The board made eighteen specific recommendations, of which the following were the most important.
"That combat and service units be organized and activated from the Negro manpower available in the postwar Army to meet the requirements of training and expansion and in addition qualified individuals be utilized in appropriate special and overhead units." The use of qualified Negroes in overhead units was the first break with the traditional policy of segregation, for though black enlisted men would continue to eat and sleep in segregated messes and barracks, they would work alongside white soldiers and perform the same kind of duty in the same unit.
"The proportion of Negro to white manpower as exists in the civil population be the accepted ratio for creating a troop basis in the postwar Army."[6-9]
[Footnote 6-9: The 10 percent quota that eventually emerged from the Gillem Board was an approximation; Gillem later recalled that the World War II enlisted ratio was nearer 9.5 percent, but that General Eisenhower, the Chief of Staff, saying he could not remember that, suggested making it "an even 10 percent." See Interv, Osur with Gillem.]
"That Negro units organized or activated for the postwar Army conform in general to other units of the postwar Army but the maximum strength of type [sic] units should not exceed that of an infantry regiment or comparable organization." Here the board wanted the Army to avoid the division-size units of World War II but retain separate black units which would be diversified enough to broaden the professional base of Negroes in the Regular Army by offering them a larger selection of military occupations.
"That in the event of universal training in peacetime additional officer supervision is supplied to units which have a greater than normal percentage of personnel falling into A.G.C.T. cla.s.sifications IV and V." Such a policy had existed in World War II, but was never carried out.
"That a staff group of selected officers whose background has included commanding troops be formed within the G-1 Division of the staffs of the War Department and each major command of the Army to a.s.sist in the planning, promulgation, implementation and revision of policies affecting all racial minorities." This was the administrative machinery the board wanted to facilitate the prompt and efficient execution of the Army"s postwar racial policies.
"That reenlistment be denied to regular Army soldiers who meet only the minimum standards." This provision was in line with the concept that the peacetime Army was a cadre to be expanded in time of emergency. As long as the Army accepted all reenlistments regardless of apt.i.tude and halted black enlistments when black strength exceeded 10 percent, it would deny enlistment to many qualified Negroes. It would also burden the Army with low-scoring men who would never rise above the rank of private and whose usefulness in a peacetime (p. 157) cadre, which had the function of training for wartime expansion, would be extremely limited.
"That surveys of manpower requirements conducted by the War Department include recommendations covering the positions in each installation of the Army which could be filled by Negro military personnel." This suggestion complemented the proposal to use Negroes in overhead positions on an individual basis. By opening more positions to Negroes, the Army would foster leadership, maintain morale, and encourage a compet.i.tive spirit among the better qualified. By forcing compet.i.tion with whites "on an individual basis of merit," the Army would become more attractive as a career to superior Negroes, who would provide many needed specialists as a "nucleus for rapid expansion of Army units in time of emergency."
"That groupings of Negro units with white units in composite organizations be continued in the postwar Army as a policy." Since World War II demonstrated that black units performed satisfactorily when grouped or operated with white combat units, the inclusion of a black service company in a white regiment or a heavy weapons company in an infantry battalion could perhaps be accomplished "without encountering insurmountable difficulties." Such groupings would build up a professional relationship between blacks and whites, but, the board warned, experimentation must not risk "the disruption of civilian racial relationships."
"That there be accepted into the Regular Army an unspecified number of qualified Negro officers ... that all officers, regardless of race, be required to meet the same standard for appointment ... be accorded equal rights and opportunities for advancement and professional improvement; and be required to meet the same standard for appointment, promotion and retention in all components of the Army."
The board set no limit on the number of black officers in the Army, nor did it suggest that black officers be restricted to service in black units.
Its report rendered, the board remained in existence ready to make revisions "as may be warranted" by the comments of the many individuals and agencies that were to review the policy in conformance with a directive of the Secretary of War.[6-10]
[Footnote 6-10: Memo, Brig Gen H. I. Hodes, ADCofS, for Gillem, 24 Nov 45, sub: War Department Special Board on Negro Management, WDCSA 320.2 (17 Nov 45).]
No two individuals were more intimately concerned with the course of events that led to the Gillem Board Report than John J. McCloy and Truman Gibson, and although both were about to leave government service, each gave the new Secretary of War his opinion of the report.[6-11] McCloy called the report a "fine achievement" and a "great advance over previous studies." It was most important, he said, that the board had stated the problem in terms of manpower efficiency. At the same time both men recognized ambiguities in the board"s (p. 158) recommendations, and their criticisms were strong, precise, and, considering the conflicts that developed in the Army over these issues, remarkedly acute. Both agreed the report needed a clear statement on the basic issue of segregation, and they wanted the board to eliminate the quota. Gibson pointed out that the board proposed as a long-range objective the utilization of all persons on the basis of individual ability alone. "This means, of course," he announced with more confidence than was warranted, "a completely integrated Army." In the interest of eventually achieving an integrated Army he was willing to settle for less than immediate and total integration, but nevertheless he attacked the board for what he called the vagueness of its recommendations. Progressive and planned integration, he told Secretary Patterson, demanded a clear and explicit policy stating that segregation was outmoded and integration inevitable, and the Army should move firmly and steadily from one to the other.
