Report And Recommendations Of A Board Appointed By The Bureau Of Navigation Regarding The Instruction And Training Of Line Officers

REPORT AND RECOMMENDATIONS OF A BOARD APPOINTED BY THE BUREAU OF NAVIGATION REGARDING THE INSTRUCTION AND TRAINING OF LINE OFFICERS'

Outline of Board Report

1. Scheme of report.

2. Scope of consideration.

Part I. Instruction (Training) of the Line Officer

3. Manifold requirements of naval profession.

4. Periodical instruction indispensable to efficiency.

5. Four phases of naval career.

6. Instruction (training) also in four phases.

7. Duration and time of training periods.

8. First period—the Naval Academy.

9. Second period—general line course.

10. Instruction and training for the duties of command.

11. Third period—junior War College course.

12. Fourth period—senior War College course.

13. Provision of necessary arrangements (time and numbers) for instruction and training.

Part II. Specialization

14. Universal specialization required.

15. The "exchange" principle involved.

16. Specialists defined (delimited).

17. Specialists in design and production of material.

18. Specialists in manipulation of material.

19. Specialists for special duty only.

20. Other specialties pertaining to line requirements.

21. The officers of the staff corps (and Marine Corps).

22. Temporary exceptions from general line course.

Part III. Practical Consideration

23. Initiation of recommendations.

24. General graph of employment—ensign to commander.

25. General training board.

Reference:

(a) Bunav. let. No. 8039-198, 16 Oct., 1919.

(b) P. G. Dept. Nav. Acad. Let. No. 159, 27 Aug., 1919. (Enc. "A.")

(d) Supt. War College 3d End. No. 733-2-2, 17 Sept., 1919.

1. The report of the Board is presented in two papers in order that on the one hand the "findings" of the Board may be readily comprehended (Summary), and on the other hand, that the considerations leading to the "findings" may be available for examination (Supplement). This paper constitutes the "Summary," whose paragraph numbering corresponds to that of the "Supplement."

2. In the scope of consideration entered into by the Board it has been found necessary to include the entire career of a naval officer, from midshipman to admiral; consideration is limited to the line officer, except where expressly stated otherwise. It is noteworthy that existing arrangements provide only for the special instruction of younger officers in matters relating to the design and production of material.

Part I. Instruction of the Line Officer

3. The necessity for instruction (training) is deemed apparent from a review of the varied subjects of which a working knowledge is required by the efficient naval officer; subjects which embrace a multiplicity of arts, industries and sciences, whose advance is continuous and progressive.

4. Inasmuch as it is obviously impracticable and impossible to equip the officer for the whole period of his service during his initial instruction (Naval Academy) it becomes necessary to arrange and to provide for his further instruction and training at recurring periods.

5. The career of the commissioned naval officer from ensign to admiral is found to be comprised in four general phases, increasing progressively in responsibility and authority as his experience and ability warrant, measure of which is clearly indicated by the established graded advance in rank.

Type Cases

Phase I. Inferior subordinate—division officer.

Phase II. Superior subordinate—head of department.

Phase III. Commanding officer—command of single ship.

Phase IV. Flag officer—command of group of ships.

6. Four periods of instruction (training) are found necessary, to be so distributed through the naval officer's career as to make it the general rule that an instruction and training period precedes the employment in an advanced phase of usefulness (as indicated in paragraph 5 above).

The four instruction and training periods are:

I. The Naval Academy.

II. The general line course.

III. The junior War College course.

IV. The senior War College course.

So that as:

(a) The Naval Academy (initial instruction period) prepares for the earliest and lowest phase—inferior subordinate, so will—

(b) The general line course (second instruction period) prepare for the second phase—superior subordinate—and

(d) The senior War College course (fourth instruction period) prepare for the fourth and highest phase—flag officer.

7. The length of time and the point in the service at which the instruction (training) periods should take place are found to be:

(a) Naval Academy—four years—preliminary and preparatory to commission, in readiness for first phase of usefulness—inferior subordinate.

(b) General line course—one year—between five and ten years commissioning (preferably after five years, general service) in readiness for second phase of usefulness—superior subordinate.

(c) Junior War College course—one year—between tenth and twentieth year of commissioned service (preferably while in the grade of lieutenant commander) in readiness for third phase of usefulness—commanding officer.

(d) Senior War College course—one year—after twentieth year of commissioned service (preferably while in the grade of captain), in readiness for final phase of career—flag officer.

8. Naval Academy.—The purpose of the instruction and training of midshipmen at the Naval Academy is to graduate officers properly equipped to continue the study and begin the practice of their profession as "inferior subordinates."

9. General Line Course.—The function of the general line course is the unification and confirmation of previous instruction and experience of officers, and their progressive instruction in readiness for duties of the next higher order, i.e., "superior subordinates." The curriculum proposed in Reference (b) is recommended for immediate adoption.

10. Instruction and training for the duties of command is essential to efficient carrying out of war operations in order that the whole body of commanding officers and of unit commanders and their staffs may have common conceptions of basic considerations and of practical methods which are requisite for the thorough cooperation and co-ordination which make "unity of action" a real and compelling factor in the attainment of victory. This instruction is best given in two periods: the first, before attaining command rank and the second before attaining flag rank.

12. Senior War College Course.—The purpose of this course is to unify and confirm all previous instruction and experience in the advanced elements of the profession, and to insure an adequate knowledge of the principles which govern the operation and administration of forces and fleets, in readiness for prospective employment as flag officer. This period of instruction is intended to provide for thorough training in the exercise of the command of fleets and fleet units.

