any defense, that the chief argument that prevailed here when we passed the 1936 act and decided to report it and I know my colleagues will bear me out in the statement was this: We are going to favor this law providing the operating differential, because no longer can the owners complain about the high cost of wages and living conditions. When it is enacted the Government itself, out of the Treasury of the United States, will provide the extra money needed to meet the difference between foreign wages and living standards and American wages and living standards. So this committee, in spite of the brickbats thrown at it, has for years taken the position that it wanted to deal justly and fairly and generously with maritime labor. Now, if you will talk over with our experts and formulate changes in the navigation laws which will make for better conditions for maritime labor, you will find the committee will give it the most sympathetic consideration. Mr. MCALL. I would not dare attempt to do that. I am only the watchman to point out conditions. I would want the industry represented completely. That is the American way of doing it, and I know it can be done. The CHAIRMAN. We are very glad to have your suggestions and thank you for coming here. Mr. MCALL. I thank you for hearing me. (Thereupon Mr. McAll left the committee table.) (The documents, etc., submitted by Mr. McAll are as follows:) [Reprinted from the Journal of Commerce, New York, January 12, 1938, annual shipping number] COOPERATION ON PERSONNEL HELD KEY TO LABOR TANGLE-WELFARE SECRETARY URGES OWNERS RECOGNIZE HUMAN VALUES IN FIXING TERMS OF EMPLOYMENT- -CONTINUOUS-SERVICE PLAN SEEN NEEDED (By R. L. McAll, secretary, National Group of Seamen's Agencies) The value of the American merchant marine to the whole country and the necessity for its revival are better understood by our people today than for many years. It is generally agreed that far too small a percentage of the goods we export is carried in American bottoms. The memory of our almost complete dependence on other flags for transport during the World War is still painful. with reasonable aid American shipping can regain its share of foreign trade while continuing in its steady coastal business. But There is no indication, however, that our flag is about to disappear from the high seas. Comparing the pre-war and post-war monthly figures for entrances from abroad into the port of New York, there were 57 American vessels in May 1912 as against 218 in May 1922 and the crew totals were 3,900 and 14,250, respectively. Today the urgent need for ship replacements is fully realized. No other consideration was more powerful in securing the legislation of 1936. The prospect for new ships is better than ever, and unless there is ill-advised opposition they will be obtained. We should study the requirements for these replacements in terms of the needed personnel, both in quantity and qualifications. Moreover, the number of men employed has not decreased during the last 5 years, in spite of a slight decrease in the vessel entries. Comparing the entries for May 1932 with those for May 1937 we find that American ship entries from abroad were 183 and 163, respectively, while crew totals rose from 13,760 to ` 13,900. PERSONNEL INTEREST The extent of our merchant shipping and commerce is accurately expressed in terms of tonnage, speed, ship replacements, imports and exports, etc. But though we are equally interested in sea personnel, we have less light on the number of seamen engaged in manning our ships, the degree of unemployment among them, their sea experience, their prospect of preserving independence when they must finally give up the sea, and specially the processes by which they first take to the sea. We recall that in old times they were often "taken to the sea," and we know that the factors that make up sea life today have greatly changed. In addition, we realize that a well-run ship is one on which each member of its personnelfrom the master to the youngest cadet or messboy-knows his job, and that the relationship of sailor, fireman, cook, and steward, and of all the others on a modern ship to each other and to the officers is of vital importance. A real revival of our shipping depends on the factor of sea-mindedness. Though millions of Americans have never seen deep water-salt or fresh-other millions live within a hundred miles of it, and if proximity brings sea-mindedness there should be plenty of good sea-going replacements for our ships. Of course, a real instinct for the sea will not be thwarted by the remoteness of the inland States, and we all know of first-rate sailors who came from them. But possession by the public of a genuine and inherited sea tradition is tremendously important. Each section of our country is increasingly dependent on the others, and poor crops far inland or some diversion of traffic in the West may make ships idle in New York and put seamen out of work. RECRUITING METHODS Such seamindedness will aid in securing the needed crew replacements for the much greater variety of ratings that are required today. The young men now inquiring about the sea as a vocation are of a higher type than formerly, and are better educated. Out of 3,500 seamen ashore in New York in 1935, about whom social information could be gathered, 30 percent said they had had one or more years in high school, and 10.4 percent stated that they had graduated from high school. Such applicants for sea work are comparing the opportunities offered by the sea with those in other callings. Just now many of the older seamen and officers say that they would not recommend a youngster to follow their example, and certainly not their own sons. The old way of going off to sea, often as an escape or second choice, is not common now. The sea must stand comparison with other occupations as a first choice. TYPE OF LIFE One of the unfavorable factors which may hinder a man from becoming adjusted to the sea and from reaching the goal to which his ability should entitle him must be mentioned. If the life stories of many of the older men were known they might be summarized as follows: "What made me leave home to go to sea; how the ties that bound me to that home were lessened, and why I lost all touch with my own family." Out of about 1,500 seamen picked from among those receiving relief in New York in September 1935, over 600 stated that they no longer know the whereabouts of their nearest relatives. Of course, the proportion would be less among the younger seamen of today, but the necessary absences from the homes they have left do