775 I2c >y 1 67th Congress,) HOUSE OF EEPEESENTATIVES. ( Eeport " I jSession. j \ No. 753. READJUSTMENT OF PAY OF THE ARMY, NAVY, MARINE CORPS, COAST GUARD, PUBLIC HEALTH SERVICE, AND COAST AND GEODETIC SURVEY. March 2, 1922. — Referred to the Special Committee on Adjustment of Pay of the Army, Navy, and Certain Other Establishments of the Government, and ordered to be printed. Mr. MoKenzie, from the special committee appointed in accordance with the provisions of section 13 of the act approved May 18, 1920, submitted the following T^T^^-^Z-WZ-l d EEPORT. The special committee of the Congress appointed in accordance with the following provision of the act entitled "An act to increase the ejSiciency of the commissioned and enlisted personnel of the Army, Navy, Marine Corps, Coast Guard, Coast and Geodetic Survey, and Public Health Service," approved May 18, 1920 — And provided further, That a special committee, to be composed of five Members of the Senate, to be appointed by the Vice President, and five Members of the House of Representatives, to be aj)pointed by the Speaker of the House of Representatives, shall make an investigation and report recommendations to their respective Houses not later than the first Monday in January, 1922, relative to the readjustment of the pay and allowances of the commissioned and enlisted personnel of the several services herein mentioned [the date for making this report was subsequently extended to the fiLrst Monday in March, 1922] — submits the following report: The committee was organized oh August 22, 1921, and, after secur- ing the cooperation of the heads of the executive departments con- cerned, proceeded to conduct public hearings relating to the pay and allowances of the officers and enlisted men of the several services. All the services concerned have been heard, through 67 witnesses. In addition a large amount of statistical data and written evidence was presented to the committee. The inquiry of the committee has been broad in scope and included many details. The testimony presented has abundantly established the fact that living costs are about 100 per cent greater than in 1908, when the last permanent pay schedule was established, and about 75 per cent greater than in 1913, before the war. While the act approved May 18, 1920, gave a certain amount of relief (approximately 20 per cent • 2 EEADJUSTMENI OF PAY. ^ \<^ increase), it absorbed only about one-third of this increased cost of living in the case of officers, leaving about two-thirds to be borne by the individual. Actually, the purchasing power of the present pay is much less than that of 1908. It should be borne in mind that the relief afforded by the act of May 18, 1920, is temporary. That act, in most of its provisions, expires by limitation on June 30, 1922. Should the Congress fail to legislate on the subject, the pay of the great majority of the personnel affected will revert automatically to the 1908 schedules, with disastrous results, in the opinion of the committee. It has been clearly demonstrated to your committee that officers and noncommissioned officers and petty officers experience great difficulty in maintaining themselves and theu* families under present conditions. Furthermore, your committee can not foresee a futui"e lowering of living costs to a point where the salaries established in 1908 would be adequate. Your committee has, accordingly, undertaken the preparation of a bill to accomplish the following : (a) A reduction in total cost below that of the 1923 Budget esti- mates, with readjustment of pay in such manner as to give especial aid where most recjuired. It should be remembered that the Budget estimates are based upon the present temporarj^ pay schedules and the present strength of the services. (6) Adoption of a schedule which will reasonably compensate offi- cers and enlisted men of the services for rank, responsibility, and length of service, and at the same time so arranged as to offqr a prom- ising career to young men entering in the lowest grades. In view of pending legislation to reduce the military and naval establishments, it is important that any new pay schedule shall be so drawn as tO' provide reasonable remuneration to such personnel as shall remain. It becomes doubly essential, if these services are to become numeri- cally smaller, that their personnel shall be maintained at a point of high efficiency. (c) To establish a parity of pay in all of the services concerned. {S) To introduce an element of pay which shall, witliin a fixed maximum, var}^ automatically with the cost of living. {e) To do away with petty allowances and multiplicity of accounts, and thus to simplify and cheapen administration. The draft of a bill submitted herewith is believed to embody all these basic principles. It effects an immediate saving of $13,039,217 below the 1923 Budget estimates for the six services concerned. It effects an ultimate total estimated annual saving of $28,669,997, most of which will be accomplished within two or three years by the expiration of certain saving clauses which recognize the moral obli- gation of the Government not to reduce the pay of any officer now in the service below the rate established in 1908, and in the case of enlisted men a legal obligation not to reduce their pay during the unexpired portion of their current enlistment. With the expiration of these saving clauses, the plan here proposed will bring the pay of the Army slightly below what it would amount to under the per- manent schedules to which it will revert if no further legislation be enacted. A comparison of total costs is shown as follows : Budget, 1923 1139, 558, 531 Proposed pay after expiration of saving cla uses... ..^ -^-^- ^^^^^-^.^ 125, 552, TIO' ray if no legislation is enacte i - - - {•jaoARY" OF COKQNIii' ' " '■■ ' ' RECEIVED MAS 1 a 1922 EEADJUSTMENT OF PAY. Each of the six services concerned will show a saving, compared to the 1923 Budget, and within each such service a saving will be made in pay of officers and of enlisted men. The estimated details of this saving, compared to the 1923 Budget estimate, are as follows: Services. Army Navy Marine Corps Coast Guard Public Health Service Coast Survey Total Immediate saving. Additional saving within 3 $3, 569, 122 4, 780, 637 1, 557, 695 b7, l7c( 48, 988 45, 602 13, 039, 217 $5, 000, 000 105, 350 Additional saving within 4 years. 12, 847, 312 1, 530, 310 4, 377, 622 Additional sa^'ing in indefinite period. S2, 446, 510 480, 091 3, 201, 206 6, 147, 807 Total ultimate saving. $14, 035, 632 8, 108, 040 6,^83,212 142, 523 4S, 998 45, 602 28, 669, 997 The pay schedules proposed in this bill are so worked out as to offer a reasonable career to young men of a desirable kind. The compensation is commensurate with the duties and responsibilities attached to rank, yet provides for increases due to increased expe- rience and efficiency apart from rank. It protects the Government in the case of abnormally rapid promotion and the individual in the case of abnormally slow promotion. It contains an elastic element of compensation in the form of allowances (subsistence and rental) which increases or decreases, within the maximum limits specified in the bill, as the cost of necessities of life increases or decreases, thereby protecting alike the interests of the Government and the individual. It accepts family life and its greater requirements as the normal condition of existence. It recognizes the abnormal con- ditions inherent in military and naval service, frequent changes of station, and family separations. Finally, it automatically and satis- factorily protects the interests of National Guard and Reserve officers brought temporarily into the active service of the United States. The bill abolishes many inequalities between services whose duties are at all times comparable and in time of war are identical. It facilitates their financial administration and, for clarity to this end, the assistance of the Comptroller General of the United States has been secured in its preparation. The need for new legislation of this character, the general principles embodied in this bill and their application have been approved by the Secretaries of the Treasury, War, Navy, and Commerce. The details have been worked out by your committee with the assistance of their representatives. The principles have the united general sup- port of the services concerned. In the opinion of your committee the bill submitted embodies the most scientific pay schedule yet devised, while being simple, practical, and satisfying the requirements of a necessary economy. Your committee, having completed its investigation, accordingly recommends the passage of the legislation herein proposed. (See Appendix A.) There is appended to this report a table (Appendix B) depicting the pay and allowances of the officers and enlisted men of the Army under the provisions of the proposed bill. This table, while confined to Army personnel, is, as a matter of fact, applicable to the officers and enlisted men of the other services in corresponding rank or grade, with very few exceptions. 4 KEADJUSTMENT OF PAY. Appendix A. TEXT OP THE PROPOSED BILL AS RECOMMENDED BY THE SPECIAL COMMITTEE TO' READJUST THE PAY AND ALLOWANCES OP THE ARMY, NAVY, MARINE CORPS, COAST GUARD, COAST AND GEODETIC SURVEY, AND PUBLIC HEALTH SERVICE. A BILL To readjust the pay and allowances of the commissioned and enlisted personnel of the Army, Navy, Marine Corps, Coast Guard, Coast and Geodetic Survey, aiad Public Health Ser^-ice. Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That, beginning July 1, 1922, for the purpose of computing the annual pay of the commissioned officers of the Regular Army and Marine Corps below the grade of brigadier general, of the Navy below the grade of rear admiral, of the Coast Guard, of the Coast and Geodetic Survey, and of the Public Health Service below the grade of surgeon general, pay periods are prescribed, and the base pav for each is fixed as follows: the first period, $1,500; the second period, $2,000; the third period, $2,400; the fourth period, $3,000; the fifth period, $3,500; and the sixth period, $4,000. The pay of the sixth period shall be paid to colonels of the Army, captains of the Navy, and officers of corresponding grade who have completed twenty-six years' service, or whose first appointment in the permanent service was in a grade above that corresponding to captain in the Army, or who were appointed to the Regular Army under the provisions of the first sentence of section 24, act of June 3, 1916, as amended by the act of June 4, 1920; to ofiicers of the Staff Corps of the Navy advanced by selec- tion under existing laws to the rank or pay of captain; to lieutenant colonels of the Army, commanders of the Navy, and officers of corresponding grade, and lieutenant commanders of the line and Engineer Corps of the Coast Guard who have completed thirty years' ser^dce; and to the Chief of Chaplains of the Army. The pay of the fifth period shall be paid to colonels of the Army, captains of the Navj', and officers of corresponding grade who are not entitled to the pay of the sixth period; to lieutenant colonels of the Army, commanders of the Navy, and officers of corresponding grade who have completed twenty years' service, or whose first ap- pointment in the permanent service was in a grade above that corresponding to cap- tain in the Army, or who were appointed to the Regular Army under the pro-visiona of the first sentence of said section 24; to officers of the Staff Corps of the Na\^ advanced by selection under existing laws to the rank or pay of commander; and to majors of the Army, lieutenant commanders of the Navy, and officers of corresponding grade who have completed twenty-three years' service: Provided, That lieutenant com- manders of the Staff Corps of the Navy who were appointed between the dates of March 4, 1913, and June 7, 1916, in a grade above that of ensign, shall receive the pay of this, pay period after completing twenty years' service. The pay of the fourth period shall be paid to lieutenant colonels of the Army, commanders of the Navy, and officers of corresponding grade who are not entitled to the pay of the fifth or sixth period ; to majors of the Army, lieutenant commanders of the Navy, and officers of corresponding grade who have completed fouiteen years' service, or whose first appointment in the permanent service was in a grade above that corresponding to second lieutenant in the Army, or who were appointed to the Regular Army under the provisions of the first sentence of said section 24; to captains of the Army, lieutenants of the Navy, and officers of corresponding grade who have completed seventeen years' service ; and to lieutenants of the Staff Corps of the Navy, and lieutenants and lieutenants ("junior grade) of the line and Engineer Corps of the Coast Guard whose total commissioned service equals that of lieutenant commanders of the line of the Navy drawing the pay of this period. The pay of the third period shall be paid to majors of the Army, lieutenant com- manders of the Navy, and officers of corresponding grade who are not entitled to the pay of the fourth, f&th, or sixth period; to captains of the Army, lieutenants of the Navy, and officers of corresponding grade who have completed seven years' ser^dce, or whose first appointment in the permanent service was in a grade above that cor- responding to second lieutenant in the Army, or whose present rank dates from July 1, 1920, or earlier; to first lieutenants of the Army, Lieutenants (junior grade) of the Navy, and officers of corresponding grade who have completed ten years' service; and to lieutenants (junior grade) of the line and Engineer Corps of the Coast Guard whose total commissioned service equals that of lieutenants of the line of the Navy drawing the pay of this period. The pay of the second period shall be paid to captains of the Army, lieutenants of the Navy, and officers of corresponding grade who are not entitled to the pay of the third or fourth period; to first lieutenants of the Army, lieutenants (junior grade) READJUSTMENT OF PAY. 5 of the Navy, and officers of corresponding grade who have completed three years' service, or whose first appointment in the permanent service was in a grade above that corresponding to second lieutenant in the Army; and to second lieutenant of' the Army, ensigns of the Navy, and officers of corresponding grade who have com- pleted five years' service. The pay of the first period shall be paid to all other officers whose pay is provided for in this section. During the existence of a state of war, formally recognized by Congress, officers of grades corresponding to those of colonel, lieutenant colonel, major, captain, and first lieutenants of the Army, holding either permanent or temporary commissions as such, shall receive the pay of the sixth, fifth, fourth, third, and second periods, respectively, unless entitled under the foregoing provisions of this section to the pay of a higher period. Every officer paid under the provisions of this section shall receive an increase of 5 per centum of the base pay of his period for each three years of service up to thirty years: Provided, That the base pay plus pay for length of service of no officer below the grade of colonel of the Army, captain of the Navy, or corresponding grade, shall exceed $5,750. For officers hereafter appointed no service shall be counted for purposes of pay except active commissioned service under a Federal appointment and commissioned service in the National Guard when called out by order of the President. For officers now in the service all service which is now counted in computing longevity pay, and service as a contract surgeon serving full time, shall be included in the computa- tion. The provisions of this act shall apply equally to those persons serving, not as com- missioned officers in the Army, or m the other services mentioned in the title of this act, but whose pay under existing law is an amount equivalent to that of a commis- sioned officer of one of the above grades, those receiving the pay of colonel, lieutenant colonel, major, captain, first lieutenant, and second lieutenant, being classified as in the sixth, fifth, fourth, third, second, and first periods, respectively. Contract surgeons