they were paid 75 cents a day for various months in the past, but finally when the question came before the Comptroller of the Treas ury he ruled that they were only entitled to 40 cents a day subsistence, and that therefore they had been paid 35 cents a day too much, and in order to recoup the Government they held up their pay. The letter referred to by the chairman follows:

NAVY DEPARTMENT, Washington, January 6, 1913. MY DEAR MR. CHAIRMAN: The regulations, Nurse Corps, United States Navy, authorized by the Secretary of the Navy in 1909, provide for the commutation of subsistence as follows:

"For each day subsisted by the Government a nurse's account will be credited for commutation of rations in the sundry column at the rate of thirty cents per day, and will be checked in the same amount. For each day that a nurse subsisted herself she will be credited on the pay roll in the sundry credit column with seventy-five cents. For each day a nurse was on leave with pay she will be credited in the same manner at the rate of twenty-five cents per day." In a decision dated December 21, 1912, the Comptroller of the Treasury held that members of the Navy Nurse Corps, when on duty in a hospital. are entitled to commutation of rations at 40 cents per day by authority of the Army appropriation act of March 3, 1911 (36 Stat.. 1046), and to no more, thus making the regulation authorizing the payment of 75 cents for commutation of subsistence inoperative and its effect retroactive in the settlement of accoun ́s.

The Army act of March 3, 1911, supra, to which the Comptroller refers, provides for the regulation allowance of commutation in lieu of rations of female nurses where rations in kind can not be economically issued, and the regulation allowance so established in the "Manual for the Medical Department. United States Army, 1911," is 75 cents a day.

The case is somewhat analogous in effect to a decision of the Comptroller dated December 29, 1910, declaring Article 775, Navy Regulations, not in accordance with law, which decision tended to work a hardship on certain hospital stewards, and was corrected by legislation in the naval act of August 22, 1912. (37 Stat., 328.)

Regulations promulgated by the department are as binding upon persons in the naval service as statute law. The pay officers have made payments under the regulation concerned in good faith, and with ample authority, of considerable sums of money to nurses at the several naval hospitals. In the settlement of the pay accoun's of these officers the nurses will be checked in some instances in such manner that they will receive little or no pay for from one to five or six months, and as they must subsist themselves, and as, further, many of them are the support of dependent members of their families, this procedure will work a very great hardship; in instances where nurses have already resigned from the service the losses will devolve upon the pay officers.

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As the allowance for subsistence is public information, published in the Regulations and Instructions for the Nurse Corps, United States Navy." it becomes a part of the contract between the nurse and the United States when the appointment is made and accepted.

In view of the foregoing, I have the honor respectfully to urge upon the committee the inclusion of the following, or some similar provision, in the naval appropriation bill. under the caption "Pay of the Navy":

"The Secretary of the Navy is authorized, in his discretion, to allow members of the Nurse Corps of the Navy seventy-five cents per diem in lieu of subsistence when subsistence in kind is not furnished by the Government, and the accounting officers of the Treasury are hereby authorized and directed to allow in the accounts of disbursing officers of the Navy all paymen's heretofore made by them in accordance with orders or regulations of the Secretary of the Navy for commutation of subsistence to members of the Nurse Corps of the Navy at the rate herein specified.”

Faithfully yours,

Hon. L. P. PADGETT, M. C..

Chairman Committee on Naval Affairs,

G. VON L. MEYER.

House of Representatives, Washington, D. C.

Mr. BATHRICK. Mr. Secretary, I had the honor to communicate with you the other day respecting a regulation that I thought would be a good plan, to require the officers on board vessels at sea or otherwise

Secretary MEYER (interposing). I have taken that up. It is an excellent idea. We are following that up.

Mr. BATHRICK. I thank you. May I call your attention to this matter in that connection? I have asked all of the admirals about that proposition, and Admiral Andrews wrote a letter in which he seems to think that there is already a regulation, but I beg respectfully to differ with him. It is article 432, paragraph 4, Navy Regulations of 1909, and so, if you esteem the proposition a good one, I trust that if this article is brought to your attention it will not deter your action.

Secretary MEYER. No, sir. I think it was called to my attention the other day.

Mr. BATHRICK. Admiral Andrews seems to think that this regulation would cover it:

He (the captain) shall cause special instruction and exercise to be given to all men under his command who evince marked inclination or aptitude for any particular branch of their profession.

I wish to call attention to my conception of that language:

Every incentive shall be given to develop and maintain the professional qualifications of such men, and opportunities shall be afforded them for improvement in that branch for which they are best fitted. He shall cause all men of the seaman branch

Here is the special reference to seamen

And particularly the ordinary seamen, to be instructed in steering, boxing the compass, heaving the lead, knotting and splicing, the use of the palm and needle, sailing and pulling in boats, exercise aloft, nomenclature of parts of the ship, common navigation and weather instruments, and generally in all the duties of seamen. If there are any who can not read and write, be will give them facilities to learn and encourage them in so doing.