break down the primary satisfaction of family life to which every man is entitled. In this respect life on a ship is as much out of balance as that in a lumber camp, perhaps more so. Those who realize the right of seamen to as normal a social pattern as possible know that some concessions are due them in order to humanize sea life. It is certain that the extent to which seamen of European countries keep in touch with their families-or have homes of their own--is far greater than the proportion given above would indicate for America. The preservation of these home ties should be the aim of every marine superintendent, port officer and master. Notifications to the next-of-kin of ship movements, allotments to families, provision of annual vacations and other methods have proved most helpful. CONFUSING REQUIREMENTS Three unfavorable elements in service on American vessels may be mentioned as requiring serious consideration: 1. The documents required by a seamen should be simplified. At present he must usually carry four of them. His identity and his ship rating require a certificate apiece; his ability to handle a lifeboat involves a third paper, and for each separate voyage he receives a detached record for that period of service, known as a ship discharge. In addition many seamen still carry the pink seamen's protection certificates showing their American citizenship, issued by the United States Treasury Department, as credentials when going ashore in a foreign country. 2. The matter of foreign citizenship is of less importance, but it requires some attention. All seamen serving on American vessels, whether subsidized or not, should be able to show evidence of their nationality and citizenship status. We should also do justice to those alien seamen, who entered America legally and have started their naturalization applications, by making it more easy for them to complete their papers. Moreover, seamen who arrived in America between 1921 and 1924 should be able to legalize their entry so that they may secure naturalization. 3. The complicated employment articles form another drawback. When a ship is registered the United States shipping commissioner has the responsibility of signing on and of paying off the crew. This is rightly regarded as a protection to them. On enrolled vessels, which form a large proportion of the coastwise group, these functions belong to the master. In this case, however, the master must send a complete list of all the crew carried on each voyage to Washington to be added to the permanent individual files kept in the Bureau of Marine Inspection and Navigation. This is to the best interest of seamen, for they can thus verify their employment records in connection with old age and other benefits. The next step should be the extension of Federal articles to all coastwise shipping, which would make the method of articles for service on all ships uniform. CONTINUOUS EMPLOYMENT The industry could well unite in recommending simplification of the certificates and papers a seaman must carry; classification of the status of legally entered and other aliens, and simplification of the conditions of signing on and off all ships-the latter with a view to encouraging continuous employment. It is well known that a small turn over makes for greater efficiency in ship operations, but the great advantage to seamen of continuous employment, with the greater personal security it provides, is sometimes overlooked. The length and character of the run, the seaworthiness and age of the ship, the location and quality of its crew quarters, and often the personal equations of the "old man" or a senior officer-these and many other factors affect the readiness of men to stay on one ship rather than change to other ships or companies frequently. On shore the desirability of an occupation is rated largely in terms of the opportunity it gives for steady work. Outdoor conditions of work or hourly pay for heavy handling of goods prevent such continuity, and the compensation offered generally takes these elements into account, even when the nature of the work is unskilled. TRAINING PERIOD In classifying sea labor, we must remember that though much of it needs but little special skill the mere fact that we require 3 years' experience before granting a full A. B.'s rating proves that some skill is expected, to say nothing of that required for the petty officers' ratings. But in addition a ship on the high seas differs from a factory on land in respect to its discipline and measures for safety. In an emergency prompt action by an ordinary seaman or wiper or messboy may help to save the ship from total loss. The land condition most comparable to this is deep level mining, and no unskilled miner's helper is ever alone in those workings. A large passenger ship is chiefly a floating hotel combined with a floating power house. Many of its crew can, and often do, secure work on shore similar to that of their sea rating, and thus they can obtained more regular employment. But navigation of the ship will always require real sailors, and many others in the engine or stewards' departments must assume deck and boat handling duty in an emergency. This involves the question of our policy regarding sea training. We should take far more interest in adequate training for all sea duty. Many are of the opinion that it should begin very early, but it should not curtail the general education to which all youngsters are entitled. Why not commence at the age of 16, the course being similar to that of manual training or business high schools, and conferring the educational equivalent of high-school graduation? FRAUDULENT SCHOOLS Shipowners and unions should combine in demanding a curb on any fraudulent or incompetent training-school ventures, by insisting on full control of Federal Government. The use of the United States Coast Guard Service facilities for the purpose of setting up such training has been suggested. The examinations for lifeboat certificates conducted by that service have always been commended, and with good reason because of its knowledge of the sea and its unique record of rescues at sea and on the coast. Its practical experience regarding safety at sea has been of the greatest value in drawing up the new measures for making ships as safe as humanly possible. The following steps will aid us in securing and holding young recruits for sea service on American ships. 1. Place before young men a fair picture of their future prospects as seamen. 2. Provide sound general sea training, thus improving the value of the first actual sea experience. 