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 64 Division, which had succeeded the War College Division, endorsed the creation of a Spanish-speaking square division (less the field artillery brigade), to be designated the 94th Division. Maj. Gen. William J. Snow, Chief of Field Artillery, opposed the organization of the field artillery brigade because the Army lacked Spanish-speaking instructors and an artillery training area in Puerto Rico. He believed that a brigade could be furnished from artillery units in the United States. Others opposed formation of the division on ethnic grounds, arguing that Puerto Ricans might not do well in combat. Proponents countered that good leadership would guarantee good performance in combat. The staff worked out a compromise. The divisional designation was to be withheld, but the organization of the divisional elements was to proceed. The infantry regiments were assigned numbers 373 through 376, which would have been associated with the National Army's 94th Division. During the war the Army organized only three of those regiments, with approximately 17,000 Puerto Rican draftees, but never formed the 94th Division itself.

Pershing ignored French and British recommendations that cavalry divisions not be sent to France. Himself a cavalryman, the general decided that he might use such a force as a mobile reserve. After all, both Allies still hoped for a breakthrough and maintained 30,000 to 40,000 mounted troops to exploit such an opportunity. Most of the Regular Army cavalry regiments, however, had been scattered in small detachments along the Mexican border and had furnished personnel for overseas duty. The cavalry arm needed to be rebuilt. That process began when the secretary of war approved the formation of the 15th Cavalry Division. On 10 December 1917, Maj. Gen. George W Reed organized its headquarters at Fort Bliss, Texas; the 1st Cavalry Brigade at Fort Sam Houston, Texas; the 2d Brigade at Bliss, Texas; and the 3d at Douglas, Arizona. The division had two missions: to prepare for combat in France and to patrol the Mexican border.

The breakup of the 15th Cavalry Division began shortly after its formation. Responding to Pershing's request for army corps troops, the War Department detached the division's 6th and 15th Cavalry and sent them to France. Because of the paucity of cavalry units, they were not replaced in the division. In May 1918 Maj. Gen. Willard Holbrook, the Southern Department commander, informed the chief of staff of the Army that the situation on the border required the remainder of the division to remain there. Holbrook further stated that border-patrol work could be improved if the divisional organization were abandoned. On 12 May the division headquarters was demobilized, but the division's three cavalry brigades continued to serve on the border until July 1919, when their headquarters were also demobilized. With the demobilization of the division, Pershing's hope for a cavalry division died. Baker informed him that all remaining mounted troops were needed in the United States.

When the first phase of the mobilization ended on 5 January 1918, the Army had 42 infantry divisions, 1 short-lived cavalry division, and 1 provisional division of 2 infantry brigades. All divisions were in various stages of training. Shortages of uniforms, weapons, and equipment remained acute.