serving full time shall have the pay and allowances for subsistence and rental authorized for officers serving in their second pay period. Commissioned warrant officers on the active list with creditable records shall, after six years from date of commission, receive the pay of the second period, and, after twelve years from date of commission, receive the pay of the third period: Provided, That a com- missioned warrant officer promoted from the grade of warrant officer shall suffer no reduction of pay by reason of such promotion. Army field clerks and field clerks, Quartermaster Corps, shall have the allowances for subsistence and rental authorized for officers receiving the pay of the first period. Sec. 2. That every commissioned officer while on field or sea duty shall receive an increase of 5 per cent of his base pay. Field duty shall be defined for the purposes of this act as service in mobilization, concentration, instruction, or maneuver camps, service in campaign, in simulated campaign or on the march, and service under similar conditions. Such field service in each case shall be announced in orders published by the President, whose determination shall be conclusive. Sea duty shall be sea service as defined in section 1571, Revised Statutes. Sec. 3. That when officers of. the National Guard or of the reserve forces of any of the services mentioned in the title of this act are authorized by law to receive Federal pay, those serving in grades corresponding to those of colonel, lieutenant colonel, major, captain, first lieutenant, and second lieutenant of the Army shall receive the pay of the sixth, fifth, fourth, third, second, and first periods, respectively. In computing the increase of pay for each period of three years' service, such officers shall be credited with full time for all periods during which they have received Federal pay, other than armory drill pay, as officers of the permanent or reserve forces of any of the services mentioned in the title of this act, or of the National Guard, Organized Militia, Naval Militia, or National Naval Volunteers; with one-half time for all other periods since June 3, 1916, during which they have been recognized as officers of the National Guard; with one-third time for all other periods prior to July 1, 1918, during which they have held commissions in the Naval Militia or National Naval Volunteers, or, prior to July 1, 1916, in the Organized Militia; with one-fourth time for all other periods during which they have held reserve commissions. Sec. 4. That the term "dependent" as used in the succeeding sections of this act shall include at. all times and in all places a lawful wife and unmarried children under twenty-one years of age. It shall also include the mother of the officer provided she is in fact dependent on him for her chief support. Sec. 5. That each commissioned officer on the active list or on active duty below the grade of brigadier general or its equivalent, in any of the ser\'ices mentioned in 6 EEADJUSTMEXT OF PAY, the title of this act, shall be entitled at all times, in addition to his pay, to a money allowance for subsistence, the value of one allowance to be determined by the Presi- dent for each fiscal year in accordance -wdth a certificate furnished by the Secretary of Labor showing the comparative retail cost of food in the United States for the pre- \'ious calendar year as compared with the calendar year 1922. The value of one allow- ance is hereby fixed at 60 cents per day for the fiscal year 1923, and this value shall be the maximum and shall be used by the President as the standard in fixing the same or lower values for subsequent years. To each officer of any of the said services receiving the base paj^ of the first period the amount of this allowance shall be equal to one subsistence allowance; to each officer recei\'ing the base pay of the second, third, or sixth period the amount of this allowance shall be equal to two subsistence allowances; and to each officer recei\'ing the base pay of the fourth or fifth period the amount of this allowance shall be equal to three subsistence allowances: Provided, That an officer with no dependents shall receive one subsistence allowance in lieu of the above allowances. Sec. 6. That each commissioned officer on the active list or on active duty below the grade of brigadier general or its equivalent, in any of the services mentioned in the title of this act, if public quarters are not available, shall be entitled at all times, in addition to his pay, to a money allowance for rental of quarters, the amount of such allowance to be determined by the rate for one room fixed by the President for each fiscal year in accordance with a certificate furnished by the Secretary of Labor sho\ving the comparative cost of rents in the United States for the preceding calendar year as compared with the calendar year 1922. Such rate for one room is hereby fixed at $20 per month for the fiscal year 1923, and this rate shall be the maximum and shall be used by the President as the standard in fixing the same or lower rates for subsequent years. To each officer recei^'ing the base pay of the first period the amoun.t of this allowance shall be equal to that for two rooms, to each officer receiving the pay of the second period the amount of this allowance shall be equal to that for three rooms, to each officer receiving the base pay of the third period the amount of this allowance shall be equal to that for four rooms, to each officer receiving the base pay of the fourth period the amount of th^s allowance shall be equal to that for five rooms, and to each officer recei^■ing the base pay of the fifth or sixth period the amount of this allowance shall be equal to that for six rooms. The rental allowance shall accrue while the officer is on field or sea duty, temporary duty away from his perma- nent station, in hospital, on leave of absence or on aick leave, regardless of any shelter that may be furnished him for his personal use, if his dependent or dependents are not occupying public quarters during such period. In lieu of the above allowances, an officer vdiii no dependents receiving the base pay of the first or second period shall receive the allowance for two rooms, that such an officer receiAaug the base pay of the third or fourth period shall receive the allowance for three rooms, and that such an officer receiving the base pay of the fifth or sixth period shall receive the allowance for four rooms, but no rental allowance shall be made to any officer without dependents by reason of his employment on field or sea duty. Sec. 7. That when the total of base pay. pay for length of service and allowances for subsistence and rental of quarters, authorized in this act for any officer below the grade of brigadier general or its equivalent, shall exceed S7,200 a year, the amount of the allowances to which such officer is entitled shall be reduced by the amount of the excess above S7,200: Provided, That this section shall not apply to the captain com- mandant of the Coast Guard nor to the Director of the Coast and Geodetic Survey. Sec. 8. That commencing July 1. 1922, the annual base pay of a brigadier general of the Army and of the Marine Corps, rear admiral (lower half) of the Navy, commo- dore of the Navy, and Surgeon General of the Public Health Service shall be $6,500; and the annual base pay of a major general of the Army and of the Jifarine Corps, and rear admiral (upper half) of the Navy shall be §S,50(). Every such officer shall be entitled to the same money allowance for subsistence as is authorized in section 5 of this act for officers receiving the pay of the sixth period and to the same money allow- ance for rental of quarters as is authorized in section 6 of this act for officers receiving the pay of the sixth period: Provided, That when the total of base pay, subsistence, and rental allowances exceeds S8,000 for officers serving in the grade of brigadier general of the Army and of the Marine Corps, rear admiral (lower half) of the Navy, commodore of the Navy, and Surgeon General of the Public Health Service, and S9,800 for those serving in the grade of major general of the Army and of the Marine Corps, and rear admiral ( upper half) of the Navy, the amount of the allowances to which such officer is entitled shall be reduced by the amount of the excess above $8,000 or $9,800, respectively. Rear admirals of the Navy serving in higher grades shall be entitled, while so serving, to the pay and allowances of a rear admiral (upper half) and to a personal money allowance per year as follows: WTien serving in the grade EEADJUSTMEISTT OF PAY. 7 of vice admiral, $500; when serving in the grade of admii-al or as Chief of Naval Opera- tions, $2,200. Sec. 9. That commencing July 1, 1922, the monthly base pay of warrant officers and enlisted men of the Army and Marine Corps shall be as follows: Warrant officers of the Army and Marine Corps. $148; warrant officers. Army Mine Planter Service, master, $185; first mate. $141; second mate, $109; engineer, $175; assistant engineer, $120; enlisted men of the first grade. $126; enlisted men of the second grade, $84; enlisted men of the tliird grade, $72; enlisted men of the fourth grade, $54; enlisted men of the fifth grade, $42; enlisted men of the sixth grade, $30; enlisted men of the seventh grade, $21; and the pay for specialists' ratings shall be as follows: First class, $30; second class. $25; third clas2. $20; fourth class. $15; fifth class, $6; sixth class, $3. Existing laws authorizing continuous-service pay for each five years of ser\ice are hereby repealed, effective June 30, 1922. Commencing July 1, 1922, warrant officers of the Army and Marine Corps, including warrant officers of the Army Mine Planter Ser\dce and enlisted men of the Army and Marine Corps, shall receive, as a perma- nent addition to their pay, an increase of 5 per centum of their base pay for each four years of service in any of the services mentioned in the title of this act not to exceed 25 per centum. On and after July 1, 1922, an enlistment allowance equal to $50, multiplied by the number of years served in the enlistment period from which he has last been discharged shall be paid to every honorably discharged enhsted man of the first three grades who reenlists within a period of thi-ee months from the date of his discharge, and an enlistment allowance of $25, multiplied by the number of years served in the enlistment period from which he has last been discharged, shall he paid to every honorably discharged enlisted man of the other grades who reenlists witliin a period of tliree months from the date of his discharge. Nothing contained herein shall operate to reduce the pay now being received by any transferred member of the Fleet Marine Corps Reserve. On and after July 1, 1922, retired enlisted men of the Army and Marine Corps shall have their retLced pay computed as now author- ized by law on the basis of pay provided in this act. Sec. 10. That on and after July 1, 1922, the monthly base pay of warrant officers of the Navy and Coast Guard shall be as follows: During the first six years of service — at sea, $153; on shore, $135; during the second six years of service — at sea, $168; on shore, $147; after twelve years' service — at sea, $189; on shore, $168. On and after July 1, 1922, for purposes of pay, enlisted men of the Navy and Coast Guard shall be distributed in seven grades, with monthly base rates of pay as follows: First grade, $126; second grade, $84; third grade, $72; fourth grade, $60; fifth grade, $54; sixth grade, $36; seventh grade, $21. Chief petty officers under acting appointment shall be included in the first grade at a monthly base pay of $99. Nothing contained herein shall operate to reduce the pay now being received by any transferred member of the Fleet Naval Reserve. In lieu of all permanent additions to pay now authorized for enlisted men of the Navy and Coast Guard, they shall hereafter receive, as a per- manent addition to their pay, an increase of 10 per centum on the base pay of their rating upon completion of the first four years of enlisted service, and an additional increase of 5 per centum for each four years' service thereafter, the total not to exceed 25 per centiun. AH transient additions to pay of enlisted men of the Navy and Coast Guard are hereby repealed, except as provided for in section 21 of this act. The rates of pay of the insular force of the Navy shall be one-half the rates of pay prescribed for enlisted men of the Navy in corresponding ratings. Existing laws authorizing a reenlistment gratuity to enlisted men of the Navy and Coast Guard are hereby repealed, and hereafter an enlistment allowance equal to $50 multiplied by the number of years served in the enlistment period from which he has last been discharged, but not to exceed $200, shall be paid to every honorably discharged enlisted man of the first three grades who reenlists within a period of three months from the date of his discharge; and an enhstment allowance of $25 multiplied by the number of years served in the enhstment period from which he has last been dis- charged, but not to exceed $100, shall be paid to every honorably discharged enlisted man of the other grades who reenlists within a period of three months from the date of his discharge. On and after July 1, 1922, retired enlisted men of the Navy and Coast Guard shall have their retired pay computed as now authorized by law on the basis of pay provided by this act. Sec 11. That warrant officers of the Army, including those of the Army Mine Planter Service, of the Navy, Marine Corps, and Coast Guard, shall be entitled at all times to the same money allowance for subsistence as is authorized in section 5 of this act for officers receiving the pay of the first period, and to the same money allowance for rental of quarters as is authorized in section 6 of this act for officers receiving the pay of the firet period. To each enlisted man not furnished quarters or rations in kind there shall be granted, under such regulations as the President may prescribe. 