_DEMOBILIZATION._
Demobilization, following a war of such length and intensity as that of
the Four Years’ War from August, 1914, to November, 1918, is not a mere
problem of repatriation, it is a problem of reconstruction—a gigantic
one at that—desiderating the undivided efforts of every organization in
the nation and the assistance of every citizen.
Consider for a moment what had happened in the industrial world. During
the four years of war, Governments were the chief employers of men, the
chief purchasers of raw materials, and the chief sources of revenue for
an overwhelmingly large portion of the population. To retain the ideals
of democracy Governments were given unlimited power—power which was
utilized in organizing practically the entire life of the belligerent
nations into a vast machine for turning out implements of war. Not only
was this war-time industry mobilized under unified control, but the
market for which its product was turned out could not be flooded.
Indeed, it continually called for greater and greater production
regardless of cost. The expansion of business, and the building up of a
huge army of war workers, the scarcity of labor and raw materials, the
shifting of markets, the meteoric rise of prices, the less rapid rise of
wages, Government control of prices, raw materials and exports, the
inflation of currency, the huge increase in national debts—these were
some of the phenomena which characterized the period. They justify the
assertion that a revolution in the economic and industrial life of the
nations had occurred. Even in Canada, remote from the scene of actual
strife, a generation’s changes were compressed into four short years.
Then suddenly, on November the eleventh, the object for which the vast
war machine had been built up was attained. The necessity for its
existence vanished over-night, and the world found itself face to face
with the task of scrapping the industrial machine which had so
effectively served the requirements of war, and of rebuilding one which
would serve just as effectively the entirely different requirements of
peace. The new task was more difficult than the old, and had to be
accomplished in a much shorter period—a few months, instead of four
years. Again, the problems themselves were more delicate and intricate;
largely problems of human psychology, not of mechanics, requiring for
their solution not compulsion, but education, persuasion and
co-operation. The world has learned that it is much easier to make war
than to make peace.
The early days of 1914 and 1915 were days of mobilization problems, and
they were problems indeed. The provision of arms, equipment and food had
to be undertaken on a scale unheard of before. It was necessary to
provide transportation for vast bodies of troops and great quantities of
stores, to say nothing of the construction of training camps, rifle
ranges, and all the paraphernalia of war. The human element, fresh and
easily responsive to patriotic appeal, presented few difficulties at
that time.
There are, however, certain conditions inherent in military life which
go far towards unfitting the soldier for civilian occupation. Without
entering into a discussion of the reasons for these conditions, two of
them at least may be enumerated. In military life individual liberty is
impossible, but it is of supreme importance in civil life. Further, in
military life ambition or self-interest, which may be considered a
fundamental motive in human action, becomes of secondary importance.
Self-interest is, in fact, disciplined into complete abeyance. The
moment the soldier becomes a civilian the restraints upon his individual
liberty are more or less removed, and it is entirely in keeping with the
impulses of human nature if he should, for a time, go to the opposite
extreme. Then again, he finds it no easy task to awaken the ambition
lying dormant within him, and it frequently happens that it is only from
bitter experience that he learns it is necessary to rely, in the first
instance, upon himself. These two conditions alone emphasize how
different are the various problems of demobilization and mobilization.
The success or failure of the work of reconstruction depends, not so
much on the highly-developed organization as on the amount of personal
service, whole-hearted sympathy and understanding brought to the work by
those who, together with the soldier, must face the many obstacles
confronting him in the first stages of his return to citizenship.
Without the active co-operation of the soldiers themselves the work of
reconstruction could not be a success. Undoubtedly our present
stability, in comparison with many other parts of Canada is, in a large
measure, due to the initiative and strength of purpose with which our
soldiers have met, and are meeting, the tasks of a humdrum every-day
life. It would, no doubt, be surprising to the average citizen were he
to know how many men in Nova Scotia have re-established themselves
without assistance from the Government.
It was not until the closing days of 1915 and the return of casualties
gassed and wounded from Ypres, Festubert, and Givenchy, that the
problems of demobilization began to press for attention. The country was
sadly lacking in proper hospital accommodation and equipment, especially
for the treatment of surgical cases. The disabled man was finding it no
easy matter to re-establish himself and the provision of industrial
training or suitable employment for him was an urgent need. In many
other ways the necessity for a radical change made itself apparent.
The actual work of getting the soldiers home and out of khaki was in the
hands of the Department of Militia and Defence; but the methods of peace
and war are as far removed as day and night, and it was soon recognized
that the re-absorption of returned soldiers into civil life, with the
least disturbance of economic conditions, could not be best performed by
an organization of the military type. The first step in the direction of
providing a suitable organization was taken when the Military Hospitals
Commission was formed in the same year. The duties of this Commission
eventually embraced almost every phase of the problem of demobilization,
from the provision of hospitals, convalescent homes and treatment, to
vocational re-education for those who, through a disability were unable
to return to their former occupation.