13. It is considered to be to the highest interest of the Government not only to provide for the above recommended instruction (training) but to require it, in order that the naval service may be maintained at the highest possible degree of efficiency. The necessary arrangements should provide for the inclusion of an additional percentage to the personnel estimates.

Part II. Specialization

14. The requirements of the naval profession are found to be such that provision must not only be made (a) for the progressive education of officers at recurring periods as recommended above, but also (b) for the specialization of all officers in at least one branch of the profession, in order to insure that full knowledge and use may be made of the constant progress in all of the arts, industries, and sciences, which can in any way contribute to the advancement of efficiency in naval warfare in any of its manifold aspects and requirements. Some of this specialization can be accomplished by instruction and some of it by suitable assignments to duty.

15. Since no officer can be equally proficient in all branches of the profession but should have as much knowledge of all as possible, it is necessary for officers to specialize, not only in order that full use may be made of development in individual fields but also that profitable "exchange" may be made among the body of officers composing the service, to the end that all may be acquainted to the fullest practicable extent with the advances and developments affecting the profession.

16. Every officer, while expert in certain fundamental elements of the profession, should be a specialist in at least one particular branch. Specialization divides into five general classes:

(a) Line officers who specialize in the design and production of material.

(b) Line officers who specialize in the manipulation (skill in use and operation) of material.

(d) Line officers who specialize in the requirements other than those which deal directly with material.

(e) The several staff corps and the Marine Corps.

17. Specialists in Design and Production of Material.—Certain line officers should be selected to be specially instructed and trained in readiness to fill the service needs for experts in the design and production of material. These specialists are those officers who are, as at present, specially instructed in the existing post-graduate technical courses. The majority of them, after performance of duty ashore and afloat in their several specialized lines, continue in the line of the navy but some few elect "special duty only" as mentioned in paragraph 19 below.

18. Specialists in Manipulation of Material.—Certain line officers should be specially instructed to fill the service needs for expert and concentrated attention on the development of manipulation (skill in use and operations) of material. While all line officers must attain a degree of proficiency in these matters, only the attention of "specialists" can be expected to insure the highest possible improvements and developments.

19. Specialists for Special Duty Only.—Specialists of this class should not be selected until they have demonstrated their proficiency in the elementary stages of specialization and in the performance of duty in the specialty. The existing law permits this selection only after reaching the grade of lieutenant commander, which arrangement is considered satisfactory.

20. Requirements Other Than Those Pertaining Directly to Material.—Line officers who become experts, whether on account of education, instruction, employment or attention, in the theory and practice of leadership, management of personnel, the conduct of naval operations, organization and administration afloat and ashore, seamanship and navigation, etc.

21. The Staff Corps and Marine Corps:—

(a) The staff corps divides into two general classes.

(1) Combatant: naval constructors, supply officers, civil engineers.

(2) Non-combatant: medical and dental officers, and chaplains.

(b) So far as practicable, all officers of the combatant staff corps should, for the purpose of unified interests, be graduates of the Naval Academy.

(c) Officers of the non-combatant staff corps should receive, on entry into the service, some instruction in leadership, military character, etc., which can well be included in the curriculum of the medical school.

(d) Officers who are to be naval constructors and civil engineers should serve at least two years at sea and should preferably complete the general line course before beginning their technical education (see par. 22, following), in order that their future specialized work may include practical comprehension of the relations between such work and the requirements afloat and ashore.

(e) Officers entering the Supply Corps and Marine Corps should, upon entry in these corps, receive a course of special instruction in suitable "schools of application" for their respective lines of work. Selected officers of the Supply Corps and of the Marine Corps should attend the junior and senior War College courses. Selected officers of the Marine Corps should attend the several Army schools which provide advanced education for operations on shore.

22. Temporary Exceptions from General Line Course.—While the satisfactory completion of the general line course requirement is considered indispensable for all line officers and for naval constructors and civil engineers, it is considered feasible to dispense with this requirement for officers who are selected to be specially educated by means of the existing post-graduate technical courses until such time as the existing shortage of officers becomes materially reduced.

Part III. Practical Considerations

23. Initiation of Recommendations.—While realizing that present service conditions may not permit the carrying into full effect of these recommendations immediately, the Board strongly urges the necessity for the adoption of a well-considered plan in order that matters may be shaped towards the general bringing of the definite plan into full force and effect, and considers it essential to the efficiency of the service that beginnings be made in regard to both instruction (training) and specialization.

24. General Graph of Employment.—Ensign to Commander—There appears herewith as Enclosure a graph indicating the general lines of employment in the career of an officer from ensign to commander. Endeavor has been made to generalize employment as much as practicable and to show, in addition to the three general instruction periods involved (Naval Academy, General Line Course, Junior War College Course), how specialization may be carried into effect, whether by instruction or employment, or both.

25. Coordination among and between the several agencies of instruction is required in order to ensure systematic progression and unity to the training scheme regarded as a whole. For this purpose a permanent Supervisory Board should be created.

SUPPLEMENT

1. Supplement to Report of Board on Instruction and Training of Line Officers.—This paper is the "Supplement" to the report of the Board. The paragraphs are numbered to correspond to the similar parts and paragraphs of the "Summary" of findings.

2. Scope of Consideration Undertaken by Board.—The scope of consideration by the Board is based on the phrase "any other recommendations pertinent thereto" in Reference (a) and on paragraph 4 of Reference (c), namely, that the proposed postgraduate general line course cannot properly be dealt with except as a component part of a whole scheme for the instruction and training of naval officers during their entire careers, from midshipman to admiral, both inclusive.

