activity of the Commission is its radio monitoring and investigating, carried on by the Radio Intelligence Division of the Engineering Department. The Division has 102 monitoring stations throughout the United States and its Territories. These are constantly on the watch for enemy, treasonable, and unlicensed radio transmissions, and for lost ships and planes. The cooperate closely with, and supply necessary intercepts to, the Army, Navy, Coast Guard, Federal Bureau of Investigation, and other war and intelligence services. More than 38 percent of the total Commission personnel and 41 percent of its total 1944 estimate is for the work of this Radio Intelligence Division.

The second largest single activity of the Federal Communications Commission is carried on by its Foreign Broadcast Intelligence Service, which regularly translates, analyzes, and reports on broadcasts originating in foreign countries. Foreign Broadcast Intelligence Service reports and analyses have become one of the basic intelligence sources upon which all war analysis work is based. The economic warfare waged by Bureau of Economic Warfare, the psychological warfare carried on by the Office of War Information, the strategic services rendered by the Office of Selective Service, as well as Army, Navy, and Air Force intelligence services and many other Federal and United Nations agencies, all draw upon Foreign Broadcast Intelligence Service foreign broadcast reports and analyses. More than 18 percent of the total personnel of the Commission, and nearly 23 percent of its total 1944 estimate is for the work of the Foreign Broadcast Intelligence Service.

A great many of the balance of the Commission's activities relate to problems which proceed directly from wartime conditions. These include the studies of the speed and adequacy of telegraph services; conditions affecting the functioning at peak efficiency of standard broadcasting and various special services; the operation of foreign-language broadcasting stations; the institution of a new War Emergency Radio Service for civilian defense purposes; the expansion and most effective use of American shortwave facilities for psychological warfare purposes; the insuring of an adequate and secure system of communication to the many overseas points which our world-wide military operations require; the safeguarding of communications plant and equipment against sabotage; the security of wire communication against interception; the allocation of critical equipment to the most dicect military use possible; the recapture for military use of frequencies devoted to less essential civilian functions; the determination of communications equipment needs in cooperation with the War Production Board; the issuance and enforcement of uniform instructions to insure radio silence during air-raid alarms; etc.

In very large measure these and other special wartime activities are carried on in conjunction with other Government departments, for example, the Army, Navy, State Department, Office of War Information, Office of Censorship, War Production Board, Department of Justice, Office of Civilian Defense, etc. In particular, the Commission carries on many of these and other activities at the request or in behalf of the Board of War Communications. The Board is composed of the Chief Signal Officer of the Army, the Director of Naval Communications, the Assistant Secretary of State in Charge of International Communications, the Assistant Secretary of the Treasury in Charge of Enforcement Activities, and the Chairman of the Federal Communications Commission, who is also chairman of the Board. The Board is charged with the coordination of all war communications problems. It has no staff, appropriation, or other funds of its own, but operates with the part-time assistance of other Government agencies, and of industry-labor organizations. The Board's administrative work, however, and a considerable portion of its planning work are carried on by the staff of the Federal Communications Commission.

The normal peacetime regulatory functions have been much affected by wartime conditions and are today focused on war objectives. The Commission is charged with the regulation of telephone, telegraph, cable, radiotelephone, radiotelegraph, and radio communications, both domestic and international. Important in time of peace, they are essential to the most effective prosecution of the war. Thus, the supervision of rates must be intensively applied in the domestic field as part of the Nation's war against inflation, and in the international field to insure the flow of messages with friendly nations and especially to and from our armed forces overseas. And the licensing of radio operation and the authorization of extensions of service by common carriers requires careful study to insure in view of the shortages of material, that military and vital public need and only such needs, will be met.

Although in some respects, the effect of war conditions has resulted in a curtailing of activity in the case of the Commission's normal functions, in others the work has definitely increased. It should also be noted that whereas the expanded specific wartime functions adverted to above which are carried on by the Commission, have required special "national defense" appropriations, the socalled regular staff spends a large portion of its time on such functions. For example, the Safety and Special Services Division of the Engineering Department, which is concerned with the safety of life and property in the air and at sea, is today almost exclusively engaged in war functions. Nevertheless, nearly half its funds come from the so-called regular budget. Again, the Broadcast Division of the Engineering Department performs with its "regular" rather than "nati nal defense" funds such specific war functions as work with the Office of War Information on shortwave broadcast facilities used in psychological warfare, work on plans to prevent domestic broadcast stations from becoming homing beacons for enemy aircraft, avoiding the jamming of American broadcasts abroad, etc. Similarly, the Field Division of the Engineering Department, though largely paid from regular funds, is engaged almost exclusively in war work. Comparisons are made throughout between the 1944 estimates, here presented, and those for 1943. It should be noted in addition, as shown in the printed budget, that in many respects the present estimates represent a marked curtailment under actual 1942 expenditures. For example, departmental personal services in the regular estimate have declined from $1,402,731 in 1942 to $1,211,110 estimated for 1944, a decrease of almost 14 percent. Obligations other than personal services in the regular estimate have decreased from $296,162 in 1942 to $163,148 estimated for 1944, a decrease of 45 percent. The regular estimate for 1944 totals $2,000,000, as against $2,287,924 expended during the fiscal year 1942, a saving of more than 12 percent.

