE CHIEF OF NAVAL OPERATIONS
The
duties of Admiral Stark, as Chief of Naval Operations, are set forth in Article
392 and Article 433, Navy Regulations, of which the Court took judicial notice
at pages 74‑77, as follows:
Article
392:
"(1)
The Chief of Naval Operations is appointed by the President by and with the
advice and consent of the Senate from among officers of the Line of the Navy,
not below the grade of captain, for a period of four years. He is charged,
under the direction, of the Secretary of the Navy, with the operations of the
fleet, with the preparation and readiness of plans for its use in war, and with
the coordination of the functions of the Naval Establishment afloat, together
with the determination of priorities relating to repair and overhaul of ships
in commission or about to be commissioned. (Act of 3 Mar. 1915.)
"(2)
The Chief of Naval Operations, while so serving, has the rank and title of
admiral, takes rank next after the Admiral of the Navy, and receives pay and
allowances as specifically provided in the Act of 10 June 1922. All orders
issued by the Chief of Naval Operations in performing the duties assigned him
are performed under the authority of the Secretary of the Navy, and his orders
are considered as emanating from the Secretary and have full force and effect
as such. To assist the Chief of Naval Operations in performing the duties of
his office there are authorized by law for this exclusive duty not less than
fifteen officers of and above the rank of lieutenant commander of the Navy or
major of the Marine Corps. Should an officer, while serving as Chief of Naval
Operations, be retired from active service, he may, in the discretion of the
President, be retired with the rank, pay, and allowances authorized by law for
the highest grade or rank held by him as such Chief of Naval Operations.
"(3)
During the temporary absence of the Secretary, the Under Secretary when
serving, and the Assistant Secretaries of the Navy, the Chief of Naval
Operations is next in succession to act as Secretary of the Navy."
Article
433:
"1.
The Chief of Naval Operations shall, under the direction of the Secretary of
the Navy, be charged with the operations of the fleet and with the preparation
and readiness of plans for its use in war, (Act of 3 Mar. 1915.)
"2.
The duties of the Chief of Naval Operations shall include the direction of the
Office of Naval Intelligence and the Division of Fleet Training; the operation
of the Communication Service, of naval districts, of vessels assigned to the
378 CONGRESSIONAL
INVESTIGATION PEARL HARBOR ATTACK
Naval Reserve, and of
mines and mining; the operations of the Marine Corps, except when operating
with the Army or on other detached duty by order of the President; and the
operations of Coast Guard vessels when operating with the Navy; and the
direction of all strategic and tactical matters, organization of the fleet,
maneuvers, gunnery exercises, drills and exercises, and training of the fleet
for war; ocean and lake surveys; with the collection of foreign surveys; with
the publication and supply of charts, sailing directions, and nautical rules;
dissemination of all nautical, hydrographic, and meteorological information to
ships and aircraft, and with the upkeep, repair, and operation of the
Naval Observatory and Hydrographic
Office.
"3.
He shall so coordinate all repairs and alterations to vessels and the supply of
personnel and material thereto so as to insure at all times the maximum readiness
of the fleet for war.
"4.
He shall keep all bureaus and offices of the Navy Department informed in regard
to action within their cognizance that is at any time necessary or desirable to
improve the war efficiency of the fleet, and shall arrange for the coordination
of effort of his office and of the bureaus and other offices of the Navy
Department in relation thereto.
"5.
He shall under the direction of the Secretary of the Navy direct the movements
and operations of vessels of the Navy, including the time of their Assignment
for docking, repairs, and alterations, and shall prepare schedules and issue
orders in regard thereto.
"He
shall keep records of service of fleets, squadrons and ships.
"6.
He shall advise the Secretary in regard to the military features and design, of
all new ships and as to any alterations of a ship which may affect her military
value; as to the location, capacity, and protection of navy yards and naval stations,
including all features which affect their military value; also, as to matters
pertaining to fuel reservations and depots, the location of radio stations,
visual signal stations, reserves of ordnance and ammunitions, fuel, stores, and
other supplies of whatsoever nature, with a view to meeting effectively the
demands of the fleet.
"7.
He shall advise the Secretary of the Navy on all business of the department in
regard to insular governments and foreign relations, and all correspondence in
regard to these matters shall be presented for the Secretary's action through
his office.
"8.
He is charged with the preparation, revisions, and record of regulations for
the government of the Navy, general orders, tactical instructions, drill books
(except such as are issued by the Bureau of Naval Personnel for the individual
instruction of officers and enlisted men), signal codes, and cipher codes.
"9.
In preparing and maintaining in readiness plans for the use of the fleet in
war, he shall freely consult with and have the advice and assistance of the
various bureaus, boards, and offices of the Department and the Marine Corps
Headquarters, in matters coming under their cognizance. After the approval of
any given war plans by the Secretary it shall be the duty of the Chief of Naval
Operations to assign to the bureaus, boards, and offices, such parts thereof as
may be needed for the intelligent carrying out of their respective duties in
regard to such plans and their maintenance in constant readiness.
"10.
In carrying out his duties he shall utilize the facilities of the appropriate
bureaus and offices of the Navy Department.
"11.
The Chief of Naval Operations shall from time to time witness the operations
of the fleet as an observer."
The
Court of Inquiry also took judicial notice of General Order No. 170, dated
March 23, 1942, which provided that the duties of the Commander‑in‑Chief,
United States Fleet, and the duties of the Chief of Naval Operations were combined
and placed under one officer with the title "Commander‑in‑Chief,
United States Fleet and Chief of Naval Operations."