ml Report of an Inquiry AS TO =i_Works Committees MADE BY BRITISH MINISTER OF LABOR REPRINTED BY INDUSTRIAL RELATIONS DIVISION UNITED STATES SHIPPING BOARD EMERGENCY FLEET CORPORATION I9I9 1 Ilia uvfuiv JAN . 4 mt HD 5545 -Ql^ at, Brit^— Southern Branch of the University of California Los Angeles Form L 1 Cr7 *2» ^4 \ I [CALIFOftMA, h OAI. Report of an Inquiry AS TO Works Committees MADE BY BRITISH MINISTER OF LABOR Propj Univ. Lil REPRINTED BY INDUSTRIAL RELATIONS DIVISION UNITED STATES SHIPPING BOARD EMERGENCY FLEET CORPORATION 1919 63108 1 ^TZ^ '-X ( :j CONTENTS PAGE I. Introduction 7 fe II. ( )rigins and Influence of War Developments 13 III. Constitution 17 W . Procedure 22 \ . Functions 28 W. Relations with Trade Unions 37 \\\. General Considerations 42 Appendices — ■ I. — Questionnaire used in Enquiry 47 II. — Report upon Individual Works Committees, &c. . 50 ^ -* III.- — Summary of a District Investigation 112 IV. — Joint Committee on Absenteeism 114 \'. — National and District .Schemes — Shop Stewards. . 120 W. — -Whitley Report — Supplementary Report on Works Committees 126 \'TI. — Scheme of Local loint Pits Committees 130 PREFACE Owing to the great changes in industry wliich the war has pro- duced, particularly in' engineering, the need fdr closer relations between employer and workmen has become increasingly felt. The old trade union machinery has often been overburdened and has not always sufficed to deal wath the innumerable questions arising from day to day in the shops. These conditions have encouraged the growth of Works Committees as a means of direct and constant communication between employer and workmen, and as the formation of such Committees in industries wdiere the conditions recjuire or favour them has been rec- ommended by the Whitley Committee as part of the industrial organ- isation of the future, it was thought that it would be useful to collect particulars of existing Works Committees and to publish them for the information of those who might be interesed in the matter. The following report is based on an enquiry made by members of the Department as to the constitution and working of Works Com- mittees in a number of different industries, including Engineering, Shipbuilding, Iron and Steel, Boot and Shoe, Mining, Printing, Woollen and Worsted, Pottery, and Furniture. The enquiry did not aim at being exhaustive, but an attempt was made to examine carefully typical committees in the chief industries where they were known to exist, with a view to bringing out the different objects, functions, methods of procedure, and constitutions which have been tried in actual practice. The opinions of those interested in the Committees, on the side both of the management and of the workmen, have been sought, and the sincere thanks of the Department are due to Directors, Managers, Trade Union officials, Shop Stewards, and others for their courtesy and the trouble they have taken to help the enquiry at a time when all were burdened by the extra duties imposed on them by the war. Our special thanks are also due to the Ministry of ^Munitions of War and the Admiralty Shipyard Labour Department, and to those individuals, firms. Committees and Associations who have given per- mission for the publication of the particulars of Works Committees which appear in the Appendices. No attempt has been made to draw any general conclusions or to sketch any ideal form of Works Committee. The object aimed at has been to present the facts as accurately as possible, to point out the various difficulties which have been encountered and the various methods which have been devised to meet them. In this way it was hoped that this Report might be of some value as furnishing guidance and suggestions to those who are concerned with working out the prob- lem of Works Committees for their own industry or their own establishment. Since this volume was prepared, the Whitley Committee have issued their Third Report which deals with Works Committees and which recommends the collection of information regarding existing Works Committees. This Report is printed as Appendix VI. D. J. SHACKLETON. Ministry of Labour. March, 1918. WORKS COMMITTEES I.— INTRODUCTION. The extent of the existence of Works Committees hefore the war is largely a matter of definition. Our estimate of their scope will vary according as we give the term a wide interpretation, or confine it to committees representative of all the workpeople in an establishment. Works Committees in this latter sense of the term existed before the war in various industries, and in some instances they had been in existence for many years. If the term is interpreted in a wide sense, and taken to include various kinds of committees, such as those repre- sentative of individual trades or departments, or those which have come into existence at particular times and for limited purposes, the number in existence before the war is greatly increased.* In certain industries, however, notably engineering, the conditions of war have produced such a change in both the form and function of workshop organisation that the discussion of the general idea of Works Com- mittees may be said to have developed out of those conditions. Since, however, the Works Committee, on the whole, springs from the com- mon methods of trade union organisation inside the workshop, as they existed long before the beginning of the war, some reference to these methods is necessary as an introduction to this report upon some of the committees which are now in operation. Before this works organisation is considered, it may be noted that certain of the immediate causes which have led to the rise of works committees during the war — the methods of remuneration (piecework or profit-sharingf or bonus on output), welfare, collections for charity, and, to some extent, dilution also — were already operative in the formation of earlier Works Committees. Works Committees before the War. The majority of Trade Unions have official shop stewards, though these officials may be known by some other name — such as "shop dele- gates," "works representatives," "collectors," "yard committee-men," or, in one case at least, "works directors." In certain cases also the name committee — Watch or Vigilant Committee — is attached to the bodv of shop stewards in an establishment. It may even be said that the Works Committee is older than trade unionism ; the "chapel," * For an explanation of the various terms used for dififerent forms of workshop organisation see see under Nomenclature, p. 12. t For some examples of committees in a variety of industries which in 1894 were concerned with schemes for Profit-Sharing or Co-operative Production see Report on Profit Sharing by Mr. D. F. Schloss (C-7458.) 7 for instance, ( tlie ancient organisation of the workmen in each print- ing office), goes back much farther than the end of the 17th century.* Such shop ckibs were not confined to any one industry. They were, however, quite different things from a works organisation formed of representatives of permanent Trade Unions, and would now be repre- sented by a committee of workers, in a non-Union shop. To-day the duties of the "chapel," as laid down in the rules of various unions in the industry, include those discharged by shop stewards in many other trades. Apart from ( 1 ) functions obviously intended to sustain the fabric of the Trade Union — the collection of dues, the interrogation of defaulters and newcomers, and the like — the duties of shop stewards are stated in the rules of different Unions to include (2) the regular supply to the branch or district committee of information respecting any encroachment upon recognised Trade Union conditions, participa- tion in deputations to the management in connection with grievances,t the calling of shop meetings of the members to discuss grievances, &c. The stewards are in one case held "responsible for the conduct of the shop according to rules." The actual degree of organization of the shop stewards varies among the Trade Unions. In some cases all the shop stewards of a Union in a district hold regular meetings once a month with the district conmiittee of the Union. Certain Unions supply their shop stewards with official cards. In other cases, however, there is no regular machinery for consultation between the shop stewards and the Union officials, and no certificates of official recognition are supplied to the shop stewards. There is variety also in regard to the election and the deposition of shop stewards ; some hold office for a definite period, while others may be deposed at any time. Most commonly the election is made in the department by the men of the Union, though there are cases in which appointment to the office is made by Trade Union branches. (1) In regard to the first-mentioned duties of .shop stewards — the collection of subscriptions and the examination of credentials of membership — two facts may be noted. The first is that such methods of organisation are not confined to workers whose daily work is done in a fixed establishment, but are also used on certain forms of more * See the appendix to Joseph Moxon's "Mechanick Exercises" published in 1683. The appendix headed "Ancient Customs used in a Printing House" tells us that "Every Printing house is, bv the Custom of Time out of mind, called a 'Chappel'." t Participation in deputations to the management has naturally tended to the formation of committees. This may have happened when representatives of different trades joined together to present common grievances; the manage- ment may again have suggested the formation of a committee as an alternative to a number of sectional deputations. The appointment of deputations of workpeople to meet the management is, of course, not confined to trade unionist workmen; it has always been a feature of modern industry in both organised and unorganised establishments. In organised establishments, however, there has always been a tendency for the shop stewards to be represented on such deputations. or less migratory work, sucli as l)iiil(ling construction. The "ticket" steward commonly examines new men taken into employment on a building job. The second fact to be noted is that in certain industries, in a number of areas, a regular system of Works Committees, linked together in district organisations, had developed several years before the war for the purpose of the more efficient achievement of thes>^ objects.* (2) But both in theory and in practice the work of shop stewards — or of committees of shop stewards — has generally extended beyond these functions. As an example of practice, the apparently unsuitable case of building work may first be taken. Committees — somewhat loosely organised it may be, l)Ut nevertheless committees, and so con- sidered by those responsible for their formation — have been formed in the building trade ; and the scovq of these committees has embraced the second and wider class of duties mentioned above. It has for years been common in certain districts for the "ticket" stewards on a big building job to come together, and to elect a secretary, who in some cases (it may be noted) has been a representative of the labourers. Such a committee of stewards may make, representations to, or be consulted by, the employer on questions such as the proper allocation of work in order that sufficient inside operations may be reserved for wet weather. Another question which such committees have been known to bring forward is that of extra payment in consequence of the inconvenient situation of some particular job. (This, ])erhaps, is strictly Trade Union business.) In demanding adequate provision for the heating of tea cans and for the enjoyment of meals such committees may be said to have anticipated in their own way the modern Welfare Committee. In many industries the same combination of shop stewards and the same practice of making united representations to the employer — a practice not necessarily "recognised" — have been attempted at different times and with varying degrees of success. In some cases in which such methods have been successfully applied in engineering and j.hipbuilding the initiative has come from the side of the management. It remains true, of course, that the shop steward system up to the ])resent has been in the main only a trade system, and that the com- mittees formed under it can be classed under Works Committees only if the term is given the wide scope mentioned at the beginning of this report. If the term is used in this wider sense, committees will be found to have existed for many years in a number of industries where piecework is in operation. Some of these are dealt with in a later paragraph. Another of the functions of shop stewards — the calling of shop meetings — appears to form the basis of a system of Works Committees in certain industries, which include, at anv rate in some districts, the * For example, the Cljde Shipyards Joint Trades' Vigilant Committee, .formed at the beginning of 1911. See p. 122. 9 furnishing trades. The shop meeting, for which the rules of most Trade Unions make provision, is a meeting of the members of a Union ; but the term has another meafiing which has gained currency during the war — viz., a meeting of all the trades in a works — and it is interesting to note that, in part, at least, of the furnishing industry, this has long been the recognised meaning. Here the meetings are regular (monthly), and the stewards, not necessarily drawn from all the trades, make their report about membership and the like. The shop stewards in a furnishing w^orks may in this way form a Works Committee with a secretary. At the same time it w^ould appear that for the settlement of piece prices certain Unions in the furnishing trades, such as that of the upholsterers, work through their own shop stewards.* Committees for the arrangement of piece prices, which are found in a great variety of industries, are convenient examples of (a) trade or departmental organisation as contrasted with works organisation; and (b) the informal nature and composition of many committees. In regard to (a), the method of the upholsterers has already been mentioned. Usually there are only a small number of vipholsterers in any one establishment ; fifteen would mean a very considerable firm. In small establishments the shop steward or stewards of the Union usually carry through the negotiations for any new work not covered by the shop "log," or list of piece prices. If they are unsuccessful, the full-time Trade Union official comes into the bargaining operations. In one establishment, however, in which an exceptionally large number of upholsterers are employed in several departments or "floors,"' the Departmental or Trade Committee has been in existence for many years. This is composed of all the stewards— three elected from each of the "floors" — and from this committee again three head stewards are chosen. For the particular work of any floor the appropriate stewards undertake the preliminary negotiations; but if these are unsuccessful, the question in dispute will come before the committee, and be dealt with by the head stewards in consultation with the management before it is — probably with the assent of a shop meeting — given into the hands of the Trade Union official. The pottery industry supplies examples of both (a) and (b). Pricing' Committees are found in most sections of the trade ; and there may be several committees in a single factory. In the sanitary trade a standing committee is usual. In many factories, * The position in the furnishing trade is somewhat indefinite. Some years ago there would appear to have been Joint Committees of employers and employees in several districts, but these have disappeared. An example will be found in the Eleventh Report of Proceedings under the Conciliation Act, p. 161. A system of Departmental Committees for the fixing of rates for sub- normal workers is still in operation in certain districts, and was more common until quite recently, when piecework was abolished in some areas. In a few establishments these committees appear to have been Works and not Depart- mental Committees. These committees are ad hoc bodies, called into being for a particular purpose by the shop steward (or stewards) who form the element of continuity. 10 however, the method employed is for tlic operative concerned U) call in two or three mates to assist him in arranging the price of a new job. The men called in need not be the same on each occasion. The existence of several committees in one factory may be exemplified by an establishment in the Jet and Rockingham branch of the industry, in which there have been for many years Pricing Committees for jiggerers (makers), turners and handlers. In this case none but Trade Unionists can sit on the committee ; but this is by no means a universal rule. In works, however, in which there are Trade Unionists the practice is to elect to the committee one (or more) of them, who is expected to serve as a connecting link between the committee and the District Committee of the Trade Union. The position of the "chapel" in relation to the London compositors' scale is an old and well-established case of a works organisation taking part among other functions in the regulation of piecework. In other trades in which piecework is in operation, and where complete standardisation of lists has been found impracticable, methods more or less similar to those mentioned above are found. In this con- nection the development of Works Committees in engineering establish- ments during the war is significant. The engineering trades have always resisted piecework ; but, at the same time, they have generally bargained on an individual basis for any work done on this system. The extension of piecework and the growth of the method of collective bargaining in the shop — by Works Committees or stewards — have gone on side by side ; and it would appear that, to a considerable degree, the one is the immediate cause of the other. Even in industries in which price lists for piecework are used there are commonly occasions on which a particular job is not covered by the list, and in certain cases jobs cannot be listed at all. In this connection it may be noted that in mining the method of joint pit committees — as well as the Joint District Board — has been in operation in certain districts for a long time, and the method is embodied in the rules of various districts under the Coal Mines (Minimum Wage) Act of 1912. In several districts disputes as to whether a workman has forfeited his right to the minimum must be discussed by two officials of the mine and two representatives of the local lodge of the Union before they are taken to the district Joint Board committee, and in one district the representatives from each side are four in number. The fact that in many mining districts the Trade Union branch — or lodge — is composed only of the men working in one pit makes the Lodge Committee in efifect a Pit Committee.* It is not a complete Works Committee — in the stricter sense of the term — except in those places in which the enginemen and certain other workers, who com- monly belong to other Unions, are members of the local Miners' * Even where the basis of the miners' branch is not the pit but, say, the village, each of the several pits in the village commonly has its committee. 11 association. Tlu^ tendency of certain other Unions — c. g., those in the iron and steel industry — to organise on the basis of the works is inter- esting from the same standpoint.* It may be noted that in many cases Conciliation T.oards are really Works Committees, l^his is so when the joint board is composed of representatives of the workpeople in one establishment and of members of the firm. Such boards — with varying degrees of connection between the workmen's side and the Trade Unions — have been formed in individual establishments belonging to a variety of industries. Xomcuclaturc. A distinction must be drawn between "Works Committees'' and "Shop Committees." The former cover the whole of a works (or even, in some cases, the whole of two or three contiguous works) ; the latter cover a particular department or shop in a works. Among Works Committees it is possible to distinguish three varieties. The first and main variety may be called the "Industrial Committee." Such a com- mittee, generally constituted on a Trade Union basis, deals with par- ticular questions affecting the conditions and remuneration of labour in a given works — questions of principle being reserved for the district or national organisations concerned. It is this variety which, bein^^ the most important, is often called by the general name of Works Com- mittee. A second variety may be called the "Welfare Committee." Such a committee, representing as a rule all the workers in a given works, deals with what may be termed works amenities — ventilation, sanitation, and the like. A third variety, which may be merged with the second, or may be distinct, is the "Social Union," or, more exactly, the committee governing the Social Union, where one exists, of the workers employed in the same establishment. Such a committee is concerned with games, recreations, study-circles, picnics and the like. Apart from these main types there are, of course, local varieties of all sorts. There may be, for instance, a separate "Mess-room Com- mittee" ; or, again, there may be a separate "Women's Committee." There may be a committee peculiar to a small section of workers {e.g., tool-makers), which handles a large and important area of func- tions in regard to those workers. Finally, even though there is no regular or standing Works Committees, it may be the case that com- mittees are created ad hoc whenever an important question arises in a works, and that these committees are consulted by the ' management with a view to settling such questions. This indeed is the procedure followed in some of the works, where the relations of management and men are most amicable. In some cases the committee so formed con- sists of the shop stewards of the separate trades. It may be added that some committees are "joint," and embrace representatives of both men and management, meeting together in * It may be noted that the circumstances of industry in general in the 18th and early 19th century made for a greater correspondence between organisa- tion bv locality and organisation by establishment than exists to-day. 12 regular session; while oilu-rs (and this is the general rule) are com- mittees of workmen only, hut meet the management from time to time ( sometimes regularly, and sometimes occasionally ; sometimes directly, and sometimes through their chairman or secretary) to settle grievances and to give or receive information. \'arious names have heen api)lied to committees formed during the war. particularly to those formed to deal with such questions as time- keeping. Among the names are "Workers' Advisory IJoard." "Works' Trihunal," "A'igilant Committee." and "Works' Council.'"