Labor
History Time
Line for the Brooklyn Navy Yard
1798: Navy Department established.*
1801: U.S. government
establishes navy yard on a tract of land it buys on the west
side
of Wallabout Bay, an indentation of the East River, in what was then
the
city of Brooklyn. The navy yard is known officially until 1946 as
the New York Navy Yard, but called the Brooklyn Navy Yard by
the
public. [The yard is renamed the New York Naval Shipyard after
World
War II.] At start, civilians often held most important
administrative positions. In 1813, command of navy yards is given
solely to line officers and by end of Civil War naval officers have
assumed most all top-level posts.*
1833: Work force
reported as a "few hundred." [New York Times, 1870]
31 March 1840:
President Martin Van Buren issues an executive order mandating a 10-hour
day with no loss of pay for all federal workers. (Spero, Government
as Employer) [Until the mid-1930s the work-week
is six days.]
1853/1854: Congress
creates a classification system for white-collar jobs in Depts. of
Treasury, War, Navy, Interior, and Post Office.
Four classes are established: 1, 2 ,3 , 4, in ascending order of pay.*
1859: Major
corruption
scandals concerning the awarding of purchasing contracts are
revealed
at Brooklyn and Philadelphia navy yards. At this time, master
mechanics,
the highest level of civilian employee in the navy yards, were often
appointed
through political patronage and could act independently of naval
management.
In addition to their influence in purchasing goods, starting in 1858* they were given authority to
hire trade workers, another source of politcal patronage and potential
corruption. When the party in Washington is different from the
party
in control of Brooklyn and/or the neighborhoods surrounding the navy
yard,
fights over patronage are often intense and often lead to charges of
favoritism
and corruption.
Periodic purchasing scandals
continue into early twentieth century.
August 1862: First
prevailing-wages
law for navy yards comes into effect, stating that hours and wages
of a navy yard are to conform as nearly as is consistent with the
public
interest with those of private establishments in its immediate
vicinity.
This determination is to be made by the commandant, subject to the
approval
of the Secretary of the Navy. (Spero, Government as Employer)
Civil War: Work
force at BNY rises to 7000. Falls to 2750 by beginning of 1866.
April 1865:
Trade workers in BNY strike for about three weeks in reaction
to
post-Civil War pay cut. Caulkers strike again briefly in September
over another attempted pay cut.
June 1865: Navy
Department institutes policy of giving war veterans preference
in
hiring in navy yards and other shore establishments.
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Eight-Hour Day Fight
1868:
Congress enacts eight-hour day for government employees.
Secretaries
of War and Navy uses ambiguity in law to reduce pay accordingly for
their
civilian employees.
1869: After
unions protest, President Ulysses Grant issues proclamation on 21 May
against
reducing pay, stating intent of law is for workers to get previous ten
hours pay for working the new eight-hour day.
1872: Grant
issues second proclamation on 13 May against reducing pay. On 18
May Congress passes joint resolution restoring lost pay to all those
denied
it.
October 1877:
Secretary of the Navy sets hours as 10 per day in spring and summer,
and
8 in fall and winter, with same pay as 10-hour day. November
1877:
Secretary reaffirms right of workers to work 8-hour days. May
work
10-hour day, at extra pay.
September 1878:
Secretary of the Navy states that 8-hour day with 10 hours pay is to be
the norm. But allows navy yards to contract for workers willing
to
work 10-hour day. In general this allows navy yards to force
employees
to work 10-hour days in spring and summer at no extra pay.
November 1881:
Workers in navy yards form united committee to press Congress to give
them
overtime pay for extra hours worked since 1877. Ex-General Butler
collects power of attorney from over 8000 navy yard employees and sues
in court in April 1882. [Court will find for workers, but
Congress
does not pass appropriation legislation to pay claim until 1934!
Eleven still-surviving BNY workers split $11,000.]
1882: Navy
yards go on eight-hour days.
1892: Congress
confirms eight-hour day for all federal employees.
1899: In response
to unions' complaints that during Spanish-American War many navy yard
workers
worked at straight-time rate on overtime, Secretary of Navy orders that
all overtime be paid at time-and-a-half.
1870: Work force
reported as being between 1500 to 2200. 1873: Numbers
working
put at 1275. [New York TImes] From about this time until
World
War I rumors periodically pop up that various navy yards may be
closed.
New Orleans and Pensacola navy yards will be closed after
Spanish-American
war ends. Pensacola is transformed into a naval air
station.
In 1883, the Washington Navy Yard is converted to a naval arsenal.
c. 1865 - 1890:
U.S. Navy falls into decline. Little new construction; navy yards
generally scrape by on repair work. Several unfinished wooden
ships
left to rot in BNY.
BNY slowly
expands in
size as southern shore of Wallabout Bay is land-filled.
April 1874:
Numbers reported working in BNY is 996.
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30 June 1876:
In response to charges that navy yards hire laborers just before
elections
in return for their votes for specified candidates and then releases
them
afterward [often having done little to no work in the duration],
Congress
passes law that forbids navy yards from increasing their forces within
60 days of a national election except when the Secretary of the Navy
rules
that it is necessary.
The Call for Reform
in Hiring
Beginning of
Reform: In June 1877 Secretary of the Navy Thompson
issues
a circular to navy yard commandants concerning President Haye's recent
warning about federal officers interfering in elections.
Political
patronage is no longer to be a factor in the hiring of laborers and
mechanics;
they can be judged only on their skill and effiency. No
discharges
are to be made for political reasons. To aid in implementing this
policy, commandants are given full responsibility for the civil
administration
of their yards, thereby excluding congressmen and other local political
leaders from decisions involving hirings and firings.