8 KEADJUSTMENT OF PAY. an allowance for quarters and subsistence, the va,lue of which shall depend on the conditions under which the duty of the man is being performed, and shall not exceed $4 per day. These regulations shall be uniform for all the services mentioned in the title of this act. Subsistence for pilots shall be paid in accordance with existing regulations, and rations for enlisted men may be commuted as now authorized by law. Sec. 12. That hereafter officers of any of the services mentioned in the title of this act, when traveling under competent orders without troops, shall receive a mileage allowance at the rate of 8 cents per mile, distance to be computed by the shortest usually traveled route; but in cases when orders are given for- travel to be performed repeatedly between two or more places in the same vicinity, as determined by the head of the executive department concerned, he may, in his discretion, direct that actual and necessary expenses only be allowed. Actual expenses only shall be paid for travel under orders outside the limits of the United States in North America. Unless otherwise expressly provided by law, no officer of the services mentioned in the title of this act shall be allowed or paid any sum in excess of expenses actually incurred for subsistence while traveling on duty away fi'om his designated post of duty, nor any sum for such expenses actually incurred in excess of |7 per day. The heads of the executive departments concerned are authorized to prescribe per diem rates of allow- ance, not exceeding $6, in lieu of subsistence to officers traveling on official business and away from their designated posts of duty. In lieu of the transportation in kind authorized by section 12 of an act entitled "An act to increase the efficiency of the commissioned and enlisted personnel of the Army, Navy, Marine Corps, Coast Guard, Coast and Geodetic Survey, and Public Health Service," approved May 18, 1920, to be finnished by the United States for depend- ents, the President may authorize the payment in money of amounts equal to such commercial transportation costs when such travel shall have, been completed. De- pendent children shall be such as are defined in section 4 of this act. Sec. 13. That, commencing July 1, 1922, the annual pay of female nurses of the Army and Navy shall be as follows: During the first three years of service, |840; from the beginning of the fourth year of service until the completion of the sixth year of service, |1,080; from the begiiming of the seventh year of service until the completion of the ninth year of service, $1,380; from the beginning of the tenth year of service, |1,560. Superintendents of the Nurse Corps shall receive a money allowance at the rate of $2,500 a year, assistant superintendents, directors, and assistant directors at the rate of $1,500 a year, and chief nurses at the rate of $600 a year, in addition to their pay as nurses. Nurses shall be entitled to the same allowance for subsistence as is authorized in section 5 of this act for officers receiving the pay of the first period, and to the same allowance for rental of quarters as is authorized in section 6 of this act for officers receiving the pay of the first period. Sec. 14. That officers of the National Guard receiving Federal pay, except for armory drill, and reserve officers of any of the services mentioned in the title of this act while on active duty shall receive the allowances herein prescribed for officers of the regular services in sections 5 and 6 of this act. Hereafter, in addition to the pay authorized in section 109, act of June 3, 1916, as amended by the act of June 4, 1920. field officers and lieutenants of the National Guard commanding organizations less than a brigade, and having administrative functions, shall receive $240 per year for the faithful performance of the administrative duties connected therewith ; and warrant officers of the National Guard shall receive not more than four- thirtieths of the monthly base pay of their grade for satisfactory performance of their appropriate duties, under such regulations as the Secretary of War may prescribe. On and after July 1, 1922, the armory drill pay for enlisted men of the National Guard of the sixth grade shall be $1.15, and for those of the seventh grade shall be |] , in lieu of that authorized in section 110, act of June 3, 1916, as amended by the act of June 4, 1920. Sec 15. That existing laws authorizing increase of pay for foreign service and com- mutation of quarters, heat, and light are hereby repealed. Sec. 16. That nothing contained in this act shall operate to reduce the pay of any officer on the active list below the pay to which he is entitled by reason of his grade and length of service on June 30, 1922, not including additional pay authorized by the act entitled "An act to increase the efficiency of the commissioned and enlisted personnel of the Army, Navy, and Marine Corps, Coast Guard, Coast and Geodetic Survey, and Public Health Service," approved May 18, 1920; and nothing contained in this act shall operate to reduce the total of the pay and allowances which afty enlisted man of the Army, Navy, Marine Corps, or Coast Guard is now receiving during his current enlistment and while he holds his present grade or rating. The provisions of this section shall apply in like manner to each person not com- missioned whose pay is based by law on that of a commissioned officer. READJUSTMENT OF PAY. 9 Sec. 17. That on and after July 1, 1922, retired officers shall have their retired pay, or equivalent pay, computed as now authorized by law on the basis of pay provided in this act: Provided, That nothing contained in this act shall operate to reduce the present pay of officers, warrant officers, and enlisted men now on the retired list or officers or warrant officers in an equivalent status of any of the services mentioned in the title of this act. Active duty performed after June 30, 1922, by an officer on the retired list or its equivalent shall not entitle such officer to promotion. Hereafter retired officers of the Army, Navy, and Marine Corps below the grade of brigadier general or commodore and retired warrant officers and enlisted men of those services, shall, when on active duty, receive full pay and allowances. Sec. 18. That under such regulations as the President may prescribe, enlisted men of the Army, Navy, Marine Corps, and Coast Guard may receive additional compensation not less than |1 or more than $5 per month, for special qualification in the use of the arm or arms which they may be required to use. All laws and parts of laws authorizing extra pay for qualification in the use of arms or instruments, or for holding rated positions, except as otherAAdse specifically provided herein, are hereby repealed, to take effect June 30, 1922. Sec. 19. That cadets at the Military Academy and cadets and cadet engineers of the Coast Guard shall hereafter receive the same pay and allowances -as are now or may hereafter be provided by law for midshipmen in the Navy. Sec. 20. That all officers, warrant officers, and enlisted men of all branches of the Army, Navy, Marine Corps, and Coast Guard, when detailed to duty involving flying, shall receive the same increase of their pay and the same allowance for traveling expenses as are now authorized for the performance of like duties in the Army. Exclusive of the Army Air Service, and student aviators and qualified aircraft pilots of the Navy, Marine Corps, and Coast Guard, the number of officers of any of these services detailed to duty involving flying shall not at any one time exceed one-half of 1 per centum of the total authorized commissioned strength of such service. Regulations in execution of the provisions of this section shall be made by the Presi- dent and shall be uniform for all the services concerned. Sec. 21. That nothing in this act shall operate to change in any way existing laws, or regulations made in pursuance of law, governing pay and allowances of the General of the Armies, the Philippine Scouts, Marine Band, Naval Academy Band, Indian scouts, or flying cadets; nor the allowances in kind for rations, quarters, heat, and light for enlisted men; nor allowances in kind for quarters, heat, and light for officers and warrant officers; nor allowances for private mounts for officers; nor transportation in kind for officers and warrant officers and enlisted men and their dependents; nor transportation and packing allowances for baggage or household effects of officers and warrant officers and enlisted men; nor additional pay for aides; nor extra pay to enlisted men serving as stenographic reporters, or employed as cooks or messmen, or mail clerks, or assistant mail clerks, or engaged in submarine diving or service on sub- marines; nor money allowances granted to enlisted men on account of awards of medals or decorations expressly authorized by Congress. Sec. 22. That all laws and parts of laws which are inconsistent herewith or in conflict with the provisions hereof are hereby repealed. 10 READJUSTMENT OF PAY. s I? S~J ■< ^s o a."^ o ss 2; so ■< '^ I>| '^ o 0>05 OTO: o ojcn atOi C31C5C33 O 5-^ S-^s:^ _^ 3 g X o jj ^ O ft^S S P*" ^ o o3 (^ CM C<1 C<1 c5 ?) 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O ^ +^ a ■^as CJ M ^ ^ "3 w s '^ M ^^^■F! ^ ^-fl In ^ 5 ) yea and app nan an 3 tena >icj "^ 3^.2 'o5 ^ ^ Stj t> ^ ^ 006^ -^s O-l M 1 o >,l QOOO OOOOOOO "O O O »0 UO iTD O lO lO iC If? o c^ uO 1/5 lO lO O i>. lO o^-(M r- l>4t— CMCOOCO CO-^cOt ^OOiciDiC^ OcOiOiCTjiTt^C^ uOO-^tJ^TOC^ US o © ° ^2 OOOOOO O O O CD o o o oooooo J(N(M. iC -^ CO O I 3'tiCOCOC^ lO rji -rJH CO C^ (M O o OP ^ tn OOOOOO OOOOOOiO iOiOiO<0»Oi-0 CO C<) CO t-- 1— I LO >0 O lO O LO O O OOOOOO C^GOlOcO'^--' >— 'CD'-HCOI>^r}5f>i c4t^c4l>^o6»0 coooi>to-^ro coicoTt^cococ^ o-^^^oojcni OOOOOC oooooc cd'^c^i Tj^oio IM oo IV "O TjH CO CO <0 lO -it^ CO OOOOOOO OOOOOO OOOOOOO OOOOOO OiOOi-OcOCOt-h .-^cd^COt^'^ en in Lt. -4H ro -v^ rsi O rtH Tt^ CO (M CN ^^^ ex) K M rj O O CS M Pi -2 §^ ^ Oo cala 3 S'c'o 11 ^i CD & 2 3 Ph S OS « d _-: 35S VIEWS OF MR. W. B. OLIVER. As a member of the joint Senate and House committee, appointed pursuant to section 13 of a bill entitled ''An act to increase the efficiency of the commissioned and enlisted personnel of the Army^ Navy, Marine Corps, Coast Guard, Geodetic Survey, and the Public Health Services," approved May 18, 1920, I wish to dissent from, the conclusions by the majority members of the" committee, in which they submit, as their report, a recommendation urging the enactment of a bill introduced in the House by Representative McKenzie, of Illinois, and in the Senate by Senator Wadsworth, of New York. No hearings reduced to writing were had on this bill or on any of its provisions, and the House is without recorded information as ta any facts on which the majority members base their recommen- dation. The proposed bill involves many radical and important changes in existing law, is prepared along illogical, unscientific lines, and in no way simplifies the pay and compensation allowance of the commissioned and enlisted personnel in the several services affected. The controlling thought in the preparation of the bill seems to have been to conserve, protect, and save, as far as possible, the approximate present pay and allowance, including the bonus of the present commissioned personnel, and to extend increased pay to officers on the active and retired list who were denied the bonus^ under the temporary act expiring June 30, 1922, such result being- accomplished partly at the expense of the enlisted personnel and. the lowest commissioned grades. The care, thought, and consideration of the officers of the several services affected, who really prepared and initiated most of the provisions in the bill, as reported to the House and Senate, was. primarily guided, I fear, by too strong a compelhng desire to con- serve the interest of those now in these services — and which, of neces- sity, has resulted in too little thought, care, and consideration being given the pay of those who are to fill the vacancies in the commissioned and enlisted personnel occurring in future in the several services. The talk over the table as to the bill's provisions, with the officers, who, as heretofore stated, really prepared the bill, disclosed that they laid great stress on the necessity of liberal provisos to protect the grade and approximate pay status of the present commissioned personnel, and although they frankly admitted that many rapid promotions to high grades, carrying large increases in pay were unjustified and alone resulted from war conditions, yet notmth- standing such an admission on their part, the bill as drafted pro- poses no correction of present conditions, but seeks congressional favor on the promise and assurance that under the proposed bill 12 READJUSTMENT OF PAY. 13 unwarranted promotions, attended with unusual increases in pay and allowance, will not occur in future, even under war conditions. A bill prepared by Representative McKenzie of the joint committee and which was taken by the committee as a basis for discussing the provisions of a bill to be recommended to the House contained provisions seeking to correct the present condition in the different services, resulting from rapid promotions and large increase in pay, and the committee understood from the officers appointed to rep- resent the different services that a permanent bill could be drafted along the lines of the McKenzie bill. Notwithstanding this assur- ance, when the final draft of the bill was submitted to the com- mittee, lo, and behold, the provisions referred to in the McKenzie bill had been entirely eliminated. I have purposely omitted a detailed discussion of the provisions of the bill, because this can only be done intelligently and helpfully when predicated on printed hearings, available for study by the membership of the House. It has been suggested that the Speaker, who is now authorized xmder a resolution recently adopted by the House to appoint a special committee, to whom will be referred the pending bill, with authority to hold hearings and report the same, may name as naembers of such special committee the same Members of the House who served on the joint Senate and House committees, and in this event, if hearings are had on the bill, the former members of the special joint committee, who dissent from the bill as reported and recommended for passage, can and will set forth specific grounds of objection to the bill, and thus enable Members of the House to consider such objections in the light of facts disclosed in the printed tearings to be hereafter had on the bill. I feel that only in this way can an intelligent conclusion be reached by the House as to the merits or demerits of the proposed legislation. In conclusion, it may not be out of place to suggest that since Oen. Pershing is reported to have reconmiended a very large reduc- tion in the commissioned personnel of the Army, it would seem unwise for the House to enact a permanent pay bill for the Army and other allied services until the House has first fixed the strength of the commissioned and enlisted personnel of these services for the future. If the bill as recommended should be adopted prior to July 1, 1922, and a large part of the commissioned personnel, pursuant to Gen. Pershing's reported recommendations, are retired after July 1 next and during the fiscal year 1923, there would be thus provided a permanent base pay for this large number so retired at a much higher rate than now authorized under existing law. This fact would alone suggest, I submit, the importance of at least delaying the enactment of a permanent pay bill until Congress first determines a policy fixing the future strength of the services affected. Respectfully submitted. W. B. Oliver. MINORITY VIEWS. Under section 13 of a bill entitled ^'An act to increase the efficiency of the commissioned and enlisted personnel of the Army, Navy, Marine Corp)s, Coast Guard, Coast and Geodetic Survey, and Public Health Service," approved May 18, 1920, a joint committee composed of Members of the House and Senate was appointed to investigate and report on certain matters that were the subject of legislation in the aforesaid bill. By provisions of the law the committee was required to report not later than the first Monday in January, 1922. Subsequently by the provisions of Senate joint resolution 142 the time for making this report was extended to the first Monday in March, 1922. The majority of the members of the committee have prepared report in the form of a bill recommended for enactment into law. Other members of the committee are submitting this report of views and recommendations, and, as the majority report recommends the enactment of the bill attached and made a part thereof, the comment in this report is made upon and has reference to the proposed bill. The testimony presented before the joint committee of the Senate and House of Representatives in support of this bill shows that the members of these services are facing a condition, due to the excessive retail charges for food, clothing, and other articles required to main- tain themselves at a proper standard of physical and mental efficiency, that must be recognized as an emergency. The witnesses appearing before this committee in support of this bill have urged that a perma- nent readjustment of their pay and allowances based upon this con- dition, and providing a substantial increase over the pay and allow- ances authorized by the act of May 13, 1908, must be estabhshed or they will be forced to leave these services and seek employment in civil life. It would seem, however, that if the present living condi- tions are as represented before this committee no action should be taken in this bill until the probable duration of the present emergency has been more fully determined, and that Congress would not be war- ranted in enacting this bill into law, thereby establishing permanently a rate of pay based upon a condition of abnormally high retail prices. When the act of May 18, 1920, temporarily increasing the pay of the officers and men of the service provided for in this bill was enacted into law every Member of Congress understood that this increase had been requested and granted for the purpose of helping the officers and enlisted men of these services over this emergency. It is now con- tended by the representatives of these services that this emergency still exists, and that if this temporary relief comes to an end on June 