The work of the subcommittee on engineering saved weeks in the construction of the cantonments and was of great benefit in other ways. After submitting the reports of the local boards the subcommittee cooperated with the engineering and constructing forces of the Cantonment Division in solving problems of the camps.

also

This subcommittee, with the addition of Mr. L. B. Stillwell, prepared a report upon and made recommendations respecting standard forms of contract for employing engineers and engineering concerns as supervising engineers. (See also Contracts.) This was done in order to standardize relations and business arrangements with such engineers. These forms of contract were used by the Cantonment Division wherever outside engineering services were required and also in connection with the field work of cantonment construction.

With the commencement of cantonment construction the committee on emergency construction assisted in putting the Government quickly in touch with lines of building supplies and other materials by forming trade committees representing many of the different lines of industry. It called representatives of various industries to Washington and requested them to organize as far as practicable so that the Governemnt could deal with a single individual representing the whole of each industry. This resulted in the estab lishment of trade committees, some of which kept permanent representatives in Washington.

The committee on emergency construction also aided the Chief of the Cantonment Division in planning his organization and in securing the needed personnel to make plans and specifications; to administer and supervise the field construction; to mobilize purchases; to provide proper transportation facilities, and to organize a finance division for keeping the complex accounts necessitated by Government requirements and the unusual size of the operations. These affairs are dealt with in more detail in the section entitled "Conception and organization of the Cantonment Division."

Since the organization of this committee it has been called on for advice and assistance by branches of various Government bureaus other than the Cantonment Division and the Construction Divisionnotably by the Signal Corps, the Ordnance Department, and the Corps of Engineers. The problems submitted pertained to building construction, the selection of contractors and the prevention of duplication of effort, and bureau competition for materials, all with the view of saving time and money on construction work.

SECTION 9.

CANTONMENT DIVISION OF THE ARMY.

After the General Munitions Board of the Council of National Defense had instructed its subcommittee on emergency construction to draft a suitable contract for emergency work, and prior to the adoption of this contract, it became apparent that a Government organization unlike any then existing would be necessary properly to administer and supervise the work to be done under such contract. The construction and repair division of the Quartermaster General's office had been charged with the comparatively small amount of construction work previously undertaken by the War Department. The personnel of this division in May, 1917, consisted of Col. I. W. Littell and Capts. W. H. Oury and R. C. Marshall, jr., all of the Regular Army, and a force of 18 clerks; the technical branch of this organization being in charge of a civilian advisory architect, Mr. F. B. Wheaton, with a force of 35 engineers, draftsmen, and clerks. This division had general supervision of all construction and repair work at Regular Army posts, the renting of buildings, leasing of land, preparation and custody of historical records, and many other like

matters.

Prior to the entry of the United States into the War an increase in the Regular Army had been authorized by the national defense act, approved June 3, 1916, which provided that the Army be increased by regular increments covering a period of five years. By the spring of 1917 one increment had already been enlisted and, on account of then existing conditions, orders had been issued to enlist at once the other four increments. The instructions given to the construction and repair division of the Quartermaster Corps required that quarters for these troops be furnished at existing Army posts by building the necessary additional quarters to accommodate those not provided for by existing buildings. This necessitated the construction of barracks and quarters for about 150,000 officers and men. This division was at the time, constructing officers' training camps at various Army posts as authorized by the same act.

The figures submitted to the General Staff by the War College division, pursuant to the selective service act, called for accommodations for approximately 649,000 troops for the National Army and 438,000 troops for the National Guard, or a total of about 1,100,000 officers and men.

It was soon realized that the construction organization of the Quartermaster General's office was neither suitable nor of adequate size to handle this large amount of work.

On May 16, 1917, the Secretary of War approved the recommendation of the General Munitions Board that Col. Littell, the

officer then in charge of the preparations being made for the building of these cantonments as well as the ordinary construction and repair work of the service, should be detailed exclusively to the work of cantonment construction. This was with the understanding that he would have the cooperation and facilities of the committee on emergency construction; that the members of the committee were to act with him in such capacity as he might direct; that he should transfer his office, together with his force of subordinate officers and clerks, into rooms provided for him by the General Munitions Board in the Munsey Building, where he was to be furnished with all necessary assistants; and that all cost reports and other papers pertaining to cantonments should accompany him. By this transfer Col. Littell was to be "freed from routine duties and therefore able to devote all his time and talents to the great task ahead." It was also the expressed intention of the General Munitions Board to furnish him adequate civilian assistants. This could then be done better in the Munsey Building than in the War Department offices.

On May 19 the Cantonment Division of the Army was created, with Col. Littell as its chief, and he was granted special authority by The Adjutant General of the Army:

(1) To report direct to the Secretary of War.

