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CKAPTER 2HISTORICAL AND LEGISLATIVEBACKGROUNDOF THE ENLISTEDAID PROGRAMEnlistedaides have been provided to officersof theUnited States Armed Forces since the RevoluntionaryWar.In the early days of the program, company grade officershad enlistedaides.Today only admirals,generals,and someNavy captainsare authorizedaides.ARMY AND AIR FORCEThe earliestlaw we identifiedpertainingto enlistedaides was the act of July 17, 1862 (chapter 200, 12 Stat,594) * This act provided"That whenever an officerof the army shall employ a soldieras his servant he shall,for eachand every month during which said soldiershallbe so employed, deduct from his own monthly paythe fullamount paid to or expended by the Government per month on account of said soldier."The act also provided "* * * that every officerof the armywho shall failto make such deduction shall,on convictionthereofbefore a general court-martial,be cashiered."Wedo not know if these provisionsof the act were ever enforced.Section 14 of the act of July 15, 1870 (chapter 294,16 Stat.319) replaced the 1862 law.The 1870 law merelyprobibitsan officerfrom using an Army enlistedman as aservant.We know of no specificstatutepresentlyin effectwhich requiresan officerto pay the Government for the valueof the service for using an enlistedman as his servant.The 1870 law is the source statuteof the present lawprohibitingArmy and Air Force officersfrom using enlistedmen as servants(10 U.S.C. 3639 and 8639, respectively;seeIVforcopiesofthesecodes).The legislativeintentaPP*of the 1870 law was consideredat length in the case of theUnited States v. Robinson, 6 USCMA 347, 20 CMR 63 (1955).I

The courtconcludedit was not the intentof Congresstopreventan enlistedman from laboringfor officersto furtherthe officer’smilitaryduties.The courtconcludedthatifan essentialmilitarypurposeis served by an officer’smess(the case involvedduty in such a mess),then employmentof enlistedmen thereindoes not violatethe statute.The courtheld “servant”in 10 U.S.C.3639 and 8639 tomean one who laborsor exertshimselffor the personalbenefitof an officer.Thus, whilethe laws prohibitthe useof Army or Air Force enlistedmen as servants,thisprohibitiondoes not apply to many of theirtaskseven thoughtheymay directlybenefitan officerand are the same as thoseperformedby a servant.The decisioncitedexamplesof duties which an enlistedman mightbe directedto performandwhich would directlybenefitthe officerbut would not fallwithinthe restrictionof the law.A cook aboard a shipmay be directedto cook for the captain,and a vehicledrivermay be directedto chauffeurhis commander to a givendestination.NAVY AND MARINE CORPSThe statutepertainingto the use of enlistedmen byNavy officers,10 U.&C.7579, authorizesNavy enlistedmento be assignedin a servicecapacityin officers’messesand publicquarters.(See app. IV for a copy of the code,)This code also appliesto the Marine Corps since it is partof the Navy.The source statutefor 10 U.S.C.7579 is section16(b)of the act of August2, 1946 (chapter756, 60 Stat.855),which enactedintopermanentlaw a provisoformerlycontainedin severalnavalappropriationacts.The provisopermitteda limitednumber of enlistedmen to performservices in publicquarters(Government-ownedhousing)of certainofficersand in messes temporarilyset up on shore forofficersattachedto specificunitsand such bachelorofficers9 quartersand messes as were specificallydesignatedby the Secretaryof the Navy.The provisoprohibitedanyenlistedman or civilianemployeefrom performingservicesin the residenceor quartersof an officeron shore as acook, waiter,or other householdservant-typework.9

The legislativehistoryof the 1946 act sheds no lighton the purposeof the act exceptthat under the law thereis no restrictionon the number of enlistedaides the Navycan have.The law providesthat the Secretarymay freelyassignenlistedpersonnelto duty in a servicecapacityinofficers’messes and publicquartersunder such regulationsas he prescribes.Under Secretaryof the Navy Instruction1306.2A,enlistedmen may be used on certainofficers’personalstaffsto performdutiessimilarto those of a servant;for example,preparingand servingfood and takingcareof the officer’squarters.The regulationdoes prohibitduties p such as caringfor pets and babysitting,that contributesolelyto an officer’spersonalbenefitand whichhave no reasonableconnectionwithhis officialresponsibilities.LEGAL ASPECTS OF USINGENLISTED AIDES AS SERVANTSAccordingto UnitedStatesv. Robinson,the testofmilitarynecessityis not whetherthe work an enlistedaidis orderedto do is menialbut whetherthe servicesto beperformedare in the capacityof a privateservantto accomplisha privatepurposeor in the capacityof a soldierto accomplisha militarypurpose.Departmentof DefenseDirective1315.9 of February2, 1960, and the implementingregulationsof the militaryservicesclearlyreflectthispolicyand prohibitofficersfrom usingenlistedaidesfordutieswhich benefitonly themselvesand have no reasonableconnectionwiththe officers’officialresponsibilities.Since many of the lyand also accomplishsome militarypurbetween officialand personalservicescannotpose 9 the linebe finelydrawn.Under the presentlaw, officersare responsiblefor supervising,directing,and assigningdutiestoenlistedaides under the properadministrativesupervisionof the militaryserviceconcerned.SUMMARYThe furnishingof enlistedaides to Army and Air Forceofficersis a long recognizedcustom and is not prohibitedby law.The assignmentof enlistedmen under the jurisdictionof the Secretaryof the Navy to dutiesin a service10