30, 1922, as provided in the act of May 18, 1920, and no further relief is given, the officers and men of these services will sufl^er many hard- ships which would necessitate their resigning from the service. It is not contended in this report that normal living conditions should not be taken into consideration in the determination of an adequate compensation for services rendered, but it is strongly recom- mended that this bill, which provides a permanent readjustment of pay based upon abnormally high living costs, be not enacted. This 14 READJUSTMENT OF PAY. 15 country is now passing through a period of abnormal inflation of retail prices. The producer is receiving less for his wheat and live stock than he received for them prior to 1908, the date when the last perma- nent readjustment of the pay of the officers and enlisted men of these services was made. It is therefore submitted that the retail price of flour and meats will undergo a corresponding reduction in the near future. The same applies to shoes, clothing, household effects, fuel, rents, and other items, and when this actual reduction takes place Congress will be in a position to determine upon an appropriate permanent readjustment of the pay and allowances of the officers and enlisted men of these services. The plan for permanently readjusting the pay of these services as outlined in this bill is not in accord with the policy of this administra- tion and this Congress to maintain a rigid economy in all things. The taxpayers of this country would not willingly accept the extra burden created through a permanent readjustment of pay for the several hundreds of thousands of officers, enlisted men, and other individuals in these services, based upon a living condition that is admitted by those requesting this readjustment as abnormally high. Neither the members of this committee, the Members of Congress, nor the officers and enlisted men of these services are able to determine what the conditions will be in respect to the price of food, clothing, and shelter six months or a year hence, but it is a foregone conclusion that retail prices will be materially lower. This belief is based upon the knowl- edge that in many instances the cost of raw material is lower than it was in 1908, and that retail prices must through the force of circum- stances reduce until a condition relative to the cost of raw material is reached. It is, therefore, recommended that in the face of these conditions it would not be prudent to attempt a permanent readjust- ment of the pay and allowances of the officers, enlisted men, and others of these services, as provided for in this bill, until relation between the cost of the raw material and the retail price of the finished product has reached a healthy stability. If, as contended by the witnesses appearing before this committee, this country is now passing through a period of abnormal retail price inflation, it would appear that the proper remedy for this situation is not to establish a permanent readjustment of pay based upon these conditions, but perhaps to consider whether or not it would be advisable to continue the temporary relief granted by the act of May 18, 1920, for another year. There is, however, a further phase of this situation relative to this bill to which attention is invited. This country is now, and for some time past has been, passing through a period of retrenchment and readjustment. The cost of an unhealthy economic condition brought on by the war is falling heavily upon every one, and each must bear his share of the load. Under these conditions it would seem that the proper thing to do in the interest of retrenchment would be to have the members of these services revert substantially to the pay of May 13, 1908, as soon as this can be accomplished under existing laws. The laboring man, who was more generously rewarded during the period of increased wages than the professional man, now finds his rate of pay reduced to practically what it was during the prewar period. This also applies to the trained mechanic and artisan, who, in many instances, now finds himself out of a job and with no means 16 READJUSTMENT OF PAY. of supporting his family. Likewise many of the professional classes who are dependent upon salaries, such as professors of colleges and universities, chemists, accountants, the great body of Government officials, local. State, and Federal, and others who did not receive any temporary relief during these high prices as did the officers, enlisted men, and others of the Army, Navy, Marine Corps, and other serv- ices, through the act of May 18, 1920, now find themselves among the unemployed. The pay and allowances of officers, enlisted men, and others in these services to-day can not be compared with the pay received by railroad conductors, engineers, firemen, carpenters, hod carriers, and bricklayers in 1919. The cost and wage tables of 1918 and 1919, even 1920 and 1921, have been showm to be of little value in this case. Attention is invited to the fact that thousands of navy yard em- ployees who come under the immediate jurisdiction of one of the de- partments recommending this bill were recently thrown out of employment. It would appear to be obviously unjust to recom- mend the enactment of the provisions of this bill for the benefit of the services enumerated therein when men in our navy yards, ev[ually skilled and equally important to the defense and safety of our country, " and others of equal importance in other occupations, have been dis- charged to effect further economies. It is suggested that a readjust- ment of the pay and allowances of the officers, enlisted men, and others of these services upward, as provided in this bill, or an exten- sion of the provisions of the act of May 18, 1920, in the face of these conditions would result in an unwise and indefensible discrimination among the employees of this Government. The plan designed to lead to a complete restoration of normal conditions must treat all as nearly alike as it is possible to do. The bill under consideration is designed for the benefit of a few whom it saves from the burdens of retrenchment which are borne by others of equal worth. From an extended examination of the facts adduced before this committee it is perfectly clear that the object sought by the repre- sentatives of these services is to obtain a permanent readjustment of their pay and allowances based upon conditions which are recognized by them as abnormal. This bill as recommended provides for a permanent readjustment of pay and allowances that preserve not only the rate of pay provided by the act of May 13, 1908, but also the greater part of the temporary increase that was given them by the act of May 18, 1920. It appears, therefore, that if this bill is enacted into law the object sought will have been attained. The friends of this bill appearing before this committee have pointed to the large number of resignations from the various branches of the military service of the United States occurring during the year of 1919 and prior to the passage of the act of May 18, 1920, and it has been urged upon this committee that a failure to permanently readjust the pay and allowances of these services upward as provided in this bill would result in many more resignations from the service. The fallacy in this argument lies in the fact that in 1919 conditions in civil life were superficially very prosperous, as a result of which many flattering inducements were offered to military men to resign from the service and enter civil life. The testimony adduced before this committee shows that these conditions have passed and that many of the officers who resigned from these services at that time have sub- READJUSTMENT OF PAY. 17 sequently sought to be reinstated. In the face of the present con- ditions it would appear that those who have positions or commissions which are reasonably secure, and which carry with them a wage or salary, insuring a livelihood and retired pay, are very fortunate, and a large number of resignations from the military service is not to be anticipated at this time even though the provisions of this bill are not enacted into law. While a consistent effort has been made before this committee to show that a return to the pay and allowances established by the act of May 13, 1908, would result in .wholesale disaster, it appears from all the facts gathered by the committee that a return to the pay and allowances provided by the act of May 18, 1920, will not reduce a single man in the service to a condition that will materially interfere with his effectiveness. It is therefore recommended that no further action be taken on this bill and that upon the expiration of the act of May 18, 1920, which terminates on June 30, 1922, the personnel of these services be permitted to revert to the pay and allowances prescribed by the act of May 13, 1908. An attempt has been made before this committee to point out that the provisions of this bill, if enacted into law, will result in a sub- stantial saving to the Government, relying for that purpose upon the Budget estimates submitted for these services for the fiscal year end- ing June 30, 1923. The provision for pay and allowances of these services presented in the Budget estimates for 1923 appears to have been based upon the act of May 18, 1920, which act expires on June 30 of this year. Attention is invited, however, to the fact that the saving indicated, as accomplished by the provisions of this bill, has been based upon an artificial total which has no authority in law, and that when checked against the legal rate of pay provided by the act of May 13, 1908, which will be in force after June 30, 1922, unless sooner repealed, the provisions of this bill show an increased cost of many millions. The following table shows the actual situation based upon the estimated cost of the several services under the provisions of this bill relative to the cost under the acts of May 13, 1908, May 18, 1920, and the Budget submitted by the Director General of the Bureau of the Budget: ARMY. Budget, 1923. Proposed pay. Correspond- ing amounts if no legisla- tion is en- acted. Base and service pay of officers Temporary increase, act May 18, 1920 Foreign service pay Saving clause, officers, active list Commutation of quarters, heat and light . Subsistence allowance Pay of retired officers Saving clause, retired officers Pay and allowances, warrant officers Pay and allowances of nurses Pay of enlisted men Saving clause, enhsted men Temporary increase, act of May 18, 1920.. . Total. S39, 906, 190 9, 032, 820 380, 644 838, 816, 705 4,925,050 '5,"i32,"655 2, 479, 864 1, 092, 455 73,015,586 004,645 007, 280 680, 422 107,350 461, 865 153, 120 257, 985 529, 857 000,000 3,623,705 133, 019, 229 $39,906,190 4, 925, 050 '5,'i32,'655 2, 455, 846 882, 535 72, 054, 276 125, 736, 596 H. Kept. 753, 67-2- 18 EEADJUSTMEIsTT OF PAY. Estimated excess of expenditure under this bill over no legislation, $7,282,633. NAVY. Budget, 1923. Proposed pay. Correspond- ins: amounts if no legis- lation is enacted. Rates of pay based on 1908 scale, consid- ering all pro- visions in act of May, 1920, inoperative. Base and service pay of officers Sa\ing clause, officers' active list Commutation of quarters, heat, and light. Subsistence allowances Paj' of retired officers Saving clause, retired officers Rations, warrant officers Pay and allowances of nurses Pay of enlisted men Sa\nng clause, enlisted men Pay of apprentice seamen Saving clause, apprentice seamen Pa5' of retirea enlisted men Honorable discharge gratuity Total. $30,397,236 '"'5,'354,'472' 3,114,840 §24,745,635 1,080,455 5,342,662 3,283,423 3, 470, 075 28, 438 S25, 508, 196 '"2," 208,' 384' $25, 508, 196 "'2,"268,"384 3,114,840 184, 690 771,346 87,203,496 774, 955 83, 189, 757 2,376,000 675,566 7,638,400 1, 512, 000 559,728 944,689 4,965,900 184, 690 681, 830 75,207,128 2,347,508 1,985,517 184,690 681,830 52,890,426 1,267,200 675, 566 4,393,619 137, 716, 046 132,245,225 113,959,770 675, .566 4,393,619 90,924,751 Estimated excess of expenditure for Navy under this bill over no legislation, 118,285,455. Estimated excess of expenditure under this bill over no legis- lation for Army and Navy only, $25,568,088. Estimates in the Budget for 1923, for Army and Navy only, in excess of estimated expenditures if no legislation is enacted, $37,- 568,031. Summary of temporary increases for c(5mmissioned personnel, included, without support of law, in the estimates for the fiscal year 1923, for the several services mentioned:- Navy 17, 914, 360 Armv 9, 032. 820 United States Public Health Service 891, 480 Coast Guard 260, 823 Marine Corps 673. 620 Coast and Geodetic Survey 90, 750 Total 18, 863, 853 While it has been strongly urged before this committee that the pay and allowances of the officers and enlisted personnel of the Army, Navy, and Marine Corps have not undergone a general read- justment since Aiay 13, 1908, your attention is invited to the fact that the national defense act of June 3, 1916, reorganizing the serv- ices of the Army, Navy, and Marine Corps resulted in the promotion of practically every officer in these services one or more grades, which was tantamount to a substantial increase in pay for the officers promoted. This increase was further augmented in the case of the majority of these officers by subsequent acts giving them temporary promotions, which the Army reorganization act together with the Navy act, each approved on June 4, 1920, enabled a large percentage of these officers to convert into permanent promotions, thereby obtaining further substantial increases in pay. These pro- EEADJUSTMEl^T OF PAY. 19 motions were in fact substantial increases in pay. For example, a first lieutenant in the Army with 10 years' service, promoted in 1916 to the grade of captain with 10 years' service, received an actual increase of pay and allowances amounting to $610.72 per year, while a similar promotion from the grade of captain to the grade of major gave him an increase of pay and allowances amounting ot $1,034.76. The same promotion on July 1, 1920, gave the officer promoted from first lieutenant to captain an increase in pay and allowances amounting to $783, while a similar promotion jfrom the grade of captain to the grade of major gave him an increase of pay and allowances amounting to $1,019.76. A promotion of two grades, i. e., from first lieutenant ■ to major would give this officer an increase in pay in 1916 amounting to $1,645.48, and a similar promotion July 1, 1920, would give him an increase in pay amount- ing to $1,802.76. The increase in the pay and allowances of an officer of the Marine Corps promoted under similar conditions was identical with the increases indicated for the Army officer, while the increase under like conditions in the Navy was a little larger or smaller depending upon whether the officer concerned was serving at sea or on shore, respec- tively. So it is observed that the representations made before this committee to the effect that there has not been any general read- justment of pay and allowances for the officers personnel since May 13, 1908, although technically correct, must be discounted in the face of the rapid promotions brought about b}" the reorganization of these services since 1916. In the case of the personnel of the Coast Guard, Coast and Geodetic Survey, and Public Health Service attention is invited to the fact that recent laws giving to these services the pay and allowances of the personnel of the x4.rmy. Navy, and Marine Corps provided a substantial increase of pay in every case, and in many cases the increase was as much as 100 per cent. Looking at the situation squarely, there does not seem to be any good and sufficient reason why these nonmilitary services should be included in a readjustment of the pay and allowa,nces of the strictly military services any more than the entire personnel of the Government civil service should be included therein. The personnel of the Coast Guard, Coast and Geodetic Survey, and Public Health Service may serve under the direction of the Secretary of War or the Secretary of the Navy during the existence of war or a national emergency declared by the Presi- dent to exist. But the civilian personnel in the War and Navy Departments, at the navy 3''ards, and at the Army