* II.— ORIGINS AND INFLUENCE OF WAR DEX'ELOP.MENTS. The causes which have hrought Works Committees into existence during the war. and the circumstances attending their origin, are naturally very ditTerent. A classification of origins may, however, he attempted under the following heads : — (1) Shop stewards. (2) Dilution. (3) Methods of remuneration. (4) Timekeeping. (5) W^elfare. (6) War charity. (7) Other causes. Shop Stewards. To a very considerable extent the first three headings must he treated together. This is particularly true of engineering works. It has already been pointed out that shop stewards with a considerable range of duties were a normal feature of Trade Union organisation before the war. It has also been seen that, though for the most part these stewards acted only for their own separate organisations, this was not their only method of operation. One efifect of the war has been to enhance the position and prestige of the shop stewards. The loss of the right to strike has depressed the position of Trade L'nion officials, who were thus deprived of the chief weapon they controlled and, if thev had organised strikes, would have been lial)le to prosecution. Under these conditions the shop stewards, more unknown and there- fore less exposed, began to exercise more power. Nor was this all. In an industry such as engineering, questions of dilution and, again, of payment bv results raised matters of detail which needed some shop machinery for their solution. Such (|uestions often concerned the members of several Unions in the same establishment : and the * "Works Committee." it may l)e noted, is sometimes taken to mean only a Joint Committee of management and employees. The name is not used in this narrow sense in this report. "Shop Committee" is sometimes used in the sense in which "Works Committee" is defined above, i. c, for a committee coverinu not merely a department hut the whole of a works. 13 common interest of men working side by side often led to concerted action. Though many Works Committees instituted during the war can be traced to one or other of these sources, and though most of the com- mittees thus called into existence may be said to have worked to the satisfaction of all grades of workpeople, it is true that in certain cases the question of dilution has produced committees of shop stewards with conflicting interests. In certain places two committees have been formed, one composed of the shop stewards of the skilled trades, and the other confined to the stewards of the Unions representing the unskilled and semi-skilled men. It may be added that this tendency among workpeople to bring their organisation more closely to bear upon workshop conditions is to be seen in industries which have been much less afifected by the war than engineering. The tendency preceded, l)ut has been strengthened by the war. Dilution. To gain the consent of the National Unions was not in itself enough to settle the question of dilution ; for it is obvious that in a complicated trade such as engineering, with its many varieties, ques- tions of detail might arise in almost every works which needed some machinery for their solution. This has led to the introduction of Dilution Committees in many establishments. These committees, con- sisting of representatives of the workers (mainly, of course, the skilled workers), discuss with the management on what machines or proc- esses, to what extent, and under what conditions dilution shall be introduced. Committees of this character, dealing with an important range of economic questions, have often been led to raise other ques- tions than that of dilution, and to bring forward for discussion with the management, with which they were being brought into constant contact by the problems of dilution, questions and grievances of a gen- eral character. Sometimes the committee has remained in name a Dilution Committee, while it was in reality a Works Committee. Some- times a definite change has been made, and the Dilution Committee, with more or less change in its composition, has been turned into a Works Committee. In any case, the problem of dilution has been one of the most potent forces in forwarding the movement towards Works Committees. Though there has been a marked tendency for Dilution Committees to develop into Works Committees, it may be noted that in one or two cases the Dilution Committee was formed after, and as a sub-committee of, the Works Committee. The importance of the connection between a Works Committee and the Trade Unions is indicated by complaints that Dilution Commit- tees' negotiations have violated Trade Union agreements. 14 Methods of Rciiinncration. One of the necessities of the war has been to increase output ; and one method which suggested itself for this purpose was that of pay- ment by results in trades where timework was the normal practice. In many trades any system of piecework is very unpopular, and. in the past, has been strongly opposed. This is true of engineering, where the Unions had left any piecework which was introduced to the con- trol of individual bargaining. The rapid extension of piecework in such trades has led to a variety of forms of collective bargaining. In some establishments a new piece-price is submitted to the Works Com- mittee before it is discussed with the individual workman. In others an Appeals Committee has been instituted to consider and bring for- w^ard complaints against piece-prices or premium bonus times fixed by the management. In others, again, something on the lines previously mentioned as existing in parts of the pottery industry has been devel- oped ; and prices have been discussed, not with the individual work- man, but wnth the workman and two or three of his mates on similar work. In other establishments various forms of collective or group bonus on output (or output value) have been adopted; and in some of these cases committees have been formed either temporarily, in order to discuss the introduction of the new method, or permanently, in order to supervise its working. In other cases committees have been formed to deal with timekeeping bonuses or profit-sharing schemes.* Committees connected with methods of remuneration are not, in themselves. Works Committees proper. They may be committees rep- resenting only a small section of the establishment {c. g., the tool- makers), while the rest of the workmen in the establishment are not concerned and are represented by no committee. They may, again, be partial in scope as well as in membership, and deal with no other mat- ters than that of a bonus. This, however, is unlikely and seems unusual. A committee connected with a bonus system often comes to embrace a wider scope, and will bring forward, or be consulted by the management about, other matters. Timekeeping. Committees whose sole function, or one of whose main functions, is the improvement of timekeeping, have been instituted in the coal mining industry, at the iron works in Cleveland and Durham, and in a number of engineering and munitions factories. The Pithead, or Out- jput, or Absentee, Committees, as they are variously called, commonly Ideal with the negligence of mine olificials as well as with cases of * A great variety of bonus schemes is in operation in munitions factories, many of which are not understood by the workpeople concerned. It would appear to be necessary that not only should there be a committee to supervise such schemes, but that a "Particulars Clause" should be made obligatory on the employer. Arbitration awards have in individual cases made one or both of these methods of control part of their findings. 15 absenteeism. The committees at the Cleveland and Durham blast fur- naces are confined to the one function of improvement of timekeeping. Welfare. The strain of the war has introduced conditions which have made it necessary to consider ways of promoting the physical welfare of the workers. Long hours have been worked; night shifts have been added to day shifts; workshops have sometimes been crowded; the intro- duction of women workers by the side of men, in occupations where women had not previously been employed, has raised a number of questions. Matters such as the best distribution of working hours, the provision of canteens and mess-rooms, and the improvement of ventila- tion and sanitation, have all demanded attention. On such matters, where the interest of the workers is paramount, the simplest course is olwiously to consult them, and to receive their complaints and sugges- tions through their own accredited representatives. This course has been adopted in a number of establishments ; and the result has been the institution of a Welfare Committee, which has eased the situation by removing, or preventing the rise of, a number of grievances. The workmen have thus been allowed a voice in regard to the conditions under which they labour, and these Welfare Committees, though they can hardly be called Works Committees, may be said to prepare the ground. They serve to engender something of a spirit of community in the works, and to help the workmen to feel that they have a com- mon interest as workers in the same establishment. JVar Charity. In several cases (for instance in the Glasgow district) committees have been formed to administer funds raised in the works for the pur- pose of helping dependents of workmen who have joined the Colours. These committees form a germ which may develop, and here and there has developed, into Works Committees capable of entertaining griev- ances or raising general questions and bringing them to the notice of the management. Where the firm has subscribed to the works' fund, and has been represented on the Committee of Management, the nucleus of a Joint Committee is obviously present. Other Causes.* In much the same way committees formed in an establishment for social purposes prepare the ground, if they do nothing more, for the institution of Works Committees. They help to create the habit of common action through representatives; and accustoming the men of different crafts and different Unions to act together for purposes of a social nature, they gradually lead to the adoption of the idea that a *The effect of the Whitley Report may also be noted. This influence has led to the formation of committees in several individual establishments. See also the scheme for the Lancashire coal mines in Appendix VII, p. 130. 16 certain range of industrial questions may be treated in the same way. In some of the best establishments which have recently instituted Works Committees the success of these committees is largely attributed to the work which committees of a social character have done in pre- paring the ground. It is believed that the ways indicated are those in which Works Committees have mainly tended to arise. In a subject of such variety, however, it is impossible to make any exhaustive enumeration. Often the institution of a Works Committee is due to the initiative of an employer or manager who desires to give the workpeople a larger con- trol over working conditions or who finds that his task is greatly eased if he can deal with an accredited representative of the workmen. Sometimes a committee may have arisen in connection with a particular dispute and for negotiating a settlement, and may then, in the issue, be adopted as a permanent mode af working. In certain cases during the war, as before- it, the creation of a Works Committee has been one of the terms of settlement of a dispute. III.— COXSTITUTIOX. The constitution of a Works Committee naturally varies with its functions. A Welfare Committee, handling questions in which the difference between unionist and non-unionist workmen, or again the difference between dififerent Unions of workmen, hardly arises, will tend to be composed of representatives of all the workers, elected without regard to dififerences of craft or grade or occupation. An Industrial Committee, handling as it does questions in which differences of skill or of craft are concerned, will involve a new range of consid- erations. It may be necessary to consider the relation of such a com- imittee, if one is instituted, to the existing industrial organisation of the workmen in the w^orks in the shape of shop stewards or delegates ; and, again, it may be necessary to consider whether management and labour should sit together as a Joint Committee (and, if so, in what propor- tions), or whether the Works Committee should be one of workers only, with opportunities of ready access to the management — and ulti- mately, it may be, to the directors — when such access is desired. The last point may be taken first. Joint Committees are rare.* There are some committees of this nature, containing two or three representatives of the management and about a dozen representatives oi the workmen, which meet at regular intervals — in one case from week to week, but more often at longer intervals. Even when the ommittee is a Joint Committee, however, some provision has gener- ally to be made for separate meetings of the representatives of the * This statement applies to committees whose work is not strictly limited to )ne or two functions. The actual number of Joint Committees is large if we nclude the "Absentee" Committees at coal mines and the Timekeeping Com- nittees at ironworks. 17 workers; and, as a rule, Works Committees appear to be committees of the workers only, with regular facilities for consultation with the management, either at fixed intervals or whenever occasion arises. Joint Committees may ultimately come to be the normal form, but in the preliminary stage of development it seems likely that committees of workers only, with regular facilities for access to the management, will generally be the form adopted. Where the committee is a Joint Committee, the idea of the joint meeting is probably first mooted by the management; and unless the workers' side is already in existence the management may suggest the basis of composition and the methods of election of the committee. Where, however, the committee is a committee of workmen only, it is advisable (whether the idea of such a committee is suggested by the management or develops spontaneously among the workmen), that the workmen should be left to determine the basis of its composition and the method of its election for themselves. Two main methods appear to prevail in regard to the composition of a Works Committee of the second type mentioned above. (a) The committee may be elected by all the workmen employed, each department or shop being treated as a constituency, and returning a number of members, perhaps in proportion to its size. This appears to be the simplest method and is found even in works in which the workers have already an industrial organisation in the shape of shop stewards or delegates.* This is the case in most works, and in such cases it may be advisable to build on the existing organisation. This brings us to the second main possibility. (b) The committee may be a committee of the shop stewards of the dififerent Unions represented in the works, or. in a large works where shop stewards are numerous, a committee elected by the shop stewards. In one works, for instance, which employs about 3,000 workmen, the Works Committee (in this case a Joint Committee) con- tains 12 representatives of the workmen elected by the shop stewards (some 40 in number) of the various Unions represented in the works. In another works a committee of seven shop stewards meets the man- agement monthly and discusses questions which its members' and the management have asked to have placed on the agenda. The two methods which have just been described represent the two possibilities at either end of the scale ; but various methods may be employed which combine, or come as it w^ere between, these two possibilities. Even where the committee is elected by all the workmen, unionist or non-unionist, voting by departments, the tendency, if the works is strongly unionist, is towards the election of representatives * This method of departmental election commonly results in a committee, all the members of which are shop stewards. But even when this is so, a majority of the shop stewards may n6t be on the committee; and the members may be drawn from a minority of the Unions. 18 who are all unionists and are also, either altogether or in part, shop stewards of their Unions. In one works with 4,000 workmen the Works Committee of 21 members, elected by a general vote of the men workers, is entirely composed of shop stewards. In another works, with 3,500 workmen, in which a Works Committee has existed for about 10 years, all the workmen in any department may vote, but only unionist workmen can be elected, and half of the members of the Works Committee are shop stewards. Another method which deserves special notice is that of election on the basis of Unions, all the members of a Union in the works elect- ing a certain number of representatives. The number of members to which a Union is entitled may vary in direct proportion (or in some other way) with its membership in the works. Thus, in a scheme under consideration for an engineering works, representation on this basis gives seven members to three General Labour Unions, eight members to the largest Union of skilled men, two members to each of two other Unions of skilled men, and one member to each of seven other skilled Unions. This method — since in an engineering establish- ment the members of a Union may be distributed through several departments, in each of which there may l)e a shop steward or stewards of the Union — is not necessarily identical with that in which the shop stewards of the different Unions in each department form the commit- tee. In several iron and steel works the method of election appears to be by the members of each branch of a Union who are working in the establishment. In one such case the right to representation is stated to belong to the branch because it has members in the works. The statement, how- ever, is qualified in order to cover the case of a Trade Union branch — e.g., of the Amalgamated Society of Engineers or the Bricklayers' Union — only some of whose members ma}- be employed in the particu- lar works. In their case only the members of the branch employed in the- works make the appointment ; and from the nature of the case the representativ^o appointed is almost bound to be the person acting as shop steward for the Union in the works. This, combined with the fact that the branches of the iron and steel Trade Unions correspond to sections or departments of workers in a single works, make such branch representation similar to departmental representation. Another feature of this system is that the secretary of any branch who is work- ing in the establishment — this is almost bound to be the case with branches the membership of which is confined to the works — is, ex officio, a member of the committee. The draft pro])osals for repre- sentation now being discussed by the shipbuilding trades in one district are to the effect that each Works Committee should be composed of a certain number of representatives from the men of each trade or Union employed in the yard, and that among the representatives of each trade or Union one at least should be an official shop steward. Some of the 19 Unions in the shipbuilding in(Uistry include, it may be noted, several trades, and the official yard delegates (or shop stewards) of the several trades in one Union often form a Yard Committee for such functions as the inspection of Union cards. Other methods found in practice are election of all the members by the whole of the employees in an establishment voting as one con- stituency, and election by occupations or trades. In some works there is one committee for skilled men and another for unskilled or semi-skilled. In several large engineering establish- ments, for instance, there are two Committees of Shop Stewards, one for craftsmen, and another for semi-skilled men and labourers. Gener- ally, however, there is only one committee for both sets of workmen.* The persons elected to such a committee are in certain cases drawn solely from the ranks of the skilled craftsmen, though there may be unskilled men (and stewards of unskilled Unions) in the works. The exclusion of any direct representation of the unskilled men in such cir- cumstances is generally due to the same cause as the absence of any direct representation of the smaller craft Unions, z'ia., the fact that a department's representative tends to belong to the Union which has most members in the department. There are certainly cases in w'hich this apparent exclusion of representation of the interests of the unskilled is a source of friction between the different classes of work- ers; and the presence in some works of separate committees is the extreme expression of such difference in interest. It is argued that the unskilled men — though they may be excluded by exactly similar circum- stances — are in a different position from a minority of skilled men who may be excluded from direct representation, in that the interests of the latter, being akin to their own, are better understood by, and receive more sympathetic consideration from, the skilled men on the committee. It would nevertheless appear that most committees appointed on a departmental basis do succeed in representing fairly the interests of all their constituents; and it is claimed that the committee member tends to look upon himself not as the representative of a par- ticular craft or section in the department, but as the representative of the department as a whole. The position of women workers is in some respects analogous to that of unskilled workmen. In some cases thev have a vote for the *A Works Committee in a Midlands munitions factory has just been reconstituted. Previously departmental election had produced a committee all the members of which were skilled trade unionists. The new method gives separate representation to (i) skilled men, (ii) semi-skilled and unskilled men, and (iii) women employees. This scheme, advocated and carried through by the secretary, who is an official of his own Union, is designed to give all grades in the works an active interest in the committee. It is hoped that later the separate representation of the different grades in each department may not be necessary; previously the grades not directly represented have not opposed the committee, which has been very successful, but they have not shown as much interest in it as is desired. 