Procedure (not criteria) for the submission of recommendations for awards to the Merchant Navy

Discussion in 'The War at Sea' started by dbf, Jan 18, 2012.

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    CAB 123/72
    Gallery Album:
    http://ww2talk.com/forums/gallery/album/250-procedure-for-submission-of-recommendations-for-mn/



    Courtesy of Drew


    Note: There is no index for this thread, as it is only correspondence between various parties and departments involved in the discussion of a proposed change in procedure. I've tried to keep them in date order.

    This file, while it mentions how awards are submitted via the First Lord of the Admiralty, deals in the main with the proposed involvement in making recommendations to the King of the Minister of War Transport.
     
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    LORD PRESIDENT'S OFFICE

    MERCHANT NAVY HONOURS


    CONFIDENTIAL

    COMMITTEE ON THE GRANT OF HONOURS, DECORATIONS AND MEDALS IN TIME OF WAR, 1939 - 1942.

    105th Report

    THE MERCHANT NAVY

    The D.S.O., C.G.M. and D.S.M.


    1. Constitution of the Committee

    Sir Richard HOPKINS, G.C.B., Permanent Secretary, H.M. Treasury - (Chairman)

    Admiral Sir Hugh BINNEY, K.C.B., D.S.O., Admiralty

    Sir Henry MARKHAM, K.C.B., M.C., Permanent Secretary, Admiralty

    Sir Frederick BOVENSCHEN, K.B.E., C.B., Permanent Under Secretary of State, War Office

    Mr. J.M. MARTIN, Principal Private Secretary to the Prime Minister

    Honourable Sir Alexander CADOGAN, G.C.M.G., K.C.B., Permanent Under Secretary of State, Foreign Office

    Sir David MONTEATH, K.C.M.G., C.B., C.V.O., O.B.E., Permanent Under Secretary of State, India Office

    Admiral of the Fleet Right Honourable Lord CHATFIELD, (co-opted), G.C.B., O.M., K.C.M.G., C.V.O., D.C.L., Chairman Committee on Gallantry Awards for Civil Defence

    Sir Harold SCOTT, K.B.E., C.B., (co-opted), Secretary, Ministry of Home Security

    Sir George GATER, K.C.B., C.M.G., D.S.O., Permanent Under Secretary of State, Colonial Office

    Major Harry STOCKLEY, C.V.O., O.B.E., Secretary of the Central Chancery of the Orders of Knighthood

    Major Right Honourable Sir Alexander HARDINGE, G.C.V.O., K.C.B., M.C., Private Secretary to the King

    Sir Arthur STREET, K.C.B., K.B.E., C.M.G., C.I.E., M.C., Permanent Under Secretary of State, Air Ministry

    Sir Cyril HURCOMB, K.C.B., K.B.E., (co-opted), Director-General, Ministry of War Transport

    Air Marshal Sir Bertine SUTTON, K.B.E., C.B., D.S.O., M.C., Member of the Air Council for Personnel

    Sir Eric MACHTIG, K.C.M.G., O.B.E., Permanent Under Secretary of State, Dominions Office

    Sir Robert KNOX, K.C.V.O., D.S.O., H.M. Treasury - (Secretary)



    2. Application on behalf of the Merchant Navy
    The Company of Master Mariners recently asked that the MERCHANT NAVY should be made eligible for Naval Honours, Decorations and Medals "for gallantry in face of the enemy". A short explanation of the present policy was sent in a reply agre… [end of word obscured] between the Ministry of War Transport, the Admiralty and the Treasury.


    3. Proposed modification of the present system
    We take the view that Naval awards should be available for certain actions in special circumstances during contact with the enemy. We have not exactly defined the line which in our opinion should be drawn between actions to be rewarded by Naval an civil awards respectively. Having regard to recent developments in naval warfare we propose that such special actions with the enemy as may seem to the First Lord of the Admiralty to qualify for ROYAL NAVY awards should be considered for these. For normal actions with the enemy it is proposed that civil awards should be continued.


    4. Present position

    (a) The civil awards for which personnel of the MERCHANT NAVY are now ordinarily considered, whether for services in the presence of the enemy or otherwise, and whether for the fortnightly lists or at the half year, are the G.C., Knight Batchelor, C.B.E. (Civil Division), O.B.E. (Civil Division), M.B.E. (Civil Division), G.M. and B.E.M. (Civil Division).

    (b) The V.C. Warrant permits the award of that decoration in the MERCHANT NAVY. Following is an extract from the Sixth Clause.

    and (a) Our Mercantile Marine whilst serving under Naval, Military or Air Force Authority, or who in the course of their duties may become subject to enemy action; shall be eligible for the Decoration of the Cross.

    (c) The D.S.O. may be awarded in the MERCHANT NAVY under regulation 2(c ) of the Schedule to the Order-in-Council of 19th May, 1931.