1882: Charges
that political patronage is continuing in navy yards leads the
Secretary
of Navy to begin investigation.
1883: In response
to the assassination of President Garfield in 1881 and general concerns
about corruption and patronage in the federal system, the United
States
Civil Service Commission is created by Congress. Initially,
only
a small percentage of government workers is scheduled in. The
service
is most noted for creating the "merit" system of employment, where
applicants
are rated as to their worth and hired accordingly. Employees are
to be periodically rated as to their job performance and their
resultant
efficiency ratings are used to determine raises, promotions, and
lay-offs.
But power to determine worker performance lies solely with management.
May 1884: Brooklyn
Civil Service Reform Association reports patronage is still in
extensive
use in BNY.
October 1885:
The Secretary of Navy orders civilian managers in navy yards to enforce
anti-patronage order of 1877 or risk discharge themselves. He
promises
to protect them from any political repercussions in carrying out the
policy.
September 1888: Brooklyn
Civil Service Reform Association writes to the president asking that
navy
yard employees be included in civil service, claiming that patronage is
still being practiced in BNY in both whilte- and blue-collar jobs.
1888: Just
before national elections, BNY hires 1000 workers; lets them go shortly
thereafter.
1890-1891:
New charges of patronage in BNY hiring are made.
April 1891:
Secretary of Navy Tracy orders that as of June all foremen and master
positions
in BNY will be declared "open" and that a board of naval officers will
hold exams in May to examine all applicants for these positions.
They will be judged on their skill, experience, physical fitness, and
character
and reputation. Must be U.S. citizens. Secretary will make
final recommendations.
September 1891:
New hiring rules for trade workers and laborers put into effect
at BNY. Those desiring jobs will now come to the Yard's
newly-established Labor Board*
to fill out
an application, and they will need to supply references. Then
they
are to be interviewed by an officer. If they pass, they are put
on
three weeks probation. Secretary of the Navy Tracy says
that
with U.S. commencing to build new metal warships, the Navy can no
longer
allow patronage jobs for those unable to do the work.
1892: Civilian
navy
yard workforce placed under charge of the Assistant Secretary of the Navy.*
July
1895:
Navy Department charges that Yard officials are still manipulating
regulations
to keep favored workers on the rolls.
1883: Classification
scheme for white-collar
jobs expanded to ten classes: A, B, C, D, 1, 2, 3, 4, 5, 6, in
ascending order of pay.*
1890s: BNY builds
two new dry docks on southern shore of bay. In mid-90s
the
Navy sells the south-eastern shore of Wallabout Bay to City of
Brooklyn,
which converts it into a greenmarket. The Yard creates an
armament
storage facility and extra piers on an islet in middle of bay and
builds
a causeway out to it. The yard is generally cleaned up and old
buildings
razed. New equipment and machinery purchased.
1896: White-collar
navy yard workers are incorporated into the civil service.
They
eventually become the IVb group in the navy yards' civil-service
classification.
Blue-collar workers remain outside, but the Navy Department cannot
change
work-rules without USCSC approval.
May 1897: Assistant
Secretary of the Navy Theodore Roosevelt visits BNY to investigate
continuing
charges of favoritism in hirings and dismissals. He reports that
most complaints are from aging Civil War veterans the Yard is releasing.
1902: BNY gets its
first modern building way in order to construct its first metal
battleship,
the Connecticut. It is the first of a series of BNY
battleships
that continues into early 1920s. 1909-1912: Builds fourth
dry dock.
1901: Congress
grants 15 days leave with pay (vacation) to government trade
workers.
White-collar federal workers have had it since late nineteenth century.
1901-1910: Series
of "gag-orders" proclaimed by executive order by Presidents
Roosevelt
and Taft. Prevents federal employees from lobbying or taking
grievances
to anybody except their immediate supervisors. Appears primarily
directed at solely-federal-employee organizations such as postal
employees.
Doubt has been expressed whether the gags were applied against
blue-collar
workers.
1904: Government
grants the Saturday-half holiday [four-hour day with eight-hours pay]
during
the summer months to DC employees, including those in the Washington
Navy
Yard. 1908: Extended to the field service,
including
BNY. [Note: federal employees worked a 48-hour, 6-day week at this
time.]
1908: Modest
injury compensation package is passed by Congress.
1909: White-collar
employees granted paid sick leave.
May 1909: BNY
labor leaders charge that in economy measure President Roosevelt had
sanctioned
laying off workers during depression and then hiring them back at lower
rates of pay.
June 1909: BNY
opens first
restaurant for workers.
June 1911: BNY
numbers reported at 4500. October 1914: Rolls up to 5000. [New
York Times]
1912: Lloyd-LaFollette
Act passed. Gives federal employees the right to openly join
unions and calls for "due-process" in discipline. This law does not
grant unions the right to formal recognition in the federal sector; it
only allows for government workers to be union members without
retribution
and for them and their unions to openly petition management and the
government
for redress of grievances. As such, Congressional lobbying
becomes
the primary tool for federal employees and their unions to advance
their
agenda. The act also says government workers cannot belong to
organizations
advocating the right to strike the federal government.
8 December 1912:
Blue-collar navy yard workers are incorporated into the civil service
by
an executive order of President Taft, to take effect by 30 June
1913.
They retain those older labor relations mechanisms, such as wage
boards,
that are in place at time of incorporation. In effect, these
workers,
in Groups I, II, III, and IVa, become a subgroup of the overall CSC.
