But to ban the use of military police and to urge commanders to deal with local business leaders to end segregation actually begged the question. Significantly, the much-heralded memorandum on the availability of integrated facilities failed to review the rules governing partic.i.p.ation in demonstrations, a subject of pressing interest to an increasing number of Negroes as the civil rights struggle moved into a more active phase. Bothered by this failure, Air Force representatives on the policy drafting team had wanted to provide local commanders with guidance before civil rights incidents occurred. The justice officials who reviewed the memorandum at McNamara"s invitation, however, were reluctant to see specific reference to such incidents incorporated, and the matter was ignored.[20-58]
[Footnote 20-58: Memo, Vance and Runge for SecDef, 5 Jun 61, ASD (M) 291.2.]
In fact, justice officials were not the only ones reluctant to see the issue raised. It was a common belief in the Defense Department that military service placed some limitations on a man"s basic liberties.
Because servicemen were a.s.signed to their duty station, subject to immediate transfers and on duty twenty-four hours a day, they were allowed no opportunity for partic.i.p.ating in demonstrations.[20-59] The department"s general counsel was even more specific, saying that a prohibition against picketing would not conflict with the department"s anti-discrimination policies and could be lawfully imposed by the services. "Indeed," he believed, "the role of the military establishment in our society required the imposition of such a limitation on the off-duty activities of service personnel."[20-60]
Blessed by such authority, the 1960 prohibition against partic.i.p.ation in civil rights demonstrations remained in effect for more than three years.[20-61]
[Footnote 20-59: Ltr, ASD (M) to John de J. Pemberton, Jr., Exec Dir, American Civil Liberties Union, 31 Jul 63; Memos for Rcd, OSD Counselor, 26 Apr 61 and 9 Jul 63. All in ASD (M) 291.2 (16 Jul 63).]
[Footnote 20-60: Memo, General Counsel for ASD (M), 15 Jun 62, sub: Picketing by Members of the Armed Forces, copy in CMH.]
[Footnote 20-61: See Memo, James P. Goode, Office of SecAF, for Stephen Jackson and Carlisle Runge, attached to Memo, AF Dep CofS (P) for All Major Cmdrs, 30 Mar 60, sub: Air Force Policy Statement Concerning Involvement of Air Force Personnel in Local Civil Disturbances, SecAF files; Ltr, Under SecNav to Jesse H. Turner, 6 Oct 61, copy in CMH.
See also Ltr, Adam Yarmolinsky to Adam C. Powell, 30 Oct 63, SD 291.2 (14 Jul 63).]
Such restrictions could not last much longer. Given the civil (p. 516) rights temper of the times--1963 witnessed the mammoth march on Washington, the introduction of President Kennedy"s civil rights bill, and the landmark directive of the Secretary of Defense on equal opportunity in the armed forces--a total prohibition on servicemen"s partic.i.p.ation in demonstrations appeared more and more incongruous.
Finally, on 16 July 1963, McNamara relaxed the department"s policy.
Still declaring such partic.i.p.ation inappropriate and unnecessary for servicemen in view of their "special obligations of citizenship," he nevertheless lifted the ban on military partic.i.p.ation in demonstrations, provided that the uniform was not worn; such activity took place during off-duty hours, off the military reservation, and did not const.i.tute a breach of law and order; and no violence was reasonably likely to result.[20-62]
[Footnote 20-62: Memo, SecDef for Secys of Mil Depts et al., 16 Jul 63, SD files; see also New York _Times_, July 16, 17, 20, 22, 28, and 30, 1963.]
[Ill.u.s.tration: SECRETARY OF DEFENSE MCNAMARA.]