Part I. Instruction of the Line Officer

3. Reasons for Instruction of Commissioned Officers.—

(a) The present advanced state of civilization includes great development in every branch of the arts, industry and science, so great that keeping abreast of developments in one branch of art, industry or science is practically a life-work. Development is proceeding at an ever-accelerating rate and the complication of activities is increasing continuously.

(b) The requirements of the naval profession have an even broader scope than indicated above. The naval officer must be prepared to combine all these technical elements into an organized and unified force in such a way as to have a maximum effect when exerted against an enemy. The navy as a whole must be operated as a unit, which requires high proficiency in such matters as organization, administration and management.

(c) The intimate dependence of efficiency of material upon efficiency of personnel imposes a further major requirement upon the officer. He should be an expert in the art of leading men, which necessitates a high degree of knowledge of the underlying principles, if effective and united action is to be obtained in the face of the difficulties confronting naval forces in war.

(d) The opinion has been generally held, in the navy, that the only way to learn things is to do them. This opinion has had much truth and fact to justify it, but this idea has been undergoing a marked transformation in recent years. It is becoming realized more and more that although one cannot learn to do a thing by merely being told how it is done, such previous knowledge greatly facilitates learning how to do it when practical work is started. This knowledge affords its possessor a strong foundation, barren and useless in itself, but a firm basis upon which to build the structure of practical experience. Book learning, abstract knowledge, is like fertilizer; it does not, of itself, produce anything, but it stimulates growth and advance when the live seed, practical experience, is instilled into the soil.

4. Periodic Instruction Indispensable to Efficiency.—

(a) The naval profession is the most varied in the world; leadership, material, skill, judgment, operations—all are needed. The term "officer" is synonymous with "leader," which establishes the primary reason for existence of officers. In the earlier years of an officer's career, he is concerned with the exercise of his profession in employments of limited scope. As he advances in rank and experience, the performance of details becomes less important. In the higher grades "operations" becomes of paramount importance, while material and its manipulation, though essential, are viewed as the means to the end, and not, as earlier, the end itself.

(b) The naval officer required a working knowledge of many branches of human endeavor. At present, he is "educated" only in preparation for the lowest commissioned grade. In order to be of most benefit to the service and the country, in these days, he must not only be expected to interest himself of his own volition in the progress of matters which have a bearing on naval warfare, but the time must be set aside and the opportunity must be made for him to acquire up-to-date knowledge along professional lines. It is also the case that the education preparatory to initial commission does not, nor can it be expected to, prepare the naval officer thoroughly for other than the duties he will be called upon to perform as a junior officer. It is an introduction to the profession but is not, and cannot be, complete in itself, even were still more time allotted to instruction at this initial stage.

(c) Not only does progress in knowledge and in other matters affecting the naval profession take place, but even in the extreme case in which these matters might conceivably be considered stationary, the Government should, at recurring periods in a career of forty years' commissioned service, provide the time and opportunity for officers to be instructed along the lines with which their increasing rank and consequent responsibility calls them to be thoroughly familiar. The extreme case appears to be: Instruction for four years at the Naval Academy and then none for forty years of commissioned service. The Board considers recurring instruction periods (later denned and specified) as indispensable to efficiency.

(d) Successive periods of instruction and training occurring at intervals between periods of practical experience is the best means to develop judgment, which, in positions of great responsibility, is an attribute which is hardly of inferior importance to the ability to reason to a logical conclusion.

5. General Outline of an Officer's Commissioned Service.—

(a) The general progress of an officer's career is clearly indicated in nine stages which are represented by the several grades in the naval service: ensign, lieutenant (junior grade), lieutenant, lieutenant commander, commander, captain, rear admiral, vice admiral, admiral. These grades or their equivalents exist not only in every military and naval service in the world, but also in all so-called "civil" establishments whether government or private; the grades or stages are therefore generally representative of advance in experience and ability and in consequent responsibility and authority.

(b) In armies, the nine grades are considered to be comprised of three distinct phases, each consisting of three grades, or stages:

First three—company officers—officers of small units.

Middle three—field officers—command of larger units of one kind.

Last three—general officers—command of mixed units.

(c) The analogous case exists in the navy, but not quite in the same form, because of the necessities of the case in respect to the upkeep, operation and interior economy of ships, an element which has no counterpart in an army; there are, however, distinct phases which appear to be four in number:

I. Ensign

Inferior subordinates; e.g., division officers.

Lieutenant (j. g.)

Lieutenant

II. Lieutenant Superior subordinates; e.g., heads of ship departments.

Lieut. commander

Commander

III. Lieut. commander

Commanders of ships

Commander

Captain

IV. Rear admiral

Commanders of small and large groups of ships.

Vice admiral

Admiral

6. Accepting the principles expressed in the above paragraph, four periods of instruction (training) are found necessary, to be so distributed through the naval officer's career as to make it the general rule that an instruction period precedes the employment in an advanced phase of usefulness (as indicated in paragraph 4 above). The four instruction periods are:

I. The Naval Academy.

II. The general line course.

III. The junior War College course.

IV. The senior War College course.

So that as

(a) The Naval Academy (initial instruction period) prepares for the earliest and lowest grade—inferior subordinate—so will

(b) The general line course (second instruction period) prepare for the second phase—superior subordinate—and

(d) The senior War College course (fourth instruction period) prepare for the fourth and highest phase—flag officer.