1912-1917: U.S.
Government and Civil Service begin devising an "efficiency rating
system"
to systematically judge all workers on their performance. Put
aside
during World War I.
Autumn 1915:
Assistant Secretary of the Navy Franklin Roosevelt opens up national
wage
board hearings to labor representatives. [Wage boards are
suspended
during U.S. involvement in World War I.]
1915: Union
pressure causes Congress to outlaw use of scientific managment
in
navy yards and arsenals.
1916: Extensive
worker
compensation program enacted for federal employees
Leave
with pay increased to 30 days per year.
February 1917: Photo
IDs issued for first time to BNY workers. Number working at
Yard
up to 7000. [New York Times]
World War I:
BNY continues
to build battleships, assembles about 60 wooden subchasers, and serves
as a major repair yard. BNY's building way is lengthened
and
a second one added next to it.
February 1917:
Work is ordered to be speeded up at navy yards.
Workers put on 10-hour
days and given time-and-a-half overtime pay.
Navy yards go on a seven-day
week after war is declared and remain on it until November 1918.
Rolls increase to almost
20,000.
Navy brings large number
of WAVEs into navy yards and Department office. They
perform mostly administrative
work.
Wages: Wage
boards suspended. Congress grants naval employees raises
in
March 1917 to all earning under $1800 per year. During the
war, wage adjustments are made by the Shipbuilding Labor Adjustment
Board of the Emergency Fleet Corporation. LAB continues to
make
awards until September 1920. Awards made in November 1918 are
substantial,
up to 33%.
1918: Beneficial
Suggestions program begins in navy yards; very modest awards given out.
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September 1921:
Wage boards reconvene. The next wage adjustment is made during a
depression, and navy yard workers receive about a 12% drop in wages.
<>In adjustments in May
and July 1923 their previous rates are restored.
January 1924:
wage adjustments return to an annual cycle.
1920: Pensions
instituted by federal government for its employees.
1920: Navy yards
continue production levels for two years after war's end. Then,
after
Washington naval disarmament treaty is signed, they start discharging
workers in huge numbers. 10,000 released in BNY by summer of
1921.
1921:
Navy Department establishes Navy Yard
Division to handle civilian personnel matters. Renamed Shore
Establishments Division in 1934.*
July 1921 - November
1922: Navy yards placed on 5-day week as a
work-spreading
measure. Continuous protest by BNY workers and their unions, as
well
as other navy yard workers, and the AFL.
1921-1924: A
new efficiency rating system
brought
into civil service. Methods of rating workers' efficiency will be
continually changed from this time forth.
1922: Navy Department
institutes internal "shop committees
system"
to handle labor relations with its civilian workers. Labor unions
at first dominate the committees but are unable to forbid non-union
workers
from being elected. By the end of the decade, unions are
boycotting
the system, calling the committees company unions. But under
Lloyd-Lafollette
Act, union representatives can still have unoffical talks with navy
yard
management.
1922, 1930: Washington
and London naval disarmament treaties cut
world navies down to smaller sizes and set limits and prohibitions on
what
kinds of warships can be built in future. Further, the three
Republican
administrations of 1921-1933 emphasize parsimony in naval budget.
U.S. navy declines rapidly and only a small amount of new construction
is authorized, mostly cruisers and battleship modernization. Work
rolls in all navy yards drop sharply. December 1921:
BNY rolls down to 5000. Will hover around 3500 for most of 1920s.
1923: Classification
Act is passed by Congress to standardize
job classifications and pay
rates for all white-collar workers [IVbs in navy yards] in District
of
Columbia. Whilte-collar positions are authorized and appropriated
for individually by Congress, unlike blue-collar positions which are
paid
for en masse and pro rata out of various construction and repair
budgets
allocated to each navy yard.
1928: Welch
Act authorizes field service [non-D.C. federal workers] to survey
their
white-collar workers and bring their jobs into accordance with
Classification
Act.
1922 - 1930: With
exception of one new cruiser, the BNY functions primarily as a repair
yard
in the 1920s. Demolishing the two unfinished battleships halted
due
to the disarmament treaty also provides some work. Throughout
this
period navy yard workers and unions lobby Congress constantly for more
construction and repair work.
February 1929:
Congress passes Dallinger amendment to naval appropriations
bill.
Calls for new warship construction to be evenly divided between navy
yards
and private shipyards. With some exceptions, some variation of
this
language is included in all new naval construction bills throughout
1930s.
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Great Depression Years
Note:
Federal workers are excluded by law from most of the famous labor
legislation
of these years:
(a) the Norris-LaGuardia
Act of 1931, which decriminalized unions;
(b) the NIRA, passed
in June 1933, which permitted in its section 7(a) the right for workers
to organize;
(c) the Wagner Act
of 1935, which finally fully legalized labor unions;
(d) the Social Security
Act of 1937 [government workers had acquired a pension plan of
their
own in 1920];
(e) the Fair Labor Standards
Act (FSLA) of 1938, which established the minimum wage and the
forty-hour
work week; and,
(f) the Bacon-Davis
(1931) and Walsh-Healey (1936) Acts, which set minimum
wage
and work standards for work contracted out to private industry by the
federal
government.
1930 - 1936: New construction
consists of cruisers and smaller naval and coast guard vessels.
November 1929: In
response to the stock-market crash, the Secretary of the Navy
unilaterally
extends the 1929 wage schedule through 1930. Wage
boards will not meet again until 1940.