Not all the emergencies were, of course, foreseen; and from time to time
changes for the better were made in the regulations. Shortly after the
formation of the Commission a conference of representatives from the
various Provincial Governments was called at Ottawa, and the suggestions
there adopted involved an extension of the work by the appointment of a
sub-committee of the Federal Commission in each Province, to assume the
responsibility of finding employment for discharged soldiers.
Immediately following this conference the Returned Soldiers’ Employment
Committee of Nova Scotia, or, as it was afterwards known, the Nova
Scotia Returned Soldiers’ Commission, was appointed. The importance of
this work at the time could not be overestimated, for is not
reconstruction fundamentally a problem of employment and employment
conditions? This function, however, by no means exhausted the activities
of the Provincial Commission. On executive questions of a local nature
it was the advisory body of the Federal Commission at Ottawa, and its
scope was extended as the need arose, until it embraced practically all
matters dealing with returned men. On certain occasions the Commission
maintained an early and aggressive stand on problems which were not
merely of a local character, but which affected the economic life of the
Dominion.
When the Military Hospitals Commission was formed, it was found
necessary to operate Interviewing Departments in conjunction with the
Clearing or Discharge Depots at Halifax, St. John and Quebec, in order
to secure information from which to compile records. Each returning
soldier on the ship’s nominal roll was questioned regarding his pre-war
occupation, his future prospects and intentions, as well as other
general information required. In the case of casualties the proceedings
of the last medical board were also secured. At Halifax a Staff of
returned men were engaged in this work under the supervision of W. B.
MacCoy, Secretary of the Provincial Commission. As the interviewing for
the whole of Canada was performed at the ports, it can be appreciated
what a vast amount of work this entailed, particularly when handling
hospital ships. The severely disabled men were, of course, unable to
visit the Interviewing Department. Consequently it was not possible to
proceed as rapidly as in the case of ordinary transports.
Another detail of the disembarkation which involved a great deal of work
on the part of the Commission was that of notifying the next-of-kin of
returning soldiers. A copy of the Nominal Roll prepared on the voyage
across, was secured immediately after the ship had docked and the
Secretaries of the Returned Soldiers’ Commissions in the various other
Provinces were telegraphed a complete list of the men going forward with
the names and addresses of their relatives or friends.
The Nova Scotia men were, of course, dealt with first, as in many cases
they would arrive home within a few hours. Their names were either
telegraphed or telephoned to the Secretaries of the Town Reception
Committees who, in turn, notified the relatives and aided in providing a
suitable reception.
During the War, Nova Scotia was exceedingly fortunate in the matter of
employment. The number of unemployed soldiers seldom averaged more than
ten per cent., and was usually between two and seven per cent. However,
the abnormal conditions prevailing after the signing of the Armistice
rendered the number of placements by the Commission, for a time at
least, almost negligible. Numbers of men were suddenly thrown on the
labor market by the closing of war-time industries, while at the same
time our soldiers were being returned in thousands. This was by no means
the critical period. Many of the men returning after years of service
Overseas felt the need of a well-earned vacation more than they did of a
job, while those who had dependants and who were anxious, but unable, to
secure immediate employment, were temporarily provided for by the war
service gratuity. For the majority, the most anxious time arrived during
the succeeding fall and winter months. It is not the intention, however,
to deal with the employment activities of the Commission. Attention must
be confined to work of a more general nature.
As previously stated, the country, particularly Nova Scotia, was sadly
lacking in hospital accommodation. In the spring and early summer of
1915, nearly all returned soldiers either came through the Port of
Quebec, or, if disembarked at Halifax, were forwarded to the Discharge
Depot there. Save in a few instances, such as severe casualties, these
men as soon as medically examined were given transportation to their
homes. Discharge Certificates were usually not issued for months after
their return, and a great deal of confusion resulted. Indeed, few of the
men were aware of their status, and it not infrequently happened that,
instead of the longed-for piece of parchment, they received a letter
from their Military District instructing them to report for duty,—this
after having perhaps accepted civilian employment. The uncertainty of
their future added to the difficulties of obtaining a satisfactory
position, for after a few experiences, employers generally hesitated to
engage a man who was not in possession of a certificate releasing him to
civilian duties. As time went on, too, pay complaints began to pour in
by the score, due no doubt to an antiquated system of handling
documents, and the poor working facilities afforded the District Pay
Staffs.