20 Works Committee elected by the various departments, and they may have a representative of their own on that committee ; in other cases representation is secured to women's departments as such. Sometimes, even where women are excluded from voting, the Works Committee may represent their interests ; and it may entertain and bring before the notice of the management grievances of women workers and ques- tions affecting their interests and the conditions of their labour. Occa- sionally, though this is rare, there is a separate committee to represent the interests of women workers. From what has been said it is obvious that the constitution of a Works Committee raises a number of questions. ( 1 ) In the first place, there is the question whether the committee should be based on the industrial organisation of shop stewards, where such organisation is in existence, or should be based on a general vote. (2) In the next place, assuming the latter alternative to be adopted, there is the question whether all the workers should vote, and, if so, how the constituencies should be arranged, or whether only unionist workers should vote, and, if so, how and in what proportions the different Unions should be rep- resented. (3) Further, there is the question whether there should be a single committee, or one committee for skilled and another for unskilled workers; and (4) finally, there is the question whether women workers should have a separate committee or be represented through the general committee of the works. No general answer can be given to any or all of these questions. The circumstances of different works vary, and each type has to find its own solution. Wherever it is possible, a committee of shop stewards or Trade Union representatives would appear to be the best solution.* At the same time, it is important to secure that the size of the committee, while large enough to be representative, should not be so large as to make it unwieldy, and that, as far as possible, there should be direct representation of each department. The size of the committees actually in existence varies ; some committees have 12 members, some have upwards of 30. The smaller jiumber seems more likely to be effective. * As will be seen from the appendices, individual committees formed on very different lines have been in every way successful. Since, however, the problem from the point of view of the well organised industries is complicated by the existence of poorly organised areas, a proposal under consideration by a firm in which considerably less than half of the employees are trade unionists may be noted. The proposal is that the Works Committee should be composed of departmental representatives, who will include the shop stewards, and that from this committee as a whole, or from the shop steward and the non-shop steward sections of it separately, there should be elected a small number of representatives of the workers to sit on a Joint Committee. The proposal was made as a means of combining (a) the recognition of shop stewards and (h) the representation of all the workpeople on the Joint Committee, without duplication of committees for different functions. The firm, which rescognises the Unions and whose conditions are above the district standards, intends that the Joint Committee should deal with a very wide range of subjects, only some of which are shop steward questions. 21 It may be necessary, therefore, that a Works Committee, if it contains a large number of members, should appoint a smaller committee of itself; and that, while the management should be in regular contact with the smaller committee, questions of difficulty should be referred by the smaller committee to the larger, the management meeting the larger committee in case of need. In its choice of the smaller commit- tee the Works Committee could allocate a place, or a number of places, to each department or group of departments. Another method of electing a committee of manageable size would be that from the stewards in each department (or, in certain cases, groups of depart- ments) one should be appointed by a general election held in the department or by the departmental stewards themselves. In certain cases, in large works, it may be desirable that the stewards in each department should form Shop Committees, with which the general com- mittee could keep in touch and from which its members could learn the needs and the complaints of each department. Another variant is that sub-committees instead of being departmental should be functional, i.e., should each deal with a particular matter or set of matters such as dilution, piecework, suggestions of improvements. &c. (Sec p. 29. footnote.) The existing Works Committees have generally two officers, a chairman and a secretary. The tenure of office of the committee is often unfixed. Where it is fixed, it may be for six months or for a year.* A fixed tenure, provided that it is not too short, seems desirable; a new election will reinvigorate the committee and if the workmen in general have any feeling which the committee has failed to express, it will give a chance for its expression. The desirability of election by secret ballot has been emphasised by many employers and by some Trade Unionists. IV.— PROCEDURE. Some Works Committees have regular meetings with the manage- ment, at intervals of a week, a fortnight or a month. A list of agenda is circulated and regular minutes are kept. In one establishment where this is done the men's chairman presides at one fortnightly meeting and a representative of the management at the next. In other cases the meetings are not regular, but are held whenever occasion arises. Argu- ments may be used both for and against a system of regular meetings. It may be urged in their favour that they provide a known and regular time for raising a question ; that they enable questions to be raised in their initial stages, whereas, if meetings are not held until occasion arises, a question may have grown acute before a meeting is held ; and. finally, that by bringing representatives of the management and the men into constant contact, they accustom either side to seeing and * In certain exceptional cases committee members are elected monthly and the secretary qviarterly. 22 understanding the point of view of the other. It may be urged, on the other hand, that if meetings are regular, and at frequent intervals, there may often be no business to be done, and that the ettect may be either to make the committee slack, or to induce the more restless members to manufacture business by finding grievances and discovering difficul- ties. In any case it may be suggested that the main thing is not so much regularity of meetings, as what may be called the principle of the open door. If the men know that their representatives have access to the management, and if they know that the management, on its side, is ready to consult their representatives, the success of the main function of the committee is secured. The number of times at which a general Works Committee needs to meet the management will vary with the type of works and with the degree to which sectional questions can be handled by such a committee. One committee, in an establish- ment in which relations have always been good, has met the manage- ment on an average three times a year in the last twenty-four years, though in the last three years, owing to the number of questions raised by the w-ar. the average number of meetings in each year has been seven. During the whole existence of the committee, however, the right of the separate trade delegates to meet the management has been freely used. Employers complain that workpeople tend to want all questions settled ofifhand, and fail to realise that investigation may be necessary ; and one argument in favour of regular meetings is that they form a permanent and businesslike substitute for frequent sectional deputations. There would appear to be many questions which can be settled in. a more 'satisfactory way if they are discussed and investigated at regular joint meetings. This method, however, cannot be applied indiscriminately : there will always be matters of urgency which must be taken up as they arise ; and sectional questions may. in certain cases, be better treated apart from the regular meetings of a general Works Committee. One other caution may be suggested in this connection, ^^'orks Committees instituted in engineering establishments during the course of the war have naturally found abundant work. The same will probably be true of the period of reconstruction after the end of the war. It is possible, however, that under normal conditions a system of weekly or fortnightly meetings might prove unnecessary. It may be suggested, therefore, that a distinction may be drawn, on the point of frequency of meetings, between what may be called "the emergency period" and the period of normal conditions. Another question of procedure, which also bears on the matter of frequency of m.eetings. is connected with the position of the secretary of a Works Committee. In many establishments which have W'orks Committees a large part of the active work which they entail is done by the secretary. Difficulties are reported to him by the w^orkmen con- cerned either directly or through a member of the committee, and he, 23 after consultation with the committee (or, it may be. in lesser matters, immediately), brings the difficulties before the management. Such difficulties may often be settled at once, and their settlement simply reported to the Works Committee. A great deal of work may thus be thrown upon the secretary in consulting the workmen concerned, and in interviewing the management, and the position is thus one which offers a great deal of scope to a man of capacity. Such a man may largely carry on his shoulders the current work, and the committee may only need to deal with larger questions. But the position has its diffi- culties, and there are two matters which deserve particular notice. One of these is the question of the secretary or chairman's moving about the works during working hours, and entering departments other than his own, for the purpose of interviewing any workman who has pre- ferred a complaint. If the secretary is bound to ask the consent of a foreman or overlooker before he enters a department, and if that con- sent may be refused, the work Avhich the secretary can do in investigat- ing and removing grievances is liable to be hindered. If. on the other hand, he can enter any department (without any formality, or on simple notification of his wish) and engage in discussion with a work- man, the work of the department may be held to be likely to suffer. From the experience of several works, however, it would appear that this freedom of movement is found to be an essential condition of the success of a committee. The extent of freedom necessary, and the members of the committee to whom it should be allowed, will vary with the size and the other circumstances of a works. The other matter which arises in connection with the position of the secretary is concerned with his remuneration. His secretarial duties may interfere with his own work. He is bound to lose time, and, consequently, unless some arrangement is made to indemnify him, he is bound to lose wages. In one case, in which, it is true, the work is specially complicated and onerous, the amount of time spent on secre- tarial work is said to amount to a total of 30 hours in the week ; in another case the loss of wages involved has, over a period of several weeks, amounted to i2 a week. In one large works, where the com- mittee is engaged to a great extent with questions arising from charitable work, the secretary now gives his whole time to the duties of his position, and is paid by the firm. In some cases it would appear that the secretary is paid ordinary time-wages for the time he spends on secretarial business in working hours ; in other cases, where the work is premium bonus or piece-work, he may receive the average earnings, or, again, his companions may keep his machine running in his absence. It seems, however, that some arrangement is necessarv to meet what is often a real difficulty. It may be argued that the management should pay the secretary* the full wages which he would *In certain cases the secretary's (or chief shop steward's) guarantee of average earnings appears to depend upon the will of a foreman or ratefixer. 24 otherwise have made, since the work he does conduces to the better running of the estabhshnient. On the other hand, the men might object to such a course, on the ground that it tended to make the secre- tary more dependent on the management and less of a fellow-workman. Another method, which is employed in some cases, is that the secretary should be reimbursed for lost time by the workmen. In certain cases it may be noted that weekly contributions are paid by the workpeople to meet the expenses of meetings, etc. Another question, which is somewhat analogous, concerns the time of the meetings of the Works Committee. Under one plan the meet- ings may be held in the employer's time, and the members may be paid full rates during the time they spend in attendance. This is a plan which is often adopted when there are regular meetings with the man- agement. Many committees which have no regular meetings with the management meet after working hours. Another plan, which has been suggested, is that the meetings should 'be held partly in the employer's time (the members being paid full rates during that time) and partly in the time of the men. or, in other words, after working hours. This may present some difficulties, as some of the members may find it incon- venient to stay after working hours. On the other hand, it is argued that this course best corresponds to the logic of the situation; manage- ment and men both gain from the work of a committee, and it seems logical that either side should surrender a part of its time. The solu- tion of the problem depends to some extent on the length of the work- ing day. Members of committees have complained that to meet at 8 or 8.30 p.m., after 3 hours of overtime, was "a bit hard." Under nor- mal hours the attitude would have been different. In the matter of procedure in the stricter sense of the term there is at present a good deal of variety. Generally the procedure is some- what informal, and this, in the earlier stages of a Works Committee, is perhaps to the good. The normal procedure, so far as one can speak of a normal procedure, is somewhat as follows : — (1) A workman who has a grievance will report it, directly or through the committeeman in his department, to the secretary. Lesser grievances, which do not affect a number of men or raise a general question, may be settled at once by the secretary with the foreman or departmental manager concerned. (2) Grievances which are not thus settled are taken up by the committee, and brought by the committee before the management. Thus in one large establishment, where the premium bonus system is in operation, a chief shop steward is paid his time for periods during which he is engaged on negotiations with the management ; it is usual, however, for the ratefixer to see that sufficient "extras" are added to the man's bonus earnings to neutralise the difference between the time wages and what might have been earned on bonus for the periods in question. This more or less casual arrangement does not appear to be a very satisfactory solution of the difficulty. 25 (3) If grievances or disputes are not settled with the manage- ment, they are carried to the branch or the district organisation of the Trade Union or Trade Unions concerned, and they go hence- forth along the ordinary channels of Trade Union organisation. The effect of this procedure can best be seen by comparing it with the procedure which is followed in the absence of a Works Committee or of recognised shop stewards for the separate trades. Where there is no Works Committee, the individual workmen, or a delegation of workmen, will bring their case to the management, if they can get admission; and failing any agreement, the matter will go straight to the Trade Union. Where there is a Works Committee the difference is this : first that there is a certainty of admission to the management ; secondly, that instead of the onus of stating their case being thrown on the individuals concerned, there is a regular machinery (the officers and the committee) to sift the case and to state it formally; thirdly, that, instead of the action taken being individual or sectional, it is the general action of a body representative of all the works ; and, finally, that there are two chances of a settlement being attained in the works (first between the secretary and the foreman or departmental man- ager, and, failing^ that, between the committee and the management) before the question goes outside for settlement. The main difference between this procedure and that adopted when trade shop stewards are recognised is much less, and only arises on the third of the points just mentioned. This difference, however, is important, because it involves the problem of the delimitation of a Works Committee's functions. It may also be noted that, in certain cases at least, the machinery of the Works Committee is 1)rought into operation not as a preliminary to the question going before a Trade Union branch, but in support of a decision previously come to by a branch. This is so in certain iron and steel works. The difference, it may be said, is more apparent than real, because m-any of the branches (and these the strongest in numbers) are in such cases works branches — that is to say, the membership of the branch is confined to men employed in the works. On the other hand, certain branches extend their membership beyond the works ; and, in so far as the Works Committee takes up a case already entertained by such a branch as union business, there is another form of procedure. This procedure appears to have been adopted in certain cases with the acquiescence of the Trade Union branch concerned. It seems impor- tant that the place of the Works Committee in relation to trade ques- tions should be properly defined; otherwise there may be dangers of overlapping and confusion through (a) the diversion of a purely trade question to the Works Committee, when it ought to go through the ordinary Trade Union channels, or (b) the use by a Trade Union branch of the Works Committee in support of a case which it should properly call upon the officials of its Union to handle. 26 Three other matters of procedure call for notice. One of these is the use of what may be called "the referendum." A Works Com- mittee, when its members feel that a matter is imi)ortant, and that it is necessary that they should ascertain and carry with them the opinion of the workers either in a department or in all the works, may sum- mon a general meeting and bring the matter forward for discussion in that meeting. There may be no rules to decide when this should be done, and it may be done at different stages, either before a matter has been discussed with the management or subsequently to such discus- sion ; but the possibility of such a general meeting enables the commit- tee to make sure that its policy will be adopted by the workmen con- cerned, and it puts it in a position to assure the management that a policy thus confirmed can really be carried into effect. In certain industries the regular shop meeting is a feature of shop organisation. This is so, for example, in furnishing and in the woodworking side of the aircraft industry in London. The shop meeting is really a factory meeting, and is held once a month. Another matter of procedure is one which touches the manage- ment and directors of a firm. It is important that the representatives of the firm, who meet the committee, or (if it is a joint body) sit on the committee, should belong to the highest rank, and should include the general works manager (or, if there is one, the labour superin- tendent)* and one or more of the directors. A great part of the value of the Works Committee, from the point of view of the men, is that it brings them into contact, and gives them an opportunity of discussion, with the authorities with whom, in its absence, they seldom get into close touch, and then only on points of difference. Nor is it only the workmen who stand to gain if the highest rank of management is repre- sented. Members of the firm who are primarily occupied with finance or technique will be brought into contact with those questions of labour which are the fundamental problems of industry, and in discussing these questions with the representatives of the workmen they are likely to gain a deeper insight into the best methods of conducting the industry. Lastly, there are questions connected with the keeping of minutes, the drawing up of agenda, the presentation of complaints, and the like. Where regular joint meetings are held it is common for a complete record of each meeting to be made in shorthand by a member of the staff and for the workpeople's secretary to make notes of the proceed- ings; minutes based on the complete record may be circulated among the members of the committee after the meeting. Even where the com- mittee of workpeople as a whole does not meet the management, it may * A particularly interesting development during the war has been the appointment to the management staffs of several establishments of persons whose chief function is to deal with labour questions. The success of a Works Committee may to a considerable extent depend upon the status and qualifications of such an official. 