The following table shows the increase or decrease between regular 1942 appropriations and regular 1944 estimates:

This justification covers in order the "Personal Service" estimates of the five departments of the Commission-Engineering, Foreign Broadcast Intelligence Service, Law, Accounting, and Administrative. This is followed by a discussion of "Other than Personal Service" obligations. The following table indicates the relative proportions of the estimates assignable to each department.

II. ENGINEERING DEPARTMENT, PERSONAL SERVICES

Table II shows the 1944 estimates for the Engineering Department as compared with the 1943 estimates. It ill be noted that more than 79 percent of the total engineering estimate is for specific added national defense duties.

A. RADIO INTELLIGENCE DIVISION

The largest single activity of the whole Commission is the monitoring of the ether throughout the United States, its Territories and possessions. Federal Communications Commission engineers located at 12 primary monitoring stations, 90 secondary monitoring stations, and 3 radio intelligence centers strategically placed to cover all possible enemy, illegal, and unlicensed radio transmissions, keep constant watch over the whole radio spectrum. They are a first line of defense against radio communication with the enemy abroad, and against illegal use of radio at home. In addition, their continuous watch for lost planes and for marine distress signals, and the aid they render in locating lost planes and in helping them to return to their bases, are a regular part of their duties. As has been noted, about 41 percent of the Commission's total 1944 estimate is for Radio Intelligence Division work.

Primary monitoring stations.-The key points in the Commission's monitoring system are the 12 primary monitoring stations. Their function in general is to range through the radio frequency spectrum in search of all unidentified, clandestine or illegal radio transmissions, to establish the general location of transmitters from which such signals emanate, and to intercept and record such signals for the use by the War and Navy Departments, the Federal Bureau of Investigation and other intelligence services. The normal staff of each primary station includes 1 assistant supervisor, 2 monitoring officers, 2 assistant monitoring officers, 8 radio operators, and 2 clerks; this staff is divided into 4 shifts, and is on duty continuously to insure round-the-clock monitoring service 7 days a week.

Secondary monitoring stations.-The Commission maintains 90 secondary stations, one or more of which is located in each of the 48 States and in the Territories and possessions. The functions of the secondary stations are to investigate each report of alleged unidentified, clandestine, or illegal radio operation reported within its territories, and to locate precisely the origin of such transmissions after they have been generally located by the primary monitoring stations. The secondary station personnel, like the primary, maintains so far as possible a 24-hour monitoring watch for unidentified or unauthorized radio signals, thus supplementing the work of the primary stations. The normal complement of each secondary monitoring station is composed of 1 monitoring officer, 1 assistant monitoring officer, and 4 radio operators; but personnel is, in case of emergency or need, shifted from secondary stations where the case load is light to primary or secondary stations where a more urgent need exists.

Radio intelligence centers.-The 3 radio intelligence centers are located at Honolulu, T. H., San Francisco, Calif., and Washington, D. C. All 3 were instituted at the specific request of the armed forces, and the bulk of their duties are performed in cooperation with the Army, Navy, Coast Guard, and Federal Bureau of Investigation. They act as coordinating centers for all reports concerning radio surveillance and direction-finding activities, illegal radio operations in their respective areas, etc. The radio intelligence centers are staffed by monitoring officers, assistant monitoring officers, radio operators, and clerks, under the direction of 1 supervisor and 1 assistant; there are 8 technical employees and 3 clerical assistants at Honolulu: 11 technical employees and 4 clerical assistants at San Francisco; and 12 technical employees and 2 clerical assistants at the Washington Radio Intelligence Center.