May 1930: Congress
raises annual pensions for federal employees from $1000 to $1200, and
lowers
the retirement age for trade workers from 65 to 62, and for most of the
IVbs from 68 to 65. Anyone with thirty years of service is
allowed
to retire at 60.
July 1930: Congress
passes the
Brookhart Act, which authorizes raises for white-collar
workers and then freezes their salaries. No further schedule-wide
pay raises for white-collars [IVbs in navy yards] are awarded until
World
War II. In interim, Navy Department uses various accounting
mechanisms
to make money available for selected raises.
August 1930: Downgrading
of trade classifications begins. In reviewing data
from
the navy yards the Secretary of the Navy notices that a large
proportion
of the trade workers in each yard are in the maximum job
classification.
[Trades have three rates: maximum, intermediate, and minimum; also
called
first-class, second-class, and third class, the second class being paid
less than first and the third being paid less than second.] This
is due in part to the Navy's policy of keeping a core of top-rated
workers
on the rolls during the hard times of the 1920s.
The Secretary orders each
yard's Commandant to start a process by which a more even distribution
of each yard's trades' classifications is to be obtained.
Throughout
the 1930s this is slowly done, mostly by laying off higher-class
workers
and then rehiring them or others in at a lower rate.
Throughout the 1930s
workers
and unions accuse navy yards of deliberately manipulating efficiency
ratings
in order to justify individual layoffs.
September 1930:
Workforce at BNY, at 3900 in March 1929, falls to all-time low
of
just under 3000. New York Times puts the number at
2700.
[Civil service regulations allow for agencies to keep those on
temporary
lay-off lists (those expected to be recalled within 6 months) on the
official
work rolls.] Navy Department comes under intense political
pressure
to keep layoffs to minimum.
3 March 1931:
The Saturday half-holiday is extended to the entire year for
all
federal workers as a means to spread work. [Employees work a
5½-day
week of 44 hours and receive 48 hours pay.]
30 December 1931:
Navy Department establishes a minimum and maximum work-force level
for each navy yard. BNY's is set at 3000-3600. By the
summer
of 1934, with new work, BNY's rolls rise above 4000 and begin a slow
rise
toward their World War II peak.
The fight over wages
and hours
1 July 1932:
The Economy Act,
covering all federal employees, is passed by Congress. The
Act reduces the work week to 5 days/40 hours, at 44 hours pay, an 8.3%
reduction. The Act also cancels all vacation time [then 30 days
per
year] for one year, another effective cut in pay. It prohibits
all
promotions and new hires. [When restored, vacation is limited to
two weeks.]
Section 213 of Act
further
specifies that in administering reductions in force (RIFs) any married
person living with his or her spouse who was in a class to be reduced,
is to be dismissed before any other persons in that class, if the
spouse
is also in the service of the federal government or the District of
Columbia.
[The Secretary of the
Navy
shortly thereafter reclassifies all navy yard employees as "temporary,"
to exempt them from the hiring prohibition.]
October 1932:
After petitioning by workers, the Navy Department authorizes navy yards
to rotate work among trade workers in navy yards as a way to
avoid
outright layoffs. This policy is in opposition to civil service
regulations.
Rotation is used periodically until 1937.
April 1933: Franklin
Roosevelt's ascendacy to the presidency initially makes the situation
worse.
One of Congress's first acts is to return the work week to 5½
days/44
hours, but at 40 hours pay, making the total cut in pay now 15%.
August 1933:
The Navy Department announces another cut-back: this time to a
5-day/40-hour
week, at 32 hours pay, making the total cut now 33%.
September 1933:
After much protest, the Navy restores its previous month's pay
cut.
Navy yards go on a rotating schedule that alternates a 5½-day
week
with a 4½-day week, with the yards closed every other Monday.
April 1934:
Under intense labor lobbying Congress passes over FDR's veto a new
appropriation
act that in the "Thomas" amendment sets the work week for
federal
employees covered by wage boards [the blue-collar workers] at 5 days/40
hours at 48 hours of pay, in effect creating the 40-hour work week for
federal trade workers several years before the FSLA is passed.
Congress
further rescinds 5% of the pay cut and legislates two further annual 5%
rescinsions. The act also states that if the Navy Department
convenes
any Wage Boards, it cannot recommend wages lower than those in the 1929
schedule.
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June 1933: National
Industrial Recovery Act is enacted. Among its many
provisions,
$238,000,000 is allocated to build warships as a public works project.
March 1934:
First Vinson-Trammell Act is passed. It authorizes a
five-year
program to build U.S. navy up to treaty limits with new ships.
Most
of navy's old destroyers and submarines are replaced by this
construction.
This new construction revives navy yards and private shipyards and also
lays the groundwork for a new CIO union, the Industrial Union of Marine
and Shipworkers of America (IUMSWA) to emerge in the private
yards.
1933 - 1942:
Thousands of unemployed workers take WPA and other public-assistance
jobs in the BNY. They perform clerical duties and
basic
repair and maintenance in shops. Later on, they help to construct
new facilities in Yard. 1939 - 1943: Thousands of
workers
are hired by
outside contractors to build new facilities such as
new dry docks and assembling buildings, when BNY expands to east side
of
Wallabout Bay.
July 1936: Per
March 1936 act, vacation for federal employees is expanded to
26
days. Also, for first time, blue-collar workers are given paid
sick leave.
September 1937:
Newly-hired
laborers [Grade I workers], heretofore outside of civil
service are now to be incorporated into civil service.