7. The length of time and the point in the service at which the instruction periods should take place are found to be:

(a) Naval Academy—four years—preliminary and preparatory to commission, in readiness for first phase of usefulness, i.e.— inferior subordinate.

(b) General line course—one year—between five and ten years after commissioning (preferably after five years' general service), in readiness for second phase of usefulness, i.e.—superior subordinate.

(c) Junior War College course—one year—between tenth and twentieth years of commissioned service (preferably while in the grade of lieutenant commander), in readiness for third phase of usefulness, i.e., commanding officer.

(d) Senior War College course—one year—after twentieth year of commissioned service (preferably while in the grade of captain), in readiness for final phase of career, i.e., flag officer.

8. The First Period—Naval Academy.—The primary objects of the instruction and training of midshipmen at the Naval Academy are considered to be:

(a) To develop the mental capacity, principally the ability to reason to a logical conclusion.

(b) To develop military character, including discipline, the attributes of leadership, and the basic virtues.

The Board has no comment to make in regard to (c) above, but suggests that special attention be given to the development of the reasoning powers by direct means as well as by the indirect methods now in use; and also that steps be taken to improve the development of those aspects of military character relating to leadership. Emphasis is placed upon these two matters because the quality of leadership and the power of reasoning are indispensable attributes of an officer, regardless of rank or employment.

9. The Second Period—General Line Course.—The function of the general line course is the unification and confirmation of initial instruction and experience of officers, and their progressive and advanced instruction in preparation for duties of the next higher order. The general line course effects the following purposes (letter consecutively with paragraph 8 above):

(d) To continue the development of the powers of analysis and reasoning.

(e) To confirm and to bring up-to-date the professional instruction of the Naval Academy from the view-point of at least five years' sea experience.

(f) To unify, and, as far as possible, to equalize the information acquired while performing assigned duties at sea.

(g) To introduce officers to some of the more advanced elements of their profession.

(h) To acquaint officers with the fundamental considerations which control economic, political and social relations.

The arrangements for this purpose proposed in Reference (b) are considered well adapted to the initiation of this essential part of the education of a naval officer. The general line course is recommended to be put into effect at the earliest practicable moment with as many officers in attendance as can be spared; and regardless of whether all eligible officers can, in the beginning, be detailed for this course or not.

10. Instruction for the Duties of Command.—

(a) The aim of the training system in higher command should be to meet service requirements not alone in commanders of fleets, squadrons, capital ships, and in departmental planning and administration, which need the present War College will ultimately meet fairly well; but also the need for commanders of smaller vessels, upon whose decisions the results of many important phases of tactics and strategy during war will depend, and the need for members of flag officers' staffs competent to do strategic planning, formulate doctrine, etc.

(b) When the present class at the War College graduates next June, 28 per cent of all admirals and 24 per cent of all captains on the navy list will hold War College diplomas; while only 5 per cent of all commanders and ½ per cent of all lieutenant commanders will hold them.

(c) Present policy with respect to rank of students will increase the percentage considerably in the higher grades—which appears essential—without materially affecting the percentage in the lower grades—which appears unwise, considering the important duties which commanders and lieutenant commanders will be called upon to perform in war, as second in command of capital ships and as commanding officers of other important, even though small, fleet units.

(d) Our fleets cannot have sufficient cohesion in war operations unless the body of commanding officers as a whole has a common conception of war and is uniformly indoctrinated. These are difficult conditions to fulfill, unless the body of officers in the third and fourth phases as a whole receive adequate education and training in the higher branches of war.

(e) To meet the above need it is essential to establish a course of instruction for officers of the rank of lieutenant commanders (and perhaps junior commanders) who are approaching the third phase of their careers.

11. The Third Period—Junior War College Course.—This course fills the need for a periodic unification and confirmation of instruction and experience after about fifteen years' commissioned service, and provides for a continuation of instruction along advanced professional lines in preparation for prospective employment as commanding officer. Its functions (lettered consecutively with paragraphs 8 and 9 above) are considered to be:

(i) To continue the development of the powers of analysis and reasoning, particularly as to applications which arise in naval operations and warfare.

(j) To unify, confirm, and equalize service instruction and experience in technical matters.

(k) To confirm and continue instruction in the advanced elements of the profession, including training in the application of the doctrine and principles of naval warfare.

(l) To confirm and increase knowledge of economic, political and social sciences in theory and practice.

12. The Fourth Period—Senior War College Course.—This final phase in the scheme of training line officers is intended to provide a confirmation, summary and adequate familiarity with the higher advanced elements of the profession, chiefly those principles which govern in the administration, operation, and functions of forces and fleets, in readiness for prospective employment as flag officers. Its principal parts (lettered consecutively with paragraphs 8, 9 and 10 above) are considered to be included in:

(m) To insure thorough understanding and facility in application of the principles and considerations which control the organization, administration, operations and functions of fleets and of fleet units.

(n) To insure comprehensive appreciation of the functions of the several offices and bureaus of the Navy Department and of bases and other shore establishments.

(o) Confirmation and continuation of instruction and training in the advanced parts of the profession, to insure thorough familiarity with the governing principles of international relations, strategy, tactics, logistics, etc.

13. The highest interests of the Government require that not only shall time and opportunity be provided for the above recommended instruction and training, but it should, for the purpose of maximum efficiency, be made obligatory, in order that the greatest possible benefit may be gained by the service as well as the individual. The necessary arrangements include the addition of a percentage to .the personnel estimates, in order that while the necessary numbers required by other employments are not diminished, the numbers undergoing instruction for the necessary periods may be kept at full strength. It appears that the percentage in question is approximately nine per cent of commissioned line officers for all purposes, i.e., 4 per cent taking general line course, 3 per cent the junior War College course, and 2 per cent in the senior War College course.