27 supply the latter with copies of the minutes which concern the manage- ment. It is common for the management to supply typing facilities for the duplication of minutes and of agenda. In some works complaints made to the committee must be in writing. This rule has sometimes been introduced in order to check the making of frivolous complaints or inaccurate statements; it may be compared with a method of the "chapel," where a member may call a special meeting by placing a shilling (or other sum) "on the stone'' on pain of forfeiting his shilling if the chapel decides that his complaint is groundless. v.— FUKXTIONS. Since \\'orks Committees are of different types, it is obvious that their functions vary considerably. In the tirst place there is the dis- tinction already mentioned under the head of nomenclature. A Wel- fare Committee is concerned with all questions that affect the comfort and physical well being of the workman while he is engaged on his occupation ; an Industrial Committee is concerned with industrial con- ditions in general. Often a Works Committee wnll undertake both sets of functions, but some committees may be confined, primarily at any rate, to the working of a system of bonus on output or premium bonus or piece-rates ; others may be confined to questions of dilution ; others may have a general and undefined scope which depends on an unwritten understanding between management and men. There are several questions of a general character which deserve some attention, before we turn to the detailed functions actually dis- charged by various Works Committees. Are these functions always consultative, or are they sometimes executive? This raises another question — is it possible, in the strict sense of the word, to speak of a Joint Works Committee? What, again, are the functions of the man- agement, and how far may a Works Committee trench on these functions? Finally, what is meant by "recognition." and what is the effect of recognition on the functions and powers of a Works Committee ? As far as the first question is concerned, it would appear that the functions of a Works Committee are practically always consultative. Usually a Works Committee can bring matters before the manage- ment and discuss them with the management ; it can press its views about these matters on the management ; in the last resort, it can induce the Trade Union organisation to call a strike. But the Works Commit- tee cannot usually, as such, carry its views into action, or ensure that they shall be carried into action, by any direct machinery. The man- agement has the executive power, and unless the management is impressed by the representations of the members of the committee, or by the sanction which lies behind them, those representations will not 28 lead to executive action.* This would appear to he usual even where the Works Committee is a Joint Committee. There are, indeed, certain cases in which the decision of a majority of the members of such a Joint Committee is carried into effect. This is so in the Pit-head and certain other committeesf which have the power to tine bad timekeep- ers ; and in certain engineering establishments the question of prose- cuting bad timekeepers before the Munitions Tribunal is decided bv Joint Works Committees. But, so far as can be discovered, the gen- eral custom is to the contrary. Unanimity must be attained; the man- agement must be convinced, and both sides must freelv agree together, before executive action is taken. The operation of a Joint Committee is really in the nature of consultation between two parties — consultation which, if it results in unanimity, results in action, but not otherwise. It would be a mistake to think in terms of voting, or to think that even if there is voting, its result is a formal decision by a majority vote. What happens is rather discussion by which misunderstanding is often removed, and upon which, if unanimity is attained between the two sides, action will ensue. It follows, therefore, that generally we can- not speak of Joint Committees, if by Joint Committees we understand joint executive councils acting by the vote of the majority. On the other hand, there are Joint Committees, if l)y Joint Committees we understand deliberative meetings of both sides, always attended by l)oth sides, though often accompanied by separate meetings of the two sides.:}: * In one establishment, however, decisions upon disciplinary and time- keeping cases made by a committee wholly composed of workpeople are accepted l)y the firm. See reference to Works Tribunal on p. 32. In some cases such functions as the day to day administration of a messroom are discharged by committees wholly composed of workpeople. Even in such cases, however, an important decision — for example, one involving capital expenditure — would usually have to meet with the approval of the management before it could be put into force. t See Appendix IV, pp. 114-119. X The division between executive and advisory powers in a scheme now under consideration for an engineering works may be noted. It is proposed that the former should include (1) those powers conferred by the Trade Unions and in accordance with the constitution or resolutions of the local Allied Engineering Trades and (2) those conferred by the firm. The suggested first list of executive powers contains the following: — determination of hours of work (with minimum of 50 per week); messroom; heating, lighting, sanitary matters, &c. ; ambulance ; collections, supervision of notice boards, entertain- ments, &c. ; proprosed technical lending library and works magazine ; and organisation of the Sports Association. The advisory functions include the regulation of piecework; the engagement, discharge, dilution and transfer of labour (excluding disciplinary discharges) ; training and education of apprentices ; suggestion of improvements in methods; timekeeping, &c. It is proposed that seven sub-committees be formed, each sub-committee to deal with one or more of the above-mentioned functions, e.g., a sub-committee for hours of work, engagements and discharges, and timekeeping; a sub-committee for messroom; and a sub-committee, advisory and ncgotiatory, for piecework. There is this reservation in regard to executive functions that if capital expenditure is involved authority should be obtained from the firm before such expenditure is incurred. 29 A question of importance, when we are considering the functions of a Works Committee, is the definition of the term "management." It may be urged, on the one side, that the functions of a \\"orks Com- mitee should not be such as to interfere with management ; it may be urged, on the other, that if a Works Committee is to be debarred from questions of management it loses reality and becomes a mere form. Much, therefore, depends on the sense in which the term management is used. Is the work of the foremen part of management? Or does the word denote the higher organisation of industry? It would appear that a Works Committee, if it is to be of any value in ventilating and removing grievances, must be in a position to ventilate grievances arising from the conduct of foremen or overlookers. Such grievances touch the worker most closely in his daily work, and if they cannot be discussed the committee loses a sphere of action in which it might be of the greatest service. It is true that if a committee has the right of criticising the action of foremen, difficulties may arise. Foremen may feel that their authority is undermined; they may feel that they are being made responsible not only, as heretofore, to the management (a responsibility they know and understand), but also to the committee; they may feel that, with a dual responsibility, their position becomes exceedingly difficult. These are real problems. In many instances, however, they seem to have been surmounted; and if they prove seri- ous, they may perhaps be met, to some extent, if the general manager arranges to meet the foremen in advance, and to discuss with them criticisms and grievances which have come from the Works Committee.* The last of the general questions raised by a consideration of the functions and position of a Works Committee is that of "recognition." This, again, is a term which seems to be understood in different senses, and which it is difficult to define. A committee may be held, from the point of view of the management, not to be recognised, even when the management is in constant touch with its secretary, and even when it consents to meet those members of the committee who represent a department which has a grievance. Here the point would appear to be that the management does not, as such, formally meet the whole committee. In another case a system almost exactly parallel — a system under which the management interviews four of five members of the committee — is described as one of "recognition." The term "recogni- tion" thus appears to have no fixed meaning; and it may be concluded that what matters is the fact of consultation between a committee and the management rather than any formal pronouncement about the fact. * In some establishments there are Management Committees, and in others regular conferences between directors, managers and foremen are held. The question of rneetings of the Management and Works Committees together is under discussion in one or two firms. The relation of Works Committees to problems of management is discussed further on pp. Z2) ct scq. 30 In the preceding paragraphs the functions of a Works Committee have been discussed with reference to the management. It is obvious that they must also be discussed with reference to Trade Union organ- ization. A A\^orks Committee must stand in some sort of relation to the district committees of the Unions to which the workmen in the works belong, and some demarcation of functions, whether explicit or implicit, has to be made. The relations vary, and the demarcation is not always easy to make. Generally the division is said to be that ques- tions of general application — district rates of wages, hours of work, and other district or national conditions of work — are regarded by Works Committees as outside their sphere, and such questions are left to be settled by the employers or associations of employers with the Trade Unions.* On the other hand, questions of a particular application relating to a works' — for example, a piece-rate for a particular job for which it is impossible to lay down any general piece-rate for the dis- trict — are regarded as belonging to the functions of a Works Commit- tee. Such a committee may thus deal (1) with the particular applica- tion in the works of a principle general to the district, and (2) with questions which are entirely peculiar to the works. But the general problem of the relations of Works Committees and Trade Union organisation is one that demands separate treatment, and it will accord- ingly be treated in a subsequent section. The powers of the management and the powers of the local Trade Union organisation may be said to constitute two points more or less fixed, and the powers of a Works Committee are naturally determined with reference to these two points in ways that \ary according as those points vary. Turning to the Works Committee in itself, we may dis- tinguish two main types of function. In the first type a committee is primarily concerned with some one particular thing — a scheme of dilution, a system of bonus, or a method of profit-sharing. This does not prevent such a committee from dealing incidentally with other things. On the contrary, a committee on dilution will be led to discuss the wages of dilutees and other questions ; a committee on a bonus system will be led to deal with time-keeping and other matters which alTect the bonus. A committee, therefore, which is primarily and formally concerned with a particular thing may actually be something of the nature of a general Works Committee. When once an organisa- tion is created, if only for a single activity, it will naturally become a centre for other activities ; the management, finding a representative organisation which it can consult, may consult it on broader issues ; and vice versa the representative organisation, meeting the management to discuss one issue, may readily tend to bring forward other issues. The tendency for this to come about is greater if the committee is one * This does not mean that the Works Committee may not consider an alleged infringement of such conditions. This, as we saw previously, is one of the usual duties of shop stewards. 31 of shop stewards who are charged by their Unions with a general supervision of conditions. In the second type a committee is from the first general in its range, and is formed to deal with the general industrial conditions of a works. One such committee has for its province (1) to enquire into grievances reported by w^orkmen ; (2) to bring before and discuss with the management grievances that it considers genuine; (3) to consider complaints about wages and piece-rates which concern individuals ; (4) to consider questions relating to the health and safety of the workmen ; (5) to consult with the management on the interpretation of awards, orders and circulars; and (6) to consider generally the conditions of work in the establishment. This may be considered to be fairly typical. Another committee, primarily concerned wath piece-rates, has also dealt with questions of ventilation and sanitation, complaints about the decisions of foremen, arrangement of shifts and of hours of admission to the works, the allocation of piece-work and time-work, and the inter- pretation of official orders and circulars. Other matters handled by Works Committees include works discipline, especially timekeeping, methods of paying wages, hours of overtime, and the like. The ques- tionnaire which is printed in the first Appendix contains a list of pos- sible functions ; and it may be said at once that different Works Com- mittees exemplify all these functions and that some exercise functions which are not included in the list. Instances may be cited of committees which are tending to exer- cise, or actually exercise, peculiar and interesting functions. In sev- eral cases Works Committees have made suggestions for economies in the running of machinery, and it is agreed on both sides that the com- mittees have brought to light weak spots in organisation.* A striking feature is the keenness of certain committees, or of the more active members of these committees, to discuss the after-war situation, and this in relation not only to working conditions, but also to such prob- lems as the proper employment of plant. Another case is equally inter- esting. This is the case of a works in which a Works Tribunal has been instituted in lieu of the Local Munitions Tribunal. The men elect a jury of twelve and a chairman; and this tribunal has been successful in bringing about a great improvement in discipline and time-keeping. f * The same is said of Pit-head Committees — a form of colliery committee to ensure increased out-put — as may be seen from the report on these committees in Appendix II, p. 1Q7. t This is a very interesting matter, especially in view of the argument in the report of the N. W. Commission on Industrial Unrest, that joint committees of employers and employed would administer "industrial law" better than legal tribunals. The existence of a number of Joint Committees which exercise such functions has been mentioned (see p. 29). The particular interest of the above mentioned Works' Tribunal is that it is not a Joint Committee but is wholly composed of workpeople. The firm has no status in the court, merely appearing by its representative as it would in the Local Munitions Tribunal. Procedure is quite formal, and the firm's representative is expected to address the chairman as "Sir." 32 An incident in this works, though it does not bear directly on the matter of Works Committees, is indirectly of value as showing that consultation with the workmen may be of great service to the manage- ment. A question arose of the introduction of dilution into the works, and the men in the pattern-making shops objected to its introduction. They were interviewed by the managing director, who asked what alternative suggestion they could make for increasing output. They answered that they believed they could easily increase their output if they had additional equipment. A tool catalogue was put before them : they suggested the purchase of a number of tools costing in all nearly i2,000. The tools were bought, and the output was increased by 50 per cent, without dilution. The range of functions which a Works Committee can efficiently undertake is necessarily indefinite, and a subject of contention not only between employers and workpeople, but also between dififerent groups both of employers and of workpeople. Some of the questions on which there is considerable difference of opinion may be noted ; they include questions affecting promotion, dismissal, the suggestion of improved processes, lectures and education in trade technique, and works discipline. The question of alleged wrongful dismissal is already handled by the Trade Unions, and there is a considerable body of opinion among both workpeople and the employers that, at least in the first instance, it is a suitable function for a Works Committee. Dismissal for such a reason as alleged disobedience, it is argued, may be only a cloak for victimisation ; reasons may be invented by a foreman in order to get rid of particular men. The claim is made that the other workpeople are likely to understand the psychological influences underlying such action, and that no such dismissal should be made until the circumstances have been discussed with the Works Committee. The situation in which slackness of work compels a considerable reduction in the number of employees is more complicated ; on the one hand, workpeople complain that the opportunity is used by certain employers to get rid not only of the less efficient employees, but also of those who have shown them- selves active in support of their fellows — that is, to cover up victimisa- tion ; on the other hand, employers complain that workpeople are exclu- sively biased in favour of the claims of seniority, and make little, if any, allowance for differences in efficiency. There would appear to be some truth in both contentions. A frank discussion would probably tend to remove the causes of the workpeople's complaints, and, at the same time, to produce a balance between the claims of seniority and of efficiency satisfactory to both employers and employees. What is per- haps even more important is a further argument ; such frank discussion would lead to plans for the alleviation in the particular works of the effects of a general slackness. It is not contended that any general remedy for unemployment can be found on these lines : all that is 33 suggested is that local and individual effort may help to solve the problem. Dismissals due to the introduction of new machinery or new methods are perhaps of a kind with which a Works Committee might properly deal. Workpeople are ready to acknowledge the benefits due to improvements and yet naturally resent such improvements where they involve the destruction of their craft or sudden loss of employment. It may be suggested that what individual employers have done in the past — namely, to make arrangements by which the dislocation of liveli- hood is reduced — can be carried out more generally ; and that in indi- vidual establishments adjustments for such a purpose are a suitable subject for discussion by a Works Committee. It is. of course, a sub- ject of vital importance to the Trade Unions; it is indeed an aspect of the process of dilution as seen at work in the normal industrial condi- tions of peace time. Though the Trade Unions could not be expected to hand the matter over to a Works Committee, there appears to be room for the latter to deal with the question within certain limits. The appointment of foremen is a question on which there may be said to be three groups of opinions. Many employers hold that it is purely a management question. The opposite extreme to this is the claim made by a considerable section of Trade Unionists that the work- men should choose their own foremen. A position intermediate to these two extremes is taken up by a certain number of employers and by a section of workpeople; the appointment (they feel) should be made by the management, but it should be submitted to the Works Committee before it becomes effective. Even this intermediate posi- tion, however, is not really a common position ; there are differences of opinion as to the conditions under which the appointment should come before the \\'orks Committee — that is to say, whether or no the Works Committee should have power to veto the appointment. Those employers who are prepared to submit such appointments to a Works Committee are for the most part of the opinion that this should only be done in order to explain the reasons for their choice. This, they hold, will tend to remove obstacles which might otherwise be put in the way of the appointment. A consideral)le body of workpeople, on the other hand, hold an intermediate position which comes nearer to election of foremen by the workpeople ; they think that the Works Committee should have the right to veto the choice made by the man- agement. A few employers consider that this — or even direct elec- tion — may be possible when a Works Committee, through the experi- ence gained in consultations about such appointments, has learned to estimate all the qualities necessary in a foreman. It has alreadv been mentioned that Works Committees very often discuss the conduct of foremen. The conclusion then reached, that such discussion was a - posal for a bonus on output to a large number of setters-up, the men asked their Dilution Committee representatives to take the question up and discuss the matter with the management. The men's representatives on the Dilution Committee have pre- vented many threatened strikes developing in various parts of the works, either by their direct intervention or by calling the attention of the management to trouble that was brewing. In the firm's opinion, the value of the work to be done by such a Committee depends on the men's representatives being educated and fair-minded men. It must be remembered that this Committee is essentially a Dilu- tion Committee and not a Works Committee. The representatives may, de facto, be shop Stewards, but they are chosen by all the employees, including skilled, semi-skilled and unskilled workpeople. The Dilution Committee does not represent the steel smelters, steel, iron and brass founders, smiths and strikers, and one or two other trades. If it were to become a Shop Committee it would prob- ably have to be increased and represent all trades and the foremen. In the firm's opinion the constitution of such a Committee, so as to secure the best results, would require very careful consideration. (F) An Establishment Making Motor-cars and Aeroplanes The firm makes motor-cars, aeroplanes and aeroplane engines. The present number of employees is about 3,500, of whom some 600 are women and some 150 general labourers. The others are skilled or semi-skilled. The Comjnittee dates back to 1908. It arose from a dispute which resulted in a strike. The directors had had no idea of the trouble, and in order that in the future such a position should be made impossible the Works Committee was formed. District Trade Union officials took an active part in the formation of the Committee. The Committee consists of 22 members, one from each depart- ment.