    2. The Decoration to be awarded in recognition of meritorious or distinguished services before the enemy on the part of the following Officers:-

    (c) Officers of His Majesty's Transport and Fleet Auxiliaries and of the MERCHANT NAVY and Fishing Fleets who render services in circumstances considered by the Admiralty to merit the award.

    (d) MERCHANT NAVY personnel who have signed T.124 contracts become eligible as part of the ROYAL NAVY for military awards. Twenty-four D.S.M.s were, for instance, thus awarded in the MERCHANT NAVY for services at DUNKIRK.

    (e) Navy, Army or Air Force personnel serving as gunners in merchant ships are eligible for and received Naval awards, e.g. D.S.M., and Mention in Despatches.


    5. D.S.O.
    We recommend that approval should be given for the amendment of the Statues in the following sense.

    Statute Four. (as in draft in H. W.455, Section 4).
    Line 3. After "or Air Forces"
    add ", or is not of equivalent status in the Merchant Navy,"

    Last line:
    After "combat with the enemy"
    add "or if in the Merchant Navy, for such specially distinguished services in action with the enemy, as seem to the First Lord of the Admiralty to render him eligible for such nomination"


    6. C.G.M.
    We also recommend that approval should be given to an Order-in-Council in the following sense:-

    "WHEREAS there was this day read at the Board a Memorial from the Right Honourable the Lords Commissioners of the Admiralty, dated the [blank] 1942 ([blank]), in the words following, viz:-

    "Whereas Her late Majesty Queen Victoria was graciously pleased by Her Order in Council dated the 7th July, 1874, to establish a Silver Medal, to be called the Conspicuous Gallantry Medal, for such Petty Officers and Seamen of the Royal Navy and Non-Commissioned Officers and Privates of the Royal Marines as may at any time distinguish themselves by acts of conspicuous gallantry in action with the enemy:

    "And whereas we are of the opinion* that it would be appropriate to make possible the award of the Conspicuous Gallantry Medal also to individuals in the Merchant Navy of equivalent rank, for such special acts of conspicuous gallantry in action with the enemy, as seem to the First Lord of the Admiralty to render such individuals eligible for the award:

    "We beg leave humbly to recommend that Your Majesty may be graciously pleased by Your Order in Council to sanction the proposal that persons in the Merchant Navy of status equivalent to that of Petty Officer or Seaman in the Royal Navy should be eligible for the award of the Conspicuous Gallantry Medal for such acts."

    HIS MAJESTY, having taken the said Memorial into consideration, was pleased, by and with the advice of His Privy Council, to approve of what is therein proposed.

    AND the Right Honourable the Lords Commissioners of the Admiralty are to give the necessary directions herein accordingly."

    * [handwritten, ?proposed insertion]: and the Minister of War Transport agrees,


    7. D.S.M.
    We recommend that approval should be given to an Order-in-Council in the following sense:-

    "WHEREAS there was this day read at the Board a Memorial from the Right Honourable the Lords Commissioners of the Admiralty, dated the [blank] 1942 ([blank]), in the worlds following, viz:-

    "Whereas His late Majesty King George V was graciously pleased by His Order in Council date the 14th October, 1914, to establish a Medal, to be called the Distinguished Service Medal, for such Chief Petty Officers, Petty Officers and Men of the Royal Navy and Non-Commissioned Officers and Privates of the Royal Marines and all other persons holding corresponding positions in His Majesty's Fleet as may at any time show themselves to the fore in action and set an example of bravery and resource under fire, but without performing acts of such pre-eminent bravery as would render them eligible for the Conspicuous Gallantry Medal:

    "And whereas we are of opinion* that it would be appropriate to enable the Distinguished Service Medal to be awarded also to individuals in the Merchant Navy of equivalent rank, for such special conduct in action with the enemy, as seems to the First Lord of the Admiralty* to render such individuals eligible for the award:

    "We beg leave humbly to recommend that Your Majesty may be graciously pleased by Your Order in Council to sanction the proposal that persons in the Merchant Navy of status equivalent to that of Petty Officer or Seaman in the Royal Navy should be eligible for the award of the Distinguished Service Medal for such conduct."

    HIS MAJESTY, having taken the said Memorial into consideration, was pleased by and with the advice of His Privy Council, to approve of what is therein proposed.

    AND the Right Honourable the Lords Commissioners of the Admiralty are to give the necessary directions herein accordingly."

    * [handwritten, ?proposed amendment]: and the Minister of War Transport agrees,


    8.
    We recommend that these changes should come into operation as from the date of approval of this Report, provision being made accordingly, in due course, in the relative instruments.


    (signed) R.V. MIND HOPKINS
    (on behalf of the Committee)

    Treasury Chambers, Whitehall, S.W.1.
    27th August, 1942.
     
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    COPY

    MINISTRY OF WAR TRANSPORT

    3rd September, 1942.