Part II. Specialization

14. The necessity for instruction and training gains greater emphasis when endeavor is made to group the numerous and varied requirements of the naval profession into suitable and convenient "specialties," or lines of endeavor. The requirements of the naval profession are found to be such that provision must not only be made (a) for the progressive instruction of officers at recurring periods as recommended above, but also (b) for the specialization of all officers in at least one branch of the profession, in order to insure that full knowledge and use may be made of the constant progress in all of the arts, industries, and sciences, which can in any way contribute to the advancement of efficiency of naval warfare in any of its manifold aspects and requirements. In some cases these requirements may be met by attendance at special schools, and in others by assignments to duty.

15. It is apparent that no officer can be really expert in all branches of the naval profession. It is, therefore, necessary that each officer specialize in at least one specific branch of the profession, in order that he may make a profitable exchange by giving his special knowledge and experience in return for that of others. While each officer gives the knowledge of one man, and that without taking away from himself, he receives in turn the ideas and information of many. The business principle, "that exchange is best, which gives both parties the largest possible profit," has been found as successful in the exchange of knowledge as of commodities.

16. All naval officers should be experts in certain fundamental branches of the profession. Each officer should be a specialist in at least one specific branch of the profession.

Specialists should be of five general classes:

(a) Those officers of the line who specialize in a technical material branch with a view to supervising the design and production of material.

(b) Those officers of the line who specialize in a technical material branch with a view to becoming expert in the manipulation of the material of such branch.

(c) Those specialists who remain in the line of the navy but are limited to the performance of duty of a particular type.

(d) Those officers of the line who specialize in branches of the profession other than the technical material branches.

(e) The staff corps and the Marine Corps.

17. Specialists in Design and Production.—

(a) To a large degree, the navy designs and supervises the design and production of its material equipment. Each officer cannot specialize in each branch of the profession sufficiently to prepare him for this important duty. It is, therefore, necessary to train a certain number of officers as specialists in design and production. Some of these officers will later be assigned to special duty only, but most of them will continue in the regular line duties, their abilities as specialists being employed only on short duty and in connection with manipulation of the material of their specialty at sea.

(b) No specialization of this nature should be permitted until after the completion of five years' sea duty and a satisfactory completion of the general line course. (See paragraph 22 following.)

(c) No officer should be permitted to specialize in any branch unless by his work in the general line course he has demonstrated that he is especially well qualified for such duty. In many cases the decision as to which branch an officer should be assigned for specialization should be determined by the staff of the General Line School. (See paragraph 22 following.)

(d) The general line course is a necessary preparatory step to specialization of any nature within the line of the navy. Specialists in design and production should, if practicable, take up the study of their specialty immediately succeeding their completion of the general line course. (See paragraph 22 following.) This special course should be as at present:

One year—post graduate "groundwork" school; then

One year—civil college or university.

18. Specialists in Manipulation of Material.—

(a) The manipulation of the mechanism of modern ships is so complicated that it should be supervised by officers who have had special instruction and training in its manipulation. This necessity introduces into the service specialists in the supervision over the manipulation of certain mechanical technical departments on board ship.

(b) These specialists, however, remain in the line of the navy and after performing the work connected with their specialty follow the route of the line officer unrestricted as to the type of duty to be performed.

(c) In view of the knowledge and experience gained by five years' service, and the review of technical subjects received in the general line course, it is considered that a six months' to one year's course should be adequate for qualifications as an expert in supervision of manipulation.

20. Other Specialties Pertaining to Line Requirements.—

(a) It is believed that each officer should be a specialist in some branch of the naval profession. The study of leadership, management of personnel, the conduct of naval operations, organization and administration and of the purely seafaring knowledge such as seamanship and navigation, furnish ample ground for many specialists. The specialization in these branches is not inconsistent with the performance of normal duties.

(b) Specialists of this class are required, primarily, to study and investigate the ground covered by their specialties, in order to furnish to all officers in the service the most advanced views on these important subjects. Every element of the naval profession must be studied and the knowledge obtained by individual officers classified, collated and disseminated throughout the service for the benefit of the whole body of naval officers.

21. The Staff Corps (and Marine Corps).—

(a) The Staff Corps are divided into two classes: Combatant: naval constructors, supply officers, civil engineers; Non-combatant: Medical and dental officers, and chaplains.

(b) The instruction of officers of the staff corps is herein touched on only insofar as the proper performance of their duties requires training similar to that of the officer of the line.

(c) So far as practicable, all officers of the combatant staff corps should be graduates of the Naval Academy. The basic instruction of all combatant naval officers should be identical. The spirit of unity which should pervade all branches of the profession will be materially increased by this common education and the friendship and ties formed at the Naval Academy will materially increase the co-ordination of the branches within the service.

(d) The medical officers, dental officers and chaplains cannot be trained at the Naval Academy, but the Medical School in Washington should include in its curriculum the study of leadership, military character, etc. A short course should be arranged for dental surgeons and chaplains entering the service in order that they may have a broader conception of their duties on board ship and their relation to the personnel and the service.

(e) Officers who are to be naval constructors and civil engineers should serve at least two years at sea and should preferably (see paragraph 22 following) complete the general line course before commencing the study of their specialties. This course is essential in order that such officers shall realize that the various branches of the navy must work in harmony and that these officers may bring up to date their general knowledge of the profession before they specialize in any one branch.