field headquarters also serve under the direction of the Secretary of War or the Secretary of the Navy, and it is submitted that these members of the personnel of the civil service are as much entitled to the benefits of this increased pay and allowances as are the members of the personnel of these other nonmilitary services. It is, therefore, recommended that the personnel of the Coast Guard, Coast and Geodetic Survey, and the Public Health Service be not included at this time or at any future time in a bill for the readjustment of the pay and allowances of the officers and enlisted personnel of the Army, Navy, and Marine Corps, and that the pay and allowances of these nonmilitary services should not only be disassociated from the pay and allowances of the xlrmy, 20 EEADJUSTMENT OF PAY. Navy, and Marine Corps but also from each other for the reason that the nature and quality of the services rendered are so dissimilar that they do not furnish an adequate basis of comparison for the purpose of determining a single rate of pay and allowances which would be adequate for one without being excessive or inadequate for the other two. Turning to the consideration of the fundamental ideas running through this bill, it would seem that they contemplate a pay based upon certain pay periods, length of service, and upon the proposition of dependents. Very little if anything is said about the fundamental principle upon which all compensation should be based in order to insure a healthy employment relationship, namely adequate compen- sation for the character of the services rendered. All other ideas are by their very nature secondary and subservient to this principle, and any plan, such as that contained in this bill, giving length of service, number of dependents, or any like ideas primary importance over the principle of adequate pay based upon the character of the services rendered, is fundamentally wrong. The idea of pay based directly upon length of service and directly or indirectly upon the number of de- pendents is contrary to any principle of compensation recognized in either governmental or private employment. If these ideas are applicable to the pay and allowances of the officers and enlisted per- sonnel of the Army, Navy, Marine Corps, and the other services included in this bill, they apply with equal force to all other branches of the Government service, and if these ideas are formally injected into our system of laws regulating the pay and allowances of one service there could not be any justice in withholding their benefits from the personnel of all other branches of public service. The theory of pay based in any way upon length of service or number of depend- ents, as contained in this bill, is obviously a dangerous experiment which would undoubtedly lead to indefensible inroads upon the Public Treasury. The principle of pay for services rendered according to the circum- stances immediately surrounding the employment and the position occupied in any organization represents the only wise plan of com- pensation that is known to-day. Many Utopian plans have been ad- vanced from time to time to get something from the Government for nothing, but none of them have ever been acceptable. As provided for in this bill, pay based upon length of service results in an increased compensation regardless of whether or not the recipient has in fact increased in efficiency, while pay based upon the idea of dependents is merely an old scheme for getting something for nothing, and should not be looked upon with favor. It is agreed to-day that every man who serves for pay should be paid a living wage for his services, and in the greater number of cases it is so arranged that the duties to be performed call for a living wage but in any event where a man receives more than a living wage the wage received should be based solely upon the value of the services rendered and in no case are the number of his dependents to be taken into consideration, as provided for in this bill, for as already pointed out, to do so would be to pay the employee for something that he does not earn. For him to demand pay based upon dependents, and in . READJUSTMENT OF PAY. 21 addition to services rendered, would be to demand something for nothing, something that he i's not entitled to receive. From the manner in which the representatives of these various services testifying l)efore this committee stressed the point of pay based on length of service it might be deduced that they probably doubted their ability to earn a promotion to a higher grade or rank based upon merit, which promotion in every case under the general principles now authorized by law carries with it an increase in pay. The manner in which they have stressed the point of pay based upon dependen+s would lead one to understand that they were I'eceiving all the compensation that the character of their services warranted, otherwise they would make their request for permanent readjustment of pay squarely upon that ground and not permit themselves to be forced into the absurd position of openly seeking to obtain additional com- pensation on the basis of dependents for which they obviously do not propose to give even a semblance of a return ; in other words, in the position of contending that they ought to receive something without giving any return by way of service. The proposition of a living wage is based upon well-known principles, but the proposition of pay based upon dependents is merely seeking a gratuity and it should have no place in any legislation establishing a system of pay for the personnel of either the military or nonmilitary services under the Federal Government. It has been repeatedly urged before this committee that efficiency dej)ends upon contentment and that contentment does not neces- sarily come from an adequate pay for services faithfully rendered, but that contentment depends primarily upon whether the employees' dependents are adequately provided for by the Government. It is admitted that the proper provision for one's dependents is a condition sought by every right-minded man, but heretofore it has always been understood that the individual was under an obligation to provide for his dependents out of the compensation received for services rendered and not that the Government was under an obliga- tion to provide a pay commensurate with the number of an officer's dependents. Every man has his problems to meet and he must elect to meet them in his own way. The Government can not be expected to meet them for him, although many of the witnesses appearing before this committee insisted that the Government somehow or other is under an obligation to do so, and this in the face of the fact that no other group of Government employees have anything like the insurance that is provided in the way of retired pay for the commissioned personnel of these services. When the Government, as any other employer, has provided an adequate pay for the character of the services rendered it has done all that it should do in fairness and justice to the individuals who are required to pay the taxes and have no one upon whom they can shift the burden of providing for the support of their aged mothers, crippled children, and invalid wives. The Government has no right to ask the taxpayer to supply funds for the support of the . aged mother of an Army officer, as provided for in this bill, when the Government does not have any means whereby it can provide support for the taxpayer's aged mother. If the average member of the commissioned or enlisted personnel of these services 22 eeadjustmejs^t of pay. . insists that the Government must bear all of his burdens, support his dependents, and furnish him with io6d, shelter, and heat and light, as provided in this bill, in addition to a pay based upon the service rendered, then we can logically expect that men employed in other branches of the Government service will demand pay based upon the principles contained in this bill. It is a very simple matter for an individual to fret himself into a mental condition of riotous discontent, and if the Government is going to adopt a policy of paying each member of these services a compensation based upon a principle of no cost is too great if only contentment can be secured, as would logically follow from the provisions of this bill, the Govern- ment must soon convert itself into a charitable institution devoting its time and money to caring for the dependents not only of the commissioned and enlisted personnel of these services but of every other service under the Government. The principle of granting adequate assistance to an individual injured in the defense of his country is well understood and has everything to commend it, but there is no similarity between that principle and the idea of additional conipensation based upon de- pendents as provided for in this bill. Nor is there any similarity between pay based upon dependents and the allotments or a separa- tion allowance provided during the World War for enlisted men who were compelled by the Government to give up their work regardless of whether or not their dependents had any other means of support. There are many examples of its abuse such as would undoubtedly take place if this bill was enacted into law, but it was an emergency and they had to walk out regardless of consequences. The present members of these services did not come in under any such circum- stances, and the comparison is not justified. The exemption granted under the income tax law has been cited in support of this proposi- tion relative to dependents. Here again the circumstances are totally dissimilar. In the case of the income tax the Government has hesitated to take away from a man or woman a part of what he or she has earned when what they have earned does not exceed a certain small amount; while in the case of additional compensation based upon dependents the Government is asked to give the officer something without regard to service rendered; to pay him money that he has not earned, for if he has earned it in any way it would be compensation based upon services rendered and not compensation based upon dependents. The principle being wrong, the fact that its application is being sought in a slightly restricted sense in this bill is immaterial. It savors of paternalism to an extent which should not be enacted into law. The representatives of these services having failed to urge before this committee a readjustment of pay and allowances based upon the character of the services rendered and the reasons therefor, and having relied almost exclusively upon the ideas of an increased compensation based upon dependents, subsistence (food), commuta- tion of quarters (shelter), and length of service, none of which should in fact receive more than a superficial consideration in connection with legislation of this character, it must be presumed that the character of the services now rendered does not justify a readjustment READJUSTMENT OF PAY. 23 of pay over the pay provided by the act of May 13, 1908; for if the character of the services rendered did warrant a readjustment of pay and allowances at this time, regardless of the emergency which has been urged before this committee, the representatives of these services would not have so far failed in the execution of the trust imposed upon them by the other members of these services as to have neglected to bring forward with all the sincerity and force at their command this single and all-important fact which in the very natuie of things constitutes the only legitimate reason for asking for a permanent readjustment of the pay and allowances of the com- missioned and enlisted personnel of these services now or at any future time. An examination of the provisions of this bill shows that it has been drawn in the manner that leaves very much to be desired in the way of simplicity, as well as in the way of some of more important principles recognized as fundamental in drafting legislation of this character. Words are given new and heretofore legally unheard of uses; simple propositions are rendered unnecessarily complex; and the same idea has been so expressed in different sections that it can not possibly be interpreted to mean what it was intended to mean in each case. In the first place all idea of the importance of the office to which an officer is appointed or promoted, as the case may be, has been either lost sight of or its normal functions so obscured as to render it value- less. Attention is invited to the fact that under the Constitution and laws of the United States each commissioned officer in the military forces thereof holds his commission therein by virtue of an appoint- ment by the President, by and with the advice and consent of the Senate, and that by virtue of his appointment to this office he has certain duties to perform, the character and nature of which are based upon the office which he holds. If the principle still holds good, and it has never before been seriously challenged, that a just compensation is determined in every case by the character of the services performed and that the nature of the services to be per- formed are determined by the office to which he has been appointed or promoted, there is a direct connection between the office held and the pay received. For example, it is provided in the first section of this bill that these services shall be divided into six pay periods. What the term "pay periods" means is not clear, but there can be no mistake about it not being an office for an officer who is commissioned in the office of major may find that his pay is based upon any one of three pay periods, depending, in some instances, upon the length of time he has served from the date of his first commission in that service, while in other instances it depends upon when or how he happened to be appointed to the service or advanced to that office. It appears that if he did not come in in the orthodox manner he must be penalized. In other words, this bill provides three or more rates of pay for the office and grade of major, although every man in that grade is presumed, and must in the very nature of things be presumed, to perform practically the same quantity and quality of work regard- less of the manner in which he happened to receive a commission in that grade. 24 READJUSTMENT OF PAY. Every officer in the grade of major or in any other grade should be qualified to serve in that grade or he should not have been commissioned therein, and if he is qualified to sferve in that grade it follows as a matter of course that he is entitled to just as much compensation for the services rendered as any other officers serving in any grade re- gardless of the conditions under which they were commissioned therein. There should be but one standard of efficiency required for a grade or office in the military service, and any officer who is not up to that standard should not be commissioned in that grade. If, on the other hand, he is in fact qualified for a commission in that grade it is submitted that he is entitled to the pay which constitutes a just compensation for services rendered in that grade regardless of whether he entered the service as a graduate of West Point, came up from the enlisted ranks, or was appointed from civil life. If a pay bill were constructed along these lines it would be so simple that it would not require a long line of judicial decisions interpreting it, and any officer included within its provisions would be able to look at it and tell the exact amount of pay that he was entitled to receive for the services rendered. It has been urged before this committee that the pay of each grade, except that of second lieutenant and colonel, must be divided into three rates (pay periods) to meet the contingency of too rapid pro- motion, too slow promotion, and normal promotion. In other words, it is contended that some officers are being promoted to a higher grade before they are qualified to perform the duties of that grade, while in other instances the distinction appears to be made without regard to his ability but because he has been appointed from civil life. In any event a scheme has been provided whereby an officer will continue to receive the pay of the lower grade although he is in fact serving in the higher grade. To provide in a bill establish- ing a permanent readjustment of pay and allowances that an officer shall continue to receive the pay of the grade from which promoted after he has demonstrated his fitness for promotion and has been promoted accordingly, despite the fact that he is no longer perform- ing the duties of the lower grade, but has been found qualified to per- form the duties of the next higher grade, which duties he is in fact performing, is neither fair nor logical. No better example of the extent to which the provisions of this first section have been complicated can be given than the following table, which represents some of the many different gradations of pay provided for in section 1 of this bill : READJUSTMENT OF PAY. Table 2. 