* Each member must be a Trade Unionist, but voting is open to all men, whether or not Trade Unionists. The women do not have votes. There are members of 26 Trade Unions in the works. Only 10 of these have members on the Committee. The 10 are the A.S.E., the Toolmakers, the United Kingdom Society of Smiths, the United Kingdom Society of Coachmakers. the Amalgamated Society of Car- penters and Joiners, the United Machine \^'orkers, the Wood Cutting * See Note on p. 68. t At one time there was a member of the Workers' Union on the Com- mittee, but when he left the works the next appointed belonged to a skilled union. The departments represented and the unions to which the members belong are given at the end of this report. 67 Machinists, the Patternmakers, the Steam Engine Makers, and the Sheet Metal Workers. f The members are elected annually, each department electing its representatives. The Committe choose their own Chairman and Secretary. The same people tend to be re-elected from term to term ; the present Chairman has been in that position from the first, and the Secretary in his for 4>^ years. Note.— DIVISION INTO DEPARTMENTS Name of Department. Seaplane Department Seaplane Erecting Paint Shop New Machine Shop Old Machine Shop Body Shop Stripping and Examining. . . Repair Shop Smiths Shop Detail Shop Finishing Shop Trimming Shop Aviation Engine Depart- ment. Fitting Shop Erecting Shop Experimental Department.. View Room Moulders and Pattern Makers. No. of Em- ployees in Department (in round figures). 310 160 770 340 60 70 240 30 180 110 60 200 180 110 30 120 50 No. of Repre- sentatives Trade Union of on which representa- Committee.* tives are members. 2 Amalgamated Car- penters and Join- ers ; U.K. Society of Smiths. 1 Tool Makers. 1 U.K. Society of Coachmakers. 2 A.S.E.; United Ma- chine Workers. 2 A.S.E. 1 Wood Cutting Ma- chinists. 1 A.S.E. 1 A.S.E. 1 A.S.E. 2 A.S.E.; Sheet Metal Workers. 1 A.S.E. 1 U.K. Society of Smith 1 A.S.E. 1 Steam Engine Makers. 1 A.S.E. 1 A.S.E. 1 A.S.E. 1 Pattern Makers. The only formal rules are contained in a poster, a copy of which is posted up in each department. This gives a short statement of why the Committee was formed and outlines the procedure to be adopted with complaints. This precedure consists of three courts of appeal — the A\'orks Manager, the Managing Director, and the Board of I * The rule is one representative for each •department whatever its size. The exceptions are due to such causes as : — (a) In the New Machine Shop — one is allowed for each turn, day and night; (b) In the Detail Shop — a body of workpeople who have recently been removed from another department into> this shop have been allowed to retain their representation. 68 Directors. Thus, a man not satisfied with the response of a foreman goes to his departmental representative on the Committee (or direct to the Secretary or Chairman, who have freedom of movement from depart- ment to department). The Chairman and Secretary of the Com- mittee and the representative of the complainant's department then approach the W^orks Manager, and thereafter, if necessary, first the Managing Director, and then the Board of Directors. In fact, noth- ing needs to go beyond the Works Manager ; nothing has gone so far as the Managing Director since there was some trouble connected with the introduction of the Insurance Act ; and during the present Direc- tor's tenure of the position no case at all has reached the Board of Directors. The Committee acts for almost all purposes by the methods described in the preceding paragraph. The Works Manager has met the whole 22 as a body on one occasion only. The occasion was a visit from an officer of the Ministry of Munitions on the question of time- keeping. The Works Manager meets the small number who act for the Committee (perhaps with the employee or employees concerned) whenever there is occasion. The number of interviews rises and falls. Sometimes he will have an interview every day for a week, and then a fortnight without one will pass. These interviews are in employers' time. The 22 members meet by themselves about once a month for general business ; these meetings are partly in their own time and partly in the employers' time. The Committee has been largely responsible for making the appeal for better timekeeping effective, and this is the more remarkable because even before the appeal was made the timekeeping record was considered very good. As an illustration the following figures were given: for the week ending 10/3/17 the total number of hours lost by 3,300 employees w^as 8.050; the corresponding numbers for 3.500 employees in the week ending 22/9/17 was 5,700; that is a reduction from 2.4 to 1.6 per head. The other questions discussed with the officials of the Committee and the representatives on it of particular departments have included dilution, which was carried through with- out trouble, and grievances in regard to premium bonus times, includ- ing the fixing of new times when methods of production are altered. Usually the arrangement of times is discussed when the question afifects a number of men. A toolroom bonus, payment of time and an eighth, was arranged between the Committees' representatives and the Works Manager. This bonus, which was conditional on good timekeeping and increased activity, has since been given up in favour of individual premium bonus. The Chairman of the Committee, who is an official in his own Union, emphasised three points : — (1) the division of functions between Union and Works Com- mittee, wage questions in particular being Union matters. 69 (2) the established procedure as posted up in the depart- ments. (3) the officials' right of movement from shop to shop. He had no doubts about the benefits produced by the Committee. The representatives of the management agree as to the success of the present arrangements. (G) The Horstmann Gear Company, Limited, 93, Newbridge Road, Lower Weston, Bath. These works are a small engineering establishment employing 70-80 men and aprentices and 14 women. There are no labourers. The men are all skilled mechanics. There are 16 apprentices. The Works Committee was formed in the autumn of 1916. It was set up at the suggestion of the management in order to administer the bonus scheme proposed by the management, in response to a demand by the employees for a 10 per cent, advance in wages in the autumn of 1916. The essentials of the scheme are as follows : — Each month a sum equal to 5 per cent, on the wholesale value appearing in the stock book of the viewed and passed manufacturing output for the previous month, and the works' value of other work done during the previous month, is set aside as a bonus fund. 5 per cent, was adopted, as that was the percentage on the output of the previous month represented by a 10 per cent, advance on the existing current wages at tlie date when the first bonus was paid. Every employee in the works, except the two Managers and the Secretary, participate in the bonus according to the number of "profit- sharing units" to which he or she is entitled under the scheme. Each employee, except apprentices for whom special provision is made, is entitled to one "profit-sharing unit" for each halfpenny per hour of the employees' time-rate, up to, but not exceeding, 9d. per hour, and two units for each completed year of service up to five years. Examples : — An employee receiving 9d. per hour and having been three years with the firm would be entitled to 24 units; another, receiving Is. 3d. per hour and with three years' service, would also receive 24 units ; and another, with two years' service and receiving Sd. per hour, would be entitled to 20 units. The Committee meets regularly each month : — (i) To settle the amount to be set aside for payment of bonus. For this purpose the books of the Company are opened to the Committee. (ii) To assess the value of the profit-sharing unit. 70 (iii) To assess the fines incurred ])y employees under the scheme.* (iv) To determine the amount of bonus to which each employee is entitled. 2. Constitution. — The Committee is a Joint Committee, represent- ing :— (i) The management. (ii) The employees. The two Works Managers and the Secretary are cx-officio mem- bers. These gentlemen are also the Managing Directors of the Com- pany. The rest of the Committee consist of six representatives of the employees, elected by ballot by all the employees. The six members represent the works as a whole. Representation is not based on depart- ments or on grades of workers. All employees, apprentices and women as w^ell as men, are voters. The officers consist of a Chairman and a Secretary. The officers are elected by the Committee. The present Chairman is the Chairman of the Directors. The chief Clerk has been elected Secretary. The Committee meets as a whole. There are no separate meetings of the management members and employee members. The present elected members have been elected for an indefinite term. The period of office will probably, in future, be six months. The constitution has not been reduced to writing, and must be regarded as tentative. More women will shortly be employed, and it is intended then to consider the separate representation of women on the Committee. Only one of the employees is a Union member. The question of relationship to the Trade Unions has. therefore, not arisen. The Committee has recently formed a Works Musical Society, which is progressing excellently. A canteen will shortly be established, and it is intended to associate the Committee with its management. 3. Functions of the Committee. — The Committee, in addition to the above-mentioned special duties, is charged with the consideration generally of any grievances arising in the shop. Its functions in this respect are not specified or limited. The Committee has dealt with shop conditions, wages, holidays and bad timekeeping. It discusses * A fine of a certain percentage of the units for any one month, with a maximum of 25 per cent., may be inflicted for each of the following offences, and these units will then be temporarily forfeited for the month in question: — (a) Insubordination, or use of improper language. (b) Undue carelessness and wilful damage. Ic) Neglect to enter goods, advices, time cards, dockets or time sheets. (d) Waste of tools and materials. {e) Waste of time by failing to work full weeks, or by slackness, also including undue use of lavatory. if) Refusal to work a reasonable amount of overtime when requested without sufficient reason. 71 any questions arising in the works which are considered suitable for discussion. Procedure — The Committee meets regularly each month. It meets some 15 minutes, or so, before the end of the working day, and the employee members are paid for the time so spent up to the end of the working day. Any time occupied after the end of the working day is not paid for. Meetings take place on the works. ]\Ieetings are summoned informally by verbal notice to members. The length of meeting varies according to the amount of business to be transacted. Minutes are regularly kept of the proceedings. 5. General. — No arrangements have as yet been worked out for keeping the Committee in touch with the general body of employees. The necessity for such arrangements has not been felt. The decisions of the Com.mittee appear to have given complete satisfaction. Em- ployees are not bound to report grievances to the Committee ; if they wish they can approach the management direct. Every facility for this is afforded to all employees. The value of the unit has already advanced some 30 per cent., and is expected to rise rapidly in the near future owing to improved methods and efficiency. The Committee is regarded as a great success, and has acted as a great incentive to efficiency in the works and in furthering increased production. (H) H. O. Strong and Sons, Ltd., Norfolk Works, St. Paul's, Bristol This establishment is a small engineering works employing about 120 men, women and boys. . The Managing Director personally supervises the whole of the works, and very close personal contact is maintained between the man- agement and the employees. 1. Origin. — For several years prior to the latter part of 1915 the Company adopted the practice of meeting the whole of the men employed in the works, once a month, to discuss any matters connected with the establishment that seemed to require examination. At the end of 1915 this practice was abandoned because it was felt by the management — (i) That much time was wasted discussing irrelevant and unimportant matters. (ii) That real grievances did not freely come out in the presence of the whole body of employees. The last meeting of this character took place towards the end of 1915, and at this meeting the Managing Director pointed out these objections to the existing practice, and suggested that a Works 72 Committee should be constituted. The management then retired, and the proposal was discussed by the employees alone. The employees agreed to the proposal, and proceeded to elect seven representatives to form an Employees' Committee, which would meet as a Joint Works Committee with the management. 2. Constitution. — The Committee is composed of : (a) Three representatives of the management nominated by the Managing Director, namely : — The Managing Director. Manager of the Repair Department. Works Manager of the Manufacturing Departments. (b) Seven representatives of the employees. Representation is based on occupation, not on the department in which the men work. The representatives are divided as follows : — 1. Labourers (1). 2. Machinists (1). 3. Turners (1). 4. Millwrights (1). 5. Patternmakers (1). 6. Fitters (1). 7. Apprentices (1). Some 20 women are employed, but are not represented. Of the seven representatives, four are members of the Amalga- mated Society of Engineers, three are non-Unionists. The employees' representatives are appointed at an annual meet- ing of all the employees (other than women) held in September. They are appointed for twelve months. The Managing Director has been elected Chairman of the Joint Committee. The men's representatives meet separatel}^ as an Employees' Com- mittee for the purposes mentioned below in paragraph 4. The Employees' Committee elects one of its members as Chairman. The Chairman acts as convenor. There is no relation between the Committee and the Trade Unions concerned. A Trade Union official, as such, does not, therefore, attend the meetings, but one of the Committee is the shop steward appointed by the Amalgamated Society of Engineers. No constitution of the Committee has been definitely formulated. It is at present experimental, and is developing in accordance with experience. 3. Functions of the Committee. — Since the appointment of the Committee, no complaints or suggestions come direct to the manage- ment ; they are first taken to the Employees' Committee as explained hereafter. 73 The Committee has dealt with the following classes of business : — Stoppage of bonus. General discipline. Interpretation of official Orders and Circulars. Interpretation of Trade Union rules and regulations. Shop conditions, lavatories, ventilation, &c. Decisions of foremen. Timekeeping. Output and costs. Overtime. Grant and withholding of Leaving Certificates. The Committee has proved specially useful as a means of arriving at the proper interpretation of official Orders and Circulars. The operation of the recent Order granting a bonus of 12^/2 per cent, to certain skilled time-workers (the Skilled Time Workers (Engineers and Moulders) Wages Order, 1917) was discussed at the last meeting, and its operation in these works determined. 4. Procedure. — Complaints or suggestions are brought, in the first instance, to the attention of one of the men's representatives. Nor- mally, the complaint or suggestion is made to the representative of the grade to which the person making the complaint or suggestion belongs. This representative then notifies the Chairman of the Employees' Committee, who asks the foreman's consent to a meeting of the Employees' Committee being held, and arranges with him a convenient time. The members are then notified verbally of the time and place of meeting. A meeting is held as soon as possible after receipt of the complaint or suggestion. The meeting takes place in the employers' time. All work in the establishment is paid on a day work basis. The men are paid for time occupied on Committee business. The men's meetings are of short duration, and are held in the works. If the Employees' Committee can deal finally with the question raised, they do so. If not, the Chairman of the Employees' Committee approaches the Managing Director as Chairman of the Joint Commit- tee and asks for a meeting of the Joint Committee. These meetings are held in the firm's time, and the Committee meets in the office of the Managing Director. Joint meetings occupy from half-an-hour to two hours, according to the amount of business to be transacted. A shorthand typewriter is present to take notes, from which regu- lar minutes are entered up in a minute book. No voting takes place. All decisions are arrived at by agreement. There is no regular time for holding meetings of the Joint 74 Committee. Meetings are held as and when required, and are held as soon as possible after a request for a meeting is preferred by cither the management or the Employees' Committee. 5. Relations with Trade Unions. — There is no direct relation between the Committee and the Trade Unions. The Unions are recognised by the company, and all Union matters are arranged direct between the management and the Union ofificials. The Joint Committee is only concerned with Union Rules so far as affects their interpretation in relation to the circumstances of the works. The Amalgamated Society of Engineers have a shop steward in the shop. The latter is a member of the Committee, but not in his official capacity as shop steward. No difficulties have arisen with the Unions. 6. General. — The management have found the Committee of the greatest service in conducting the business of the works. It has obviated the necessity of posting notices, always liable to be misunder- stood, in many instances. A good output has been maintained, and no trouble has arisen in the works. The management believe that the essential point in preserving good relations with their employees is to ensure an open and full understanding, and that this can only be secured by frequent contact with every section of opinion in the works. The employees find the Committee of advantage to them because, instead of any complaints being subject to the whim of a foreman or the ipse dixit of a manager, the matter is finally decided by a commit- tee of their own mates, or, if this is not found possible, by a joint meet- ing of their own representatives with the management. Moreover, there is no delay. Rapidity of action is regarded as essential if a scheme of control of this sort is to work satisfactorily. There is general agreement that, in a small meeting of nine or ten persons meeting informally, men have no hesitation in saying what they think, and it is thus possible to gauge the "temperature" of the shop with some accuracy. (I) Messrs. Guest, Keen and Nettleford, Ltd., Birmingham. Works — Engineering: Screw, nut, bolt and rivet. Employees (affected by the scheme, in 3 works), 2,500. Departments, some 50. General labour, about one-third of the whole. Women employees, 1,850. 