messes and publiccapacityin officers’cally provided for by law.quartersisspecifi-An officerhas no authorityto order an enlistedmanto perform a task which only benefitshimselfand not theThe dutyservice as stated in United States v. Robinson.of a subordinateto obey a superiorofficerwhile he issubject to militarylaw refersonly to lawfulcommands in(See State v. apmatters relatingto militaryduty.64 S.E. 2d 840 (1951).)Militaryorders command the highestin issuing such orders,much is leftrespect and obedience;to a superiorofficer’sdiscretion,provided he remains(See United States v.withinthe scope of his authority.437(1956).)Officersare subjectEitchfield,144 F. Supp.to punishment under the Uniform Code of MilitaryJusticeforflagrantabuses of discretionin using enlistedaides forpurely personal services.We believe it would be difficultto police any abusesHowever, it would probably beand enforce the regulations.helpfulif the militaryservicesformallycalled attentionto violationsthat did occur and prohibitedthe furtheruseof enlistedpersonnel in such circumstances.11

CHAPTER 3RECRUITMENT. ASSIGNMENT. ANDTRAINING OF ENLISTED AIDESRECRUITMENTAND ASSIGNMENTEnlistedaides are assigned by all of the militaryservices to senior officersresidingin public quarterswhen theArmy and Air Forceofficershold command-type positions.Generals and LieutenantGenerals can be assigned enlistedaides when residingin privatequarters.Enlistedaides perform such tasks as preparingand serving meals, cleaning andand preparingfor and serving at offimaintainingquarters,(Chapter 4 discusses in morecial and unofficialfunctions.detailthe duties of enlistedaides.)In all of the militaryservices,assignment as anenlistedaide is requiredto be made on a voluntarybasis.Enlistedaides are also supposed to be able to transferoutof the program at any time.Of the 312 enlistedaides weinterviewed,272 said they volunteeredfor theirassignment.The other 40 aides said they were assigned to the program.Enlistedaides are normallyone of three methods.recruitedand assignedbyThe officeror a member of his staffscreens and1.selectsan enlistedman for an aide.If the enlistedmanvolunteersfor the aide program, he is assigned to duty inthe officer'squartersas an on-the-jobtrainee.In the Armyand is selected,theor Marine Corps, after he volunteersenlistedman can be immediatelysent to enlistedaide schoolFollowingor can be sent there afteron-the-jobtraining.successfulcompletionof schoolingor sufficienton-the-jobtraining,the enlistedman is designatedas an aide.Qualifiedgraduates of cooks schools are recruited2.into enlistedaide school or as on-the-jobtraineesif theyvolunteerto enter the enlistedaide program.3.Enlistedmen who have not been selected by anofficeror recruitedinto enlistedaide school can volunteerto enter the aide program.12

Under currentmilitarypolicies,admirals and generalsare usuallyauthorizedaides on the basis of one aide forThe highest ranking officersin the services,each star.such as the Chiefs and Vice Chiefs of Staff,are authorizedfrom four to eight enlistedaides; Rear Admirals(Lower Half)in the Navy and BrigadierGenerals in the Marine Corps areauthorizedtwo aides.Some Navy captainsare presentlyassigned enlistedaides (see footnoteto table on p* 5)) andpromotablecolonelsin the Army can be assigned enlistedaides, but none are presentlyassigned.ARMY TRAININGThe Army has one special trainingcourse and one, on-thejob trainingfacilityfor enlistedaides.The specialcourseis the EnlistedAide Course, taught at the Army QuartermasterSchool, Fort Lee, Virginia,six times a year with 24 studentsin each class.The course is designed to provide formaltrainingin the duties and responsibilitiesof aides whoserve in public quarters.The course covers the functionsofthe personal staff;care of equipment and facilities;management of dining facilities;pastry baking and specialitems;and principlesof cooking,food planning,control,preparation,and serving.The followingare some of the 41 books and pamphletsused during the course.ServiceNavalEtiquette,InstituteThe EncyclopediaCompleteHavial,Swartz,of Etiquette,Book of Etiquette,and Oretha,LlewellynU.S.MillerAmy VanderbiltThe Army WifeMerck VeterinaryManual (3rd Edition),JournalAmerican VeterinaryMedical AssociationThe OfficersWenzel’sGuideMenu Maker,G. L. Wenzel13of the