Again an apparent liberalization of departmental racial policy actually promised very little change. First, the continuing prohibitions on partic.i.p.ation in demonstrations were so broad and so vague that they could be interpreted to cover almost any civil rights activity. Then, too, the secretary left the interpretation of his order to the judgment of local commanders, a dubious blessing in the eyes of the civil libertarians and concerned servicemen in light of the narrow constructions commanders had given recent Defense Department memorandums. Finally, the relaxation of the ban was applicable only to the continental United States. In response to a request for guidance from the European commander, the Joint Chiefs of Staff informed all overseas commanders that as guests of Allied nations, U.S. servicemen had no right to picket, demonstrate, or otherwise partic.i.p.ate in any act designed to "alter the policies, practices, or activities of the local inhabitants who are operating within the framework of their own laws."[20-63]
[Footnote 20-63: Msg, USCINCEUR to JCS, 201256Z Aug 63; Msg, JCS 2190 to CINSCO et al. (info copies to Service Chiefs of Staff, CINCAL, ASD [M], and ASD [PA]), 221630Z Aug 63.]
The fourth major memorandum on racial matters outlined the department"s application of Executive Order 11063 on housing. Racial discrimination in off-base housing had become perhaps the chief complaint of black servicemen who were further incensed by many (p. 517) local commanders who maintained lists of segregated houses in their base housing offices. In some cases commanders referred their black servicemen to the Urban League or similar organizations for help in finding suitable housing.[20-64] Demands that the services do something about the situation were rebuffed. As the a.s.sistant Secretary of Defense explained to a White House official, the Department of Defense had "virtually no direct involvement" in off-base housing, the segregation of which was "not readily susceptible to change by actions that are within the control of the military departments."[20-65]
[Footnote 20-64: Omaha _World Herald_, August 17, 1962; see also Memo, Adam [Yarmolinsky] for L.
White, 7 Sep 62, Lee White Collection, J. F.
Kennedy Library.]
[Footnote 20-65: Memo, ASD (M) for a.s.st Legal Counsel to President, 7 Nov 61, sub: Racial Discrimination in the Armed Services, ASD (M) 291.2.]
Several of McNamara"s a.s.sistants disagreed. They drafted a housing order for the secretary but not without opposition at first from some of their colleagues. An Army representative, for example, suggested a counterproposal that commanders be ordered to work through the federal agencies established in various geographical areas of the country by Executive Order 11063. An Air Force spokesman recommended the creation of special regional and local community committees, chaired by representatives of the Housing and Home Finance Agency and including members from all major federal agencies. For his part, Stephen S.
Jackson, a special a.s.sistant in the manpower office, thought these service proposals had merit, and he wanted to postpone action until they had been discussed with other interested federal agencies.[20-66]
[Footnote 20-66: Memo, Jackson for Dep ASD, Family Housing-OASD (I&L), 8 Feb 63, sub: Implementation of EX 11063, Equal Opportunity in Housing, copy in CMH.]
McNamara, however, "readily agreed" with his housing experts that a letter on nondiscrimination in family housing was necessary. On 8 March 1963 he informed the service secretaries that effective immediately all military leases for family housing, that is, contracts for private housing rented by the services for servicemen, would contain a nondiscrimination clause in accordance with the President"s executive order. He also ordered military bases to maintain listings only on nonsegregated private housing.[20-67] Again an attempt to bring about a needed change was severely limited in effectiveness by the department"s concern for the scope of the commander"s authority in the local community. The application of the President"s order would end segregation in leased housing, but only a small percentage of black servicemen lived in such housing. The majority of service families lived off base in private housing, which the new order, except for banning the listing of segregated properties by base housing offices, ignored. Barring the use of segregated private housing to all servicemen, a more direct method of changing the racial pattern surrounding military installations, would have to wait for a substantive change in departmental thinking.
[Footnote 20-67: Memo, SecDef for SA et al., 8 Mar 63, sub: Non-Discrimination in Family Housing; Memo, ASD (I&L) for Dep ASD (Family Housing), 8 Mar 63; copies of both in ASD (M) 291.2. The quote is from the latter doc.u.ment.]