(f) Graduates of the Naval Academy (or appointees from civil life) selected for the Marine Corps and Supply Corps should he immediately assigned to schools for instruction in their particular specialties, upon completion of which they should be ordered to the regular duty of the branch.

(g) The training of these officers should be provided for as follows:

Marine Corps: Marine Officers' School.

School of the Line (Marine). (All marine officers.)

School of the Line (Army). (Specially selected officers.)

Junior War College (Navy). (Specially selected officers.)

Staff School (Army). (Specially selected officers.)

Senior War College (Navy). (Specially selected officers;)

Staff College (Army). (Specially selected officers.)

Supply Corps: supply officer school (pay corps). (All supply officers.)

Junior War College (Navy). (Specially selected officers.)

Senior War College (Navy). (Specially selected officers.)

22. Temporary Exceptions from General Line Course.—

(a) It is deemed desirable, and even necessary, that all line officers shall take and satisfactorily complete the general line course before taking up their several specialties, for the reasons, given in the several paragraphs preceding. This view is also held in regard to naval constructors and civil engineers.

(b) However, since there is a shortage of officers which is expected to continue for some years, and as the post-graduate technical education which certain selected officers receive is useful in giving perspective and breadth of view, it is considered that the general line course requirement need not be made obligatory until the shortage of officers is materially reduced.

Part III. Practical Considerations

23. Initiation of Recommendations.—It is realized that the recommendations made above cannot well be initiated in their entirety at once, due to shortage of officers, the requirements of the service and for other similar reasons. The Board would strongly press, however, the necessity for the adoption of a well-considered plan such as this report is believed to contain in order that affairs may be regulated and arrangements made for eventually bringing the definite plan into full force and effect. The Board has indicated (in paragraph 22 above) where certain temporary modifications can be made but would urge, as indispensable to the efficiency of the service, that beginnings be made in all the several lines of instruction and specialization. The recommended training provisions can be got underway at once by utilizing the arrangements proposed for the general line course in Reference (b) and the facilities at the War College for the separation of the present War College course into the recommended junior and senior War College courses. Specialization of the kinds classified in paragraphs 18 and 20 above can be largely effected in the beginning by suitable details to duty afloat and ashore.

24. General Graph of Employment—Ensign to Commander.—

(a) An endeavor has been made to indicate, by means of the graph, which appears herewith as Enclosure "A", the progress of a line officer through his naval career from the date of his entrance to the Naval Academy until the completion of his junior War College course, assuming that the plan of instruction recommended by this Board is in effect.

(b) All line officers should be graduates of the Naval Academy or should have had extensive practical experience in the enlisted and warrant classes and training in a school of application.

(c) Upon the completion of the Naval Academy (or School of Application course) each officer should be ordered to a ship of the first rate for a period of from about two years. This period should be two years for those officers who desire to enter the Construction Corps or Civil Engineer Corps.

(d) From ships of the first rate officers are transferred to one of the following duties or types of ships:

(1) Aviation duty.

(2) Submarine duty.

(3) Destroyers.

(4) Light cruisers.

(5) Mine force vessels.

(6) Cruisers or gunboats.

(7) Auxiliaries.

(8) The nature of the duty to which officers are to be ordered should be dependent upon several factors:

I. Their desire for certain duty.

II. The recommendation of their commanding officer.

III. The available billets in the type desired.

IV. Their reports of fitness.

(e) Officers should, so far as practicable, remain in the type of ship (as listed in subparagraph (d) above), to which they are ordered until their first period of sea service (five years after graduation) has been completed.

(f) All officers of the same class or date of commission finishing their sea service together would be ordered to take the general line course.

(g) The curriculum of the general line course should be such as bring their knowledge of all technical branches of the profession up to date and to advance them in their knowledge of the profession, especially the elementary subjects of the operation branch.

(h) During the general line course student officers will be carefully watched by their instructors to determine in what branch of the profession (as indicated in paragraph (j) below), each officer should specialize.

(i) There should be no requirement to continue a previous duty in aviation or submarines unless the officer so desires and is recommended therefore. Course six months to one year.

(j) Upon completion of the general line course, officers will take up one of the following specialties:

(1) Operations specialties.

(2) Manipulation specialties.

(3) Design and production specialties,

(k) This specialization is made effective by:

(1) Schools.

(2) Duties assigned.

(l) The following schools should be provided for:

(1) Operations school

(2) Communications school

(3) Ship control school

(4) Aviation schools

(5) Submarine schools

(6) Engineering school

(7) Gunnery school

(8) Electrical school

(9) Torpedo school

(m) These schools need not each be independent. It is possible and preferable that, so far as practicable, these should be extension branches of the general line course and should be located in the same place though not necessarily in the same building.

(n) In addition to these schools there should be a post-graduate "groundwork" school for those officers who are to specialize in design and production. These officers upon completion of this post-graduate "groundwork" school course (one year) are ordered to civilian colleges for one year and then to sea duty.

(o) Officers assigned to any of the schools mentioned in paragraph (1) above complete the course and are then ordered to shore duty consistent with their specialty for the remainder of their time ashore.

(p) In view of the shortage of officers in the navy it will be impracticable to give all officers post-graduate work as described in paragraphs (m) and (n). Such officers should be assigned to definite specialties and ordered to shore duty where their duty and training will assist them in their specialty. The diagram indicates duties of this nature to which officers may be assigned.