Masteringthe Artof FrenchCooking,JuliaChildThe Gourmet CookbookThe ProfessionalChef CookbookThe Encyclopediaof CookingThe Blue Goose BuyingGuideThe CorrectSusan DietzWaitress,The Essentialsof Good Table Service,The Wise EncyclopediaIce CarvingPracticalGrossman’sMade Easy,Universityof CookeryJoseph AmendolaBar Management,HaroldGuide to Wine,Spirits,The Bakers Manual,CornellJ.Grossmanand BeerJoseph AmendolaCanapes, Hors d’oeuvres,and ChipperinzBuffetDishes,Leffler,Dubb,The Army on-the-jobtrainingfacilityfor enlistedaidesis WainwrightHall,Fort Myer, Virginia.WainwrightHall isa hotel-liketransientquartersfor admirals and generals.It has 18 suites for these officersto use when they are visitingin the Washington,D.C., area.There is a permanentstaffof four noncommissioned officersto instructand supervise the enlistedaide trainees.From 4 to 25 traineesareassigned to WainwrightHall with an average output of7 trainedaides per month.Men are selected to be trainedat WainwrightHall inhousekeeping,cooking,table setting,and serving on thebasis of previouseducationand experiencein cookery.Thetraininglasts from 1 week to as long as 3 months.Generallythe traineesalready have had extensivetrainingand experience and can complete the requirementsquickly.Since thetraineesare needed to operate WainwrightHall and all thetrainingis on-the-job,there are no specificidentifiabletrainingcosts for the program.

MARINE CORPS TRAININGThe MarineCorps has threetrainingprogramsforThe firstof these is the SpecialMessenlistedaides.which lasts8 weeks,is conducted4 timesaTrainingCourse,by 16 studentsper class,and is taughtatyear 9 is attendedthe Food ServiceSchool,Camp Lejeune,North Carolina2Thecourse providesMarinesinitiallyenteringintopublicquarters duty witha fundamentalknowledgeof the dutiesof anenlistedaide.It emphasizesgourmetcookery,baking,protocol,fieldmess operations,and socialactivities.The second course is the advancedSpecialMess TrainingCourse which runs 10 weeks and is conductedat Camp Lejeuneonce a year for 12 students.It providesenlistedaides whoare servingtheirsecond tour of duty in publicquarterswithrefreshertrainingand a basicknowledgeof the dutiesofseniorenlistedaides.The instructioncoverssuch topicsasseatingprotocolfor alloccasions,preparationand servingof gourmetmeals 9 preparationof buffets,menu planningconsideringadequatedietaryrequirements,and the set up andoperationof a generalofficer’smess in the field.The thirdtrainingcourseis the Gourmet ClassicalCooking Course taughtby the CulinaryInstituteof America,NewHaven, Connecticut.Twelve studentsper year are sent tothis2-week coursedesignedfor professionalcooks and otherspossessinga basicknowledgeof quantityfood preparation.The coursesupplementsthe aidesP knowledgeand improvestheirskills.It includesthe techniquesof haut cuisine.NAVY AND AIRThe NavyThe Air Forceits use of.thepage 7.FORCE TRAININGreliesexclusivelyon on-the-jobtraining.also relieson on-the-jobtraining,exceptArmy enlistedaidescourseas noted onfor