    Dear ALEXANDER,

    At the end of our talk yesterday about Honours for the Merchant Navy you asked me to write to you so that my views should be down in black and white.

    My contention is really quite a simple one, namely, that I am responsible for the Merchant Navy and for Merchant Navy personnel, consequently all those connected in one way or another with the Merchant Navy look to me to uphold their interests. It follows that I should be associated with recommendations for the award of Honours to the personnel. I have already two representatives, Captain SMITH and Captain HUBBARD, on your Honours and Awards Committee, which deals with gallantry awards for the Merchant Navy. It is not, however, only that i or my representatives should play a part in selecting the men for such recommendations; it is necessary that those engaged in merchant shipping should see that I am interested and concerned in this matter. For this reason I feel it necessary that recommendations for gallantry awards for the Merchant Navy should go forwards as joint recommendations from you and me.

    Yours sincerely,

    (Signed) LEATHERS.

    The Right Honourable A.V. ALEXANDER, CH., MP.
     
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    ADMIRALTY,
    WHITEHALL.

    9th September, 1942.

    Dear LEATHERS,

    In reply to your letter of September 3rd, I have now been able to consider the effect of your suggestions.

    The method for submission to The King of recommendations for awards for gallantry is that civilians are recommended by the Prime Minister and service personnel by the appropriate Defence Ministers; an exception is made in the case of Merchant Navy personnel who, when recommended for military awards, are included in the First Lord's list, (when recommended for civil awards they are included in the Prime Minister's list). You will observe that I say "included" in the First Lord's list, which means that their services are considered in conjunction with similar services performed by naval personnel, so that the standard of recommendations may be similar. You will doubtless agree with me that it would not be practicable for you to be associated with me in the recommendation of awards to naval personnel, and, without the knowledge of the standard of gallantry for which these recommendations are made, it is not possible to assess the correct standard for recommending Merchant Navy personnel.

    Moreover it would be difficult in many cases for confidential papers concerning the details of actions leading to recommendations for awards to be passed to another Ministry. The proposal would also have the effect of further slowing up the process of making awards. In December last I consented to the periodical lists of recommendations for civil awards to Merchant Navy personnel being presented by you to the Prime Minister, but as stated by the Prime Minister in his letter of 13th February, 1940, when First Lord, I think a change in the method of submitting to His Majesty recommendations for naval awards, or for making recommendations for civil awards in the case of operational services could not be made without a Cabinet decision.

    Perhaps in the circumstances you would like us to discuss the matter with the Prime Minister.

    Yours sincerely,

    (Signed) A.V. ALEXANDER.
     
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    COPY

    ADMIRALTY

    PRIME MINISTER.

    Lord LEATHERS and I would like to have a short discussion with you about the procedure for the submission of recommendations for Awards to the MERCHANT NAVY.

    The point at issue is still, as in the days when you were First Lord, whether the Minister of War Transport should be associated with the First Lord in making recommendations for Gallantry Awards. In correspondence on this subject with Sir John GILMOUR in February 1940 you wrote that this would involve an important departure from former practice and that you could not agree to its adoption without a Cabinet decision. In these circumstances I feel that the only way of bringing the disagreement to a conclusion is for us to talk it over with you.

    A.V.A.
    14th September, 1942.
     
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    [Handwritten:] Arranged for Thursday 3.30 pm on 21st


    10, Downing Street, Whitehall

    20th September, 1942.


    Dear BURKE,

    I enclose a copy of a minute which the Prime Minister has received from the First Lord of the Admiralty. As he is not able to give immediate consideration to this matter, he would be grateful if the Lord President would handle it for him. I am informing JARRETT and KEELYSIDE and perhaps you will get in touch direct with them.

    Yours sincerely,
    J.H. PECK

    J.T.A. BURKE, Esq., Privy Council Office.
     

    Attached Files:

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    MINISTRY OF WAR TRANSPORT,
    Berkeley Square House,
    Berkeley Square,
    LONDON, W.1.

    21st September, 1942.

    Dear BURKE,

    Further to our telephone conversation this afternoon, I have pleasure in enclosing copies of my Minister's letter to the First Lord of 3rd September and of the First Lord's reply dated 9th September.

    I hope these will be useful to the Lord President.

    Yours sincerely,

    F.H. KEENLYSIDE
     
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    [Please note that this is very likely the document referred to in later correspondence as "H.W. 531"]

    [Handwritten names]:
    Sir R HOPKINS
    Mr. J.T.A. BURKE


    The Lord President has asked for a note on the method of making recommendations to the King for naval awards in the MERCHANT NAVY. The First Lord of the Admiralty and the Minister of War Transport are not in agreement on the point and I understand that they have asked the PRIME MINISTER to discuss it with them. The PRIME MINISTER, owing to great pressure of other work, has asked the Lord President to be good enough to look into the matter for him.