_Reserves and Regulars: A Comparison_
While the interest of both civil rights advocates and defense officials was focused on off-base concerns during the early 1960"s, discrimination continued to linger in the armed forces. A (p. 518) particularly sensitive issue to the services, which in the public mind had complete jurisdiction over all men in uniform, was the position of the Negro in the reserve components. To generalize on the racial policies of the fifty-four National Guard organizations is difficult, but whereas some state guards had been a progressive force in the integration of the services in the early postwar period, others had become symbols of racism by 1961. Some fourteen years after the Truman order, ten states with large black populations and understaffed guard units still had no Negroes in the guard. The Kennedy administration was not the first to wrestle with the problem of applying a single racial policy to both the regulars and the guard. It was aware that too much tampering with the politically influential and volatile guard could produce an explosion. At the same time any appearance of timidity courted antagonism from another quarter.
From the beginning the new administration found itself criticized by civil rights organizations, including the U.S. Commission on Civil Rights, for not moving quickly against segregated National Guard units.[20-68] A delegation from the NAACP"s 1961 convention visited a.s.sistant Secretary Runge in July and criticized--to the exclusion of all other subjects--discrimination in the National Guard. This group wanted the federal government to withhold funds from states that continued to bar black partic.i.p.ation. Repeating the old claim that special federal-state relationships precluded direct action by the Secretary of Defense, Runge nevertheless promised the delegates a renewed effort to provide equal opportunity. He also made a somewhat irrelevant reference to the recent experience of a black citizen in Oklahoma who had secured admission to the state guard by a direct appeal to the governor.[20-69] How futile such appeals would be in some states was demonstrated a week later when the Adjutant General of Florida declared that since the guard was a volunteer organization and his state had always drawn its members from among white citizens, Florida was under no obligation to enlist black men.[20-70]
[Footnote 20-68: See pet.i.tions signed by thousands of Negroes to the President demanding redress of grievances against the discriminatory practices of the National Guard, in White House Cen files, 1962, J. F. Kennedy Library.]
[Footnote 20-69: Memo for Rcd, James C. Evans, OASD (M), 17 Jul 61, sub: Mr. Runge Receives NAACP Delegation, ASD (M) 291.2.]
[Footnote 20-70: Washington _Post_, July 28, 1961.]
That the new administration had quietly adopted different policies toward the guard and the regular forces was confirmed when Runge responded to a report prepared by the American Veterans Committee on the lack of racial progress in the guard. The veterans group called on the administration to use the threat of withdrawal of federal recognition to alter guard practices.[20-71] The administration refused. A policy of force might be acceptable for the active armed forces, but voluntary persuasion seemed more appropriate for the National Guard. Enunciating what would become the Defense Department"s position on the National Guard through 1963, Runge declared that the federal government had no legal authority to force integration on the guard when it was not serving in a federal status. Furthermore, (p. 519) withdrawal of federal recognition or withholding federal funds as a means of bringing about integration, though legally sound, would cause some states to reject federal support and inactivate their units, thereby stripping the country of a portion of its military reserve and damaging national security. Citing the progress being made by persuasion, Runge predicted that some recalcitrant states might in time voluntarily move toward integration.[20-72] Noting instances of recent progress and citing legal restrictions against forcing state compliance, McNamara endorsed the policy of encouraging voluntary compliance.[20-73]
[Footnote 20-71: Ltr, Murray Gross, Chmn of the AVC, to SecDef, 22 Jun 61, SD 291.2. The report on the integration of the National Guard was inclosed.]
[Footnote 20-72: Ltrs, Runge to Murray Gross, 19 Jul and 29 Nov 61, ASD (M) 291.2, and n.d. (ca. Nov 61), copy in Wofford Collection, J. F. Kennedy Library.]
[Footnote 20-73: Ltr, SecDef to Rep. Carl Vinson of Georgia, Chmn, House Armed Services Cmte, 5 Aug 61, reprinted in Appendix to _Congressional Record_, 87th Cong., 1st sess., vol. 107, p. A6589.]