The ordinary duties of the seamen herein enumerated in which the officer is required to give instruction. If a young man can not read and write he will give him the facilities to learn and encourage him in so doing. That does not mean that he shall teach them to read and write.

Secretary MEYER. I have already taken up the question of the interpretation of that regulation and the advisability of its change in wording. Admiral Andrews made a suggestion as to the wording which would be more explicit. Some of the council did not think it was necessary. I will go over it again. The Navy is in full sympathy with the proposition.

Mr. BATHRICK. I am aware of that.

Secretary MEYER. We are having lecture schools in the navy yards, and we encourage the men who show qualifications in certain lines of work. The repairs made at sea are a great education to the men, so that, in fact, when they leave the Navy they are actually an asset to the industrial world, and they command better salaries than men who have not had this training and this opportunity.

Mr. BATHRICK. I attempted to make plain in my communication, and I desire now to repeat, if you please, that my purpose is to give assistance to those men who are taking correspondence-school courses,

or in other words, attempting to educate themselves on board ship with the object of rising in the Navy to commissioned officers. That is what I mean, explicitly, the object being to assist those men taking the correspondence-school courses and to enable them to take examinations which will permit them to rise to the position of officers in our Navy and thereby assist in filling the complement of our Navy. I understand that a half a dozen to 20 men every year come up from the enlisted men into these high ranks.

Secretary MEYER. The number is small.

Mr. BATHRICK. I understand it is very few, and I thought if there was some system-not simply discretion, but a system by which these men were assisted when they showed inclination to assist themselves, that it would enable them to take the examination for the higher ranks.

Mr. HOBSON. Of course, the division officer would be the one to locate in this own division the men worthy to have that special instruction.

Mr. BATHRICK. There is no operation of law or regulation but what must be left to discretion. I realize that, but I am desirous of having the system in order that the men who ask for this assistance, or those that show aptitude

Secretary MEYER (interposing). I think that is the better way, to aid those that show aptitude.

Mr. BATHRICK. I know that a great deal must be left to discretion, and I would like to have it systematized, for the reason that it was brought out here the other day in the testimony of the Superintendent of the Naval Academy that it would take 20 years to furnish enough officers to man the present Navy.

Mr. ROBERTS. I would like to call your attention, Mr. Bathrick, to a table in the Yearbook by which it would seem that since 1900 up to July, 1911, 78 warrant officers had applied for commissions, and in that time only 26 had been commissioned ensign under the provision of law that permits the men to come up from the ranks.

The CHAIRMAN. There are some matters, Mr. Secretary, that you wish to bring to the attention of the committee?

Secretary MEYER. Yes, sir.

I should like to go through my annual report and call attention to one or two things. The selection of officers for flag rank and other positions used to be left entirely to the Chief of the Bureau of Navigation, and I found in talking with officers in the past three years that there was a feeling that unintentionally, I think, men who happened to be known to the bureau or happened to be around Washington had advantages in getting assignments, and therefore the assignment question now is more thoroughly discussed. A list of officers due for transfer is submitted by the Chief of the Bureau of Navigation, and then the qualifications of these officers are discussed by the aids in the presence of the Secretary, their sea records being considered. We have since heard that it has given a good deal of satisfaction to the officers in the fleet who feel that they are not neglected by the fact of being at sea. Their qualities are considered in all respects, their records taken up more thoroughly and openly weighed.

The CHAIRMAN. You stated that the recommendation was made by the Chief of the Bureau of Navigation?

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Secretary MEYER. The list is submitted by the Bureau of Navigation. Of course it comes through the chief.

The CHAIRMAN. And it reaches the council, the Secretary with his aids. Do you then take up and discuss others in connection with that recommendation?

Secretary MEYER. Yes, sir; we take up anyone in the line of promotion who is qualified.

Mr. HOBSON. Do you expect to take up the question of your aids again? If not, I would like to ask you a question right there.

Secretary MEYER. Certainly.

Mr. HOBSON. I would like to ask whether, having had the experience with your aids now for some years, you consider the present arrangement as finally in shape for legislation, according to your views?

Secretary MEYER. Yes, sir; and from the experience we have had for the past three years I am still of the opinion they should not be given executive authority, that they should be merely in an advisory capacity.

Mr. HOBSON. Would you maintain the aid to personnel?

Secretary MEYER. Yes, sir.

Mr. HOBSON. Does it duplicate with the Chief of the Bureau of Navigation?

Secretary MEYER. No. He does not interfere in any way with the carrying out of the details of the work. He is absolutely free from that, and it gives him time to study and coordinate the work of the bureaus and to represent the personnel in the council. I think the officers should have a direct representative in the council. In other words, it completes the square. Otherwise we should have it three-sided, with the personnel not having its representative in the council. That council should be made up of men who do not have to give any time to executive work or attention to details. feel positive that if any unbiased man was made Secretary, the great advantage of this system would be apparent to him.