    On the recommendation of the Committee on the grant of Honours, Decorations and Medals in time of war, the D.S.O., C.G.M. and D.S.M. were recently made available for the MERCHANT NAVY. The V.C. and D.S.C. were already available. Honours, other than appointments to the Order of Merit and the Royal Victorian Order, are granted by the King only on the recommendation of a Minister of the Crown. At present, recommendations for military awards in the MERCHANT NAVY are being made by the First Lord of the Admiralty, the Minister responsible in accordance with custom for making recommendations for these naval awards. The Minister of War Transport, so I understand, wishes to be party to the recommendation to the King when these awards are to be made in the MERCHANT NAVY.

    When ships of the MERCHANT NAVY are sunk or damage, the senior surviving Officer, and frequently other survivors, are interviewed at the Admiralty and also by the Ministry of War Transport in LONDON or at another port. Recommendations for awards in the MERCHANT NAVY arise from these interviews. The other source of recommendation is a direct submission by the Naval Officer in charge of some operation. After, for instance, the recent MALTA convoy, recommendations were made by the Commander-in-Chief, Mediterranean, direct to the Admiralty. All these recommendations, of both types, go to a Committee which sits at the Admiralty under the Chairmanship of the Admiral in charge of Honours and Awards. Two MERCHANT NAVY Officers representing the Ministry of War Transport are members of this Committee. The findings of the Committee, when naval awards are to be recommended (e.g., V.C., D.S.O., D.S.C., C.G.M., D.S.M. or Mention), are submitted to the First Lord of the Admiralty, who makes the formal submission to the King. The Minister of War Transport regards himself as responsible for the MERCHANT NAVY, and considers that Officers and men look to him to see that proper treatment is meted out to them in all matters. He therefore wishes to be a party to the recommendation to the King. He cannot desire that merely as a matter of form. It obviously involves being a party to the final judgement, whether the case should go forward or not. It must be presumed that it is the joint responsibility for the award, which Lord LEATHERS wants. At present although the Minister is represented on the Committee, the First Lord is advised by the Committee as a whole. The First Lord alone, on the ministerial plane, is therefore, formally responsible for the final selection of a recommendation for submission.

    When the question of the extension of these further naval awards to the MERCHANT NAVY was under consideration, I prepared the draft amending the instructions for the D.S.O., the C.G.M. and the D.S.M. Following the words used when the D.S.M. was extended to personnel of the ROYAL AIR FORCE serving with the Fleet,

    And whereas we (the Lords Commissioners of the Admiralty) are of opinion, and the Air Council agrees, that it would be appropriate …
    I suggested the words
    And whereas we (the Lords Commissioners of the Admiralty) are of opinion, and the Minister of War Transport agrees, that it would be appropriate …
    in the draft Warrants for the C.G.M. and D.S.M. I did not go so far as to suggest that the Minister of War Transport should be party to the decisions of the actual recommendation for military award, but merely suggested that his name should be incorporated as being a party to the recommendation that military awards should be given at all. The Admiralty asked that reference to the Minister of War Transport should be removed. [Part of following sentence underlined in pencil] I removed it and circulated the draft Statute and two draft Warrants to the Committee, including Sir C. HURCOMB, for consideration. The Ministry of War Transport raised no objection at all to the form of the draft Warrants, in which it was made abundantly clear that the First Lord of the Admiralty should be the individual who would decided whether the recommendation for an award should be made or not. The Ministry of War Transport agreed to the submission of the draft Report.

    If the Minister of War Transport is to make joint recommendations, then he should, I think, be jointly named at the three points marked in H.W. 531.

    The following arguments may be stated for the Admiralty:

    (1) The form of the draft Warrants had been approved by the Ministry of War Transport and by the Committee, and in draft form by the King, for His Majesty has approved the Report, H.Q. 531. (It is not, however, too late to make recommendations to His Majesty for a further amendment.)

    (2) The V.C. and the D.S.C. have, for many years, been available for the MERCHANT NAVY, and entirely on the recommendation of the First Lord of the Admiralty. (No awards of the V.C. have, however, in fact, been made.)

    (3) Arrangements for convoys are made mainly by the Admiralty, and the Officers commanding them are appointed by the Admiralty.

    (4) Actions when convoys are attacked by the enemy are primarily a naval matter and are carried out under the command of the Commodore of the convoy.

    (5) Military Honours have always in the past been granted by the King on the recommendation of the Minister of the military Department concerned.

    (6) With a few exceptions such as the A.M., E.M., S.G.M. and K.P.M., the final ministerial responsibility for all UNITED KINGDOM Honours for civilians rests with the PRIME MINISTER and he mades the recommendations to the King. If a civil Minister is to take part with the First Lord of the Admiralty in a recommendation to the King, it should perhaps be the PRIME MINISTER.

