The loyalty of federal employees has long been a subject of public concern, especially in times of war or threat. The federal government in its early years, however, had only minimal concerns regarding the loyalty of its employees. Only those few employees appointed to annual or salaried positions were required to swear or affirm their loyalty to the United States. The oath below was signed by Josiah Fox (1763-1847) a native of Falmouth, England, prior to taking up his position as Clerk at the Gosport Navy Yard, and is typical of early federal oaths. Fox like many early employees had recently immigrated to the United States. As a Quaker and member of the Society of Friends, Fox chose to affirm his loyalty rather than swear, since his religious convictions prohibited swearing.

War dept
July 16, 1794

Mr. Josiah Fox

Sir,
You are hereby appointed Clerk in the department of war, at the rate of Five hundred dollars per annum, to be appropriated at the present to the assistance of Joshua Humphreys who is constructing the models and draughts for the frigates to be built in the United States, and when that business shall be finished you will be directed to perform - your compensation to commission the 1st instant -I Josiah Fox appointed as a Clerk in the Department of War of the United States do solemnly affirm that I will support the Constitution of the United States and that I will and faithfully to best of my abilities execute the Trust committed to me in the aforesaid Capacity -

(signed) ''Josiah Fox''

Affirmed the 17th day of
July 1794 before me -
Hilary Baker one of the aldermen of Philadelphia

In 1817 the Board of Navy Commissioners reacting to rising nationalism and perceived security threats, directed: None but citizens of the U.S. are to be employed in any Situation in the Navy yard under your command. Should there be any such at present employed they are to be discharged. The Board stated: This regulation was founded on the Supposition that Citizens will be less likely to betray secrets, and convey to the Enemy such information that will tend to the disadvantage of the U.S. The Board allowed some shipyard employees to retain employment if they could provide a certificate of naturalization. All shipyard commandants were required to examine the supporting paper work, although it is unclear as to how rigidly this was enforced. While there was opposition from some concerned that many innocent men would be dismissed, the mandate that only citizens be employed remained in effect.

In 1861, the nation found itself deeply divided over the issues of slavery and the right of states to leave the Union. When hostilities got underway three hundred twenty-two naval officers chose to go south, including a significant number from the naval ship yards. With the large number of naval officers going south, officials in the new Lincoln government expressed doubt regarding the loyalty of the remaining officers and workers at the various navy yards. The federal government even began to suspect and later investigate the loyalty of some of its employees at the Washington Navy Yard, Mare Island Navy Yard, and the Navy Department. As a consequence, the federal government required all its federal shipyard employees (annual and per diem mechanics and laborers) to immediately swear or affirm their loyalty. One result of dramatic increase in the federal governments need for manpower was for the first time African Americans and female employees were all required to attest their loyalty to the Union cause.

Michael Shiner, a freeman working at the Washington Navy Yard, recalled in his diary, (spelling and punctuation is that of the original):

on the first Day of June 1861 on Satturday Justice Clark was sent Down to the Washington navy yard For to administer the oath of allegiance to the mechanics and the Labouring Class of working men With out Distincion of Colour for them to Stand by the Stars and Stripes and defend for the union and Captain Dalgrren Present and I believe at that time I michael Shiner was the first Colered man that had taken the oath in washington DC and that oath Still Remains in my heart and when I had taken that oath I Taken It in the presence of God without prejudice or enmity to any man And I intend to Sustain That oath with The assistance of the Almighty God until I die for when a man takes an oath For a Just cause it is more then taking a Drink of water and Sitting Down to his Breakfast.

At Gosport Navy Yard the over one thousand civilian workers remained mainly Democratic in their politics and southern in sympathy. Gosport Commandant, Captain Charles S. McCauley with a few trusted officers and civilians, unsuccessfully tried to burn the entire shipyard rather than let it fall to Confederate forces. In May of 1862, retreating Confederates again set fire to much of the yard rather than let federal forces have the valuable weapons, munitions and supplies. After the shipyard was again safely in Union hands, the returning civilians of the newly renamed Norfolk Ship Yard swore the following oath:

I _____________ do solemnly swear that I will support, protect and defend the Constitution and Government of the United States against all enemies, whether domestic or foreign; and that I will bear true faith, allegiance, and loyalty to the same, any ordnance, resolution or law of any State convention or legislature, or order or organization secret or otherwise, to the contrary notwithstanding; and further I do this with a full determination, pledge, and purpose, without mental reservation or evasion whatsoever; and further that I have always been loyal and true to the Government of the United States. So help me God. Today the requirement that all federal employees be only loyal citizens remains and the oath of 1862 is the basis of our modern pledge now signed by all federal employees.

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EndNotes
1. Josiah Fox immigrated to Philadelphia in 1793, see, Westlake, Merle, Josiah Fox 1763-1847, Xlibris Corp. 2003, p. 23.
2. NARA RG 45 Requisitions of the Secretary of the Treasury
3. NARA RG 45BNC Circular to Commandants E 307 v 1 April 1817
4. NARA RG 45 BNC Journal E303 v 1, 1 April 1817
5. The Gazette of Washington, May 17, 1817
It may be said that to discharge a parcel of mechanics from public employment is a matter of no moment, is a subject of no interest but this is the language of torpor and indifference, The rights of the mechanic are as precious as those of a president and in this country to violate those of one is politically and morally a great offense. By presumptuous order they discharge from public service men guilty of no offence but that of having been born in foreign country. Those poor men thus shut out from public employment will be obligated to make monstrous sacrifices in the sale of the little property they possess. A Citizen
6. William S. Dudley, Going South: U.S. Navy Officer Resignations & Dismissal on the Eve of the Civil War. Washington: Naval Historical Foundation, see https://www.history.navy.mil/research/library/online-reading-room/title-list-alphabetically/g/going-south-u-s-navy-officer-resignations-dismissals-on-the-eve-of-the-civil-war.html
7. Reports of Committees of the House of Representatives Made During the Second Session of the Thirty -Seventh Congress 1861 -62, Washington, DC: Government Printing Office, 1862, p.48.
8. Female employees during the Civil War are well documented as horse and cart drivers and as seamstresses at the Washington Navy Yard. There is good circumstantial reason to believe they were employed in similar positions at Gosport/ Norfolk Navy Yard. The loyalty oaths of Almira Virginia Brown and Annie Beck both seamstresses, are the only such affidavits, known to have survived, see NARA RG 45, Department of the Navy, Affidavits of Loyalty 1862 -1865.
9. The Diary of Michael Shiner Relating to the History of the Washington Navy Yard 1813-1869. Transcribed With Introduction and Notes by John G. Sharp, p178.
https://www.history.navy.mil/research/library/online-reading-room/title-list-alphabetically/d/diary-of-michael-shiner.html
10. Dexter, David, Dissonance: The turbulent Days Between Fort Sumter and Bull Run, Mariner Books, 2007 , 170-197. Harper, Raymond L,. A History of Chesapeake Virginia,2008, p.32 The exact number of civilian workers is 1000 - 1500 given, by Dexter and Harper reflects difficulty of calculating the per diem workforce