[Footnote 6-11: Memo, Civilian Aide for ASW, 13 Nov 45, ASW 291.2 Negro Troops (Post War); Ltr, idem to SW, 13 Nov 45; Memo, McCloy for Patterson, 24 Nov 45; Memo, Gibson for SW, 28 Nov 45. Last three in SW 291.2. The Gibson quote is from the 28 November memo.]
On some fundamental issues McCloy thought the board did "not speak with the complete clarity necessary," but he considered the ambiguity unintentional. Experience showed, he reminded the secretary, "that we cannot get enforcement of policies that permit of any possibility of misconstruction." Directness, he said, was required in place of equivocation based on delicacy. If the Gillem Board intended black officers to command white officers and men, it should have said so flatly. If it meant the Army should try unsegregated and mixed units, it should have said so. Its report, McCloy concluded, should have put these matters beyond doubt. He was equally forthright in his rejection of the quota, which he found impractical because it deprived the Army of many qualified Negroes who would be unable to enlist when the quota was full. Even if the quota was meant as a floor rather than a ceiling, McCloy thought it objectionable. "I do not see any place," he wrote, "for a quota in a policy that looks to utilize Negroes on the basis of ability."
If the Gillem Board revealed the Army"s willingness to compromise in treating a pressing efficiency problem, detailed comments by interested staff agencies revealed how military traditionalists hoped to avoid a pressing social problem. For just as McCloy and Gibson criticized the board for failing to spell out concrete procedures toward integration, other staff experts generally approved the board"s report precisely because its ambiguities committed them to very little. Their specific criticisms, some betraying the biases of the times, formed the basis of the standard traditionalist defense of the racial _status quo_ for the next five years.
Comments from the staff"s personnel organization set the tone of this criticism.[6-12] The a.s.sistant Chief of Staff for Personnel, G-1, Maj.
Gen. Willard S. Paul, approved the board"s recommendations, calling them a "logical solution to the problem of effective utilization of Negro manpower." Although he thought the report "sufficiently (p. 159) detailed to permit intelligent, effective planning," he pa.s.sed along without comment the criticisms of his subordinates. He was opposed to the formation of a special staff group. "We must soon reach the point," he wrote, "where our general staff must be able to cope with such problems without the formation of ad hoc committees or groups."[6-13]
[Footnote 6-12: For examples of this extensive review of the Gillem Board Report in G-1, see the following Memos: Col J. F. Ca.s.sidy (Exec Office, G-1) for Col Parks, 10 Dec 45; Chief, Officer Branch, G-1, for Exec Off, G-1 Policy Group, 14 Dec 45; Actg Chief, Req and Res Br, for Chief, Policy Control Group, 14 Dec 45; Lt Col E. B. Jones, Special Projects Br, for G-1, 19 and 21 Dec 45, sub: Policy for Utilization of Negro Manpower in Post-War Army. All in WDGAP 291.2.]
[Footnote 6-13: Memo, Gen Paul, G-1, for CofS, 27 Dec 45, sub: Policy for Utilization of Negro Manpower in Post-War Army, WDGAP 291.2 (24 Nov 45).]
The a.s.sistant Chief of Staff for Organization and Training, G-3, Maj.
Gen. Idwal H. Edwards, was chiefly concerned with the timing of the new policy. In trying to employ black manpower on a broader professional scale, he warned, the Army must recognize the "inept.i.tude and limited capacity of the Negro soldier." He wanted various phases of the new policy timed "with due consideration for all factors such as public opinion, military requirements and the military situation."
If the priority given public opinion in the sequence of these factors reflected Edwards"s view of their importance, the list is somewhat curious. Edwards concurred in the recommendations, although he wanted the special staff group established in the personnel office rather than in his organization, and he rejected any arbitrary percentage of black officers. More black officers could be obtained through expansion of the Reserve Officers" Training Corps, he suggested, but he rejected the board"s call for special cla.s.sification of all enlistees in reception and training centers, on grounds that the centers were not adequate for the task.[6-14]
[Footnote 6-14: G-3 Summary Sheet to ADCofS, 2 Jan 46, sub: War Department Special Board on Negro Manpower, WDGCT 291.21 (24 Nov 45).]