Although unauthorized, similar patterns of discrimination persisted in parts of the organized reserves. Reserve units had links with both the regular forces and the guard. Like the regulars, the reserve was legally a creature of the federal government and subject to policies established by the Secretary of Defense. Moreover, the reserve drew much of its manpower from the pool of soldiers separating from active duty with a reserve obligation still to fulfill, and within some limits the Defense Department could a.s.sign such men to units in a manner that could influence the reserve"s racial composition. But like the guard, the reserve also had a distinct local flavor, serving almost as a social club in some parts of the country. This characteristic was often an important factor in maintaining a unit at satisfactory strength. Since segregation sometimes went hand in hand with the clublike atmosphere, the services feared that a strong stand on integration might cause a severe decline in the strength of some units.[20-74] When the Army staff reviewed the situation in 1956, therefore, it had not pressed for integration of all units, settling instead for merely "encouraging" commanders to open their units to Negroes.[20-75]
[Footnote 20-74: ACofS (Reserve Components) Summary Sheet, 11 Feb 57, sub: Race Issue in Armory Debate, copy in DCSPER 291.2.]
[Footnote 20-75: DCSPER Summary Sheet, 6 Apr 56, sub: Policy for Reserve Training a.s.signments of Obligated Non-Caucasian Personnel of the Ready Reserve Who Reside in Segregated Areas, DCSPER 291.2.]
The move toward complete integration of the reserves was slow. In 1956, for example, more than 75 percent of the Army"s reserve units in southern states were still segregated. The other services followed a similar pattern; in 1962 more than 40 percent of all reserve units in the country were white; the Army retained six all-black reserve units as well. Racial exclusion persisted in the Reserve Officers" Training Corps also, although here the fault was probably not so much a matter of reserve policy as the lingering segregation pattern in some state school systems. At the same time, the reserves had more blacks in nondrill status than in drill status. In other words, more blacks were in reserve pools where, una.s.signed to specific units, they did not partic.i.p.ate in active duty training. In 1962, some 75 percent of the black reservists in the Army and Air Force, 85 percent in the Navy, and 38 percent in the Marine Corps were a.s.signed to such pools. For many reservists, paid drill status was desirable; apart from the money received for such active duty, they had the opportunity to gain (p. 520) credit toward retirement and pensions.
Deputy Secretary of Defense Gilpatric reminded the services in April 1962 that the Truman order applied to the reserves and called on the under secretaries to integrate the all-black and all-white units "as rapidly as is consistent with military effectiveness."[20-76] He also wanted a review of black a.s.signments for the purpose of removing the disproportionate number of Negroes in pools "consistent with the military requirements and the skills of the personnel involved."
[Footnote 20-76: Memo, Dep SecDef for Under Secys, 3 Apr 62, sub: Compliance With E.O. 9981 in the Army, Navy, Air Force, and Marine Corps Reserves, in SD files. The secretary"s memo was distributed to the commands; see, for example, Memo, TAG for CINCARPAC et al., 15 May 62 (TAG 291.2/15 May 62).]
A defense manpower team surveyed the reserves in November 1962. It tried to soften the obvious implication of its racial statistics by pointing out that the all-black units were limited to two Army areas, and action had already been taken by the Third Army and Fourth Army commanders to integrate the six units as soon as possible. The team also announced initiation of a series of administrative safeguards against discrimination in the enlistment and a.s.signment of men to drilling units. As for the all-white units, the reviewers cautioned that discrimination was not necessarily involved since Negroes const.i.tuted a relatively small proportion of the strength of the reserves--4.8 percent of the Army, 4.4 percent of the Air Force, and an estimated 3.2 percent of the Navy. Furthermore, the data neither proved nor disproved allegations of discrimination since the degree to which individuals volunteered, the skills and apt.i.tudes they possessed, and the needs of the services were all factors in the a.s.signment and use of the men involved.[20-77]
[Footnote 20-77: Office of the ASD (M), Review of Compliance With E.O. 9981 in the Army, Navy, Air Force, and Marine Corps Reserves, 7 Nov 62, copy in CMH.]
Pleas of an absence of legal authority in regard to the National Guard and generalized promises of racial reform in the reserves were not going to still the complaints of the civil rights organizations nor discourage the interest of their allies in the administration.
Clearly, the Department of Defense would be hearing more about race in the reserve components in the months to come.