CHAPTER 4MILITARY SERVICES’ POSITIONS ON THENEED FOR ENLISTED AIDESWe asked each of the militaryservicesto provide uswith a statementjustifyingthe enlistedaide program on thebasis of need.We also asked, among other things,why aideswere generallyassigned on the basis of one aide per star,The repliesof the four servicesare presented as appendixes VIthrough IX and are summarized in this chapter.Our questionnaire to admirals and generals asked them to indicatewhy theybelieve they requireenlistedaides.Their responses are alsosummarized in this chapter.STATEMENTSOF THE SERVICESREGARDINGNEED FOR ENLISTED AIDESThe militaryservicesstated that the purpose ofaides was to relievethe officerof many administrativepersonal duties associatedwith his positionor officeorder that he may devote the maximum amount of time toprimary and officialduties,They gave the followingof the duties and responsibilitieswhich they believethe need for enlistedaides.1. Requirement to host numerous dandinhisexamplessupportand2. The 24-hour-a-dayresponsibilityof admirals andgenerals for the welfareof the men they command.3. The creationand maintenance of the satisfyingtotalenvironment which attractsyoung Americans to avoluntarymilitaryservice.4. Management of a multimillion5. Personal involvementand policydecisionsin both the militarydollarbudget.in individualsoldierproblemsaffectingthousands of peopleand civiliancommunities,6. Senior officersswives’ leadershipin women’sorganizationsand voluntarycommunity services,

such as hospitals,youthactivitiesfor soldiers.7.ExtendedTheenlistedthe 106officersand irregulargroups,workand specialhours.questionnaireresponsesgave similarTable 2 liststheaides are needed.admiralsand generalsand the percentthat gave each response.reasonswhyresponsesofof theseTABLE 2Question:Pleaseindicatethe duties,responsibilities,conditions,and demands on your time whichyour need for s1. Work scheduleleavesno time for normaldutiesof the head of the householdand/orpersonalneeds.652. Hosting62officialfunctions.3. Wife has to attendsocialand d do charitywork;therefore,she cannot do allthe housework.444.37Frequentofficialtravel.5. Hostingfunctionsto maintainand/orcommunityrelations.6. . Publicquarterskept immaculate8. Hostingand nsivecare.and grounds mustat alltimes.old98functions.arebeand require817

ceptionsofficers.for11.Hostingmeetings12.I am the only admiralthe area so I have tothingswith the localincoming/3of13.I am a bachelor14.Billetsfor visitingin my quarters.women’sgroups.or generalindo a lot ofcommunity.and I needthehostingofFederalto Civil1officialofficialsService3arehow many hours a week theydutiesand requiredfunctions.week was 65 hours.functionsBoth the militaryservicesand thequestionnaireindicatedthatone of theofficersrequireenlistedaides is theirresponsibilities,such as entertaining:1.3help.officialsWe also asked the officersspend performingtheirofficialThe average number of hours perRequired3rangingemployeesresponsesto ourmain reasonsseniorheavy entertainingfrom the Presidentin grades16 to18.2. Congressmen.3. Foreignmilitary4.Statediplomatic,officials.and local5. Academic6. CommunityTheyJuly,also entertainArmed Forcesgovernment,business,andofficials.and industryleaders.activitiesleaders.on specialDay, change18occasions,such as theof command, retirements,4th ofetc.

The militaryservicessaid thatsimilarentertainingdemands are not made on high-rankingDepartmentof Defensecivilians,withthe exceptionof the Secretariesof themilitarydepartmentsand certainotherhigh-rankingcivilians.The militaryservicesalso statedthat high-rankingcivilianswere not providedwiththe servicesof enlistedaides becauseof the differentnatureof involvementand responsibility,The militaryservicesalso statedthait alternativemeansof providingthese serviceshave not been consideredbecausethe enlistedaide programeffectivelyprovidesthe servicesneeded by seniorofficers.The only exceptionscitedwerethe Army’suse of localnationalsoverseasin some cases andlimitedcontractcateringto meet needs which surpassedthepresentenlistedaide capability.Neitherof these seemed tobe good alternativesto the Army.The MarineCorps pointedout thatits enlistedaides were also trainedto performtheirdutiesin the fieldor in combat and that civilianscould not performin these areas.ENLISTED AIDES ASSIGNEDBY OFFICER’S RANKAll of the servicesusuallyassignand generalson the basisof one aidehistorically,ascendinglevelsof rankresponsibilitiesand the frequencyofpersonalservices,includingofficialAir Force also noted that therewas ain 10 U.S.C.8543 which authorizestheaides on the basisof the grade of theconcerned.aides to admiralsper star,because,increasethe utoryprecedentassignmentof officergeneralofficersThe responsesto our ques

COMPTROLLER GENERAL OF THE UNITED STATES WASHINGTON, D.C. 200548 B-177516 c To the President of the Senate and the . of senior enlisted aides results in few openings in higher grades. (See p. 27.) RECOMMENDATIONS None. . bjncludes 110 enlisted aides assigned to Navy captains. 5 . Fiscal year 1973 costs of the enlisted aide program