    (7) The Ministers mainly responsible for the UNITED KINGDOM Fishing Fleet are the [Part of following sentence underlined in pencil] Minister of Agriculture and Fisheries and the Secretary of State for SCOTLAND, rather than the Minister of War Transport (For many purposes, however the Ministry of War Transport deal with trawlers, etc.)

    (8) The Army D.E.M.S. personnel acting as gunners in merchant ships are eligible for naval awards, and the recommendations are made by the First Lord of the Admiralty to the King. No question has arisen of a joint recommendation by the Secretary of State for War. (The Army are, however, definitely under Admiralty orders).

    (9) Army Honours are sometimes given to naval personnel on shore and also to ground staffs in the Air Force. [The following sentence has been highlighted by a mark in the margin.] In these cases there is never a joint submission to the King. The one Minister responsible for administering the decoration makes the submission.

    (10) Recommendations for civil UNITED KINGDOM half-yearly Honours are all made by the PRIME MINISTER direct to the King. In the great majority of cases some other Minister is also interest and has initiated the recommendations. It has never been suggested that all these Ministers, e.g. the President of the Board of Education, Minister of Health, First Lord of the Admiralty, etc. should make a joint recommendation to the King with the PRIME MINISTER.

    (11) Provided the scales of award agreed by the Committee on the grant of Honours, and approved, are carefully observed, the Admiralty have been regarded up to now as entirely responsible for the standard of the purely naval awards such as the C.G.M. and D.S.M. and for the standard of awards of the V.C., D.S.O. and Mention for services at sea. They will continue to be responsible for recommending the bulk of the awards which will be in the ROYAL NAVY, while another Minister responsible in part for some of the awards might be able to bring about a lowering (or raising) of the standard which would not be in accordance with Admiralty principles.

    The War Office have steadfastly declined to the the Air Ministry recommend direct to the King, awards of the M.C. and M.M. for services by ROYAL AIR FORCE personnel on the ground. The Air Minister approves and passes the recommendation to the War Office who thus controls standards. [The following sentence has been underlined in pencil.] The Air Ministry do not like this and protest when occasion offers, but the practice definitely remains unaltered.

    ---

    For the Ministry of War Transport the points below may be made, in addition to the observation in brackets above, following paragraphs numbered (1), (2), (7) and (8).

    (12) Ships often fight alone against enemy submarines, aircraft, etc. No Naval Officer is present, or in any way concerned with the action.

    (13) There are the precedents of the A.M. and the E.M., etc., awards made on the recommendation of the Home Secretary, and the S.G.M. awards made on the recommendation of the Minister of War Transport.

    (14) The Minister mainly responsible for the MERCHANT NAVY should be a recommending authority.

    ---

    The present difference of opinion has arisen, it seems, directly between the two Ministers concerned. The views of the Minister of War Transport have not been made known to the Committee on the grant of Honours, etc., as a whole or submitted to the Committee for consideration.

    It is possible that the Minister of War Transport would be content if the findings of the Selection Committee at the Admiralty, relating to naval awards in the MERCHANT NAVY, are referred to him for consideration and approval, and then submitted by him to the First Lord of the Admiralty, who would be the final and responsible Minister for the submission the the King.

    The weight of argument based on the precedents and practice alone, falls I think slightly in favour of the Admiralty. The Minister of War Transport must base his claim mainly on the fact that this is a new departure, of far-reaching consequence, which calls for new methods and different processes. He is responsible for a gar civilian service which for part of its time, when in action, is to be treated for these purposes as a military body. He has some case on that ground for the overriding of the Admiralty arguments. If the Lord President, when he sees the two Ministers on Thursday, finds the arguments fairly equally balanced, no serious damage will be done to the Honours system generally whichever side he may favour. If, for the sad of peace, he should support the Minister of War Transport, it will be easy for those concerned to arrange for the necessary amendments to the drafts of the Statute and the Warrants.

    R.E.K.
    22.9.42
     
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    [Handwritten names]:
    Sir R HOPKINS
    Lord President


    Following is the memorandum prepared at the Lord President's request.

    "I have considered, on behalf of the Prime Minister, the question which has arisen relating to the method of dealing with recommendations of Officers and men in the Merchant Navy for Honours and awards.

    At present, the Committee at the Admiralty, under the chairmanship of the Admiral in charge of Honours and awards, and including, by agreement with the Ministry of Transport, two representatives of the Merchant Navy, makes all recommendations of Merchant Navy personnel to the First Lord of the Admiralty. Submissions for naval awards, such as the V.C., D.S.O., C.G.M., D.S.M. and Mention, are made by the First Lord of the Admiralty to the King. Recommendations for immediate civil awards, such as the G.C., G.M., C.B.E., O.B.E., M.B.E., B.E.M. and Commendation, are sent by the Admiralty, in the name of the First Lord, to the Treasury, where they are dealt with on behalf of the PRIME MINISER, including examination, where necessary, by the central selection Committed, and the PRIME MINISTER makes the submission to the King. Recommendations for half-yearly civil awards such as Knight Bachelor, C.B.E., O.B.E., M.B.E., B.E.M., are submitted by the Minister of War Transport to the PRIME MINISTER and dealt with in the Treasury in the same way, the PRIME MINISTER making the submission to His Majesty. The Minister of War Transport asks the First Lord of the Admiralty to express his concurrence in the half-yearly recommendations it is proposed to make.

