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right of appeal on the part of the United States or the individual concerned to the United States district court, is concurred in by the Mobile Army Division.

The enactment of this bill with revision as recommended above, and by the War College Division, is earnestly recommended.

Major General, General Staff, Chief Mobile Army Division.

(The letter of the Secretary of War transmitting the memoranda and other data and the draft of an act providing for a system of national defense based upon universal liability to military service and training are here printed in full as follows:)

WAR DEPARTMENT, Washington, D. C., February 23, 1917.

MY DEAR SENATOR: On the 19th day of December, 1916, Maj. Gen. Hugh L. Scott, Chief of Staff, United States Army, discussed before the Committee on Military Affairs of the Senate certain suggested bills for the purpose of carrying into effect liability to universal military training in the United States. He was asked to embody the vews expressed by him in a bill for the consideration of your committee. Gen. Scott had, in October, directed the War College Division of the General Staff to study and prepare in detail such a bill, and immediately after the hearing, with my approval, he directed the War College to proceed with all possible speed to comply with your request. Such delay as has ensued will not be thought unnatural when the size of the task is considered and the relatively small number of men available for this and the ordinary labors of the War College Division.

Pursuant to your request, I have the honor to hand you the following papers:

Three memoranda from the War College Division of the General Staff, discussing various aspects of the subject of a system of national defense based upon liability to universal military training and service.

A draft of an act providing for a system of national defense based upon universal liability to military service and training.

A memorandum from the War College Division on the subject of a proper military policy for the United States.

Cetrain extracts from the testimony of Maj. Gen. Hugh L. Scott before the Senate Committee on Military Affairs.

A table showing the strength and organization of the land forces of the United States under the plan proposed in the War College Division draft.

A table showing the estimated cost of the Military Establishment proposed in the National Army plan.

A memorandum prepared by the president of the War College showing a comparison of costs of training troops under different plans and a discussion of the minimum time required for proper training.

For some time Congress has been considering the military policy and establishment of the country. Various plans of enlargement and reorganization have been considered, and in June of last year there was passed the nationaldefense act, popularly known as the plan of federalizing the militia of the States into a National Guard which would be more intimately associated with the Regular Army, and, by virtue of a more intensive system of training, would prove a better secondary reliance than it had previously been. Discussion of the subject, however, has continued, and throughout the country much attention has been given to general ideas of universal compulsory training and service. So far as I am aware, the study here presented from the War College is the first attempt to present those ideas in a comprehensive and detailed form, to show the number of men who would be thus trained, the exemptions, the investment, and the continuing annual cost.

This plan is regarded by the military experts of the General Staff as ideal. They recognize, however, that it involves not only a radical departure from the military traditions of the country, but that it presents a vast scheme of organization far larger, both in cost and results, than anything yet seriously considered by the people of the United States. The General Staff believe the plan, however, to have this merit: That it can be used, in part, for the training of a less number of men, and at a less cost in proportion, so that, should the opinion of the country--when thoroughly informed-come to favor the

principles upon which this measure is based, its application could be as rapid or as gradual as the Congress may determine wise under the circumstances.

The bill here transmitted looks to the annual training of about 500,000 men, who, when trained, pass into the reserve until ultimately there will be available an aggregate force in the active and reserve force of the country of about 3,000,000 men. The War College will place itself at your disposal, either to study any other suggested plan or to advise upon modifications of the draft herewith transmitted should your committee desire such modifications in any of the details.

This draft is not transmitted with the thought that the present Congress, in its closing days, will find it possible to give thorough consideration to so large and intricate a matter, but rather in the hope that by its publication all the details of the plan can be made available for the general information of the country at large, and with the feeling that the more or less undefined ideas which have been so widely discussed throughout the country can, on the basis of this orderly statement, be maturely considered. In this way the effect of the proposal upon our preparation for national defense, as well as upon the life and institutions of the country, may be weighed, to the end that both Congress and the War Department can, in any subsequent consideration given to the subject, have the benefit of an enlightened, thoughtful, public opinion upon the needs and wishes of the country.

The questions at issue in any such project as this are to measure, first, the prospective need of the country, and then to determine the measures appropriate to meet it. The plan is, therefore, to be examined from both points of view, and its discussion throughout the country will throw light on both questions. As yet I am not prepared to say officially for the War Department that the need of the country can reasonably be said to be for so great an establishment ; nor can we yet, without further study and deliberation, be confident that the means suggested are the most appropriate to the need which it shall be determined wise to foresee.

I, therefore, venture to suggest that the papers herewith transmitted be authorized to be published for distribution.