25 Pay period. Grade and title. Base pay. Sixth pay period. . Do Do Do Do Fifth pay period.. Do Do Do Do Do Do Fourth pay period. Do Do Do Do Do Do. Third pay period. Do Do Do Do Do Second pay period. Do Do Do First pay period. . . . Do Do 1. Colonel, over 26 years' service 2. Colonel, iirst appointment above captain 3. Colonel, appointed under sec. 24, act June 4, 1920 4. Captain, staff, Navy, by selection 5. Lieutenant colonel," over 30 years' service 6. Colonel, less than 26 years' service 7. Lieutenant colonel, over 20 and less than 30 years' service 8. Lieutenant colonel, first appointment above captain 9. Lieutenant colonel, appointed under sec. 24, act June 4, 1920 10. Commander, staff. Navy, by selection 11. Major, over 23 years' service 12. Lieutenant commander, staff". Navy, first appointment above en- sign. Mar. 4, 1913, June 7, 1916, after 20 years' service. 13. Lieutenant colonel, less than 20 years' service 14. Major, over 14 but less than 23 years' service 15. Major, first appointment above second lieutenant 16. Major, appointed under sec. 24, act June 4, 1920 17. Captain, over 17 years' service 18. Lieutenant, staff. Navy, service equal to lieutenant commander, line of Navy in this period. 19. Lieutenant (senior grade or junior grade) of Coast Guard Service, equal to Ueutenant commander, Une of Navy, in this period. 20. Major^ less than 14 years' service \ 21 . Captain, over 7 and less than 17 years' service 22. Captain, first appointment above second Ueutenant 23. Captain, present rank July 1, 1920, or prior 24. First lieutenant, over 10 but less than 17 years' service 25. Lieutenant (junior grade). Coast Guard Service, equal to Ueu- tenant, Une of Navy," in this period. 26. Captain, less than 7 years' service 27. First Ueutenant, over 3 years' service 28. First lieutenant, first appointment above second Ueutenant 29. Second lieutenant, over 5 years' service 30. First Ueutenant, less than 3 years' service 31. Second Ueutenant, less than 5 years' service 32. The pay of this period appUes to all other officers below the grade of brigadier general whose pay is provided for in this section. $4,000 4,000 4,000 4,000 4,000 3,500 3,500 3, 500 3,500 3,500 3,500 3,500 3,000 3,000 3,000 3,000 3,000 3,000 3,000 2,400 2,400 2,400 2,400 2,400 2,400 2,000 2,000 2,000 2,000 1,500 1,500 1,500 It is pointed out by way of explaining the above table that para- graph 2 of this section creates six pay periods which have heretofore been unknown to the laws providing rates of pay for these services. They apparently bear no relation to the grades or offices to which officers are appointed or promoted, and which have been heretofore considered as an appropriate measure of the pay value of the services rendered. It would appear from a careful analysis that they merely constitute an artificial arrangement, making that which was already very complex more complex. The base pay of these periods is fixed as follows: The first period, $1,500; the second period, $2,000; the third period, $2,400; the fourth period, $3,000; the fifth period, $3,500; and the sixth period, $4,000. These periods were undoubt- edly intended to correspond in a way to the grades of second lieu- tenant, first lieutenant, captain, major, lieutenant colonel, and colonel, respectively, but as a matter of fact they do not. It will be noted from an examination of the pay periods as set forth in the above table that in the sixth pay period a lieutenant cftonel with 30 years' service will receive the same base pay as a colonel with 26 years' service and decidedly more pay than a colonel with 25 years' service. Passing to the fifth pay period as outlined in the above table it will be noted that a major who has completed 23 years' service will receive the same pay as a lieutenant colonel or a colonel who has completed 23 years' service. Examining the fourth pay period as outlined in the above table it will be noted that a captain in the 26 READJUSTMENT OF PAY. Army who has completed 19 years' service will receive the same pay as a major or a lieutenant colonel of the same length of service. This same situation applies to a first lieutenant, captain, and major in the third pay period, and owing to a subsequent paragraph of this section, which authorizes an increase of 5 per cent for each three years of service, a first lieutenant would receive more pay under these conditions than a major; and a captain under an analogous situation in the fourth pay period would not only receive more pay than a major but more pay than a lieutenant colonel. When it is understood that the duties performed in these services in the field and at sea are determined in every instance by the rank and grade of these officers, namely, the duties of a captain are more impor- tant and require a higher degree of proficiency and skill in their performance than the duties of a first lieutenant, and the duties of a major are in turn more important and require a higher degree of proficiency and skill in their performance than the duties of a captain, and so forth, for each succeeding higher grade, the destruc- tion of morale and efficiency that the provisions of this bill threaten to bring about is appalling. Applying this scheme of pay periods to the officers in the selec- tion grades of the Navy it will be noted that it would totally dis- regard such superior qualifications in an officer as cause officers to be selected for promotion. Under the provisions of this bill it would be immaterial whether or not a commander was selected from the bottom of the list of commanders on account of his superior quali- fications and demonstrated ability for appointment to the next higher grade, for he would not receive any increased compensa- tion over what he was receiving in the grade from which promoted, and as already pointed out he might actually be receiving less pay than a lieutenant commander who in fact had more service. If the provisions of this bill are enacted into law, it will only be a short time until ability will be at a discount and length of service at a premium. A lieutenant, senior grade, in the Navy with 23 years' service (and there are many such) would immediately receive more pay than a lieutenant commander with 22 years' service, and if he were pro- moted to the grade of lieutenant commander he would immediately receive the pay of a commander after 23 years' service. The necessity for obtaining officer personnel from civil life is fre- quently very pressing; in fact situations arise making it absolutely unavoidable. It appears that the provisions of this section would completely cut off this source of officer material. For example, an officer appointed from civil life as a first lieutenant would receive the same pay as if appointed a second lieutenant, $1,500, and a major would receive the base pay of a captain of seven years' service, $2,400. But if that captain had 17 years' service he would haveta base pay of $3,000. While the base pay of a major appointed from civil life would be $2,400 he would be serving with majors receiving a base pay of $3,500. And when it is further considered that these officers appointed from civil life would not have any service upon which to compute pay for length of service at the rate of 5 per cent for each three years' service, it is noted that the gap is widened to the extent of $1,225. In other words, a major appointed from civil life, READJUSTMENT OF PAY. 27 who has been commissioned in that grade on the theory that he is fully qualified to perform the duties assigned in that grade, and he is generally selected because his special technical qualifications render his services particularly desirable, would receive only $2,400 per annum, while an officer in the same grade with 23 years' service would receive $4,725 per annum. This is not submitted as an extreme case but as a typical case such as would be continually arising under sec- tion 1 of this bill. It will hardly be contended that officer personnel could be obtained from civil life under these conditions. The following table presents this matter of pay periods from a view- point which indicates the possible extent of increase of pay in grade without regard to promotion : Table 3. Grade and title: Base pay. General $13, 500 Major general 8, 500 Brigadier general 6, 500 Colonel — Over 26 years' service 4, 000 First appointment above captain 4, 000 Appointed under section 24, act June 4, 1920 4, 000 Less than 26 years' service 3, 500 Lieutenant colonel — Over 30 years' service 4, 000 Over 20 and less than 30 years' service 3, 500 First appointment above captain 3, 500 Appointment under section 24, act of June 4, 1920 3, 500 Less than 20 years' service 3, 000 Major — Over 23 years' service 3, 500 Over 14 and less than 23 years' service 3, 000 First appointment above second lieutenant 3, 000 Appointed under section 24, act June 4, 1920 3, 000 Less than 14 years' service 2, 400 Captain — Over 17 years' service 3, 000 Over 7 and less than 17 years' service 2 , 400 First appointment above second lieutenant 2, 400 Present rank July 1 , 1920, or earlier 2, 400 Less than 7 years' service 2, 000 First lieutenant — Over 10 years' serAdce 2, 400 Over 3 and less than 10 years' service 2, 000 First appointment above second lieutenant 2, 000 Less than 3 years' service 1, 500 Second lieutenant — Over 5 years' service .' 2, 000 Less than 5 years' service 1, 500 It is noted from an examination of this table that a lieutenant colonel, major, captain, or first lieutenant may find his base pay in any one of three pay periods, while the colonel and second lieutenant would have a possible variety of only two pay periods. Under the provisions of paragraph 9 of section 1 those officers who have been promoted too rapidly in time of peace, and therefore not deemed qualified to receive the pay of the pay period regularly assigned to a given officer, such as major, are advanced to the next pay period during the existence of war, formally recognized by Congress, but no officer will suffer any reduction of his pay by reason of this paragraph. 28 READJUSTMENT OF PAY. Obviously if an officer is qualified to perform the duties of a given office in time of war, and receive the compensation regularly prescribed therefor, he is qualified to perform these duties in time of peace and should receive the pay regularly prescribed as a proper compensation for the services rendered. Paragraph 10 of section 1 authorizes every officer below the grade of brigadier general to receive an increase of 5 per cent of the base pay of his pay period for each three years' service within certain limita- tions, up to 30 years. For example, no officer below the grade of colonel may receive a compensation composed of base pay, plus pay for length of service, in excess of $5,750. This limitation does not include a '"money allowance " of several hundred dollars for food and room rent, the exact amount of which depends upon the pay period in which the officer happens to be on a given date, and, also upon whether he has dependents which, under the provisions of this bill, the Government must help support by a special allowance. The addi- tions provided by this paragraph are fully demonstrated by the following table: Table 4. Grade or title. Base pay. Base pay plus longevity. General Major general Brigadier general Colonel: Over 26 years' service '. First appointment above captain Less than 26 years' service Lieutenant colonel: Over 30 years' service Over 20 and less than 30 years' service First appointment above captain Less than 20 years' service Major: Over 23 years' service Over 14 and less than 23 years' service First appointment above second lieutenant Less than 14 years' service Captain: Over 17 years' service Over 7 and less than 17 years' service First appointment above second lieutenant Less than 7 years' service First lieutenant": Over 10 years' service Over 3 and less than 10 years' service First appointment above second lieutenant Less than 3 years' service Second lieutenant: Over 5 years' service Less than 5 years' service $13, 500 8,500 6,500 4,000 4,000 3,500 4,000 3,500 3,500 3,000 3,500 3,000 3,000 2,400 3,000 2,400 2,400 2,000 2,400 2,000 2,000 1,500 2,000 i; 500 $13, 500 8,500 6,500 6,000 6,000 4,900' 1 5, 750 5,075 5, 250 3,90a 5, 250 4, 050 4,500 2, 880 4,500 3, 000' 3,600 2, lOO' 3,60a 2,200 3,000 1, 500- 3, 000< 1, 575. 1 Base pay plus longevity pay of a lieutenant colonel shall not exceed $5,750. (Appointments under sec. 24, act of June 4, 1920, omitted.) Just what the idea of additional pay for length of service counts for in this bill is well demonstrated by taking a few examples from this table. For instance, a first lieutenant with less than 3 years'^ service receives only $1,500, while 7 years' additional service in hi& grade gives him an increase of base pay amounting to $900, and a total increase of pay amounting to $1,200 per annum. In other EEADJUSTMEIlTT OF PAY. 29 "words, a first lieutenant receives a maximum of $1,260 additional pay per annum for 10 years' service. A captain receives an increase of base pay amounting to $1,000 per annum for 10 years' service in his grade and a total increase of pay amounting to $1,550 per annum ior 10 years' service in his grade. A major receives an increase of base pay amounting to $1,100 per annum for 9 years' service in his ^rade and a total increase of pay amounting to $1,845 per annum for 9 years' service in his grade. A lieutenant colonel receives an in- crease of base pay amounting to $1,000 per annum for 10 years' service in his grade and a total increase of pay amounting to $2,100 per annum for 10 years' service in his grade. A colonel receives an increase of base pay amounting to $500 per annum for 4 years' serv- ice in his grade and a total increase of pay amounting to $1,100 per annum for 4 years' service in his grade. The importance of this idea of additional pay for length of service becomes all the more apparent when the interpretation of Table 2 is recalled, wherein it was pointed out that in many instances pro- motion in grade did not bring an increase of compensation, and that a captain in the Army who has completed 19 years' service will receive the same pay as a major or a lieutenant colonel of the same length of service and more pay than either a captain or a lieutenant colonel with less than 18 years' service to his credit. Paragraph 11 of section 1 attempts to indicate what would be counted in computing length of service, a substantial discrimination being made in favor of those now in the service as against those who enter the service after this bill becomes effective as a law. Paragraph 12 of section 1 makes the provisions of this bill apply equally to all persons in these services in a capacity other than as commissioned officer. Just who these individuals are is not disclosed. This paragraph also brings contract surgeons, chief warrant officers. Army field clerks, and field clerks, Quartermaster Corps, within the provisions of this bill. Section 2 provides that an officer on field or sea duty shall receive an additional 5 per cent of the base pay of his pay period, thereby doubling the number of pay gradations provided for in section 1. Attention is also invited to the fact that under the provisions of law now in force officers of the Navy receive a 10 per cent increase on their base pay for sea duty but that officers of the Army do not receive any additional compensation for field service. In other words, this section provides an increase of 5 per cent on the base pay of an Army officer for field service and a reduction of 5 per cent on the base pay of a Navy officer for sea duty. Under the further provi- sion of this section defining sea and field duty it is estimated that about five out of every six officers in the Army and the Navy will receive an additional 5 per cent on their base pay. The additions provided by this section are fully demonstrated by the following table . 