    [*]It is desirable that the Minister of War Transport should be associated with the recommendations of military awards more closely than at present. I do not consider that he should be party to the submissions to the King for these awards. The submissions should continue, in accordance with custom, to be made by the First Lord alone. The Minister of War Transport should, however, see all the recommendations on their way from the Committee at the Admiralty to the First Lord, and a letter should be sent from the First Lord's Office to the Private Secretary to the King, making it clear, for the information of His Majesty, that although the submission of naval awards for the MERCHANT Navy will be made by the First Lord, the Minister of War Transport will in fact, in every instance, be associated with the First Lord in the selection.

    In addition, in the new Orders in Council, for which it will be necessary to seek authority, making the C.G.M. and the D.S.M. available for the MERCHANT NAVY, the Minister of War Transport should be associated with the change. The words in the draft "And whereas we (the Lords Commissioners of the Admiralty) are of opinion that it would be appropriate, etc." should be altered to "And whereas we are of opinion, and the Minister of War Transports agrees, that it would be appropriate, etc."

    Recommendations for immediate civil awards should be made by the Committee at the Admiralty to the Minister of Transport. He will submit them to the PRIME MINISTER through the Treasury, to be dealt with on the PRIME MINISTER's behalf, including examination, where necessary, by the central selection Committee, so that the PRIME MINISTER may make the submission to the King.

    At present when recommendations for immediate civil awards have been approved by the King and they are to be gazetted, the Permanent Secretary, Admiralty, sends letters to the individuals, notifying them that the First Lord has learnt of the King's approval of the awards. In civil cases in future, these letters should be sent by the Director-General, Ministry of War Transport, the form of the communications being appropriately altered.

    Recommendations for half-yearly civil awards will be dealt with as at present, but the concurrence of the First Lord of the Admiralty will not be necessary."


    R.E.K.
    30.9.42


    [Please note that attachment is image of handwritten note at top of original document.]
    * See post 14 http://www.ww2talk.com/forum/472622-post14.html
     

    Attached Files:

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    [Handwritten names]:
    Sir R HOPKINS
    ? BARNES

    [Handwritten note]: Discussed with Sir R. KNOX who will submit a further note. J.A. 30/9


    Merchant Navy Honours

    I understand that the Lord President, after seeing the First Lord of the Admiralty and the Minister of War Transport, decided

    (a) that the First Lord should recommend military awards in the Merchant Navy to the King, but that the Minister of War Transport should in some overt way be associated with the matter.

    (b) that His Majesty should be informed that all military recommendations of Merchant Navy personnel reaching him from the First Lord of the Admiralty have in fact been agreed by the First Lord of the Admiralty with the Minister of War Transport.

    (c ) that he would consider what might be some practical way for the Minister of War Transport to take over civil awards.


    ---

    The Naval Secretary came in here yesterday to put again the Admiralty case. I think the only point he made which I did not note in my memorandum of 22nd September was that MR. CHURCHILL, when First Lord of the Admiralty early in this war, declined, so it is stated, to allow MERCHANT NAVY recommendations to be dealt with except by the Admiralty. I think it can be claimed by the Ministry of War Transport with some reason that the whole matter has grown since those days both in importance and in scale to such an extent that review of the practices is nevertheless justifiable.


    Military Awards

    (a) Association of the Minister of War Transport with the awards
    I suggested to Lord LEATHERS the possibility of association in the form in two places on H.W. 531. He considers this quite inadequate.

    In those circumstances he will not, it appears, be satisfied with less than the addition, after "First Lord of the Admiralty", of the words "and the Minister of War of Transport", in three places on H.W. 531, in the new drafts of the Statutes and Warrants for the D.S.O., C.G.M. and D.S.M.

    The V.C. Warrant and the Order in Council for the D.S.C. would also require amendment. The former instrument is now in course of amendment.

    The present Committee at the Admiralty would report proposed military awards to the Minister of War Transport and he would forward them to the First Lord of the Admiralty, who would make the submission.

    The Admiralty will, of course, object to the whole of this. If they dislike sending their papers to the Minister of War Transport, a precis could be sent. They will also raise objection on grounds of delay. That, of course, affects both Ministers equally.


    (b) His Majesty to be informed
    A letter might be sent to the King's Private Secretary from the Office of the First Lord of the Admiralty, explaining for the information of His Majesty that recommendations by the First Lord of military awards for the MERCHANT NAVY have in every case the concurrence of the Minister of War Transport.