(q) Upon completion of this shore duty officers are ordered to sea duty in accordance with their specialties so far as practicable and the same considerations govern the succeeding shore and sea duty.

(r) By this time full use has been made of the specialization of these officers and they must be brought more closely together in preparation for command duty.

(s) This preparation is the function of the junior War College course. Upon completion of this course officers of the line who desire to specialize to the exclusion of command duty should be selected, as mentioned in paragraph 19 above.

25.

(a) The scope of the Board's considerations has been such as to involve what may be called the framing of the "general specifications" of, first, the arrangements for the periodic and unified instruction and training of all line officers and, second, the provisions for the universal specialization necessary to the maximum development of the efficiency of officers and of the service. The Board has had at hand data which enables it to indicate the specific measures necessary to put into effect the training requirements for all line officers but is unable to go into the details of the provisions for specialization.

(b) General supervision of the training system should be provided in order to ensure due co-ordination among the several schools; otherwise there may be duplication of instruction, omission of some subjects essential to the harmony of a broad educational scheme, and a conflict of doctrines.

(c) Such supervision appears best obtainable by a permanent board on the training of officers, including among its membership the head of each school, representatives both of the Chief of Naval Operations and of the Bureau of Navigation, and such additional civilian or other members as may be determined upon. The secretariat of this board should be provided for and maintained by the Office of Operations.

UNITED STATES NAVAL ACADEMY

Post Graduate Department

Annapolis, Md.

Aug. 27, 1919.

To: Secretary of the Navy (Bureau of Navigation)

Subject: Proposed General Line Course, Post Graduate School.

References:

(a) C. in C. letter file 1036 of 20 February, 1919.

(b) Operations 1st end. No date.

(d) Post Graduate Department letter 324 of 30 June, 1919.

(e) Bunav. letter No. 8039-198 of 31 July, 1919.

1. In reference (a), a recommendation to establish a course for education and training of officers for staff duty was submitted. References (b) and (c) approved the recommendations of reference (a) with a view of establishing the course at the Post Graduate School.

2. In reference (d) it was proposed, in lieu of the staff course, to establish at the Post Graduate School a "general line course" for the advanced instruction of commissioned line officers in professional and allied subjects, in order that the education of naval officers in general may be rounded out in more complete preparation for the many varied duties to which they may be assigned. The necessity of such procedure is supported by systems of post-graduate work employed by other nations, and by our army in its systems of schools for progressive advanced education of officers.

3. The general line course is designed to augment the elementary theoretical education received at the Naval Academy in the light of the practical experience at sea, with the object of broadening the officer's viewpoint and perspective beyond the limit of matters relating to interior organization and administration of the individual ships in which he has generally been engaged, in order that the efficiency of both the individual and the service at large may be increased. It will also serve advantageously to augment the Naval Academy course of those members of classes which were graduated, during the war, in three years.

4. The general line course will consist of pertinent review and instruction along the following principal lines:

(a) Up-to-date instruction in professional subjects; navigation; seamanship; ordnance and gunnery; electrical engineering; marine engineering; naval construction; etc.

(b) Advanced instruction in the principles of command, including organization, administration and maintenance, operations, including logistics and communications; international relations and intelligence; personnel matters, including military law and discipline; the planning, analysis and summarization of gunnery, engineering, and other exercises, etc.

(c) Lectures and instruction in general science and in the elements of logic, political economy, modern history, exposition, etc.

5. The following outline of the proposed course is submitted in accordance with paragraph 2 of reference (e). The course is outlined to cover a period of one year divided into three terms with time employed as indicated in the following table (Note: subject to change as conditions and necessity warrant):

Subject I term

No. of hours II term

No. of hours III term

No. of hours

Class P.W. Class P.W. Class P.W.

How to study 12

English exposition 16

Seamanship 12 15 6

Navigation 16 20 8

Ordnance 14 15 6

Gunnery 14 20 8

Marine engineering 20 35 10 35

Naval construction 8 35 4 35

Electrical engineering 20 35 10 35

Radio 8 35 4 35

Precision of measurements 12 35

Graphs 16 35

Organization 9

Command 10

Administration 9

Scientific methods 14

Scientific land marks 14

Operations 28 35 42 105

Communications 42 70

Maintenance 16 35

Logistics 12 35

Political economy 14

Political science 14

Policy 14

International law 14

Planning 14 35

Analysis and summarization 14 35

Totals 168 175 168 175 168 175

Grand total: 1029 hours

NOTE:—1. One hour each day except Saturday will be employed in physical training and exercise.

2. Each day is divided into five periods, i. e., two one-hour periods for recitation, one hour of preparation, one hour of athletics (Saturday lecture), two and one-half hours in afternoon for practical work and exercises.

3. Examination will be conducted at the end of each term.

6. In general terms, the detailed requirements in the various subjects are as follows:

(1) Seamanship.—General review of elements, principles and applications, including types of ships, fittings and mechanical appliances; piloting; tactical data and methods of determination; handling and steering ships singly and in formation, surface and submerged; towing ; sweeping; boating; otter gear; nets; buoys; ground tackle; cargo stowage and handling; salvage; diving; rules governing organization and operation of merchant vessels; rules of the road; weather and laws of storms; current articles on handling ships in heavy weather; shoring; watertight integrity; mooring board problems.