1. There are five separate works of the firm, all engaged in the same business, in the Birmingham district. Three of these, contiguous to one another (Heath Street, Imperial Mills, and St. George's), are fully included in the scheme here described. The two others follow the same lines, but, being more distant, are not included in the actual operation of the scheme. The origin of the scheme was as follows : — Early in 1914 there was a series of strikes of the women employees, 75 and these strikes affected the men employees, as machines stood idle, work was not ready, and wages were lost. The result was that the men also struck. When matters had thus reached a deadlock, a mass meeting of the men was held on May 9th, 1914, which was attended by the management, and at this meeting the outlines of the scheme now in force were suggested. Subsequently a mass meetmg of the women was also held, and the management and representatives of the men attended. The scheme was again propounded, and was accepted by the meeting. Finally a mass meeting of men and women, with the management attending, was held, and here the scheme (on the lines of No. XII. and No. IV. of the present rules — that there should be no strike with- out consultation of the firm, and meanwhile the machines should be kept running, and that there should be an Appeals Committee in each of the three contiguous works) was accepted. 2. The works were conducted on this basis for over two years, down to August, 1916, without any difificulty. At that time the ques- tion arose of an advance in wages to meet the rise of prices. The matter went to arbitration, and during the arbitration the full scheme, as it is now in operation, was presented to the arbitrator for his opinion. He approved it, and not only so, but gave legal advice free of cost. Negotiations with the directors took place, and in December they accepted the scheme, and a formal agreement was concluded by which the men, as a society, agreed to a signed contract that they would not strike without consultation of the firm, and received in return a system of Appeals Committee in each of the three works and a central control board for all the three. 3. The scheme, which came into full working in December, 1916, embraces, as has been said, three works,* including the greater part of the manufacturing section ; but the engineering section (which contains about 300 employees) is not at all under or connected with the scheme, its members belonging to various other societies. The 2,500 employees of the manufacturing section of the three works form a definite Trade Society or Union. Few of them before the scheme came into opera- tion were members of a Union ; all of them are now members of the new Union. This new Union does not belong to any Trades Council or Allied Trades Committees ; its strike rules forbid such membership. The Union is thus peculiar ; it is a small Union consisting of the employees of a single firm. 4. The Union, as has been said, has entered into a definite contract with the firm, by which it covenants not to strike without consultation, * Two other works of the firm in the district (Broad Street and King's Norton) are not included in the scheme, and have no Appeal Committee ; but the wages and conditions at these works are aflfected and largely controlled by the system in force at the three contiguous works. One of these works is likely to come fully into the scheme, as its site is to be in the future nearer to those of the others ; the other is out in the country, and so outside the scheme. 76 and to keep the machines running meanwhile, in return for certain concessions. The first of these is : — (a) The Appeals Committee. — There is an Appeals Committee in each of the three works. Each Committee contains men and women representatives, elected, one for each section, by a ballot among the employees of the section; and each has its Chairman, but the Chairman of the Central Control Board often presides at meetings of the different Appeals Committees. The Appeals Committees deal with questions other than those of wages. Their province includes lavatories, can- teen, general health and welfare ; but they deal mostly with shop condi- tions and grievances. Any employee with a grievance states it to the Chairman of the Committee or to one of its members who reports it to the Chairman. The Chairman then sends a note on a regular form to invite the foreman to meet him in order to discuss the matter. The matter may be settled at such a meeting; if it is not, it goes to the Appeals Committee; and if, in the opinion of that committee, it raises questions outside their province, it is referred to — (b) The Central Control Board. — ^This contains, at the present time, from 25 to 30 members, including men and women. The mem- bers are nominated by the different Appeals Committees, subject to ratification by a general meeting of the works concerned. (Meetings of 800 are not at all uncommon; the employees attend well, as there is a rule that unless two-thirds are present there is no quorum and nothing can be done.) The President of the Central Control Board is elected by the whole Society. The present President has been in indus- try for the last 37 years, and has had a long practical experience in the w'orks of all the wage-questions which form the staple of the functions of the Control Board. In the handling of these questions the usual method is as follows : A wage-question is reported to the President, and he then communicates v^ith the management in writing. If it is a question of local detail, he writes to the works manager of the particular w^orks ; if it is a question of a general kind, he writes to the general works manager. The manager addressed replies to the President in writing (but, as a rule, there has been a personal interview between the two before the reply comes) and the reply is reported by the President to the Central Control Board. If the reply of the man- agement is satisfactory to the Central Control Board, the matter, of course, ends ; if it is not, the Central Control Board makes further representations to the management. The Control Board does not meet the management; the relations are entirely by correspondence, supple- mented by personal interviews between the President and management.. (c) The last resort, if a question is not settled between the Con- trol Board and the management, is the Conciliation Board, consisting of two representatives of the management and two of the Control Board. This Board has never acted hitherto, since, under the working of the ATunitions Act. questions which would have gone to the 77 Conciliation Board under normal conditions now go to London for settlement. In this event the President writes to the Ministry of Munitions to state the men's case, giving a copy of his letter to the firm ; and a general meeting of all the employers affected may be held before the letter is sent, just as would be the case if the normal procedure contemplated in the rules were being followed. 5. In regard to the general working of the system the following points may be made : The firm permits anybody to see the President in the works (another workman sees to his machine while he is absent) ; it allows his letters to go by the works mail ; it has supplied him with a desk beside the bench at which he works and facilities for keeping his books and papers. A room is set aside in which he can have interviews, and the firm provides a room for meetings of the Appeals Committee and Control Board. The management is always ready to see the President when he asks for an interview, and he has full liberty to go anywhere in the three works, without asking for permission, in order to interview employees or committeemen and to discuss grievances. As has been mentioined, any grievance between an employee and an overlooker is discussed between the Chairman of one of the Appeals Committee and the overlooker concerned ; but if it is not settled the complainant and the overlooker appear before the Appeals Committee and both state their case. The Committee decides which of the parties is, in their view, in the right, and they send the matter for adjustment to the management. The work of the President under the scheme is unpaid. (J) A Firm of Electrical Engineers This establishment is an engineering works employing 400 women, 150 men and 150 boys. About 40 of the men are skilled. These are all members of the Amalgamated Society of Engineers. The establishment is almost entirely engaged in making 18-pounder shells. A small amount of private work is done, principally heads of trolley arms for electrically propelled tramcars. 1. Origin. — The Works Committee was established in the Autumn of 1915. It was brought into existence to assist in fixing and adjusting piece-work prices. The Committee was suggested by the men employed at the works, and the local delegates of the Amalgamated Society of Engineers also recommended the establishment of the Committee to the Managing Director. 2. Constitution. — The Committee is a men's committee only. It consists of 5 men. The women and boys are not represented. The 5 78 members are elected by the shop as a whole, and do not represent separate departments or grades. The constitution of the Committee has not been reduced to writing. It is at present experimental, and is developing in accordance with experience. 3. Functions of the Committee. — The principal business of the Committee is to assist in fixing and adjusting piece-work prices. The questions which arise on this score are, however, not complicated or difficult, as the establishment has, since the Committee was formed, been engaged almost entirely on repetition work. The management, in the first instance, settle what they consider fair prices, and submit them to the Committee with the data on which they have been fixed. The men's committee then meets separately to consider the suggested prices. Ample time is allowed them to consider and discuss the matter, both among themselves and with the workers afifected. A joint meeting is then held between the Committee and the management, at which the several prices under consideration are reviewed, and any suggestions as to amendment are considered. If a good case is made out to the satisfaction of the management the price is raised or reduced. If it becomes necessary to reconsider the price already fixed, any sugges- tions on this score are brought by the Committee to the attention of the management, and are jointly considered. No friction of any sort has so far arisen. Prices have been frequently reduced or increased by mutual agreement. Under ordinary conditions of work, problems aris- ing as to fixing and adjusting piece-work rates will be more difficult, but the Managing Director considers that they can be best dealt with on the lines above indicated. No limits have been put to the matters with which the Committee may deal, and it is open to the Committee to bring forward any sug- gestions or complaints relating to the management of the shop. The Committee has dealt with the following matters :— Ventilating and sanitary questions. Complaint's as to the decisions of foremen. Arrangement of shifts. Allocation of piecework and day-work. Holidays. Alteration of hours of admission to the works. Interpretation of official orders and circulars. At the last meeting the application to this establishment of the Skilled Time Workers (Engineers and Moulders) Wages Order, 1917, was discussed. The Managing Director is of opinion that the Committee should also be charged with the supervision of dismissals and reduction of staff, and it is likely that steps will be taken to utilise the services of the Committee in this respect. 79 The Committee deals solely with domestic questions arising in the shop. 4. Procedure. — The men's committee meets separately on the employers' premises and in the employers' time. Time spent on Com- mittee work is paid by the employers. On request, the Committee meets the Managing Director and the Works Manager. Requests for meetings are made by the Committee to the Works Manager. Meetings with the management take place in the firm's time, and time is paid. There are no fixed times for meetings. Meetings either of the employees' committee or joint meetings with the management are held at such times as may be found necessary. On any business arising, a convenient time for a men's committee or a meeting with the management is arranged as soon as possible, and generally upon the same day. Meetings are called informally by verbal notice. Meetings with the management are of an informal charatrter, and the men's representatives are, if necessary, accompanied by the local delegate of the Amalgamated Society of Engineers. 5. Relations zvith the Trade Unions. — There is no official relation between the Committee and the Amalgamated Society of Engineers. The Union is recognised by the company, and very cordial relations exist between the management and the Amalgamated Society of Engi- neers' officials in the district. All Trade Union matters are dealt with direct by the management and the Union officials. No difficulties of any sort have arisen with the Union. 6. General. — The Committee is regarded by the management, the men and the Union officials of the Amalgamated Society of Engineers as a great success. The management have found the Committee of the greatest service in conducting the business of the works. The Manag- ing Director considers the existence of such a Committee as essential, and strongly supports any scheme by which the workers may be given a great share in the control of industry. In his opinion, the success of any such scheme pivots on the establishment of satisfactory joint work committees. (K.) HOTCHKISS ET ClE, ARTILLERY WoRKS, COVENTRY. From Official Constitution of Works Committee as Approved by the Ministry of Munitions The recognition of a Shop Committee, such Committee to be com- posed of Stewards elected by their representative Departments by secret ballot and endorsed by their respective Union District Committees. In deciding on representation the principle will be one representa- tive for each Department having not less than approximately 100 employees. In cases of smaller Departments, these may be grouped 80 together and representation of the Departments so grouped will be on the same basis. No employee of less than 18 years may vote. Functions of the Committee : — (a) To provide a recognised channel of communication between the employees and the management. {b) To present to the management, through the Chairman of the Committee, any grievance or suggestion which, after full con- sideration, they think worthy of the firm's attention. Procedure. If the management and the Committee fail to agree, and on all questions of principle, negotiations will proceed between the manage- ment and the Union as hitherto. The Chairman of the Committee will have facilities to consult the Union local officials. Failing settlement with the Union, Part 1 of the Munitions of War Act. 1915, will apply. No stoppage of work will occur during negotiations. Meetings of the Committee will be held after working hours unless called in case of emergency at the request of the management. Note from Firm. — "The Committee came into existence at Easter, 1917. It was instituted in the first place on a two months' trial and. as it momentarily achieved its object, was continued until about the end of the year. The constitution of the Committee then became unacceptable to the Shop Stewards and the Committee lapsed." (L.) A Large Engineering Establishment 1. From the point of z'icw of the manacjcwent. — A Dilution Com- mittee arose in 1916 when dilution was introduced. There were no particular rules about its constitution. At the end of 1916, after the question of dilution had been worked out, and as the Committee com- menced to take up other questions, the firm began to consider the formal institution of a Works Committee in place of this informal Dilution Committee. The Note printed below gives particulars. A Joint Shop Committee was set up, but only lasted a few months. It would appear that the really crucial question, which led to the disso- lution of the Joint Committee, was the position of the Shop Stewards, which was perhaps not properly co-ordinated with the institution of the Joint Committee. The men stood out against the Committee because, in their view, its effect would be to weaken the authority of the Shop Stewards. As a matter of fact, the firm has always in practice recog- nised the Shop Stewards, though in the institution of the Shop Com- mittee it did not take their position specifically into account. The man- agement sees them whenever they wish it. Generally, they come in twos — a Convenor attending with the Shop Steward of the department from which the complaint is brought. This still goes on; and. there- fore, though the Committee is dead, the principle of such a Committee 81 still lives. Generally, it is true, the Shop Steward goes to the foreman first with a complaint; but he can come straight to the management if he is dissatisfied with the foreman's answer. 2. From the point of zieiv of the men. — The same people were Shop Stewards and members of the Shop Committee, but they pre- ferred to act in the former capacity. One reason for this preference was curious but natural. There were 24 Shop Stewards in the estab- lishment; there were only nine representatives of the men on the Joint Committee, as the management held the view that the Committee must not be so large as to be unwieldy. The 15 Shop Stewards who were excluded from the Committee were discontented. 3. The last straw which broke down the Joint Committee was a curious thing. It was a question of the washing of women's overalls. The women had agitated (or been agitated) about the matter; it was brought before the Committee ; the men took umbrage at a long dis- cussion of such a matter, and the end came. In spite of this failure, both management and men appear to be in favour of the idea of a Joint Committee. Note. — Joint Shop Committee Is is proposed to form a Joint Shop Committee for the purpose of mutual discussion of shop questions, with a view to securing har- monious relations and efficiency in the working conditions of the establishment. The Committee will consist of representatives elected by ballot by the workmen and women of the various departments, arranged in nine divisions as shown below, one representative to each division. The firm will be represented by the Directors and Departmental Managers. The Committee will have power to co-opt any employee or works official for attendance at any meeting where such attendance may be necessary. A first ballot will be taken in each department, each employee being at liberty to nominate a candidate for his department. The two can- didates receiving the largest number of nomination papers will be selected for the final ballot, and the nominee receiving the larger num- ber of votes in the final ballot will be the elected representative of the department. It is suggested that the representatives should hold office for six months. A payment of 2s. 6d. per meeting attended will be paid to each representative by the firm. The Committee will meet on the first Thursday of each month at 5 p.m., or as may be required. • The scheme is a purely domestic one, and is an attempt by the firm to provide a more direct means of communication with their employees in all matters affecting their conditions and the development of the establishment generally. The Directors invite the co-operation 82 and interest of the employee? in the scheme, and trust that each indi- vidual will register his vote according to his judgment, in order to make the Joint Committee thoroughly representative. The ballot will be secret, so that no parties will be in a position to ascertain how any worker has voted. Intimation will be made to each department when the first ballot will take place. The arrangements in connection with the election and voting will be carried out by the exist- ing Joint Shop Committee. (M) A Munitions Factory. The company owns two factories and manages two others, and altogether employs about ten thousand workers. Its products are ammunition of various kinds for Naval and Military purposes. This note only refers to one of their factories, in which there are four thousand employees, of whom one thousand five hundred are women. One hundred of the males are general labourers, the rest being skilled or semi-skilled. The Works Committee was formed in May, 1917. and consists of twenty-one members. It is composed of and is elected by the men, the election taking place at shop meetings. At present the women have no representative and no vote in the elections. Nevertheless, the women have laid certain matters aflfecting them before the Committee for consideration, and the Secretary of the Committee is in touch with the Organiser of the National F"ederation of Women Workers, and should need arise would deal with the Women's Section of the Work- ers' Union, or, indeed, any organisation of female labour. There is no rule excluding non-Unionists, but, in fact, all the members of the Committee are Trade Unionists. The Committee meets weekly on Tuesdays at supper-time (i.e., in the men's own time). In cases of real urgency the general man- ager gives permission for meetings in the company's time. The Committee has a Secretary, who is largely responsible for the work transacted. He communicates the recommendations of the Com- mittee to the general manager through the company's labour officer. The Committee, though perhaps not formally recognised by the company, is, in practice, treated as a body with which negotiations can be concluded. The general procedure is as follows : — Matters for the consideration of the Committee are reduced to writing and brought up at a meeting. They are then discussed. In many cases the Committee are able to give advice or instructions on the matter without any reference to the management. Should it be decided that in the opinion of the Committee some alteration should be made, the labour officer is requested to lay the matter before the general manager, who frequently discusses the subject with the Secre- tary before coming to a decision. 