The sudden reemergence in the early 1960"s of complaints of discrimination in the regular forces centered around a familiar litany: the number of Negroes in some of the services still fell significantly short of the black percentage of the national population; and separate standards, favorable to whites, prevailed in the promotion and a.s.signment systems of all the services. There had to be some discrimination involved, Congressman Diggs pointed out to the Secretary of the Air Force in July 1960. With extensive help from the services, Diggs had been investigating servicemen"s complaints for some time. While his major concern remained the discrimination suffered by black servicemen off base, he nevertheless concluded that the service regulations developed in consultation with the Fahy Committee more than a decade earlier had not been fully implemented and discriminatory practices existed "in varying degrees" at (p. 521) military installations around the world. Diggs admitted that a black serviceman might well charge discrimination to mask his failure to compete successfully for a job or grade, but to accept such failures as a universal explanation for the disproportionate number of Negroes in the lower ranks and undesirable occupations was to accept as true the canard that Negroes as a group were deficient. Diggs"s conclusion, which he pressed upon the department with some notice in the press, was that some black servicemen were being subtly but deliberately and arbitrarily restricted to inferior positions because their military superiors exercised judgments based on racial considerations. These judgments, he charged, were inconsistent with the spirit of the Truman order.[20-78]
[Footnote 20-78: Ltr, Diggs to SecAF, 7 Jul 60; see also Memo, Dir, AF Legis Liaison, for Spec a.s.st for Manpower, Personnel, and Reserve Forces, USAF, 14 Jul 60, with attached Summary of Findings and Highlights of the Diggs Report Concerning Alleged Discriminatory Practices in the Armed Forces; both in SecAF files.]
At first glance the 1963 study of racial discrimination by the U.S.
Commission on Civil Rights seemed to contradict Diggs"s charges. The commission concluded that taken as a whole the status of black servicemen had improved considerably since the Truman order. It noted that black representation had remained relatively constant since the early days of integration, 8.2 percent of the total, 9.2 percent of the enlisted strength, and approached national population averages.
The percentage of black officers, 1.6 percent of all officers, while admittedly low, had been rising steadily and compared favorably with the number of black executives in the civilian economy. The occupational status of the black enlisted man had also undergone steady improvement since the early days of integration, especially when one compared the number and variety of military occupation specialties held by black servicemen with opportunities in the rest of the civil service and the business community.
Finally, and perhaps most important, the commission found that in their daily operations, military installations were "generally free from the taint of racial discrimination."[20-79] It confirmed the general a.s.sessments of the Anti-Defamation League of B"nai B"rith and the American Veterans Committee among others, pointing out that black and white servicemen not only worked side by side, but also mingled in off-duty hours.[20-80] In sum, the study demonstrated general satisfaction with the racial situation on military bases. Its major concern, and indeed the major concern of Diggs and most black servicemen, remained the widespread discrimination prevailing against black servicemen in the local community.
[Footnote 20-79: U.S. Commission on _Civil Rights_, Civil Rights "63, pp. 173-85. The quotation is from page 185.]
[Footnote 20-80: See, for example, Morton Puner, "The Armed Forces: An Integration Success Story,"
_Anti-Defamation League Bulletin_, Nov 62, pp. 3, 7; and American Veterans Committee, "Audit of Negro Veterans and Servicemen," 1960.]
These important generalizations aside, the commission nevertheless offered impressive statistical support for some of Diggs"s charges when it investigated the diverse and conflicting enlistment and a.s.signment patterns of the different services. The Navy and Marine Corps came in for special criticism. Even when the complexities of mental apt.i.tude requirements and use of draftees versus enlistees (p. 522) were discounted, the commission found that these two services consistently employed a significantly smaller percentage of Negroes than the Army and Air Force. A similar disparity existed in a.s.signment procedures. The commission found that both services failed to match the record of the civilian economy in the use of Negroes in technical, mechanical, administrative, clerical, and craft fields. It suspected that the services" recruiting and testing methods intensified these differences and wondered whether they might not operate to exclude Negroes in some instances.