Mobile coastal units.-The commanding generals of the Western, Eastern, and Southern Defense Commands have requested the Commission to supply a comprehensive mobile radio surveillance extending throughout the coastal areas of these three defense commands. Thirty mobile units comprising two men each not patrol the entire coast line of the continental United States 24 hours each day and 7 days a week. These coastal units are particularly on the watch for any radio transmitters on shore which might be communicating with an enemy ship at sea relative to the departure, location, or cargoes of departing vessels. To make possible these special military assignments, it has been necessary to divert personnel from secondary stations in the interior for coastal radio surveillance work.

Washington activities.-The work of the primary and secondary monitoring stations of the radio intelligence centers and of the coastal patrols is coordinated in Washingron by a small staff. This staff is composed of the Chief of the Division; an administrative section; an intercept section which receives, classifies, and distributes intercepted radio traffic to the Chief Naval Censor, the Chief Signal Officer, the Weather Bureau, and the Coast Guard; a cartographic unit which plots on maps the locations of unidentified, clandestine, and illegal stations;

a translation unit which translates foreign-language intercepts into English; an investigative section; and a communications section. The entire Division is so organized that a clandestine signal receivable anywhere in American territory can thoroughly be investigated. This includes spotting the location of the transmitter, analyzing the signals intercepted, and investigating the circumstances. The information is turned over with a minimum of delay to the Army, Navy, Department of Justice, or other appropriate agency.

Increases. An increase of 210 employees is requested for the Radio Intelligence Division, at a cost of $473,740. The detailed justification of the increase is as follows:

Ninety-six additional employees, at a cost of $206,400, are required to fill out the staffs of the 12 primary monitoring stations. With the present four-shift complement of 12 monitors and operators, only 3 men are on watch at any one time. One of these three is at the direction finder continuously taking bearings on stations under surveillance. The other two are on duty within the station, handling the communication circuit, operating the recording apparatus, copying the transmissions of stations under surveillance, and cruising the frequency spectrum for other unidentified signals. With only three men handling these varied duties, it is frequently necessary for one of them to stop copying the traffic from a radio station in order to handle an emergency message on the communication circuit or to interrupt the communication circuit in order to cover an urgent case assignment. Accordingly, the over-all efficiency of the station cannot be maintained, and urgent work must frequently be delayed or even left undone. To remedy this shortcoming, two additional junior monitoring officers are required for each of the four watches maintained at the 12 primary stations. This requires 48 CAF-6, $2,300, and 48 CAF-5, $2,000.

Thirty P-3, $3,200, monitoring officers and 30 CAF-5, $2,000, junior monitoring officers are required to restaff the secondary monitoring stations which were depleted in order to establish for the Army defense commands the 30 mobile coastal surveillance units now searching for radio transmitters which may be communicating with enemy ships at sea. In addition, 30 clerk stenographers, CAF-2, $1,440, are required to relieve professional employees and radio operators of clerical duties at the 30 secondary stations having the heaviest case investigative and intercept loads. This increase, however, is in part offset by a decrease of 15 clerk stenographers, CAF-3, $1,620, transferred from this Division to the Field Division of the Engineering Department.

Thirty-eight additional employees, at a total cost of $87,840, are required as monitoring and assisting monitoring officers, cartographic engineers, draftsmen, translaltors, and clerical assistants in Washington. This increase is necessary because of the 100 percent increase in the number of intercepts handled, the 200 percent increase in the number of bearings handled, and the further increase which will necessarily result during the fiscal year 1944 from increased plane and ship traffic and from intensfield war activities.

The newest primary monitoring station, located at San Leandro, Calif., is still without funds for the employment of a supervisor. This station performs the same activities as the 11 other primary stations and in addition handles a heavy load of communications from Hawaii and Alaska. One supervisor, P-5, $4,600, is requested.

B. BROADCAST DIVISION

Regular estimate. The Broadcast Division is an excellent example of the extent to which the Commission's routine peacetime activities have been transferred to war work. Formerly, the chief function of the Broadcast Division was to pass upon applications for new standard broadcast stations or for changes in existing stations. This work continues, on a reduced scale, while other specific war functions have been taken on by the Division.

The Broadcast Division is now especially concerned with international broadcast facilities. All international broadcasts stations are programed by the Office of War Information and the Office of the Coordinator of Inter-American Affairs; these programs constitute an integral part of American psychological warfare. To make broadcasts beamed at enemy, neutral, and allied nations effective, they must be made at the proper time, on the proper frequencies, using the proper directional antenna, and with adequate power. The Broadcast Division has under continuous study the most suitable frequencies for use by particular stations at particular times of the day and seasons of the year to transmit programs to particular countries abroad with maximum efficiency and minimum interference. Also, it is concerned with preventing accidental interference and with