Respectfully, yours,

Hon. GEORGE E. CHAMBERLAIN,

Chairman of the Committee on Military Affairs,

NEWTON D. BAKER,
Secretary of War.

United States Senate.

DRAFT OF AN ACT FOR PROVIDING A SYSTEM OF NATIONAL DEFENSE BASED UPON UNIVERSAL LIABILITY ΤΟ MILITARY TRAINING AND SERVICE, AND FOR OTHER PURPOSES.

Be it enacted by the Senate and House of Representatives of the United States of America in Congress assembled, That the land forces of the United States shall consist of the United States Army. All male citizens of the United States between the ages of eighteen and forty-five years, all males between the ages of twenty-one and forty-five years who have legally declared their intentions to become citizens, and all males between the ages of eighteen and twenty-one years whose parents have been naturalized shall be liable for military service in the United States Army, Navy, or Marine Corps, except as provided otherwise in this act, when called out by the President for military service in accordance with the provisions of this act; and from and after the date of any such call until such time as they shall be released from such service by competent authority all persons included in such call shall be subject to the Rules and Articles of War so far as they shall be applicable to persons whose permanent retention in the United States Army is not contemplated.

SEC. 2. COMPOSITION OF THE UNTIED STATES ARMY.-The United States Army shall consist of over-sea garrisons, the frontier forces, the training forces, the first reserves, the second reserves, the unorganized reserves, the brigade, division, Army corps, and Army headquarters, with their detachments and troops, a General Staff Corps, an Adjutant General's Department, an Inspector General's Department, a Judge Advocate General's Department, a Quartermaster Corps, a Medical Department, a Corps of Engineers, an Ordnance Department, a Signal Corps, the officers of the Bureau of Insular Affairs, the detached officers and chaplains, all organized as hereinafter provided, and the following as now authorized by law: The officers and enlisted men on the retired list; the additional officers; the professors, the Corps of Cadets, the

general Army service detachment, and detachments of Cavalry, Field Artillery, and Engineers, and the band of the United States Military Academy; the post noncommissioned staff officers; the recruiting parties, the recruit depot detachments, and unassigned recruits; the service-school detachments; the disciplinary guards; the disciplinary organizations; the Indian Scouts; and such other officers and enlisted men as are now or may be hereafter provided by law. SEC. 3. The United States Army shall include a permanent and a temporary personnel. The permanent personnel shall include officers, enlisted men, and civilians. The officers of the permanent personnel shall include all persons who, on the date of the passage of this act, held commissions or appointments in the Regulary Army and such other persons who shall, in accordance with the provisions of this act, be hereafter appointed or commissioned either permanently or provisionally in such personnel, and the temporary second lieutenants appointed pursuant to section forty of this act: Provided, That the term permanent is employed in this act in connection with the personnel of the several staff corps and departments solely to distinguish the officers and enlisted men permanently belonging thereto and officers of the line detailed therein from reserve officers and noncommissioned officers and recruits temporarily serving therewith, and nothing in this act shall operate to increase the number of officers permanently commissioned in any staff corps or department.

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The enlisted men shall include all persons who shall be serving an enlistment in the Regular Army on the date of the passage of this act and all persons who may hereafter enlist in the United States Army in accordance with the provisions of this act : Provided, That hereafter all enlistments in the United States Army shall be for a period of three years unless sooner discharged in accordance with the provisions of existing law: Provided further, That commanders of divisional areas and Coast Artillery districts may, upon the recommendation of commanders of regiments, battalions, or equivalent units, authorize the enlistment and reenlistment for periods of one year unless sooner discharged pursuant to existing law of selected men for service only in the training forces. The civilians shall include all persons other than permanent officers, reserve officers, enlisted men, reservists, and recruits employed for duty with any headquarters or unit of the United States Army. The temporary personnel shall include reserve officers, reservists, and recruits. The reserve officers shall include all persons holding appointments in the Reserve Officers' Corps. The reservists shall include all persons liable to military service who have completed their prescribed period of training and service in the training forces and all other persons liable to military service who are not liable to training and service in said forces. The recruits shall include all persons undergoing training and service in the training forces who have not completed their prescribed periods of training and service therein. White and colored enlisted or enrolled men shall not be organized in or assigned to the same company, battalion, or regiment.