30 EEADJUSTMENT OF PAY. Table 5. Grade and title. Base pay. Base plus 5 per cent for field duty. $13, 500 8,500 6,500 $14, 175 8,925 6,825 4,000 4,000 3,500 4,200 4,200 3,675 4,000 3,500 3,500 3,000 4,200 3, 675 3,675 3,150 3,500 3,000 3,000 2,400 3,675 3,150 3, 150 2,520 3, 000 2,400 2,400 2,000 3, 150 2,520 2,520 2,100 2,400 2,000 2,000 1,500 2,520 2,100 2,100 1,575 2,000 1,500 2,100 1,575 Base plus longevity plus field- duty pay. General Major general Brigadier general Colonel: Over 26 years' service First appointment above captain Less than 26 years' service Lieutenant colonel: Over 30 years' service Over 20 and less than 30 years' service First appointment above captain Less than 20 years' service Major: Over 23 years' service Over 14 and less than 23 years' service First appointment above second lieutenaBt Less than 14 years' service Captain: Over 17 years' service Over 7 and less than 17 years' service First appointment above second lieutenant Less than 7 years' service First lieutenant: Over 10 years' service , Over 3 and less than 10 years' service , First appointment above second lieutenant Less than 3 years' service , Second lieutenant: Over 5 years' service Less than 5 years' service $14, 175 8,925 6,825 6,200 6,200 5,075 5,950 5, 250 5,425 4,050 5,425 4,200 4,650 3,000 4,650 3,120 3,720 2,200 3,720 2,300 3,100 1,575 3,100 1,650 (Appointments under sec. 24, act of June 4, 1920, omitted.) Under section 3 of this bill an effort is made to take care of officers of the National Guard and the reserve forces, their compensation for certain purposes being based upon full time for other purposes upon half time for other purposes upon one-third time and for still other purposes upon one-fourth time. This is a further example of a sacrifice of the principles of simplicity without securing an additional assurance of justice to the individuals concerned. Section 4 determines those who may be considered ''dependents" within the meaning of the other provisions of this bill. There does not seem to be any good reason that the term ''dependents" if admissible, should be limited to the mother, wife, and children under age of an officer. If the idea of compensation for dependents is just, the term should include all individuals regardless of age or relation- ship actually dependent upon the officer for support. Attention is again invited to the fact that the idea of dependents should not have any place in a pay bill establishing a permanent readjustment of the pay and allowance of the commissioned and enlisted personnel of the Army, Navy, and Marine Corps, and the other services for reasons hereinbefore set forth. Section 5 of this bill provides that each commissioned officer below the grade of brigadier general or its equivalent in the other services shall be granted at all times a "money allowance" of 60 cents per day, i. e., $18.12 per month, for food. If, as hereinbefore pointed out, the commissioned personnel of these services are receiving a compensa- tion commensurate with the services rendered, and it has not been shown that they are not, then this provision gives each commissioned officer 60 cents a day to which he is obviously not entitled. If, on the other hand, it can be shown that the character of his services are such at all times as to entitle him to this additional 60 cents per day, then EE ADJUSTMENT OF PAY. 31 it should be included in his base pay and not provided for in the way of a gratuity. This section further provides that when an officer is serving in the second, third, or sixth pay period he is made a present of $1.20 per day, i. e., 136.50 per month, v^^hile if he is serving in the fourth or fifth pay period he is presented with $1.80 per day, i. e., $54.75 per month. These additional gifts are made not because of services rendered, but because the officer has one or more dependents. A feeble attempt has been made by friends of this bill to argue that this money allowance is in no wise based upon dependents. It states in so many words in the last proviso of this section, however, that if an officer does not have any ''dependents" he shall receive only 60 cents per day. This may not appear to be much in the way of additional compensation, but when examined in the light of cold facts the total cost per year for each officer ranges from $219 for a second lieutenant to $657 for a captain or a major. The following table shows the gift this section makes to the officers of each grade in the services provided for in this bill in the way of a ''money allowance ' ' for food : Table 6. Grade and title. General Major general Brigadier general Colonel: Over 26 years' service First appointment above captain Less tlian 26 j'ears' service Lieutenant colonel: Over 30 years' service Over 20 and less than 30 years' service First appointment above" captain Less than 20 years' service Major: Over 23 years' service Over 14 and less than 23 years' service First appointment above second lieutenant Less thaii*14 years' service Captain: Over 17 years' service Over 7 and less than 17 years' service First appointment above second lieutenant Less than 7 years' service First Uentenant: Over 3 years ' service Over 3 and less than 10 years' service First appointment above second lieutenant Less than 3 years' service Second lieutenant: Over 5 years' service Less than 5 vears' service Food allowance. Base pay plus lon- Depend- ents. No depend- ents. gevity, field duty, and rations. (1) $438 438 0) $219 219 $9, 363 7,263 438 438 657 219 219 219 6,638 6,638 5,732 438 657 657 657 219 219 219 219 6,388 5,907 6,082 4,707 657 657 657 438 219 219 219 219 6,082 4,857 5,307 3,438 657 438 438 438 219 219 219 219 5,307 3,558 4,158 2,638 138 438 !3S 219 219 219 219 219 4,158 2,738 3, 538 1,794 438 219 219 219 3,538 1,869 1 Allowances fixed bv President. ^ , ■ ^ Appoinlments under section 24, act June 4, 1920, omitted, since they computed same as first appoint- ment above captain and second lieutenant in Army. The idea of a commuted ration for officers was in force in the Navy under section 1578 of the Revised Statutes until repealed as imprac- ticable by the act of March 3, 1899. It is recommended that it should have no place in legislation providing for a permanent readjustment of the pay and allowances of these services. The provision in this section giving a krger allowance for subsistence to officers in the fourth and fifth pay periods is abviously a device for increasing pay. There can be no other reason for assuming that the family of a captain 32 READJUSTMENT OF PAY. would be expected to eat more than the family of a first lieutenant, or the family of a lieutenant colonel would be expected to eat more than the family of a colonel. Section 6 provides that each commissioned officer below the grade of brigadier general or its equivalent in the other services, not fur- nished with public quarters, shall be allowed a further ''money allow- ance" in addition to that provided for in section 5, for room rent on the basis of $20 per month for each room. The amount of money given to each officer under this head ranges from $40 per month for an officer in the first pay period (second or first lieutenant) to $120 per month for an officer in the sixth pay period (lieutenant colonel or colonel). If, however, an officer has no dependents the amount of the gift ranges from $40 per month to $80 per month, depending upon the pay period upon which his pay is based. If this additional com- pensation is earned then obviously it should be made a part of his base pay, and when occupying public quarters he should be charged a fair rental therefor in the same manner as the Government clerks occupying governmental dormitories in Washington pay a fair rental for their quarters instead of receiving food and room rent free and the Government making a donation of an equivalent sum for food and room rent to each such clerk not living in Government quarters. The amount of this donation ranges from $480 per year in the case of a second lieutenant to $1,440 per year in the case of an officer in the grade of major or above. The following table shows the gift this section makes to the officers of each grade in the services provided for in this bill in the way of a "money allowance" for room rent: Table 7. Grade and title. Room-rent allowance. Depend- ents. No de- pendents. Base pay plus additions, including field General .' Major general Brigadier general Colonel: Over 26 years' service First appointment above captain Less than 26 years' service Lieutenant colonel: Over 30 years' service Over 20 and less than 30 years' service First appointment above captain Less than 20 years' service Major: Over 23 years' service , Over 14 and less than 23 years' service First appointment above" second lieutenant Less than 14 years' service Captain: Over 17 years' service Over 7 and less than 17 years' service First appointment above second Ueutenant Less than 7 years' service First lieutenant: Over 10 years' service Over 3 and less than 10 years' service , First appointment above second lieutenant Less than 3 years' service , Second heutenant: Over 5 years' service , Less than 5 years' service (I) 2 $1,440 2 1,440 2 1,440 2 1,440 1,440 2 1,440 1,440 2 1,440 1,200 2 1,440 1,220 1,220 960 1,220 960 720 720 480 480 (1) 960 960 960 960 960 720 960 720 720 720 720 720 720 480 720 480 480 480 480 480 $10,225 8,325 7,400 7,400 7,172 7,400 7,347 7,375 5,907 7,375 6,057 6,507 4,398 6,507 4,518 5,118 3,358 5,118 3,458 4,258 2,274 4,018 2,349 1 Allowances fixed by President. 2 Base pay plus pay for length of service and allowances for food and rent shall not exceed $7,200 a year, $8,000, and $9,800 for the grades of colonel and below; brigadier general, and major general, respectively. EEADJUSTMENT OF PAY. 33 It is further noted that this section authorizes this "money allow- ance" for each officer, except those without dependents, when he is serving in the field or at sea as well as when serving ashore, although quarters in kind are also furnished him while serving in the field. If as hereinbefore pointed out these paternal ideas of additional com- pensation for food and rent really have any reason or justice in them, they should apply equally to every officer and enlisted man in these services, and to all other services under the Government, it being just as much an outright gift in one case as another. It should also be made commensurate in ever^y case with the needs of the dependents, including clothing, hospital bills, general education, and other things generally recognized as necessary. Section 7 restricts the total amount of base pay plus pay for length of service and allowances for subsistence and rental of quarters to $7,200 per year for any officer below the grade of brigadier general. This restriction in fact applies to colonels, lieutenant colonels, and majors with 30 years' service, but in no case more than $678, and that in the case of colonel. So much of section 8 as fixes the base pay of a brigadier general and a major general commends itself on. account of its simplicity. The other provisions of this section granting a food and room rent allow- ance are not recommended for reasons hereinbefore set forth. The restriction to $8,000 and $9,000, respectively, for brigadier and major general constitute an actual but small limitation for the majority of officers in these grades. However, if they are entitled to this extra compensation for food and room rent the limitation cutting their allowances below the amount determined upon for officers in the grades below brigadier general is unjust. If, however, the nature of their services are such as to warrant this additional compensation which is provided for board and lodging, it should be incorporated into their base pay; if not, it should be omitted from this bill or any other bill providing for a permanent readjust- ment of pay. It is noted, however, that this section fixes the base pay of brigadier generals and corresponding grades in other services at $6,500 per annum instead of $6,000 as now authorized by law, with a maximum limit of $8,000 for pay and allowances. Pay and allowances of a brigadier general in Washington now totals $7,452 per annum, so that the new pay proposed represents an increase of approximately $548. This section further fixes the base pay of major generals and corresponding grades in other services at $8,500 per annum instead of $8,000, as now authorized by law, with a maximum limit of $9,800 for pay and allowances. The pay and allowances of a major general in Washington now totals $9,664 per annum, so that the new pay proposed represents an increase in this grade of about $136 per annum. These increases have been incorporated in this bill for the purpose of obtaining a proper relationship between these grades and the lower grades. Whether or not they are warranted by the character of the services rendered is not shown. H. Rept. 753, 67-2 3 34 READJUSTMENT OF PAY, The following table explains the relative value of the total pay and allowances under the act of May 13, 1908, May 18, 1920, which expires June 30, 1922, and the provisions of the present bill: Table 8. Grade and title. Total pay and allowances. May 13, 190S. ^rav 18, 1920. i'resent bill. General Major general Brigadier general Colonel: Over 26 years' service First appointment above captain Less than 26 years service Lieutenant colonel: Over 30 years' service Over 20 and less than 30 years' service First appointment above captain Less than 20 years' service Major: Over 23 years' service Over 14 and less than 23 years' service First appointment above second lieutenant Less than 14 years' service Captain: Over 17 years' service Over 7 and less than 17 years' service First appointment above second lieutenant Less than 7 years' ser\'ice First lieutenant: Over 10 years' serxice Over 3 and less than 10 years' serxnce First appointment above second lieutenant Less than 3 years' service Second lieutenant: Over 5 years' serxace . .• Less than 5 years' ser'wee $13, 500 10,505 8,132 6,859 (2) 5,759 6,131 6,131 5,031 5,400 5, 400 (2) 4, 300 4, 517 4,253 3,461 3,718 3,278 2,838 3,067 2,319 1 S13, 500 10,505 8,132 7,459 6,359 6, 731 6,731 5,631 6,240 6,240 5,140 5,237 4,973 (2) 4,181 4,318 3,878 3,438 3,487 2,739 1 $13, 500 10, 225 8,325 7,400 7,400 7,172 7,400 7,347 7,375 5,907 7,375 6,057 6,507 4,398 6,507 4,518 5,118 3,358 5,118 3,458 4,258 2,274 4,018 2,349 1 Allowances fixed by President. 