83 Should the matter be deemed to be very important or of a funda- mental character the Committee request the general manager to receive a deputation. Up to the time of writing the working of this Committee, as guided by its present Secretary, is considered by the company as most helpful. It has settled many alleged grievances without any trouble, has prevented several threatened strikes, and generally tended ta smooth and harmonious working in the factory. The success of the whole scheme is largely due to the tact and good sense of both the company's labour officer and the Works Com- mittee's Secretary. In conclusion it should be stated that before the formation of the Works Committee many consultations had to take place between employees and their respective Unions to settle minor points. This procedure has now been found unnecessary, as the operation of the Committee so far has made it easy for both small and great matters to be ventilated and promptly dealt with with the least possible friction and delay. (N) AVhitehead Torpedo Works (Weymouth), Ltd., Weymouth. The following summary contains part of a memorandum sent to the representatives of 13 trade unions. A letter, which accompanied the memorandum, suggested that a general meeting of delegates of each organised society in the works should be called to discuss with the firm the formation and constitution of the oroposed Council. The proposals are now under discussion by the trade unionists. In the memorandum the firm suggest : — "That the existing trade union organisations may be made the basis of a general Council, of reasonable size, representing every union in the works, and given the fullest possible powers to take decisions, subject, of course, to reference to the constituent branches on any issue of sufficient importance." They then state that : — "The firm's aim is to associate (through a Council appointed in such a way as to recognise and strengthen the position of the existing trade organisations) the whole body of workers in everything that con- cerns their well-being, discipline, and control, and, by stirring in each individual the sense of his responsibility towards the State, the indus- try and the works, to enable such a Council to secure loyal compliance with any decision arrived at conjointly with the firm." A programme of subjects is thereafter given as a basis for discussion. (1) Hours of Work.- — The proposal of a 50-hour week on the one-break day system was defeated when voted upon in May. Some men appear to have thought the adoption of a 50-hour week would prejudice the introduction of a 48-hour week after the war. The firm 84 is strongly in favour of a •48-hour week, ])ut in regard to that eannot act without reference to the agreements between the I'^ngineering Employers' Federation and the Trade Unions. A full explanation of the one-break day is given and arguments in its favour added. This section ends : "The firm has not had any other or better proposal put before it for this purpose, and therefore raises the question again for reconsideration. It is further proposed that, six months after the adoption of the one-break, a referendum by ballot should be taken as to whether the old system of hours should be gone back to or not." (2) Time-keeping.— "The question of time-keeping is the one that has gone nearest to impairing the excellent relations with its employees that the firm values so highly ; but it is felt that here again the facts have not been rightly understood by everyone." There follows a discussion of causes. The management have now come to the conclusion that the greatest efifect has been produced by the institution of an "open gate" and the relaxation of the official Works' Rules. "The exact form that the gate rules wall finally take is subject to consideration, and is much influenced by the concurrent question of the one-break day; but, in its old form, the "open gate" has been tried and found wanting, and, one way or another, something else must take its place." (3) Release of Diluted Labour. — "The firm is prepared to invite collaboration from the proposed Council, or sectional Committees rep- resenting the individual trades concerned, both as regards the selection of suitable operations on to which to put unskilled labour, and as regards the individuals to be released for skilled work elsewhere." (4) Fixing of Piece-work Prices. — In order to facilitate the fixing of prices satisfactorily to employer and employee it is proposed : — "It w^ould be one of the functions of such a Council, as is sug- gested in this memorandum, to set up an organisation whereby reliable times for piece-work operations would be ascertained, checked, and counter-checked by both parties. This organisation would prevent such occurrences as a recent suggestion of 50 minutes for a particular new operation. A trial made by the management showed that six minutes was an ample allowance. If such trials were made- by a Joint Committee (or in their presence) prices could be settled tnore rapidly, and with less danger of unfairness, or discontent on either side, afterwards." "The same organisation could be used for the purpose of making clear to w^hat extent a job becomes a new one by some alteration in design, material, or method of manufacture." 85 (5) General Rules and Regtilations. —"Thtre is a class of rules, offences against which are punishable by a fine of 2s. 6d., dismissal, or a prosecution under the Munitions Acts. None of these penalties is a convenient one. Fines are as much disliked by the firm as by the men ; dismissal entails the loss of services which may be badly needed; and prosecutions entail great waste of time and may produce more evils than the original ones they are meant to cure. Many of these oflfences and some others could probably be dealt with more satisfactorily by such a Council as outlined above. Instances of them are : — Clocking in too soon, fraudulent clocking, and registering another man's time. Not keeping at w^ork till knocking-off time. Leaving work without permission of foreman. Idling in the works. Entering or leaving the works otherwise than by the main entrance. Bringing in liquor. Cambling in the works. Taking part in disturbances, using abusive language, and refusing to obey lawful orders. All the above are offences under the Works' Rules, permission to post which has been given by the Ministry to the firm as a Controlled Establishment. They have hung in the main entrance since 1915, and are still in force, but every one of them is broken from time to time." (O) A Shipbuilding Yard. The present number of employees is about 2.400. of whom some 200 are women. The system in operation at this yard (and the same methods apply at the firm's engine works) is particularly interesting in view of the comparatively long time during which it has been w^orking, and in view also of its success in fostering good relations between the firm and the men. More than 30 years ago an elaborate system of rules for the yard were drawn up by the firm in consultation with delegates from the trades, conferences between members of the firm, officials of the firm and delegates from the various trades in the yard, being held for this purpose on five dates in 1885 and on two in 1886. These "Rules'' form a printed booklet of 36 pages, and each employee on joining the yard for the first time can be furnished with a copy. In an address, delivered by one of the late senior members of the firm, at the close of one of the conferences (on 21st January, 1885), there is contained the following statement : "I think I am right in saying that the step taken by this firm in asking their workmen to join with them in the preparation of the rules of this yard is a new step in the history of labour. I cannot find, from anything I have heard or read, tliat any firm previous to my own firm has asked the men in their employ to join with them in the preparation of the rules l)y which these men were to be governed." The revision of these Yard Rules has been a subject of conference at various dates since 1886. The present edition of the rules is divided into five sections: — Section I is sub-divided into (i) General, (ii) Decauville Railway, (iii) Timekeeping and Piece-work, (iv) Regarding Apprentices, (v) Against Accidents, (vi) Against Dis- honesty, and (vii) Final. Section II deals with the admission of (i) Apprentices to Drawing Office, (ii) Boys as Apprentice Clerks, (iii) Girls as Apprentices in Tracing Departments, (iv) Girls as Apprentices in the Decorative Department, and (v) Girls as Apprentices in Uphol- stery and Polishing Departments. Section III gives the rules for the guidance of the Committee of Awards. Section IV gives the rules referring to Subscriptions. Section V gives the Fire Brigade Rules. There is a separate book of rules for the Accident Fund. Conferences similar to those of 1885-6 have been held from time to time since, and have developed into a Workers' Committee. The members of the conference at first represented trades, and may still do so, but not necessarily. Each department chooses one dr two representatives, and these representatives may or may not be Trade Unionists or Shop Stewards.* The composition of the Committee to-day is as follows: NO. OF TRADES. DELEGATES. Painters 1 Engineers, Cranemen, &c 2 Blacksmiths 2 Joiners (Upholsterers) 2 Plumbers 1 Tinsmiths 2 Riveters 1 Labourers 1 Electricians 1 Iron Carpenters 1 Wood Carpenters 1 Caulkers 1 Drillers 1 Fitters 2 Foremen 2 Drawing Office 1 Counting House 1 23 * The majority of the delegates are trade unionists and official yard delegates for their unions, though not elected to the Committee as such. 87 The above is the composition of the Committee when it meets the management in what may be called formal meetings. There are, how- ever, no set meetings, and in addition to the formal meetings much business is done between the firm and the Chairman of the delegates ; and, in matters affecting a particular trade, between the firm and the delegates from that trade. In the last 24 years the formal meetings have averaged three a year, but in the last three years there have been 20 meetings, or an average of seven a year. The delegates hold shop meetings to report results of meetings with the management, and meet the management again, and so on until agreement is reached. One of the delegates acts. as Convenor or Chairman, and as the link between the delegates and the management. For the formal meetings with the firm, one of the firm's shorthand clerks, at the request of the delegates, acts as Secretary. The subjects dealt with, in what have been called "formal meet- ings." cover a wide range : — they have included the revision of Yard Rules originally made in conference; unemployment questions — e.g.. the purchase by the firm of an old vessel so as to employ idle men, and subscriptions to an unemployed fund ; timekeeping — men leaving their work before the horn blows ; arrangements for paying the men — e.g., earlier payment for big squads where division has afterwards to be made among the members of the squad ; arrangement of holidays ; sub- scriptions to various funds and charities, including joint funds for augmenting Government allowances to soldiers' dependents; provision of canteens and of supply of carried food warming appliances, and of ambulance transport for injured men; distribution of coal supplied from firm's yard during 1912 coal strike to inhabitants of town, (this was worked by delegates themselves under chairmanship of one of the partners) ; subscriptions to War Loan; and dilution of labour. When the firm joined the Employers' Association, about 1906, the fact was formally put before the men's delegates. It will be seen that the list covers not only general industrial ques- tions, shop grievances, &c., but also questions of w-elfare. (There is a Welfare Supervisor for the some 200 women employees, and a boy's Welfare Supervisor for all the apprentices and young lads. He has formed a Cadet Corps mostly from amongst them.) All the questions discussed are general questions, since, as has already been remarked, the questions of a particular trade are arranged between the firm and the representatives of that trade. In these latter questions the failure to agree would mean that the matter became one between the firm and the particular Trade Union concerned. The Awards Scheme. — The firm have had in operation since 1880 an Awards Scheme, under which any w^orker (exclusive of head foremen, officials of the Committee of Awards, and heads of depart- ment) may claim an award for improvements and inventions. The scheme was introduced by one of the late senior members of the tirm. The rules for the guidance of the Committee of Awards from Section III of the Yard Rules. The Committee consists of an outside and independent person as President, the Manager of the Yard, and the Manager or Chief Draughtsman of the Engine Works, with a clerk from the counting house as secretary. The rules are elaborate, and designed, among other things, to do justice as between different claim- ants. The average number of claims is stated to fluctuate very much from year to year. In certain cases where patents have been secured, the amounts received by individuals have run into hundreds of pounds. In the case of patents, the inventors usually ask that one of the firm should be joined with them, and share partly in the gains. The reply of one inventor, when he was asked why this was so, is compounded of Scotch caution and good feeling and trust. It was: "Naebody kens my name, but a'body kens yours." The Accident Fund Society. — This Society, established 43 years ago by mutual agreement between the firm and their workmen, was, in 1897, used as a basis for contracting out of the Employers' Liability Act of 1880, and the Workmen's Compensation Act of 1897, and has since been amended to conform to the Act of 1906. It is governed by a Joint Committee of 22 managers, with an independent Chairman. Eleven are chosen by the workmen and eleven chosen by the firm ; the latter comprise four partners, one manager, and six foremen or mem- bers of office stafif. Four of the works delegates are also managers of the Accident Fund — two of these being trade delegates and the other two being the foremen delegates. The funds are provided in two ways. Fund No. 1, to meet the legal provisions of compensation imposed by the Acts, is provided entirely by the firm. Fund No. 2, which provides extra benefits, such as solatium for loss of minor por- tions of the body, for which no lump sum compensation could be demanded under the Acts, is provided from the contributions of the members and the payments of the firm, and, in addition, from the fines imposed in accordance with the Yard Rules. The particular interest of these fines, which like the other features of the rules are carefully detailed, is, that not only are they paid into the Accident Fund, and so, though taken from the individual, returned to the work people as a whole, but, in addition, in each case of a fine the firm pays an equivalent amount into the fund. The firm in fining an individual fines itself to the same extent, and the double fine goes to the Accident Fund. The firm lay great stress upon the fact that this system of yard delegates has gradually developed on voluntary lines as the need for it was felt. In all cases the delegates simply ask to see the manage- ment when they so desire, and may meet several or only one of the managers, as the case may be. (There is no question of equality of numbers of firm's representatives and men's, except in the Accident Fund.) 89 (P) Parkgate Works Joint Trades Committee. I. RULES FOR work's COMMITTEE. 1. That this organisation be called "The Parkgate Works Joint Trades Committee." 2. That the objects of the Committee are: — (a) To strengthen Trade Union organisation in the works. (b) To deal with general questions affecting the welfare of all sections in the works. (c) To give assistance to branches in sectional disputes where the branches fail to arrive at a settlement with the firm. (d) To keep a watchful eye on representation on local bodies, and to see that the workmen employed by the firm are not overlooked. (e) To do whatsoever it can to promote a closer union of the different trades represented in the works. 3. That branches be allowed representation as follows : — * Membership of 50 — one delegate. Membership over 50 — two delegates. 4. That the branches be asked to appoint alternative delegates, and forward their names to the Secretary together with the names of the delegates appointed. 5. Any body of trade unionists working in any department, but whose branch is out of the works, may have representation on the same basis as branches. 6. The President and Secretary shall be empowered to call a meeting of the Committee to deal with any matter which arises, or may arise, affecting the welfare of the branches. 7. Any delegate or branch may have a meeting called by giving notice to the Secretary, stating the business they wish to bring before the Committee. 8. That a delegation fee of one shilling per delegate per year be paid to the Committee. 9. That where sectional disputes are dealt with by Committee, deputations to the Management shall consist of two representatives of the Committee and one from the section affected. 10. That the Secretary be ex officio member of the Committee. 11. No person allowed to sit on the Committee unless authorised to do so by his branch and certified by the branch secretary. 12. J That in the event of any claim being made or dispute which affects the interests of more than one section of the works, such cases shall be dealt with by the Trade Unions concerned and the Joint Trades Committee. * With, in addition, the Secretary of each branch, if employed in the works, ex officio. t Included recently. 90 II. Fourteen trade union branches arc represented on the Committee. Seven of the fourteen have no members employed outside the Parkgatc Works. The seven are: — Four branches of the Iron and Steel Trades Confederation, and a branch each of the Blastfurnacemen, the Engine- men and Cranemen, and the General Labourers. Together these seven branches represent about 1,600 persons in the works. Six of them have three representatives on the Committee ; in each case the secretary of the branch is one of the representatives. The seven trade union branches having only part of their membership within the works are : — The Bricklayers, the Amalgamated Society of Engineers, the Black- smiths, the Moulders, the Boilermakers, the Roll Turners and the Carpenters and Joiners ; together these seven branches represent about 200 persons in the works. Four of them have two representatives, including the secretary in each case, and three one representative on the Committee. Altogether, therefore, the Committee consists of 31 persons including the secretaries of 11 of the 24 branches. Rule 4, relating to alternative delegates, is stated to be necessary because some men, for example the first hand at a smelting furnace, cannot leave their work at certain times. The Committee was formed in January, 1916. An attempt to form -a Committee had been made in 1913, but, owing to the slight support given to it, this Committee lasted for a few months only. The influences which produced the present Committee were the recognition of common needs and the desire for harmony (see Rule 2). The par- ticular incident from which its inception took place was a meeting called to nominate a representative from the workpeople to the local military tribunal. Among the subjects which the Committee has discussed are included the following: — Dilution, gambling in the works, the recent 12^ per cent increase to time workers, extension of this to part-time and part-bonus workers, the provision of canteens, works discipline, participation in local affairs such as elections, promotion of workpeople, &c. In regard to gambling, the Committee decided that the practice .should be abolished absolutely; this meant that a "raffle" which had been held for the past seven years was abolished along with the other forms of gambling. Dilution Committee. — This is a sub-committee of the Works Com- mittee chosen so as to give representation to all the departments most vitally affected by dilution. Its membership is made up of — 3 from the Confederation (1 each from the smelters, the millmen and the stocktakers and chemists), 1 from the engineers, 1 from the brick- layers and 1 from the general labourers, with a blast-furnaceman as president and the secretary of the Works Committee as secretary. The secretary has no vote and the president a casting vote only. 91 (Q) Boot Manufacturers. The Company employs about 1,000 workpeople, of whom two- thirds are men and boys, and one-third women and girls. 1. Origin. — The Works Committee was established about fifteen months ago, on the initiative of the management. The object in view was to afford more convenient machinery by which the employees could confer with the management, and tnce versa. 2. Constitution.— The Committee is an Employees' Committee, and consists of 10 representatives, based on several departments into which the establishment is divided. The representatives are distributed as follows : — 1. Clicking Department 2 2. Machine Room Department 2 3. Rough Stuff Department 1 4. Making Department 2 5. Finishing Department 2 6. Boxing Department 1 The two representatives from the machine room department are women. The representative from the boxing department is a woman. The other representatives are men. The members of the Committee are elected for twelve months. Thy are elected by the employees at a meeting of the employees con- vened by the Union for the transaction of Union business. The constitution of the Committee has not been reduced to writing. 3. Functions of the Committee. — No limits have been set to the matters with which the Committee may deal. It is competent for the Committee to make representation to the management on any ques- tion relating to the internal organisation of the establishment. A special function performed by the Committee is the preliminary discussion of piecework rates with the management, prior to such rates being presented to the Conciliation Board for the Board's sanction. The Committee has been found especially useful for the transaction of this business. In many cases it has resulted in agreed rates being sub- mitted for the formal sanction of the Board. This has been particu- larly the cae in reference to fixing rates for new machines. 