    Civil awards
    (c ) The Admiralty, I understand, may be willing to relinquish in civil cases the business of notifying individuals that the King has approved the awards. These letters now go out from the Permanent Secretary, Admiralty, in the name of the First Lord of the Admiralty. They might be sent by the Director-General, Ministry of War Transport in, of course, a different form. Lord LEATHERS, I understand, will not, however, be satisfied with that change alone.

    The Committee at the Admiralty includes two representatives of the Ministry of War Transport, one on the staff of the Ministry of War Transport and the other from Trinity House. At present, the Secretary to the Admiralty Committee sends, in the name of the First Lord, the recommendations in all civil cases to the Treasury. They are there dealt with on behalf of the PRIME MINISTER and his Committees, and are, if approved, then submitted to the King by the PRIME MINISTER.

    If Lord LEATHERS is to deal with these civil cases himself, rather than the First Lord of the Admiralty, then the Committee at the Admiralty would report all their recommendations for civil awards to the Minister of War Transport. The Ministry of War Transport would send the recommendations to the Treasury so that they could be dealt with on behalf of the PRIME MINISTER and by the Committees advising the PRIME MINISTER, and prepared for submission so that the PRIME MINISTER would make the final recommendations to the King.

    The Admiralty will raise objection to the whole of these proposals, mainly on the ground of delay. How long any delay will be must rest with the Ministry of War Transport. This should not necessarily be more than a day or two in the majority of recommendations.

    ---

    I understand from you that the Lord President has stated that he may wish to have a word with me about the matter. I am at his disposal.

    R.E.K.
    29.9.42
     

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    Mr BURKE,

    Sir R. KNOX's report seems to me a correct, as well as a full, statement of the case. While agreeing with him that no serious damage ? be done by accepting Lord LEATHER's view I think that it might lead to other troublesome reactions (eg as to R.A.F. ground personnel) ? the other arguments tell rather more decidedly in ? of the Admiralty than Sir Robert has suggested.

    Signed ?

    23.9.42
     

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    [Image of covering slip "With the Private Secretary's compliments...." is attached.]


    COPY

    MINISTRY OF SHIPPING

    5th February, 1940

    My dear Winston,

    I have just seen the semi-official letter from Gleadowe of your Department to Guttery of mine about the recognition of good services by men of the Merchant Navy in face of the enemy. I think the proposals made in that letter should do much to achieve the end we desire, namely, to associate my Ministry directly with awards made to men of the Merchant Service.

    I notice, however, that the third proposal is that recommendations made by the Honours and Awards Committee for recognition of services should come to me for my observations before being submitted to you. This does not go quite as far as I should like. I understand that in the discussions between our Departments it was proposed that the submission to the Prime Minister should be jointly by the First Lord of the Admiralty and the Minister of Shipping. I feel that this would be the proper course, since the Minister of Shipping is very closely concerned with all matters which affect the personnel of the Mercantile Marine.

    It is most important for very real reasons of policy that the officers and men of the Merchant Service should realise how closely we are interested in their work and welfare. For this reason, I think that joint submission would have an excellent public effect. I very much hope, therefore, that you will agree that submissions to the Prime Minister of recommendations for awards to men of the Mercantile Navy should be jointly by us.

    Yours sincerely,
    (Sgd.) JOHN GILMOUR



    The Rt. Hon. Winston S. Churchill, C.H., M.P.
     

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    COPY

    February 13, 1940.


    My dear Minister of Shipping,

    Thank you for your letter of February 3. The general principle that the Ministry of Shipping must be closely associated with awards made to men of the Merchant Service is not, of course, a new development, and the proposals which have been made by the Admiralty have simply had the object of establishing a procedure analogous to that of the last War.

    The suggestion that the Minister of Shipping and the First Lord should jointly submit recommendations to the Prime Minister is, however, an important departure from former practice and I do not feel that I could agree to its adoption without the decision of the Cabinet. I have always understood that the arrangements of the last War worked very well, and I am not aware of any present circumstances which necessitate a change.

    Yours very sincerely,
    (Sgd.) WINSTON S. CHURCHILL



    Lieutenant Colonel The Right Honourable Sir John GILMOUR, Bt., G.C.V.O., D.S.O., M.P.

    Thank
     
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    Great George Street, S.W.1.

    2nd October, 1942


    My dear Leathers,

    I am sending herewith an not of my finding on the matters discussed at our meeting last Thursday on the question of Merchant Navy Honours. I should be very glad to have any comments you may care to make before I issue it.

    Yours ever,

    (Sgd) John Anderson



    The Rt. Hon. Lord Leathers.
     
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    [Handwritten]: Personal


    Great George Street, S.W.1.