The chief of the General Staff"s Operations Division, Lt. Gen. John E.
Hull, dismissed the Gillem report with several blunt statements: black enlisted men should be a.s.signed to black units capable of operational use within white units at the rate of one black battalion per division; a single standard of professional proficiency should be followed for white and black officers; and "no Negro officer be given command of white troops."[6-15]
[Footnote 6-15: Memo, Lt Gen John E. Hull, ACofS, OPD (signed Brig Gen E. D. Post, Dep Chief, Theater Gp, OPD), for ACofS, G-3, 4 Jan 46, sub: War Department Special Board on Negro Manpower, WDGCT 291.21.]
The deputy commander of the Army Air Forces, Lt. Gen. Ira C. Eaker, agreed with the board that the Army should not be "a testing ground for problems in race relationships." Neither did he think the Air Forces should organize units for the sole purpose of "advancing the prestige of one race, especially when it is necessary to utilize personnel that do not have the proper qualifications in order to keep these units up to strength." Black combat units should be limited by the 10 percent quota and by the small number of Negroes qualified for tactical training. Most Negroes should be placed in Air Forces service units, where "their wartime record was the best," even though such placement would leave the Air Forces open to charges of discrimination. The idea of experimental groupings of black and white units in composite organizations might prove "impractical," Eaker wrote to the Chief of Staff, because an Air Forces group operated as an integral unit rather than as three or four separate squadrons; units often exchanged men and equipment, and common messes were used.
Composite organizations were practical "only when it is not (p. 160) necessary for the units to intermingle continually in order to carry on efficiently." Why intermingling could not be synonymous with efficiency, he failed to explain. The inference was clear that segregation was not only normal but best.
Yet he advocated continuing integrated flying schools and agreed that Negroes should be stationed where community att.i.tudes were favorable.
He cited the difficulties involved in stationing. For more than two years the Army Air Forces had tried to find a suitable base for its only black tactical group. Even in northern cities with large black communities--Syracuse, New York, Columbus, Ohio, and Windsor Locks, Connecticut, among others--officials had vehemently protested against having the black group.
The War Department, Eaker concluded, "should never be ahead of popular opinion on this subject; otherwise it will put itself in a position of stimulating racial disorders rather than overcoming them." Along these lines, and harking back to the Freeman Field incident, he protested against regulations reaffirmed by the Gillem Board for the joint use of clubs, theaters, post exchanges, and the like at stations in localities where such use was contrary to civilian practices.[6-16]
[Footnote 6-16: 1st Ind, Lt Gen Ira C. Eaker, Deputy Cmdr, AAF, to CofS, 19 Dec 45, sub: War Department Special Board on Negro Manpower, copy at Tab H, Supplemental Report of Board of Officers on Utilization of Negro Manpower in the Post-War Army, 26 Jan 46, copy in CMH.]
The Army Ground Forces headquarters concurred generally with the Gillem Board"s conclusions and recommendations but suggested the Army not act alone. The headquarters recommended a policy be formulated for the entire military establishment; only then should individual elements of the armed forces come forward with their own policies. The idea that Negroes should serve in numbers proportionate to their percentage of the population and bear their share of battle losses "may be desirable but is impracticable and should be abandoned in the interest of a logical solution."[6-17] Since the abilities of Negroes were limited, the report concluded, their duties should be restricted.
[Footnote 6-17: Memo, Lt Col S. R. Knight (for CG, AGF) for CofS, 18 Dec 45, sub: Army Ground Forces Comments and Recommendations on Report of the War Department Special Board (Gillem) on Negro Manpower, dated 17 Nov 45, GNGPS 370.01 (18 Dec 45); AGF Study, "Partic.i.p.ation of Negro Troops in the Postwar Military Establishment," 28 Nov 45, forwarded to CofS, ATTN: Dir, WD Special Planning Div, GNDCG 370.01 (28 Nov 45).]
The commanding general of the Army Service Forces claimed the Gillem Board Report was advocating substantially the same policy his organization had followed during the war. The Army Service Forces had successfully used an even larger percentage of Negroes than the Gillem Board contemplated. Concurring generally with the board"s recommendations, he cautioned that the War Department should not dictate the use of Negroes in the field; to do so would be a serious infringement of command prerogatives that left each commander free to select and a.s.sign his men. As for the experimental groupings of black and white units, the general believed that such mixtures were appropriate for combat units but not for the separate small units common to the Army Service Forces. Separate, h.o.m.ogeneous companies or battalions formed during the war worked well, and experience proved mixed units impractical below group and regimental echelons.