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As the Secretary of the Navy comes into office unequipped to judge complex questions which require technical knowledge, it is proper when a matter comes to him which affects more than one bureau that he should send for his advisers and get the benefit of their knowledge and judgment on the matter.

He should be in a position to obtain expeditiously expert knowledge on matters of general policy and should have around him responsible advisers trained in the duties and requirements of the Navy and known to the public as well as to the Navy.

Thorough study resulted in the conclusion that there were four logical divisions in the Navy Department: Operations of the fleet, personnel, material, and inspections. With your authority four officers of experience and judgment were carefully selected as heads of these divisions and as advisory aids to the Secretary. They are without executive authority, but have a supervisory function and serve in an advisory capacity.

Through the aids the Secretary of the Navy receives expert responsible advice and is kept informed daily of what is going on in the department. They also serve in coordinating the work of the various bureaus of the department.

In cases where circumstances have made it necessary to expedite the dispatch of ships and men to protect the Government interests, to mobilize fleets, or to put through with accuracy of detail any operation requiring the simultaneous and coordinated efforts of the several divisions of the department, the present organization has proved itself reliable and efficient.

To-day the aid for operations gives his entire attention and study to the operations of the fleet. He works in conjunction with the War College and

the General Board on war plans and strategic matters. Plans are being formulated and brought up to date. In any emergency the aid for operations is prepared to advise promptly as to the movements of ships and to submit such orders as are necessary to carry into effect campaign plans recommended by the General Board and approved by the Secretary. In other words, we are on a war basis, the council of aids serving as a strategy board. It is bringing about efficiency and preparedness which would be impossible under the former system, because the Chief of the Bureau of Navigation, with the various duties of his bureau, could not give his entire time and thought to questions of strategy and operations of the fleet.

The aid for personnel is instrumental in coordinating the work of the Bureau of Navigation, the Bureau of Medicine and Surgery, the Marine Corps, and the Judge Advocate General, and he, together with the other aids, advises the Secretary as to the assignments of the higher ranking officers.

The aid for material occupies one of the important positions. Grouped in what is now designated as the Division of Material are the important technical and material bureaus of the department; bureaus charged with the design, construction, repair, provisioning, and upkeep of both the sea and shore establishment of the Navy. These several bureaus, having clearly defined duties, experience no difficulty in the execution of the various details wholly under their cognizance, but numerous problems arise which require the coordinated efforts of two or more bureaus, reconciling different recommendations and ideas, and it is the duty of the aid for material to study such cases from the broad viewpoint of the requirements of the Navy as a whole and to advise the Secretary accordingly. He acts, as it were, as a referee, the final decision resting with the Secretary.

In matters pertaining to one bureau alone the Secretary naturally looks to the chief of that bureau as his legal and responsible adviser.

Informal conferences between the aid for material and the chiefs of the material bureaus have greatly expedited the transaction of business and have resulted in less paper work and fewer delays.

In addition, the aid for material, being a member of the General Board, has labored to coordinate the work of that board and the work of the technical bureaus of the material division. His efforts are often directed toward presenting the views of the bureaus to the board on subjects of importance in order to make practicable conditions conform to theoretical requirements.

The aid for inspections is specially charged with the supervision of the work of the two permanent departmental inspection boards, the one for ships and the other for shore stations. It is his duty to bring to the attention of the Secretary defective conditions from a military point of view believed to obtain in the Navy as to personnel and material, afloat and ashore, and to make such recommendations in the premises as conditions appear to justify.

The determination of the necessity for repairs to ships and the advisability of making alterations at great expense to modernize ships which by reason of age have lost much of their military value, or of retaining on the Navy list at considerable cost for maintenance vessels which have become obsolete or worthless for naval purposes, form part of the duties of this office, all of which make for efficiency and economy of administration.

The duty of recommending to the Secretary the assignments to important duty of the higher ranking officers of the Navy, the rear admirals and captains, has also been turned over to the full Council of Aids. They review the records of officers, and from their combined personal knowledge the Secretary is enabled to make appointments that will insure general service efficiency.

The subject of the assignment to duty of these two grades of officers is one of the most important in the Navy, and such assignments should be made only after taking into consideration the professional recommendations made by a number of experienced officers of mature judgment.

In order that the Secretary may have subjects of importance thoroughly considered before the final recommendation comes to him, the aids meet in full council daily and take up questions of departmental policy, general orders and changes in regulations, and submit recommendations on those that require action by the department.

Further, the Secretary and his Council of Aids meet at least once a week, at which times he presents to them such subjects as he wishes them to consider. The bureau chiefs confer freely with the Secretary whenever any matter arises that affects their particular bureaus. In order that they may have opportunity to present any subject for general discussion, a regular meeting of