    2nd October, 1942


    My dear Albert,

    I am sending herewith an not of my finding on the matters discussed at our meeting last Thursday on the question of Merchant Navy Honours. I should be very glad to have any comments you may care to make before I issue it.

    Yours ever,

    (Sgd) John Anderson

    P.S. If you would find it less embarrassing not to have received this note at the present stage just tear it up and let me know!



    The Rt. Hon. A.V. Alexander, C.H., M.P.
     
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    BERKELEY SQUARE HOUSE,
    W.1.

    3rd October, 1942.

    My dear Anderson,

    Many thanks for your letter of yesterday enclosing a note of your finding on the matters discussed at our meeting last Thursday about Merchant Navy Honours. There are no comments which I wish to make.

    Yours ever,

    Leathers



    The Rt. Hon. Sir John Anderson, GCB., GCSI., GCIE., MP., Privy Council Officer, Great George Street, S.W.1.
     
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    PRIVY COUNCIL OFFICE,
    WHITEHALL, S.W.I.
    Great George Street, S.W.1.

    7th October, 1942.


    Dear Sir Robert,

    The Lord President would be grateful if you could let him have your observations on the attached letter from the First Lord about Merchant Navy Honours.

    Yours sincerely,

    JA BURKE


    Sir Robert Knox, K.C.V.O., D.S.O.
     
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    ADMIRALTY WHITEHALL

    6th October, 1942

    My dear Anderson,

    I am most grateful to you for giving me the opportunity of commenting on your ruling concerning the recommendations of awards to Merchant Navy personnel, as there are several points which cause me concern, and to which I would invite your further attention.


    MILITARY AWARDS
    At present the recommendations of military awards made by the Admiralty Honours and Awards committee are submitted to one or more members of the Board of Admiralty before being placed before me. I think it would be incorrect for their recommendations to be placed before another Minister before I had approved of these recommendations, either in their original, or in an amended state. It is undesirable to insert the opinion of another Minister between other members of the Board and myself. It must be borne in mind that I reserve the right of altering the recommendations which are submitted to me. I would therefore greatly prefer that the recommendations should be placed before the Minister of War Transport after they have received my approval rather than before it. If this proposal is approved, lists of these recommendations as approved by me would be sent to the Minister of War Transport, and my submission to the King held up pending the receipt of the Minister's concurrence.


    CIVIL AWARDS
    I would suggest that the immediate and operational civil awards are treated in a similar manner with the exception that, subject to the Minister of War Transport concurring in the recommendations, they should be submitted by him to the Prime Minister through the Treasury, instead of being returned to the Admiralty.

    With reference to the final paragraph of your suggestions, I consider it desirable that half-yearly recommendations should continue to be referred to me. This is solely in the interests of the Merchant Navy so as to avoid awards being given to unworthy individuals, on whom adverse reports may have been received at the Admiralty, but not at the Ministry of War Transport. When this occurs the recommendations would be referred back to the Minister of War Transport for his further consideration.

    Yours sincerely

    A.V. Alexander.



    The Right Honourable Sir John Anderson, G.C.B., G.C.S.I., G.C.I.E., M.P.
     
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    Gt. George St., S.W.1.

    9th October, 1942.


    My dear Alexander,

    Thank you for your letter of 6th October about awards in the Merchant Navy. I have very carefully considered the points you raise with the following result.

    1. Military awards.
    As you are to be the submitting authority, the arrangement you suggest for sending to the Minister of War Transport recommendations after they have received position. I can, however, meet your point in substance. I propose that
    (a) the joint Committee at the Admiralty, on which the Minister is represented, should, when reporting, send him a copy of their Report; and
    (b) when recommendations of the Committee reach you, by whatever route in the Admiralty you may authorise, and you have considered them, and varied them should you so desire, you would have them sent to the Minister of War Transport with a statement that you "propose to approve them". I will amend my memorandum accordingly.

    2. Civil awards, immediate and operational.
    These I regard as primarily the business of the Ministry of War Transport. Recommendations for civil awards by the joint Committee which sits at the Admiralty should, in my view, be made direct to the Minister of War Transport without the intervention of any Members of the Board of Admiralty. The Admiralty will of course see the reports and be in a position at any time to make representations to the Ministry with regard to any recommendations contained in them. I am prepared to add a sentence to this effect to my memorandum if desired.

    3. Civil awards, half-yearly.
    If adverse reports during the war on Officers or men in the Merchant Navy have been recorded at the Admiralty and have not for some reason been communicated to the Minister of War Transport, these should, I suggest, now be so communicated. He should also, I consider, be furnished with such reports of this nature as may be recorded in the Admiralty in the future. The Minister of War Transport would then be in possession, as he certainly should be, of all the information needed for the purpose of the submission of the half-yearly lists as proposed in my memorandum.

    Yours sincerely,
    (Sgd) John Anderson



    The Right Hon. A.V. Alexander, C.H., M.P.
     

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