3. Place sea working conditions on a par with comparable shore work. 4. Compensate as far as possible for those conditions of life on board a ship that are not normal. 5. Emphasize the importance of competent personnel policies. They deserve as clear thinking and as courageous decisions as in any other department of a steamship company. COOPERATION URGED The answer to much of the labor strife and unrest in shipping today is a greater "awareness" by all marine executives of individual human values. The theory that the other fellow is at heart reasonable, even if he does not seem in the least amenable to reason for the moment, will make possible some better contacts with him later. It would further plead for a serious trial of complete cooperation. The idea that mass pressure is the only method of doing the trick and that anything can be obtained by merely "turning on the heat," is fundamentally unsound. If reason goes out of the window and is replaced by force the gains made through the resulting bitter strife are never lasting, but serve only as the basis of future strife. It may be added that cooperation will take away the excuse for the irritating publicity tactics that are occasionally practiced. In this connection we may mention a provision in the latest officers' agreement signed by the owners and unions in Denmark. It states that no organization may issue a circular interpreting the agreement with regard to board, service or other circumstances affecting the rights and duties of the parties concerned, until it has been approved by the other party to the agreement. This is only one out of many safeguards that have been developed inside the industry in other nations to keep the relations between employers and sea personnel friendly, each partner having learned to respect the rights of the other. It by no means indicates that the unions have become subservient or inactive. No one who knows the Danish shipping situation would credit that explanation of the agreement quoted above. PROTECTION TO LABOR The method of cooperation recognizes that owner, operating manager, marine superintendent, master, officers and crew form an integrated unit, which on the one hand renders valid service to the whole country-its producers, industries and merchants-and on the other hand obtains substantial wages with adequate security provisions for all concerned, and parity with other comparable occupations, as well as a fair return on the capital invested by the public. This method also delivers seamen from being industrial, economic, or political pawns. It gives opportunity for the exercise of responsible leadership among them, by men who have gained the respect of the owners by their ability. It also involves recognition by these leaders that many owners of ships are forward looking and sea-minded. The spirit of cooperation converts a port conciliation committee into a highly effective mechanism-not only for reducing friction and settling grievances, but also for common action on constructive suggestions for improving the conditions of work and the quality of the common service rendered-not merely to the owners but beyond them to the people of the country. In a recent letter received from the west coast it is stated that "the spirit of cooperation between the various representatives of the various unions and the shipowners is almost past understanding. It has not been necessary for any union to even ask that a matter be referred to the port committee, but-these matters are all settled by the patrolmen or by the agents." While this comes from one port it is probably typical of the whole coast. Only if the industry can thus provide for effective mediation within itself can it avoid the need for external mediation devices. This has been done in the other. maritime nations, which have democratic institutions. The road to cooperation is open, and I believe the great majority on both sides desire to follow it. Just now there are indications that the representatives of the operators and the unions are sitting at the conference table as resolute but reasonable leaders instead of fighters eagerly awaiting the zero hour. I know the public will welcome signs that this is the case. It is tired of getting the impression that no progress is being made toward better feeling between the partners in the sea industry. Cooperation is essentially the American method of success. The honest efforts of both seamen and the shipowners to develop an efficient American merchant marine will be amply repaid. This goal justifies following through on the experiment of frank cooperation. It will be reached in no other way. DIRECTORY OF THE NATIONAL GROUP OF SEAMEN'S AGENCIES (Special group of the National Conference of Social Work) EXECUTIVE COMMITTEE, 1937-38 Harry J. Pearson, chairman, 25 South Street, New York City. R. L. McAll, secretary, 2268 Sedgwick Avenue, New York City. R. Ernest Bayes, Boston, Mass. Miss A. A. Buffington, New York City. Merritt A. Farren, Boston, Mass. Wallace Martin, vice chairman, East Bay and Market Streets, Charleston, S. C. John T. Little, treasurer, 11 Park Place, New York City. James C. Healey, Ph. D., New York City. Frank P. Mitchell, Baltimore, Md. Miss Madeline Oldfield, New York City. Leo W. Simmons, Ph. D., New Haven, Conn. COMING EVENTS Annual meeting of the National I. At Baltimore, Md., May 26 to 30, 1938. Group of Seamen's Agencies. II. At Seattle, Wash., June 26 to July 2, 1938. Meeting of the National Conference of Social Work. The Seamen's Agencies form one of the special groups of this conference. They have scheduled meetings from Tuesday June 28 to Friday July 1. Those agencies located on the west coast expect to send delegates or representatives for the discussion of their various problems. LIST OF WELFARE AGENCIES ACTIVELY WORKING FOR SEAMEN IN UNITED STATES AND CANADA (Prepared by the National Group of Seamen's Agencies) The listing is by States, followed by Provinces in Canada. Under each State the cities are placed alphabetically. If more than one name is given, the upper one is that of the correspondent. Any other names to receive reports have "*". United States Alabama: Mobile: Seamen's Church Institute of Mobile, 607 Government Street. Rev. J. W. Falford, superintendent. California: San Francisco: Scandinavian Lutheran Seamen's Mission, 9 Mission Street. Rev. Dr. Seamen's Church Institute, 58 Clay Street. Miss R. E. Southworth, secretary. San Pedro: Army and Navy Y. M. C. A., 921 South Beacon Street. Leonard R. Stockton: Seamen's Church Institute, P. O. Box 1610. Col. B. C. Allin, chairman board of trustees. |