(2) Navigation.—Theory and practice, including the duties of the navigator; description; use, and adjustment of the various navigational instruments and machines applicable to surface, underwater and air craft; charts, method of construction, general use, corrections and stowage; publications such as "notice to mariners", light and buoy lists, sailing directions; conventional notations and signs on charts; piloting and various methods of locating a ship’s position near land ; danger angles and danger bearings, serial and submarine fog signals; sailings; descriptions, care, and use of chronometers; different kinds of time used in navigation, the relation of same, and the conversion of time; the relation of sidereal time, hour angle, and right ascension; general solution of astronomical triangle; effects of errors in data and a consideration of the best time to observe for latitude, time, and azimuth; chronometer errors and methods of determining; rating; various methods of finding latitude, longitude and lines of position; the day's work; tides, currents, times of high and low water; identification of heavenly bodies; use of tables; solution of practical problems; theory of the deviation of the compass, description, errors, compensation, correction, care of both magnetic and gyro compasses; practical problems of chart room work, laying down courses and distances; plotting position, lines of position, contour lines, danger bearings, etc., and application of general rules of pilotage; use of sounding data, radio and sound signals in foggy weather; aids to surface, aerial and submarine navigation; military geography; observations with sextant and artificial horizon for longitude chronometer correction, latitude and azimuth; practical works.

(3) Marine Engineering.—History and progress of marine engineering with particular emphasis on late developments; theory of steam, air, and internal combustion engines; care, operation and upkeep of power plants of the several classes ; specifications; trials standardization of indicators, gauges, instruments; metals, alloys, processes; boilers, design; general description; nomenclature and comparison of the several types; care and management of boilers; developments in oil burning; reduction gear; turbines; materials, physical properties and tests; thermo-dynamic applications; evaporating plants; Department bulletins and pamphlets; practical works and exercises.

(4) Naval Construction.—Types of hull and fittings; compartmentage; draining; underwater protection; specifications and characteristics for various classes including controlling influences; stability; aircraft; care and preservation.

(5) Electrical Engineering.—Elementary physics, electro-statics; storage batteries; instruments; elements and applications of D. C. and A. C.; electrical machinery including generators, motors, rheostats, resistances, controllers, circuit breakers, detectors, insulations, wiring and appliances, transformers, alternators; electrical communication; switchboards; distribution boards; windings; tests, measurements; installations; electrical propulsion installations, care and operation; principles and application of wireless telegraphy; and telephony; listening devices; aeronautic instruments; practical exercises and laboratory work.

(6) Ordnance and Gunnery.—Gunnery instructions; developments in guns and mounts; battle ranges as affecting caliber; ammunition hoists; shells; explosives; mines; depth charges ; torpedoes; bombs; optics; turret design and machinery; fire control methods and installations ; director systems; ballistics; elements of dispersion and steps to eliminate; practical work and exercises with models at hand; ordnance pamphlets and instructions; inspection, care, operation and preservation of ordnance material; lessons derived from experiences of the war.

(7) English.—How to study; exposition, including principles of whole composition, paragraphs, sentence and word; outline development; transition; coherence; unity; limitation of subject; convergence; conclusions; punctuation; structure; political economy; political science ; modern history; logic.

(8) Command, Organization and Administration.—Principles and application in the service generally and in the fleet in particular; pertinent parts of Navy and Fleet Regulations and Instructions; special instructions; organization sheets; general orders; administrative outlines; diagramatic representations; fleet standing orders; fleet routine orders; general orders; finance; etc.

(9) Operations.—Units and fleets; exercises; campaigns; movements ; schedules for exercises in strategy and tactics; estimate of situation; formulation of orders; scouting; service of information and security; training; elements of gunnery and engineering efficiency; intelligence ; war plans; inspections ; performances; employment; practical problems, etc.

(10) Personnel Matters.—Health: welfare; military character; recreation; complements; training and transfer; military law and discipline as given in naval courts and boards, Naval Digest, court-martial orders and special instructions.

(11) Communications.—Preparation and handling of correspondence and despatches; signal books; codes and ciphers; regulations, both navy and communication; applications and methods.

(12) Logistics.—Movements, supply of funds, fuel, ammunition, stores, equipment, provisions, clothing, transportation; ships data: train; bases, fixed and advanced; repairs; alterations; overhaul schedules; facilities; routine reports; inspections; tests; experiments; availability; maintenance and instructions governing same.

(13) International Relations.—Rules governing maritime warfare, usage, customs, ceremonies, duties of Naval Attaché.

(14) Planning; Analysis and Summarization of gunnery, engineering and other exercises; orders of execution; rules, reports.

(15) Policy.—Means and methods of preparation for war, strength and character of types in ships, personnel, bases, fortifications; influence of geographical location; political relations with probability of war with other powers, and influence of alliances and coalitions; statistics on navies of other powers, both personnel and material; doctrine.

(16) Precision of Measurements and Graphs.—Theory of probability ; determination of precision of observation by consideration of average deviation from the mean; relation between precision and the number of significant figures retained in computation; treatment of direct and indirect measurements; criteria for rejection of observations; propagation of error; discussion of relation between variables indicated by experimental data; discussion of types of equations with reference to suitability to represent by graphs; empirical data; empirical equations.

7. It is considered desirable that the first term in this course begin about 1 October, 1919, and that about 20 officers of the Naval Academy, classes of 1912, 1913 and 1914, be assigned. The number of students should increase rapidly from year to year until conditions and facilities are such that a whole Naval Academy class may return for the course.

8. It is planned, for the present, to carry on the instruction in the above-outlined course with the present Post Graduate Department faculty and facilities of the Naval Academy, thus involving no additional expense.

Report And Recommendations Of A Board Appointed By The Bureau Of Navigation Regarding The Instruction And Training Of Line Officers

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