1936: London
disarmament conference talks are inconclusive, as Japan refuses to
sign accord. President Roosevelt orders construction of new
battleships,
prohibited under the previous treaties, to begin.
1937: BNY
lays keel of battleship
North Carolina. From then until 1960
all new construction in BNY consists of battleships and aricraft
carriers
[except for eight LSTs built during World War II].
26 July 1937:
Congress repeals
Section 213 of Economy Act, so-called "marriage
clause." Despite supposedly gender-neutrality of the
legislation's
language, women were overwhelmingly discharged as opposed to men.
Clause seems to have little application in navy yards.
17 May 1938: Second
Vinson naval construction bill is passed. It authorizes the
Navy
to build up to 10% over the treaty limits. 1940: Third
Vinson
bill is passed, increasing the size of the Navy by another
11%.
After the fall of France in May, a fourth Vinson bill
is
enacted, calling for an additional 70% enlargement of the Navy.
April 1938:
The Chief Examiner of the Civil Service Commission, in Washington,
releases
a report indicting many in civilian management at BNY of hiring
frauds.
Over previous several years 155 BNY workers are accused of submitting
false
information on their job applications and CSC orders that they be
fired.
For enabling employees to submit falsehoods, generally by verifying
false
statements made on applications by others, another sixty-eight workers
in the Yard are suspended for periods from three to 30 days. In
addition,
the Commission and Department handed down instructions to reorganize
the
Yard's Labor Board [hiring office]. Report points to a near
collapse
in the civil service regulations as to hiring on the part of civilian
management
and a lack of appropriate supervision on the part of the local navy and
commission offices. BNY institutes overhaul of its hiring
procedures.
June 1938: Upon
recommendation of Civil Service Commission, President Roosevelt issues
executive order directing that each executive agency and department
establish a personnel office. Navy Department establishes Division of Personnel Supervision and
Management, which exists along side of SED.*
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1939 - 1941 - The
navy yards prepare for war: As navy yard rolls increase
almost
exponentially, due to the huge upsurge in warship production brought
about
by the international tensions that finally lead to the outbreak of war
in Europe in September 1939, they find they no longer can hire enough
skilled
labor. Shortly after the war begins, President Roosevelt declares
a "limited emergency" to exist. The Navy Department, Civil
Service,
and the federal government undertake a series of actions to
increase
their labor supply. These measures increase in scope after
fall
of France in May 1940. Among the many actions are:
Changes in Hiring Procedures:
- Hiring
some people without resort to civil service regulations. Shortly
after the U.S. enters
World War II all navy yard employees are hired as these "unclassified
appointments."
- Increasing
the number of people hired as "temporaries."
- Lowering
the hiring age and raising the retiring age.
- Loosening
the minimal physical requirments to be hired.
- Requesting
that private shipyards and ordering navy yards not to "poach" from each
other.
New Training and Job
De-Classification:
- More
Apprentices
are
brought on in each trade.
- "In-Service
Training" is provided to many to upgrade skills.
- The new
position of "Helper-Trainee" is created. This is a Grade
II
position in which people are
given a crash course in a particular aspect of an overall skill and
then
promoted to Grade III.
Applicants still need to fulfill basic entry and civil-service
requirements.
Trade workers and their
unions protest this as a dilution of their job descriptions.
- Still
in need of help, a further diluted position, the "Mechanic-Learner"
is created for the navy yards.
These are for people basically without previously-needed minimal
requirements
for navy yard jobs. Workers hired under this title are given all their job
training from scratch
in a particular job task
and are classified as Grade II. This is the job title under which
most unskilled unclassifed positions
are created for World War II.
Hours and Benefits
are Changed:
May
1940: President Roosevelt authorizes the work week to be
expanded
up to 48 hours per week, including work on Sundays; those hours over
40 are to be
paid at overtime rates. Shift work is also encouraged.
August
1940: 7000 of 15,000 then working in BNY are on a six-day
week.
15
January 1941: Navy Department authorizes navy yards to
establish
a six-day, forty-eight-hour
work week for almost all workers and to build up their second and
third
shifts. Permission is
granted to work over 48 hours per week if necessary.
30
July 1941: President issues an executive order authorizing
overtime
pay for those lower-level IVbs
who up to then were not legally entitled to it and had worked overtime
without pay.
December
1941: In BNY, 20.2% of workers are on a 56-hour,
seven-day
work week; another 20.4%
work 61 hours per week.
Leaves:
28
June 1940: Omnibus defense bill passes. It allows navy
employees whose work is considered necessary to work through their
vacations during the emergency and still
receive vacation pay, i.e., receive double-pay, but Department does not
immediately implement
the new policy.
February
1941: Navy Department orders that vacation and unpaid leave
can
be granted in increments of not less than one week, as finding
replacements for shorter
periods has become
too difficult.
5
July 1941: President Roosevelt issues executive order to
extend
this practice to the entire federal service. The EO also
allows agencies to deny vacations if felt necessary
and pay double for vacation days worked.
New Sources of Labor
Introduced:
By the
summer of 1941 the ready supply of white, male, skilled and
semi-skilled
labor has dried up, and the government and private business are forced
to turn to new sources of labor previously prohibited from
participating,
or at least in more than minimal numbers, in the manufacturing sector.
June
1941: The Civil Service Commission suggests to all
government
agencies that they hire and train women where ever a labor shortage exists.
September
1941: The Navy Department urges naval appointing officers to
hire women wherever possible to combat labor shortages and to provide the women
with appropriate
training, which could include pre-employment vocational schooling.