SEC. 4. THE OVER-SEA GARRISONS.-The over-sea garrisons shall consist of such permanent commissioned officers, enlisted men, and civilians as shall be required for garrison duty outside the continental limits of the United States and shall be organized as provided in this act into three division headquarters, ten brigade headquarters, three Coast Artillery district headquarters, twenty-nine regiments of Infantry, five regiments of Cavalry, six regiments of Field Artillery, seventyfour Coast Artillery company or equivalent units, three regiments of Engineers, three field signal battalions, eight aero squadrons, three balloon companies, the Philippine Scouts organized as now provided by law and such additional staff personnel, and such numbers of Engineer, ammunition, supply, and sanitary trains or such portions of such trains as the President may direct in accordance with the requirements of the service: Provided, That the President is hereby authorized to retain within the continental limits of the United States, until such time as in his discretion their services can be spared, and barracks or quarters therefor provided overseas, such number of units herein authorized as are not on the date of the passage of this act stationed beyond the continental limits of the United States.

SEC. 5. THE FRONTIER FORCES.-The frontier forces shall consist of such permanent commissioned officers, enlisted men, and civilians as shall be required for frontier protection and expeditionary duty at all times, and shall be organized as provided in this act into one division headquarters, three brigade headquarters, six regiments of Infantry, three regiments of Cavalry, two regiments of Field Artillery, forty-seven Coast Artillery company or equivalent units, one regiment of Engineers, one field signal battalion, and two aero squadrons, and

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such additional staff personnel and such numbers of Engineer, ammunition, supply, and sanitary trains or such portions of such trains as the President may direct in accordance with the requirements of the service.

SEC. 6. THE TRAINING FORCES.-The training forces shall consist of such permanent commissioned officers, enlisted men, and civilians as shall be required to train and provide for the recruits called out annually for military training and service, and, together with the recruits so called out, shall be organized as provided in this act into sixteen division headquarters, sixty-four brigade headquarters, six Coast Artillery district headquarters, one hundred and forty-four regiments of Infantry, thirty-two regiments of Cavalry, sixty-six regiments of Field Artillery, one hundred and ninety-eight Coast Artillery company or equivalent units, sixteen regiments of Engineers, two battalions of mounted Engineers, sixteen field signal battalions, six telegraph battalions, two field signal battalions (mounted), twenty-eight aero squadrons, and eight balloon companies, and such additional staff personnel, and such members of Engineer, ammunition, supply, and sanitary trains or such portions of such trains as the President may direct in accordance with the requirements of the service.

SEC. 7. THE FIRST RESERVES.-The first reserves shall consist of such permanent commissioned officers, enlisted men, and civilians and such reserve officers as shall be assigned thereto under regulations to be prescribed by the President, and of all those reservists, except as otherwise provided in this act, who, having completed their prescribed training and service with the training forces, are liable to military service in the first reserves in accordance with the provisions of this act, and they shall be organized, as far as practicable, into sixteen army-corps headquarters, fifty-four division headquarters, two hundred and twenty-four brigade headquarters, four hundred and thirty-two regiments of Infantry, ninety-six regiments of Cavalry, one hundred and ninety-eight regiments of Field Artillery, the Coast Artillery reserve, with such personnel and organization as the President may prescribe, forty-eight regiments of Engineers, six mounted battalions of Engineers, forty-eight field signal battalions, eighteen telegraph battalions, six field signal battalions (mounted), eighty-four aero squadrons, and twenty-four balloon companies, and such additional staff personnel and such Engineer, ammunition, supply, and sanitary trains as the President may direct: Provided, That until such time as the necessary number of trained reservists are available for service therein, the President is hereby authorized to assign to the various units of the first reserves, but only for service therein in time of actual or threatened hostilities, such number of unorganized reservists as, in the discretion of the President, shall be necessary to provide for the mobilization of said units at authorized strength in the event of actual or threatened hostilities: Provided further, That such unorganized reservists shall be so assigned by classes according to age, beginning with the youngest; and notification of such assignment in the manner provided in this act for the notification of persons called out for military service shall be deemed good and sufficient notice to all persons so notified of their said assignment; and no person so assigned shall be required to be physically examined except in time of actual or threatened hostilities.

SEC. 8. THE SECOND RESERVES.-The second reserves shall consist of such permanent commissioned officers, enlisted men, and civilians, and such reserve officers as may be assigned thereto under regulations to be prescribed by the President, and of all reservists except as otherwise provided in this act, who, having completed their prescribed military service in the first reserves, are liable for service in the second reserves in accordance with the provisions of this act, and they shall be organized as far as practicable into sixteen Army corps headquarters. fifty-four division headquarters, two hundred and twenty-four brigade headquarters, four hundred and thirty-two regiments of Infantry, ninety-six regiments of Cavalry, one hundred and ninety-eight regiments of Field Artillery, the Coast Artillery Reserve, with such personnel and organizations as the President may prescribe, forty-eight regiments of Engineers, six mounted battalions of Engineers, forty-eight field signal battalions, six field signal battalions, mounted, eighteen telegraph battalions, eighty-four aero squadrons, twenty-four balloon companies, and such additional staff personnel, and such Engineer, ammunition, supply, and sanitary trains as the President my direct.