The Service Forces commander called integration infeasible "for (p. 161) the present and foreseeable future." It was unlawful in many areas, he pointed out, and not common practice elsewhere, and requiring soldiers to follow a different social pattern would damage morale and defeat the Army"s effort to increase the opportunities and effectiveness of black soldiers. He did not try to justify his contention, but his meaning was clear. It would be a mistake for the Army to attempt to lead the nation in such reforms, especially while reorganization, unification, and universal military training were being considered.[6-18]
[Footnote 6-18: Memo, Maj Gen Daniel Noce, Actg CofS, ASF, for CofS, 28 Dec 45, sub: War Department Special Board on Negro Manpower, copy at Tab J, Supplemental Report of War Department Special Board on Negro Manpower, 26 Jan 46, CMH files.]
Reconvened in January 1946 to consider the comments on its original report, the Gillem Board deliberated for two more weeks, heard additional witnesses, and stood firm in its conclusions and recommendations.[6-19] The policy it proposed, the board emphasized, had one purpose, the attainment of maximum manpower efficiency in time of national emergency. To achieve this end the armed forces must make full use of Negroes now in service, but future use of black manpower had to be based on the experience gained in two major wars. The board considered the policy it was proposing flexible, offering opportunity for advancement to qualified individuals and at the same time making possible for the Army an economic use of national manpower as a whole.
[Footnote 6-19: Supplemental Report of War Department Special Board on Negro Manpower, "Policy for Utilization of Negro Manpower in the Post-War Army," 26 Jan 46. The following quotations are taken from this amended version of the Gillem Board Report, a copy of which, with all tabs and annexes, is in CMH.]
To its original report the board added a statement at once the hope and despair of its critics and supporters.
_The Initial Objectives_: The utilization of the proportionate ratio of the manpower made available to the military establishment during the postwar period. The manpower potential to be organized and trained as indicated by pertinent recommendations.
_The Ultimate Objective_: The effective use of _all_ manpower made available to the military establishment in the event of a major mobilization at some unknown date against an undetermined aggressor. The manpower to be utilized, in the event of another major war, in the Army without regard to antecedents or race.
When, and if such a contingency arises, the manpower of the nation should be utilized in the best interests of the national security.
The Board cannot, and does not, attempt to visualize at this time, intermediate objectives. Between the first and ultimate objective, timely phasing may be interjected and adjustments made in accordance with conditions which may obtain at this undetermined date.
The board based its ultimate objective on the fact that the black community had made important advances in education and job skills in the past generation, and it expected economic and educational conditions for Negroes to continue to improve. Since such improvement would make it possible to employ black manpower in a variety of ways, the board"s recommendations could be only a guide for the future, a policy that must remain flexible.
To the specific objections raised by the reviewing agencies, the board replied that although black units eventually should be commanded by black officers "no need exists for the a.s.signment of Negro commanders to units composed of white troops." It also agreed with those who (p. 162) felt it would be beneficial to correlate Army racial policies with those of the Navy. On other issues the board stood firm. It rejected the proposal that individual commanders be permitted to choose positions where Negroes could be employed in overhead installations on the grounds that this delegation of responsibility "hazards lack of uniformity and makes results doubtful." It refused to drop the quota, arguing it was needed for planning purposes. At the same time the board did admit that the 10 percent ratio, suitable for the moment, might be changed in the future in the interest of efficiency--though changed in which way it did not say.
[Ill.u.s.tration: SECRETARY PATTERSON.]
The board rejected the proposition that the Army Service Forces and the Army Air Forces were unable to use small black units in white organizations and took a strong stand for elimination of the professional private, the career enlistee lacking the background or ability to advance beyond the lowest rank. Finally, the board rejected demands that the color line be reestablished in officers" messes and enlisted recreational facilities. "This large segment of the population contributed materially to the success attained by our military forces.... The Negro enjoyed the privileges of citizenship and, in turn, willingly paid the premium by accepting service. In many instances, this payment was settled through the medium of the supreme sacrifice."
The board"s recommendations were well received, at least in the highest echelons of the War Department. General Dwight D. Eisenhower, now Chief of Staff,[6-20] quickly sent the proposed policy to the Secretary of War with a recommendation for approval "subject to such adjustment as experience shows is necessary."[6-21] On 28 February 1946 Secretary Patterson approved the new policy in a succinct restatement of the board"s recommendations. The policy and the full Gillem Board Report were published as War Department Circular 124 on 27 April 1946.
At the secretary"s direction the circular was dispatched to the field "without delay."[6-22] On 4 March the report was released to the press.[6-23] The most exhaustive and intensive inquiry ever made (p. 163) by the Army into the employment of black manpower had survived the review and a.n.a.lysis process with its conclusions and recommendations intact.
[Footnote 6-20: Eisenhower succeeded Marshall as Chief of Staff on 19 November 1945.]