During
the 1930s the BNY had a small percentage of women
workers,
2 -3% of the total force, almost all in administrative
positions. There was one shop, the Flag Loft,
that employed women
exclusively.
African-Americans:
25
June 1941: President Roosevelt issues Executive Order 8802,
stating that as discriminatory
hiring practices hindered defense production and harmed morale, that
the
government “reaffirmed”
its policy of not discriminating in employing workers in government or
defense industries for
reasons of race, creed, color, or national origin. Further, it
was
the duty of employers and labor
organizations to provide for the “full and equitable participation of
all
workers in defense industries.”
All government agencies involved in defense production had
to take “special
measures” to assure their programs did not discriminate.
The
Committee on Fair Employment
Practice is created toadminister the new policy.
Fall
1941: The Navy Department issues regulations to conform with
the new decree.
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Summer 1939:
Congress passes the Hatch Act. This law strengthens
previous
Civil-Service restrictions against federal employees taking part in
politics
by prohibiting them from taking any “active” part in political
campaigns
or in their management, although they do retain the right to vote and
express
their political opinions as they choose. Whereas infractions were
previously only considered violations of civil-service regulations, now
such violations are made illegal. Section 9a of the Hatch
Act revises federal workers' right to their own personal political
opinions
by specifically prohibiting government employees from having
“membership
in any political party or organization which advocates the overthrow of
our constitutional form of government in the United States.”
Agencies
can not hire, and if already employed they have to fire, members of
groups
such as the communist party, Nazi party, or the German bund.
June 1940: The
CSC gives the Navy Department permission to revise hiring procedure for
trade workers and allow local work sites to reject candidates
without
giving an explanation. In addition to lack of ability, any
U.S.
defense agency can now reject someone if that person is already
employed
in a private defense position, or if the department suspects the
individual
of disloyalty to the U.S. due to any subversive activities, suspected
affiliation
with proscribed groups, for birth in certain foreign countries, and for
extended residence in, or numerous visits to, certain foreign
countries,
as well as membership in Hatch-proscribed organizations.
28 June 1940:
In the omnibus defense act passed on this date is a clause that allows
the War and Navy Departments to suspend their civilian employees' Lloyd-LaFollette
rights [1912] if it is felt it is necessary to do for national
security
reasons. This severely restricts federal employees' right to due
process in terminations made for "security" reasons.
In 1940,
the size of the BNY's
police
force triples. All people entering Yard, civilian or military,
are
ordered to produce ID badges or face arrest.
June
1941: On the basis of a clause applicable to all federal
employees
in new appropriation bill, the Navy Department issues order that all
present
employees and new hires must sign affidavits before a notary public
stating
that they do not belong to a subversive organization advocating the
violent
overthrow of the American government.
Winter 1940:
Navy yards hold first wage-board hearings since 1929. From Summer
to Fall of June 1940, the national Wage Board meets in
Washington.
In November 1940 Secretary of the Navy announces very small
increases,
outraging organized labor and most workers.
November 1940 - June 1941:
The newly-created Shipbuilding Stabilization Committee, with
representatives
from the Office of Personnel Management (OPM), the Navy Department, the
Maritime Commission, the private shipbuilding industry, and the AFL and
CIO, negotiate four zonal wage standards for private shipbuilding
industry.
In June 1941, a schedule for East Coast shipyards is announced,
awarding
generous raises.
October 1941:
Based upon SSC awards, the Secretary of the Navy unilaterally announces
a new wage schedule for trades in the navy yards that equalizes
wages for all east coast yards. Accordingly, some raises are
quite
significant.
September 1940: Congress
passes the Selective Training and Service Act, America's first
peacetime
draft. The law requires all men between 21 and 35 to register and
for 1.2 million to be drafted for a one year of service. Its
passage
reduces the traditional pool of shipyard labor. The law
guarantees
that government workers who are drafted or who volunteer under the
terms
set out in the law will be restored to their old job or one of “like
seniority,
status, and pay.” In addition, on the first year back on the job
the restored person can be discharged only for cause. The law
grants
deferment only to those “whose employment in industry, agriculture or
other
occupations or employment . . . is found . . . to be necessary to the
maintenance
of the national health, safety, or interest,” this decision to be made
by the local draft board. In October 1941, Congress
extends
the draft for another eighteen months.
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Page
World War II
7 December 1941: U.S.
enters World War II. Among the several battleships sunk at
Pearl
Harbor is the Arizona, built at the BNY. During the war,
the
BNY
finishes two battleships begun before the U.S. entry into the war.
[Another
one was finished in April 1941.] The Yard builds two aircraft
carriers
during the war and finishes two others within seven months of the war's
end. It also builds eight LSTs: tank carriers. In addition
to finishing up and equipping warships built by private shipyards in
the
metropolitan area the BNY is a major repair yard.
At the peak of the war the
BNY
employs 68,000 workers and has annexes throughout the Port, including a
seventh dry dock at Bayonne, New Jersey.
March 1942:
The Navy Department, with CSC approval, abandons civil-service hiring
procedures
for most jobs. It hires workers as unclassified
appointments,
for the "duration and six months." Virtually anyone meeting
minimal
physical requirements and age limits can get a job at a navy yard.
Labor Recognition: [Federal
workers and their workers pledge full cooperation for the war
effort.
Unions in private industry pledge not to strike during war.] August
1942: Navy Department sets up local and national labor-managment
committees with elected worker representatives. First
national
meeting is in October. This amounts to de facto union recognition
for federal trade workers for the duration of the war, but does not
include
the so-called "maintenance" agreements signed with unions in private
sector.