2 Nothing in present pay tables to compare with provision in bill for first appointment above grade of second lieutenant and captain or with first appointment under sec. 24, act of June 4, 1920. A study of this table shows that the total pay and allowances per annum under the provisions of this bill exceeds the total pay and allowances per annum under the act of May 13, 1908, for second lieu- tenant by $951, for first lieutenant by $1,400, for captain by $2,010, for major by $1,975, for lieutenant colonel by $1,269, for colonel by $641, for brigadier general by $193, but a major general would receive $280 less. This table further shows that the total pay and allowances per annum under the provisions of this bill exceeds the total pay and allowances per annum under the act of May 18, 1920, which expires June 30, 1922, and is recognized as emergency legislation, for second lieutenant by $531, for first lieutenant by $800, for captain by $1,920, for major by $1,135, for lieutenant colonel by $669, for colonel $41, for brigadier general by $193, but a major general would receive $280 less. It is contended that the provisions of this bill actually work a saving to the Government in the pay of the officers of the lower grades. That would probably be true in the case of officers in the grades of second and first lieutenant. It is recommended, however, that inasmuch as the officers in these grades receive a much lower pay under the laws now in force than the officers in the higher grades, KEADJUSTMEISTT OF PAY. 35 a reduction of their pay and the increase of the pay of the officers in the higher grades is very poor economy, and one that should not be recommended for incorporation in a bill permanently readjusting the pay and allowances of the commissioned and enlisted personnel of these services. It is obvious, however, that the pay of the officers in the higher grades below brigadier general are materially increased over the rates provided in either the act of May 13, 1908, or the tem- porary relief act of May 18, 1920; and it is suggested that no justifi- cation for this increase has been shown which in one instance amounts to $2,010 per annum for an officer in the grade of captain over the rate prescribed by the act of May 13, 1908, while it amounts to $1,290 per annum for that officer over the rate provided in the emergency act of May 18, 1920. Section 9 provided for a decided increase in pay for the higher enlisted grades in the Army without any evidence having been presented showing that it is warranted or justified. On the whole, it is estimated, however, that this section will reduce the pay of the enlisted men of the Army for the next fiscal year $7,485,729. It is also estimated that it will ultimately reduce the pay of the enlisted men of the Army $12,485,729. This section further provides for increased pay for enlisted men on the retired list. No convincing testimony has been produced showing why the retired pay of enlisted men, who retired prior to this time, should be increased. They are not now performing any services, and inasmuch as retired pay is a part of the pay received for the duties heretofore performed while on the active list, there does not appear to be any good reason for the increase. Proposed annual pay of enlisted men of the Army and Marine Corps. Grade. Length of service in grade. 1 to4 5 to 8 9 to 12 13 to 16 17 to 20 Over 20 years. years. years. years. years. years. %i, 512. 00 .«1, 787. 60 ,1l;i,863.20 11,938.80 S2, 014. 40 S2, 090. 00 1,008.00 1, 258. 40 1, 308. 80 1, 359. 20 1,409.60 1, 460. 00 864. 00 1,107.20 1, 150. 40 1,193.60 1, 236. 80 1, 280. 00 648. 00 780.40 812. 80 S45. 20 877. 60 910. 00 504. 00 629. 20 654. 40 679. 60 701. 80 730. 00 360. 00 478. 00 496. 00 514.00 532. 00 550. 00 720. 00 838. 00 856. 00 874. 00 892. 00 910. 00 660. 00 778. 00 796. 00 814.00 832. 00 850. 00 600. 00 718. 00 736. 00 754. 00 772. 00 790. 00 540. 00 658. 00 676. 00 694. 00 712. 00 730. 00 432. 00 550. 00 568. 00 586. 00 604. 00 622. 00 396. 00 514.00 532. 00 550. 00 568. 00 586. 00 252. 00 364. 60 377. 20 389. 80 402. 40 415. 00 612.00 724. 00 7.37. 20 7 19. 80 762. 40 775. 00 552. 00 664. 60 677. 20 689. 80 702. 40 715.00 492. 00 604. 60 617. 20 629. 80 642. 40 ".55. 00 432. 00 544. 60 557. 20 569. 80 582. 40 595. 00 324. 00 436. 60 549. 20 461. 80 474. 40 487. 00 288. 00 400. 60 413. 20 425. SO 438. 40 451. 00 Maxi- mum pay in Wash.- iugton. D. C, with 20 years. First grade Second grade Third grade Fourth grade Fifth grade Sixth grade Sixth grade with rating as specialist: First class ($30) Second class ($25 ) Third class ($20) Fourth cla.ss ($15) Fifth class ($6) Sixth class ($i) Seventh grade Seventh grade with rating as SDecialist: 'First class ($30) Second class ($25) Third class ($20) Fourth class ($15) Fifth class ($8) Sixth class ($3) . .• $3, 550. 00 2, 920. 00 2, 740. 00 2, 370. 00 2, 190. 00 2,010.00 2, 370. 00 2, 310. 00 2, 250. 00 2,190.00 2,082.00 2,046.00 1,875.00 2,235.00 2,475.00 2,115.00 2,055.00 1,947.00 1,911.00 In addition to the above, enlisted men receive allowances in kind for food, room rent, heat, and light, the maximum commuted value of which is $1,460 per annum for Washington, D. C. Also a maximum of $5 per month for special qualifications in the use of arni or arms which they may be required to use. In addition the enUsted man recei\'es transportation for baggage, household effects, and family from one station to another. 36 EEADJUSTMENT OF PAY. Section 10 makes a decided distinction between warrant officers of the Navy serving at sea and those serving ashore. The reason for this increase for service at sea has not been fully shown. The pro- visions establishing a definite percentage increase as an enlistment allowance commends itself over the present pay arrangement for enlisted men in the Navy." On the whole, it is estimated, however, that this section will reduce the paiy of the enlisted men of the Navy for the next fiscal year, $7,550,239; it is also estimated that it will ultimately reduce the pay of the enlisted men of the Navy $10,457,475. The term ''honorably discharged" not being subject to the same interpretation in the Army and Navy at this time, its meaning should be clearly defined in this or other legislation in which it is applied to both services. The objection to increasing the retired pay of enlisted men of the Army who have heretofore retired also applies to the provision of this section providing for an increase of the retired pay of the enlisted men of the Navy. Proposed annual pay of enlisted wen of Navy and Coast Guard. Length of service in grade. 1 to4 years. 5 to 8 years. 9 to 12 years. 13 to 16 years. Over 16 years. Maximmn pay in Washing- ton, D. C, over 16 years. First grade SI, 512. 00 1,008.00 864. 00 720. 00 648. 00 432. 00 252. 00 1, 188. 00 SI, 863. 20 1,308.80 1, 1.50. 40 892. 00 812. 80 575. 20 377. 20 1, 506. 80 $1,938.80 1,359.20 1, 193. 60 928. 00 845.20 596. 80 389. 80 1, 566. 20 $2, 014. 40 1,409.60 1, 236. 80 964. 00 877. 60 618. 40 402.40 1,625.60 $2,090.00 1,460.00 1,280.00 1, 000. 00 910. 00 640. 00 415. 00 1, 685. 00 $3, 550. 00 2, 920. 00 Third grade. . . . 2, 740. 00 2, 460. 00 Fifth grade 2, 370. 00 2, 100. 00 Seventh grade 1, 875. 00 Acting C. P. 3, 145. 00 In addition to the above, enlisted men receive allowances in kind for food, room rent, heat, and light, themaximimicommuted value of which is $4per diem, or $1,460 a year. Also amaximnm of $5per month; i. e., $60 per year, for special qualifications in the use of arm or arms which they may be required to use. In addition to all this, enlisted men receive transportation for baggage, household elTects, and family from one station to another. Navy enlisted men receive the same pay after 16 years' service that Army enlisted men receive after 20 years' service. It is generally admitted that the provisions of this bill relating to the enlisted personnel of these services show a slight reduction for the pay of the enlisted men of the Navy over the rate provided by the temporary relief act of May 18, 1920, but that it provides an increase in the higher rates for the enlisted men of the Army. Section 11 gives a ''money allowance' ' for food and room rent to warrant officers equal to that given to commissioned officers in the first pay period. It is recommended that if this is a gift it should be omitted; if it is compensation for services rendered it should be included in the base pay. In section 12 it is not quite clear whether or not the 8 cents per mile for travel would apply to the Army and Navy when traveling over "land-grant" railroads. This would make a difference of 5 cents a mile in many cases, and should therefore be specified. The provision for actual expenses in the case of repeated travel is an increase and not a decrease in compensation in favor of the one performing the travel. EEADJUSTMENT OF PAY. 37 Section 13, providing for the base pay of mirses, commends itself. The provision for food and room-rent allowances is as objectionable in this case as in any other. Section 14 proposes a readjustment of pay for the officers of the National Guard receiving Federal pay and officers of the reserve forces and provides that while on active duty they shall receive the allow- ances prescribed in sections 5 and 6 for officers of the regular services. This is objected to on the grounds submitted in support of objections raised in the case of regular officers receiving these gratuities. Section 15 proposes the repeal of existing laws authorizing an in- crease of pay for foreign service and for commutation, heat, and light. This repeal is strongly recommended. A failure to provide in this bill for an increase of pay for foreign service can be accepted as an admission that it is unnecessary; the same applies to commu- tation for heat and light. If the nature of the service rendered justi- fies an increase of pay for commutation, heat, and light, then these increases should be incorporated in the base pay for reasons herein- before stated. Section 16 proposes that nothing contained in this bill shall reduce the pay and allowances of any commissioned officer below the pay and allowances provided by the act of May 13, 1908, and thereby insures the personnel of these services against the possibility of an unfavorable construction of one or more of the innumerable contin- gencies which are the uncertain effect of the many provisions of this bill. Section 17 proposes that retired officers shall after July 1, 1922, have their retired pay based on the pay prescribed in this bill; that no retired officer shall suffer a reduction in his retired pay on account of this act; and that the increases of pay received due to the perma- nent promotions obtained on the retired list by virtue of the act of July 1, 1918, shall be retained. It is not deemed necessary to reiterate again the reasons why officers retired prior to the enactment of this bill into law should not receive an increase of pay. Section 18 provides certain additional compensation for enlisted men showing special qualifications in the use of the arm or arms they are required to use. The language is not sufficiently specific to accomphsh the purpose desired, i. e., for determining how long these gratuities shall continue in force. Section 21 preserves the allowances in kind for rations, quarters, heat, and light for enlisted men; for quarters, heat, and light for officers; also allowances for private mounts for officers, and transpor- tation in kind for officers and enlisted men; transportation and pack- ing allowances for baggage and household effects for officers and enlisted men; allowances to officers for aides; and to enlisted men for a variety of activities, all of which are provided for by a number of additional laws enacted for each service separately or collectively. Section 32 provides that only the laws and parts of laws which are inconsistent with or in conffict with the provisions of this bill shall be repealed and that all others remain in full force and effect. As it stands this section serves no useful purpose. All laws or parts of laws inconsistent with or in conflict with the provisions of this bill would be repealed by implication, and those not in conffict there- with would remain. In other words, it becomes a matter for the 38 READJUSTMENT OF PAY. courts to decide whether a law or part of a law is in conflict with some provisions of this bill to the extent that the prior law is thereby- repealed. By far the most important consideration relative to this section is that instead of this bill being submitted as a complete scheme embodying all the laws relative to the pay and allowances of the connnissioned and enlisted personnel of the services therein pro- vided for, it would become merely another addition to the large body of laws now in force regulating the pay of these various services separately and collectively, and an officer or an enlisted man would be able to take advantage of all the provisions of law, not ultimately declared by the courts as in conflict with the provisions of this bill wherever it was to his advantage to do so. If this bill is in fact submitted as a scheme for the permanent readjustment of the pay of these services, it should be made complete and all prior laws bearing upon the subject should be specifically repealed and not merely left adrift. By way of recapitulation it may be stated that it is recommended that this bill be not enacted into law for the following reasons: 1. It is based upon a situation recognized and admitted as a condition of abnormal retail-price inflation. 2. The country at large is passing through a period of retrench- ment and the provisions of this bill are at variance therewith. 3. The provisions of this bill are contrary to the Government's policy of retrenchment and economy manifested by the recent dis- charge for economic reasons of a large number of individuals in its employment. 4. It attempts to perpetuate in the interest of the commissioned personnel the provisions of the emergency relief act of May 18, 1920, which would otherwise terminate June 30, 1922. 5. The reorganization acts since 1916 have already provided a substantial increase of pay for a very large majority of the officers in these services by way^ of promotion. 6. The provisions of this bill are not founded upon the principles of adequate compensation for the services rendered, but upon the ideas of length of service, gifts for dependents, and other bonuses which have no connection with an adequate pay for the duties to be performed, but are in fact mere gratuities on the part of the Government. 7. No consideration is given to the "office" or ''grade" to which an officer is now appointed under the Constitution by the President, by and with the advice and consent of the Senate, as a recognition of special worth and exceptional qualifications and as an indication of the services to be rendered. Officers of a higher grade, under the provisions of this bill, would in many instances be receiving the same pay as an officer two grades below him, although the officers in the higher grade would be in fact performing the more exacting duties and bearing the responsibilities attached to the higher grade. 8. Length of service not only provides a 5 per cent increase for each three years of service, up to 50 per cent of increase, under the provisions of this bill, but in most cases after 10 years' service in a grade an officer is provided a new and substantially higher base pay EEADJUSTMENT OF PAY. 39 upon which to compute the 5 per cent increase for each three years' service from the beginning of the service which may be counted for this purpose. 9. Pay periods are introduced as a new basis of computation, but bear Uttle if any relation to the grades now provided by law. Pro- motion from one pay period to another is made by virtue of length of service and without any reference to a showing of an increased efficiency. 10. The provision of this bill renders promotion in grade meaning- less and advancement obtained through demonstrated ability without additional reward. 11. It is not a complete permanent readjustment of the pay and allowances of these services, but merely another law added to the mess of laws now in force regulating pay. 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OS OS CSi!> Ost-. t^ i>r- ■B^-i^ ^1 S §S 58 %B g ss ^v^"* ''J' Tf(^ ^C< ■^ CM ^^«© ^-^- r^-^ ^ -I - ^-W ^-^ - .-r^ - -<■ -^ E- ui 8S3 00 00 g 1 >g^ *c »o ir: 00 t- (M cq IN u: 0"^ CO 000 CD to to 10 >o 10 10 lO' ■* . 80S "OiO to t^tr^ C^ t^ \r. lO li 00 CO COC30CD 100 »c lOio in 10 •<^ ■* s>> e© r^ . 888 00 00 00 CM M CD ^ lOiOm Oi Ol Oi c< ^ 03 CO 00 to lOiO 10-* ■*^ Tl( -* -* ■* »o >. l^t^ t^ t-C +i 03 cooo«> 10 40 -^ M* -^ Tj< ^Tf tP ^ §?^ CM en SSE oc IC 00 OC lOiO IOC s s °s (M (M ir lOio loa OS cooo» >o 10 't ■*"■>!<' -^-co o- CO CO ^ 2 >> ^ 00 . III 8 SS !2 ^9 "? g s p. Si oc co cot^ I> t^ t- OJ *^ § CO 00 to lO 10 Tt 10 -«Qi- C*" CO co 2 >> 55 IC . 8S8 i ii 8 OC 5 So 5 S -w § CO 00 to -rfl -fj< Tt ■* -fV Cf CO(N 2 >> s o> . SSE S SS 10 ICC s ss ■*- d) 10 lO w: to toe 0-* ■* Tt- co-ooto" - V TtTc- ^ CO ■* -*■* CO CM 2 ^ e© 05 M S88 8 8? OC lO »o c s 11 o| ■* -^oc 00 00c CO Xto Ti< TjlC^ CO coc^ CO COCM t- >> 5© CD CO III on- ot^ m >oc 1 ss o| O) (MtC CD CD^ ■-I lO coootc ■^ rj< o- CO eoc CO coco ^ >, s CO »; SSS 88 Si = 00 oc 00 oc SE g 8E ^ 10 »o ur 00 OU- c iraira 10c IOC C 0-* co'oeTtc "^ * -^^h""^ tjTc^ ^ CO CO CO O" " co'c CO oo"c> CO ftrH I ■ t» '> > h. > dog t. c a 03 s 5^ cS 1 sg-Ss^ m fi,2o t %\ t-4 03 -:sg2? S B OS a R 3-1 != 1 1§5 "k ■5 •• « M ftCi S "3 !>.t; fto3 a 1| 8> i ft-S B - ?4s |i _ g 1= CB fe M fto X > S.b ftc3 S CO '^ ftc c3->; ft>5i Q 3? (S og = "o |i<<1 1^ 3 (i<<1 fee 'c? c >S <1 H- READJUSTMENT OF PAY. 41 "Oio lO >oo5 lOCi oar-* oi^ to 00 tocn co oi> ii 03 03 lOOO 03 0S en Oi to—I CO(N co-c^T CO CO 02IM 00 00 OiCO TtTOT"" 00-* co" m ■-H > .b ft •T3 — ' ^.-ICO (3^^ © © a) r/i (13 ,