(2) To communicate direct with the department and division commanders by the order of the Secretary of War.

(3) To give written instructions to civilians and to officers for all travel connected with this work, furnishing copies of same to The Adjutant General's office.

On May 22 the committee on emergency construction recommended to the Chief of the Cantonment Division that he separate the work to be done by this division into two subdivisions, placing the 32 cantonments to be occupied by the National Guard and National Army in one class, and the additional cantonments and extensions to existing Army posts to house the additions to the Regular Army in another class. It also submitted a plan of organization and chart showing these two subdivisions with Capt. Marshall in charge of the former and Capt. Oury in charge of the latter. As the latter work was already under way, the committee submitted a complete organization plan for the National Guard and National Army work, defining the duties and responsibilities of each of the departments needed therefor and recommending the personnel to head them. This organization plan was accepted by Col. Littell and promulgated as an office order on May 24.

This organization reported to the Cantonment Division chief. It consisted of an executive officer having under him four departments, viz, an engineering division, a materials division, a building or construction division, and an accounting division.

Shortly after this order went into effect Capt. Oury received another assignment and Capt. Marshall was made executive officer to the officer in charge of the Cantonment Division. His organization is dealt with under "Organization and methods adopted for emergency construction of cantonments and camps."

SECTION 10.

CONCEPTION AND ENGINEERING.

The method adopted by the committee on emergency construction and by the chief and division heads of the Cantonment Division for planning and constructing, the cantonments was to form an organization, with headquarters in Washington, commanding the services of trained specialists, all chosen from civilian ranks. This organization, acting through the engineering division of the Cantonment Division, designed and made typical plans of cantonment and camp layout, water system, sewer system, and roads, which could be readily adapted and fitted to any site or topography. It also made typical plans for cantonment and camp barracks and quarters, lighting, heating, etc.

The building division of the Cantonment Division had supervisory and directing authority over the field forces.

The accounting division supplied, supervised, and directed the division auditors in charge of the field accounting.

The materials and transportation division; with the cooperation of the materials committees of the General Munitions Board, afterwards. the War Industries Board, mobilized and expedited the delivery of a large proportion of the necessary materials.

The field work at each project was placed in charge of a constructing quartermaster, generally chosen for his past experience in civil construction operations, and who, with the advice and assistance of a civilian engineer or engineering concern, could adapt the typical plans to the needs of his particular project.

The work of this organization was greatly aided by the good team work and spirit of cooperation which was built up within it by its leaders. Special mention is due of the broad vision, knowledge of character, and good judgment shown by these men in the selection and placing of their subordinates.

In its work the Cantonment Division endeavored to help each of its departments to grasp and understand both its own functions and methods and those of every other department and bureau with which it dealt. Daily morning meetings of division heads were held with the chief of the division, at which the policies of the division, matters relating to internal and external relations and other construction

problems were solved with a minimum of misunderstandings and loss of time. Regular midday luncheon meetings by these men permitted further and informal discussions of current problems. The close association of these department heads, the intimacy with which they labored, their devotion to work, their unity of effort, and the marked absence of jealousies between them had an inspiring effect upon the remainder of the organization, which showed to an exceptional degree in enthusiasm and all-around good teamwork.

The Washington office worked day and night during the rush of building the cantonments, with two shifts of stenographers, and the department heads and other officers seldom left their desks before midnight.

Later, when its field of activities was expanded to include all Army construction work, semimonthly meetings of the entire division were held. At these, papers on methods, procedure, and other subjects of interest were read and discussed for the benefit and enlightenment of all. These were supplemented by the publication of a paper giving facts of interest concerning the policies of the division, the character and progress of projects, and the activities and personalities of many officers and civilians connected with it.

It would be difficult to find a better example of success attained by force of will and refusal to be stopped by seemingly insurmountable obstacles than the construction by the Cantonment Division, in the summer and fall of 1917, of the Army cantonments and camps.

SECTION 11.

ORGANIZATION AND METHODS ADOPTED FOR EMERGENCY CONSTRUCTION OF CANTONMENTS AND CAMPS.

OFFICE ORGANIZATION.

By office order of May 24, 1917, the organization and personnel undertaking the construction of the 16 National Army cantonments and undertaking on July 13 the construction of the 16 National Guard camps, were as follows:

Officer in charge of Cantonment Division: Col. I. W. Littell, United States Army.

Executive officer to the officer in charge: Capt. R. C. Marshall, jr., United States Army (rank later raised). In charge of all work pertaining to the 32 cantonments and camps for housing the National Guard and National Army.

Engineering officer: Maj. F. M. Gunby. In charge of the preparation of typical plans for buildings, water distribution, sewerage, drainage, electric distribution, tracks, roads, etc., also the deter