Wages: During
the war Navy Department initially continues to determine wage increases
in context of those awarded by SSC [July 1942] but soon switches to
using
local wage surveys to adjust civilian wages.
Health and Safety:
Asbestos
as a shipbuilding product is extensively used in war years.
With the huge increase in numbers of people working in navy yards,
exposure
rate to the mineral, especially in repair work, is wide-spread.
While
some precautions were taken in Yard shops as to the cutting and
handling
of asbestos materials [the disease asbestosis was recognized early in
the
20th century] before the war began, virtually nothing is done to
protect
civilian workers aboard ships under repair or construction.
February 1942: Payroll
deductions for war bonds begins.
February 1942:
Navy Department awards BNY an "E" [for excellence] pennant.
In August the Yard is awarded the first of many continuing excellence
stars
to the pennant
4 July 1942:
The BNY remains open on Independence Day. From
then
on, it and other navy yards work all holidays for the duration of war.
August 1942: Women
begin working in trade jobs in the Brooklyn Navy Yard. The
initial
group of 125 is hired through lengthy civil service procedures begun
before
March 1942. After this date, women are hired as
unclassifieds.
By January 1945 the the BNY has 4657 women in production work
[3.4%
of total force] and about 2300 women in IVb jobs. It is the
smallest
perecentage of women in trade work of any navy yard. After the
war
ends, almost all are laid off within six months.
African-American workers
in the BNY during World War II: Before the war, the
percentage
of black workers in Yard is small. In 1934, they are
approximately
6.2% of the total force; about half are in Grade I and there are none
in
managerial trade positions. As the Yard work force increases by
large
numbers in the late 1930s, the black percentage does not keep up and
falls
to 3% by the end of 1940.
By June
1941, the percentage is about 3.7.
Of the
first 125 women hired in 1942, twelve are African-American.
During
the war about 5500 black and other minority workers are employed in the
BNY. As most are
hired as unclassifieds,
they are released within six months of end of war.
By 1948
the proportion of minority workers at the yard is about two per cent.
Over
the
next 16 years, the proportion of black workers at the BNY slowly
rises until at the time of the
announcement of Yard's
closing, they represent almost 20% of the Yard's
force.
FEPC: From 1943
to 1945, 83
FEPC cases are filed involving the Brooklyn Navy Yard:
44 by black men; 18 by black women; 19 by Jewish men; and two by
others.
Of these, 54 are dismissed by the FEPC on their merits; 7 are withdrawn
by the complainants, and 22 are deemed by the complainant to be
satisfactorily
adjusted.
Surveillance: The
Navy Department had always conducted some surveillance of its civilian
workers, such as with German-Americans in World War I. During the
1920s and 1930s the CPUSA and other leftist organizations try to
organize
in the BNY, drawing official attention. As international tensions
rise in the late 1930s and war breaks out in Europe, surveillance is
increased
drastically in the BNY and other federal defense plants. The CSC
conducts investigations on job applicants and the FBI, local police,
and
Naval Intelligence conduct investigations on employees on an increasing
scale, especially after U.S. enters the war. In particular,
German
and Italian sympathizers are sought for, as well as communists and
other
leftists. Certain unions, like the BNY branch of the CIO FAECT
[Federation
of Architects, Engineers, Chemists, and Technicians], who are active
among
the Yard's draftsmen, come under particular scrutiny and punitive
action.
1943: In order
to help finance the war, the federal income tax is extended to
most
of the working population and withholding is introduced as the
primary
means of collecting it.
March 1943: Absenteeism
in defense work, including navy yards, attracts Congressional
attention.
It remains a problem throughout war and Congress considers various
remedies
to combat it, including drafting workers into federal defense work.
In general,
navy yard and other federal defense workers are urged under the banner
of patriotism to maximize their production and keep their complaints to
a minimum. To help keep workers' morale high and to boost the selling
of
war bonds, the BNY sponsors lunch-time rallies, entertainment, and
boxing
events.
The Draft: The
government grants deferments for the war's duration to navy yard
positions
as well as other defense jobs.
June
1944: Congress passes the Veterans' Preference Act, which
strengthens
the rights of ex-federal employee veterans to return to their
government
jobs. It gives them reinstatement rights to any job for which
they
are qualified, with no time limits for applying. In 1945,
fifteen per cent of government workers have veteran preference.
By
1949,
the percentage has risen to fourty-seven per cent. This policy
creates
much strife in navy yards such as the BNY as many
draft-deferred
workers are let go after war's end.
V-E Day, 7 May 1945:
The war in Europe ends. People begin quitting their jobs at a
rate
of up to 1000 per week in the BNY over the next four months, impelling
the Yard to intensify its recruitment drives over the summer.
July 1945: Labor
conditions in BNY draw national attention. The BNY and other
navy yards are charged, among other things, with hoarding labor and not
using their work forces effectively. It is found that the large
influx
of workers into the navy yards, many with little shipyard background,
trade
or managerial, has caused the efficiency of navy yards to drop.
The
House of Representatives
Naval Subcommittee issues a report
calling for: a drastic revision of the grievance procedure to permit
prompt
and impartial settlement of differences; a simplification of the
efficiency
rating system for blue-collar workers to make it more easily understood
by them; an adjustment of wages to reduce to a minimum the differences
between navy yard and private industry; and, an improvement in food
service
and transportation services. Problems in the last two areas are
blamed
for workers' "whistle-jumping" and "clock watching." The Yard had been
attempting to control these actions through police and disciplinary
action.