SEC. 9. THE UNORGANIZED RESERVES.-The unorganized reserves shall consist of reserve officers and of all reservists, except as otherwise provided in this act, who have completed their prescribed period of service in the second reserves,

and of all other persons liable to military service under the provisions of this

act.

SEC. 10. COMPOSITION OF BRIGADES, DIVISIONS, AND SO FORTH.-The troops of the oversea garrisons, the frontier forces, and the training forces shall at all times be organized as far as practicable into brigades and divisions, and the first reserves and the second reserves into brigades, divisions, and Army corps, and in time of actual or threatened hostilities the President is hereby authorized to organize all or any number of such divisions and Army corps into Army corps or armies. The composition of the typical Infantry, Cavalry, and Field Artillery brigade, the typical Infantry and Cavalry division, and the typical Army corps shall be as prescribed in the act of Congress approved June third, nineteen hundred and sixteen. The typical Army shall consist of a headquarters and two or more Army corps. The headquarters of a brigade, a division, an Army corps, and an Army shall consist of such permanent commissioned officers, enlisted men, and civilians as the President may prescribe. Each Engineer, ammunition, supply, and sanitary train shall consist of such commissioned officers and enlisted men and shall be organized as the President may prescribe. Nothing herein contained, however, shall operate to prevent the President from changing the composition or organization of typical brigades, divisions, Army corps or armies, or from prescribing new and different organizations and personnel in lieu thereof as the efficiency of the service may require.

SEC. 11. GENERAL OFFICERS OF THE LINE. The general officers of the line of the permanent personnel shall consist of twenty-two major generals and eightyseven brigadier generals.

SEC. 12. THE GENERAL STAFF CORPS.-The General Staff Corps shall consist of one Chief of Staff, detailed from major generals of the line of the permanent personnel, who, while so serving, shall have the rank, pay, and allowances of a lieutenant general; two assistants to the Chief of Staff, who shall be general officers of the line; twenty-eight colonels, one of whom shall be president of the Army War College; thirteen lieutenant colonels and one hundred and ten majors and captains; all to be detailed from the permanent commissioned personnel of the Army in accordance with existing law relative to selection and the provisions of this act relative to eligibility for detail, and to perform the duties specified in the organic act of Congress approved February fourteenth, nineteen hundred and three, and at such places as the President may prescribe.

SEC. 13. THE ADJUTANT GENERAL'S DEPARTMENT.-The permanent personnel of The Adjutant General's Department shall consist of The Adjutant General with the rank of brigadier general, seven adjutants general with the rank of colonel, twenty-six adjutants general with the rank of lieutenant colonel, and one hundred and three adjutants general with the rank of major.

SEC. 14. THE INSPECTOR GENERAL'S DEPARTMENT.-The permanent personnel of the Inspector General's Department shall consist of one Inspector General with the rank of brigadier general, four inspectors general with the rank of colonel, eight inspectors general with the rank of lieutenant colonel, thirty-one inspectors general with the rank of major.

SEC. 15. THE JUDGE ADVOCATE GENERAL'S DEPARTMENT.-The permanent personnel of the Judge Advocate General's Department shall consist of one Judge Advocate General with the rank of brigadier general, four judge advocates with the rank of colonel, seven judge advocates with the rank of lieutenant colonel, thirty-five judge advocates with the rank of major, and such number of acting judge advocates as have been or may hereafter be authorized by law.

SEC. 16. THE QUARTERMASTER CORPS.-The permanent commissioned personnel of the Quartermaster Corps shall consist of one Quartermaster General with the rank of major general, ten assistants to the Quartermaster General with the rank of brigadier general, twenty-one colonels, fifty-three lieutenant. colonels, one hundred and twenty-seven majors, two hundred and sixty-nine captains, one first lieutenant, and seventy-two second lieutenants. The enlisted personnel shall consist of one hundred and eighty-three quartermaster sergeants, senior grade; one thousand two hundred and fifty-six quartermaster sergeants; six hundred and eighty-nine sergeants, first class; five thousand four hundred and forty-one sergeants; one thousand three hundred and fourteen corporals; five hundred and fifteen cooks; four thousand eight hundred and eighty privates, first class, including enlisted specialists; and two thousand four hundred and fifty-three privates. The temporary personnel shall consist

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