About the end of the following year the Provincial Commission advised
the erection of a hospital, but although the officials of the Military
Hospitals Commission apparently concurred in the Provincial Commission’s
views, the conditions remained unchanged. Repeated reports were made by
the Secretary and concrete cases submitted, showing the necessity in
certain instances for providing treatment. The situation became so acute
that at a meeting of the local Commission, held on February 21, 1917,
certain members, feeling that the existing state of affairs might be
construed as reflecting upon them, tendered their resignations to the
Chairman. These resignations were, however, held in abeyance for a few
days, and a strongly-worded resolution was passed and forwarded to Sir
James Lougheed. Several days later a special meeting was called at the
request of the Director of the Military Hospitals Commission, at which
were present two officials of that body with full authority to take what
steps were deemed necessary in order to relieve the situation. The
writer, who has had access to the correspondence and records, can state
without fear of contradiction, that it was wholly due to the efforts of
the Provincial Commission that Camp Hill Hospital was erected in 1917.
Readers who are familiar with conditions both then and during the period
following the Halifax disaster must realize what a boon it was to have
had this splendid institution awaiting any and all emergencies.
The subject of Vocational Training was one in which the Commission took
a deep interest from the very first. One of its early steps was to
institute a careful survey of all existing educational facilities
throughout Nova Scotia, which could be used for the re-education of
disabled men. The re-training of this class was of the utmost
importance, and the Commission successfully fought for the enactment of
several regulations tending to broaden the scope of the Vocational
Department.
One of the most persistent efforts was made in the interest of the
physically fit “boy soldier.” Aside from the minor who had been
disabled, no provision existed whereby these young boys could be
afforded the opportunities of re-education or re-training. The need for
this was foreseen by the Provincial Office some two years before the
close of the War and no opportunity was lost in the furtherance of their
proposal to place them on the same footing as the disabled man. It was
most desirable to provide facilities for the education of these young
soldiers who enlisted in the Forces at an immature age. Their decision
was made at a time when they could not probably measure the consequences
of their act, and for this reason the public was responsible for any
disadvantages accruing to them. The years spent in the army were just
those during which they should have been fitting themselves to win a
position of self-support and independence; and it is not only an
advantage to themselves, but to the country, that they have been
assisted in preparing for the earning of a livelihood rather than having
been forced into the ranks of unskilled labor. The step taken by the
Government in the early part of last year was indeed satisfactory in
consideration of the initial and continuous efforts of the Provincial
Commission.
The Soldier Settlement Act, passed in 1917, has proved to be one of the
most satisfactory measures of re-establishment provided by the
Government. As originally framed, however, it was of very little value
to a man who desired to go on the land in the Maritime Provinces. The
free grants provided by the Act were restricted to Dominion Lands, while
here any land of value for agricultural purposes is privately owned.
This was clearly placing under a handicap the Nova Scotian soldier who
wished to stay in his native Province, inasmuch as the maximum amount
which could be borrowed under the Act was only $2,500. The Provincial
Commission urged very strongly that the benefits to be derived should be
equally distributed and enjoyed by soldiers wishing to go on the land in
any Province. At the 1918 yearly meeting of Provincial Secretaries, held
at Ottawa, the other Provinces were unanimous in supporting the Maritime
representatives, and a resolution was passed petitioning the Federal
Government to extend the provisions of the Act. This was done some time
afterwards, and to-day we have in Nova Scotia some three hundred and
fifty farms producing, and as many soldiers re-established in this way.
[Illustration:
W. B. MACCOY, K.C.]
The months which followed the erection of Camp Hill Hospital brought
many changes. The Military Hospitals Commission ceased and was succeeded
by the Department of Soldiers’ Civil Re-Establishment. New organizations
arose, and new methods were inaugurated in old ones to meet the
constantly increasing needs and changing problems. But space will not
permit to deal with all the phases of this many-sided and deeply
interesting work. At best details can only be touched upon, and the
three instances quoted of the Commission’s connection with the larger
problems of reconstruction by no means exhausts an interesting store of
past events. The part taken by W. B. MacCoy, K.C., Secretary of the
Commission, is deserving of the fullest public recognition. No man has
been more sincere or more zealous in safeguarding the interests of the
Nova Scotian soldiers. His work was not undertaken without a sacrifice,
but the appreciation of thousands of soldiers and dependants expressed
in the letters of thanks contained on the fyles of the Commission, and
in many other ways, has doubtless repaid him in full.
Victory was the reward of loyalty and co-operation and the willingness
of each and every soldier to subjugate self in the welfare of the whole,
and play the game as best he could. Demobilization has required no less
devotion, energy, and co-operation than did the War itself and the
measure of success attained through the sympathy, tact, and ability
displayed by however humble a servant in the great work of
reconstruction will be reflected in the national life of Canada for the
next generation.