V-J Day, 15 August 1945:
War ends in the Pacific. BNY and other navy yards
close for
two days in celebration. On 1 September, the peace treaty
with Japan is signed on board the Missouri, another battleship
built
at the BNY.
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September 1945:
Navy yards revert to a 40-hour, 5-day work week.
1946-1952: The
BNY
performs only repair work. By late 1950 the Yard's rolls are at
about
one-fifth its war-time peak. In 1950, in response to outbreak of
the Korean Warit the Yard does finish one carrier it had started during
World War II. From under 10,000, BNY's rolls increase to almost
20,000
for war's duration. Numbers are reduced 15,000-16,000 through
most
of rest of 1950s. Drops down to about 13,000 by 1960 and 10,000
by
1964.
During the 1950s the competition
between navy yards and private shipyards becomes intense as the latter
has an excess capacity from the war years. Before their merger in
1955 this competition extends even to AFL and CIO unions: the former
strong
in the navy yards and the latter with a strong presence in the private
shipyards.
1946: The Navy
Department reinstitutes local
wage boards for setting trades' wages,
this time in coordination with the national office. It also
reinstates
the shop committee system.
1946-1947: Legislation
is passed to prohibit the right to strike to federal
employees.
Up to this point, under Lloyd-LaFollette provisions, federal workers
could
not belong to organizations advocating the right to strike the
government.
In its 1946
appropriations bill Congress fnow forbids government
employees themselves the right to strike the government. This
restriction
is codified in Taft-Hartley Act of 1947 and has been adjusted
in
different laws subsequently.
1949: The Classification
Act of 1949 reduces the number of white-collar [IVb in the navy
yards]
general classifications from five to two and reduces the number of
grades
within them.
1952-1961:
The BNY constructs 3 aircraft carriers.
19 December 1960:
Fire breaks out on the U.S.S. Constellation, then
being
fitted out at a pier in the BNY. 4000 workers are working
on it when a forklift driver bumps into a kerosene drum. The
spilled
liquid falls through holes in the deck and on a lower deck is ignited
by
a welding torch. The fire burns for most of the day, fueled by
wood
planks on scaffolding and cans of paints then on board ship.
Confusion
between navy yard firefighters and the NYFD on fire-fighting procedures
adds to the mishap. The NY Fire Department blames naval
sloppiness
for fire. Toll: 50 killed; 150 injured. The Navy
Department
orders that fuel tanks be kept off ship, flammable liquids be kept to a
minimum on board ship, and that wooden planks used for scaffolding be
treated
to make them fire-resistant. Temporay wooden structures, like
offices,
are to be constructed only on open decks. Better coordination
with
the NYPD is to be worked out. A Navy court of inquiry finds no
one
personally is to be blamed. The fire causes the ship's
commissioning
to be delayed for seven months. Additional accidents will kill
six
more workers on Constellation before it is completely finished.
1960-1965: The
Yard constructs 6 ATDs, troop-landing vessels.
1962: The Government
adopts the prevailing-wage concept for its entire workforce in
the
Salary
Reform Act. It sets salaries according to data found by
annual
surveys of the Bureau of Labor Statistics, an office of the Department
of Labor.
January 1962:
President Kennedy issues an executive order granting federal
workers
the right to formal recognition, and with it the right to
bargain
over all concerns not already covered by legislation [such as wages].
August
1962: In the BNY, the Brooklyn Metal Trades Committee
wins recognition election and begins negotiating its first contract.
The End of the Brooklyn
Navy Yard:
Winter 1961:
Rumors begin to float that the BNY is to be closed. Over
the
next four years the AFL-CIO and its Metal Trades Department, the BMTC
and
its unions and their members, as well as local business and political
interests
lobby Congress and the President to keep the Yard open.
Navy yards are consistently
condemned as being more expensive than private shipyards, especially as
to their labor costs. Many private shipyards at this date are in
the South and have no, or company, unions, while navy yards are
pressured
to pay close to union wages.
By July 1964 the BNY's rolls
fall below 10,000 workers.
20 November 1964:
[After the presidential election] DoD Secretary McNamara announces that
the Navy will
close two navy yards as economy measure: Portsmouth
[over ten years], and the
Brooklyn Navy Yard [in eighteen months].
Portsmouth is later spared. Today only it, Norfolk, Puget Sound,
and Pearl Harbor
are the only remaining navy yards.
Yard rolls then stand at
9600.
Until closing, the Navy
transfers willing workers to other shore establishments.
Many attempts are made to save the BNY but all fail.
25 June 1966: The
Brooklyn
Navy Yard is closed.
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-
- - - - -
7 February 1969:
After long negotiations New York City takes possession of the
BNY
site from federal government, with the intention of turning it into an
industrial park. The sale is confirmed in November.
September 1972:
Dr. Irving J Selikoff of Mount Sinai hospital warns of possible latent
asbestos
perils to shipyard workers.
1986: New York
State passes a law that reopens the statute of limitations on filing
for
damages from exposure to asbestos, DES, and other toxic
chemicals.
After courts rule that the U. S. government can not be sued [under the
sovereignty doctrine] for the unsafe use of asbestos in its defense
plants,
such as the BNY, during World War II and after, many plaintiffs
sue the private companies that provided asbestos products to the BNY
and
other navy yards.
------------------------------------------------
Notes: These entries
are drawn from local and national federal archives, other public
documents,
various unions' journals, New York newspapers, and selected secondary
sources.
John R Stobo
© January 2004; October
2004; June
2005*