4. Procedure. — No regular times are fixed for the Committee to meet. Meetings with the management are arranged on request by either the Committee to the management or the management to the Committee. The management usually give one day's notice to the Committee when they desire a meeting. Meetings are held in the firm's time, and any loss of wages is made up. Meetings do not usually last beyond an hour. 5. Relations zvith Trade Unions. — It is the policy of the Union that all disputes or complaints shall be settled, as far as possible, in the shop, without reference to the Union officials. 92 i The Union cordially approves of the Committee, and the repre- sentatives on the Committee are appointed at a meeting for the trans- action of Union business, as already stated. Several of the Shop Stewards are members of the Committee, but are elected as ordinary representatives, and do not sit bv virtue of tlicir office as stewards. When matters of importance are under discussion a representa- tive of the Union attends the meetings of the management and the Committee. 6. General. — In view of tlie high degree of organisation ]x>th among the employers and operatives in the boot and shoe industry, and the efficient working of the Conciliation Board machinery, it is con- sidered essential for the successful working of a Committee such as that above described that great care should be taken to see that the Committee does not usurp functions proper to the Conciliation Board. Special stress is laid upon the useful work done by the Committee in arriving informally at agreed piecework rates prior to their being sub- mitted to the Conciliation Board for formal approval. (R) Messrs. Reuben Gaunt and Sons, Limited, Spinners and Manufacturers, Parsley, Yorkshire. The firm has adopted Works Committees at their Worsted Spin- ning Mill. The firm are pioneers in the application of Welfare Schemes in their industry. The following details, which the firm has kindly supplied, refer to the Spinning Section at Springfield, where combing as well as spinning is carried on. The number of workers engaged is 400, in the proportion of two- thirds women and girls and one-third men and boys. The first Committee to be formed was the Factory Council. This Council was appointed by the Board of Directors, and is composed of two directors and the heads of the respective departments in the works. All the nine members are specialists in their various spheres. The Factory Council acts in an advisory capacity in regard to general questions of finance, ways and means, and expenditure, but in regard to inter-departmental questions it is competent to act both in an advisory and in an executive capacity. The function of the Factory Council is to consider, unify and consolidate the rules and principles of management. The Factory Council makes use of the collective experience of its members and, in consequence, the business is more efficiently managed. Meetings are held weekly, on the same day and at the same hour. The Chairman is one of the Managing Directors, and is responsible for explaining the business policy to the Council ; he is also the medium through which the recommendations of the Council reach the Board of Directors. 93 When Factory Council meetings were first inaugurated, it was not easy for either directors or heads of departments to table their informa- tion freely, neither did either party always appreciate a frank review on matters relating to their department, but in course of time (the Factory Council has been established eight years) confidence and a broader outlook have obtained, and members now pool their experi- ences quite freely. In this way members are kept in touch with all activities and, instead of having a knowledge limited to their own department, they gain an insight into the whole concern. This reticence on the part of both Directors and Representatives may be a real stumbling block — it should be frankly recognised as a difficulty and means should be found by the management of overcoming it. The Manager or Director, who is used to handling big propositions and act- ing independently, may be fretted by the narrower view of the man who can see no farther than his own department, but restraint must be exercised. If the Conferences are to be of any use, those attending them must be able to speak freely and be assured of a sympathetic hearing. Experience proves that time and patience will overcome this difficulty. The time, both of the Manager and the Representative, is well spent, they are coming into closer contact with each other than heretofore, and both are gaining knowledge which wall eventually lead to increased confidence and efficiency. The establishing of such a committee as the Factory Council does not fundamentally alter the general scheme and management of indus- try. The function of the management is still controlled by the manag- ing stafif, but experience has proved that a Council with consultative and advisory powers makes for efficiency and has a distinct value in the business organisation. The concept of leadership is "Support by the Staff rather than Control of the Staff." CONFERENCE OF WORKS' REPRESENTATIVES. General Remarks. — In January, 1917, arrangements were made to hold a series of meetings with the various departments for the purpose of showing the value of co-operation and of suggesting that all matters relating to wages and working conditions should in future be dealt with by Conference. At these little meetings it was pointed out that the old way had been for changes to be made by the management without any active co-operation from the workers. Changes were made and had to be accepted, but under the new arrangement the co-operation of the workers would be asked for in the belief that they would respond, and the result would be increased confidence. As a result of these meetings it was unanimously decided to estab- lish Works Committees. 94 The election of representatives was left entirely in tlie lian(l> of the workers. The importance, however, of electing representatives who had their confidence was pointed out. Jt was suggested that workers who had been at the mill some time and believed in our ideals would be valuable, but the greatest stress was laid upon confidence. Representatives must have the confidence and loyalty of their fellow-workers. Machinery of Conference. — Each department elects three repre- sentatives by ballot. The firm nominates the Managing Director, the Departmental Manager and the foreman to represent the Manage- ment. Whenever Conferences are called to adjust differences, two persons from outside the Department are co-opted to act as neutral representatives. The duties of the Departmental Committees are clearly defined and meetings are only called when questions with which they have to deal are involved. The co-opted members are elected for 18 months, one retiring every six months. The retiring member is eligible for re-election. Whilst the constitution has been kept as simple as possible it was felt that the adoption of certain principles by all the Works Committees would secure uniformity and be a guide to Conference members, and with this in view the following rules were dravrn up and accepted in turn by the different Committees : — 1. There shall be a list of minimum wages established by Confer- ence for all machine-minders. 2. Promotion and pay shall be as nearly as possible in proportion to merit. 3. A worker shall receive extra pay for extra work. 4. No important change in methods, rates, or service, shall be made by either party without a full explanation of its reason and purpose. 5. The Springfield Mills Ideals were adopted as follows : — The Major Ideal Being — To produce better yarns than have ever been produced in the past by anyone. The Minor Ideals Are — To produce "Emperor" yarns under healthy and happy con- ditions, honestly, efficiently and profitably. To educate our workers and ourselves to become highly skilled in order that we may earn a rep\itation for the highest grade of work, and as a result be able to pay the highest rate of wages. To secure continuity of employment by supplying high-grade yarns and by giving good service. To treat customers with absolute fairness in order that we may gain and keep their confidence. 95 6. So far as possible Conferences shall be held during ordinary working hours, and attendance at such Conferences shall be paid for at the appropriate rate. 7. Applications for Conferences shall be made to the Board of Directors by the representatives of the workers through the Foreman and through the Manager of the department. 8. Differences shall be adjusted by" a Committee of eight — three from the workers, three from the Company and two chosen by these two parties, one of the latter to be appointed Chairman of the meeting. 9. The Conference shall decide the date from which any altera- tion in pay shall become operative. It shall also decide the minimum length of time any agreement arrived at shall be binding upon the parties thereto, subject to the proviso that whenever working condi- tions are changed either the employees or the Company shall have the right to obtain a revision of the rates of pay. • 10. It was resolved that the present representatives should all three serve for the whole of the present year; at the end of the pres- ent year the one having received the least number of votes should retire, but should be eligible for re-election; at the end of 18 months the representative having received the second lowest number of votes should retire and be eligible for re-election ; at the end of two years the representative having received the greatest number of votes should retire but be eligible for re-election. 11. It is understood and agreed that it is the business of the management, and is not the business of the Conference, to deal with — (a) The allocation of work to particular sets of drawing. (b) The allocation of minders to particular machines. Our Works Committees have only been in existence a year, but so far they have worked quite satisfactorily. We realise that time will be needed for representatives, who are unaccustomed to business meet- ings, to express their opinions and to voice the wishes of their co-workers, but we look upon the scheme as an educational venture and we are prepared to wait patiently and overcome the difficulties that beset us. Democratic control of industry can only come when democracy has knowledge and wisdom to assume control. Rightly used, Conferences will provide the necessary experience and education for greater responsibility, which will be equally beneficial to all concerned. In conclusion, it should be remembered that the two principal factors in the organisation of human beings are The Support and The Machinery. In successful co-operation the Spirit is more potent than the Machinery. Ment.\l Attitude is of Greater Consequence than Mental Capacity. Notwithstanding this the machinery is usually the only factor which is accepted consciously and considered in a scientific way. This is unfortunate, for the thing that really counts is atmosphere; the right spirit must prevail before the machinery 96 of organisation can work properly. The most valuahle asset of an employee is — his Spirit^that intanjjil)le part of his j^ersonality which cannot be bought with so cheap a thing as money. It must be won. The royal road and the only road to capture a man's spirit is to win his Confidence and nothing but integrity of purpose and sincerity of heart can do this. There is no field of action in which insincerity is so futile as in the handling of workmen. The employer who believes in the principle that "Confidence is the Basis of All Permanent Relationshii-.^" and works accordingly, is the man who will make his Works Commit- tees a helpful force in his organisation. Gerald R. Gaunt. 2nd February, 1918. Note. — Mr. Gaunt will be glad to supply fuller detailed informa- tion to anyone who is interested in the matter. (S) Fox Brothers & Co., Ltd., Wellington, Somerset (and Chip- ping Norton). The Wellington establishment is one of the oldest woollen and worsted manufacturing businesses in the country, going back to the 17th century. For nearly 150 years it has been controlled by mem- bers of the one family, up to 1896 as partners and since then as direc- tors. Several generations of the families of many of the present employees have worked in the mills. The conditions therefore are somewhat exceptional.* The present number of employees is about 1,400. The Works Committee was instituted in February 1917 on the suggestion of the Directors, as a means to more harmonious working of the business. Each department elects its representatives, roughly in proportion to the numbers of men and women employed ; no one is eligible for membership of the Committee unless he (or she) has been at least five years in the employment of the firm; the right to vote is confined to employees of 18 years of age and over. The composition of the Committee is as follows : — number of number of department. employees, representatives. Wool Sorters. &c 60 2 Worsted Spinning 212 4 Woollen Spinning 145 3 Weaving 591 10 Finishing 119 2 Dyeing 39 2 Washhouse 131 3 Mechanics 64 2 2_8^ * A profit-sharing scheme has been in existence since 1886. Under it some 690 employees have iSO.OOO invested in the company. 97 The Committee meets the Directors and the General Manager once a month. Loss of time is paid for. Any question afifecting the gen- eral welfare of the workers or the business can be discussed. Ques- tions of discipline or wage questions affecting individuals or depart- ments must in the first place come before the foreman of the depart- ment concerned and then, if unsettled, before the Manager or Manag- ing Director; if the question is still not satisfactorily settled it can be referred to the Committee and the Directors as the final court of appeal. The object of this procedure is to prevent the undermining of the authority of the management and waste of time upon the discussion of details. Much of the discussion between the Committee and the Directors has been of an educational character. The Directors have explained some of the principles underlying the administration of a large busi- ness — the effect of output upon standing charges and wages, and the like; suggestions for the more economical running of the business are encouraged. In the firm's opinion it is essential to the success of a Works Committee that the Directors take the workpeople into their confidence; the workpeople must be made to realise that they can help the administration and must be asked and given the opportunity to help. The great advantage secured by the existence of the Committee is claimed to be this : that by a thorough explanation to the members of any new departure in the internal administration of the business mis- understandings are avoided and the workpeople realise the real object of such departures. Another advantage is that the Committee provides a safety-valve ; machinery is set up by which any grievance may reach the Directors, and this removes the suspicion that complaints are sup- pressed by the management. The Committee also are encouraged to make suggestions as to works amenities such as improvement in ventilation. Questions of holidays and war savings schemes have been dicussed and sub-commit- tees have been appointed to deal with such matters as allotments and war charities. The Committee express their appreciation of the spirit in which the Directors have met them. Both sides are pleased with the working of the system in its experimental stage and expect it to develop its activities. The great majority of the workpeople are not members of any tmion ; a small minority are organised in a general labourers' union. The difficulties of connecting the Works Committee with trade union- ism as seen by the management are two — the small minority in any union, and the fact that the particular union has nothing in common with the industry; if Works Committees are to be linked up with indus- trial councils, which on the workpeople's side are formed from the 98 trade unions, some way must be found for isolated establishments to be joined up to the proper unions. Here it may be noted that at the end of November a Works Committee was formed, on the same lines as that at Wellington, at another woollen mill belonging to the same firm, at Chipping Norton. In this case the workpeople are organised and the ofificial of the union took part in the formation of the Committee. There are some 250 workpeople in the establishment and 12 members on the Committee. In addition to the Works Committee at the Wellington establish- ment there is also a Management Committee. The two are kept sep- arate for the reason that the workpeople speak with greater freedom in the absence of their foremen. (T) ROWNTREE AND Co., LtD., ThE CoCOA W^ORKS, YoRK MEMORAN- DUM TO THE Employees in the Almond Pa.=;te Department. The Cocoa W'orks, York. 1st September, 1916. {Revised ist February, 1917). Works' Councils. For some time past the Directors have felt that it might be of great service to the Manager and Overlookers of a Department, as well as to the Employees, if a Council representing the Management and the Workers were formed, in each Department, for the full and free dis- cussion of all matters affecting the work of the Department, such as : — (a) The comfort and well-being of the employees, so far as these depend upon wages, hours and conditions of work. &c., and (h) The general efificiency of the Department which depends upon such things as time-keeping, discipline, cleanli- ness, economy in the use of materials, and upon method and output. The Directors believe that through a Departmental Council, worked in the right spirit, the employees would feel themselves to have a real share in the administration of the Department, whilst their co-operation would be heartily welcomed by the Management. As showing what is in the minds of the Directors, the following matters are set down as amongst those which might, very properly, be discussed at Departmental Council ^Meetings : — (1) The criticism of any Piece \\'ages not thought to be fair or adequate, and the consideration of suggestions for adju.stment. (2) The consideration of conditions and hours of work in the Department. (3) The consideration of department.al organisation and production. (4) Rules and discipline. 99 Owing to the special difficulties of the time, with so many regular workers away, it is not thought advisable just now to institute these Departmental Councils over the Works generally, but, as an experi- ment, it has been decided by the Directors, with the full concurrence of Mr. G. T. Lee, to form a Council in the Almond Paste Department. It is hoped, however, that although started as an experiment, it may prove to be of permanent value to Workers and Management alike, and that when its value has been shown, and the time is opportune, it may be possible to extend the scheme to other Departments. If this should come about, the institution of a General Works' Council, linking all Departments, would naturally follow. The work both of the men and women in most of the Departments of the Factory is divisible into certain well defined Sections. In order that each Section may have the fullest opportunity of freely discussing with the Management matters affecting its particular work, it is thought that in addition to a Departmental Council, Sub — or Sectional — Coun- cils will be necessary. The constitution of such Sectional Councils, as well as of the Departmental Council, is given below. Sectional Councils. The number of delegates for each Sectional Council will be fixed on the basis of one delegate for every twelve workers (of whatever age( or part of twelve exceeding six, employed in the Section. Sitting with these at the meetings of each Sectional Cotmcil, and having equal powers with them, will be the Manager of the Department with the Head and Sub-Overlookers, Monitors or Chargemen of the particular Section. Should these, however, (including the Manager) exceed in number the workers' delegates, the Members of the Council repre- senting the Administration, will consist of the Manager, the Head Overlookers, together with as many of the Sub-Overlookers, Charge- men and Monitors (elected by ballot amongst themselves) as are required to make up a number equal to that of the workers' delegates. The Manager of the Department will be ex-officio Chairman of the Sectional Councils. He will not have a casting vote. In the case of a drawn vote the matter would be submitted to me as Director con- trolling the Department. But a decision adverse to the employees' delegates will not prevent the Trade Union concerned from raising the matter subsequently with the Company. (See p. 101.) In addition, there will be one delegate appointed by each Union concerned (for the Men's Sectional Councils from the Men's Union, and for the Women's Sectional Councils from the Women's Union), who shall be allowed to speak, but shall have no vote. Such delegates shall be deemed to hold a watching brief for the Union, but shall be in the employment of the Firm and working in the Department, and preferably, though not necessarily, in the Section. 100 It is intended that the meeting of the Sectional Councils shall he held on a fixed day once a week, or once a fortnight, as may, in prac- tice, be found necessary. Full Minutes of the proceedings will be kept by the Secretary (who will be Miss Ruth Slate for the Women's Sections and Mr. T. W. Brownless for the Men's). Matters arising in the meetings, affecting the Department as a whole, and not merely the separate Sections, will be referable to the Departmental Council. Departmental Council. The Departmental Council will be a distinct body from the Sec- tional Councils and will consist of one member for every 50 workers (or part of 50 exceeding 25), with an equal ntmiber of the Adminis- trative Staff, namely. Manager, Head Overlookers. Sub-Overlookers, Monitors and Chargemen. Where these exceed the workers, the mem- bers representing the Administration will consist of the Manager and Head Overlookers, together with as many of the Sub-Overlookers, Chargemen, and Monitors (elected by ballot amongst themselves), as are required to make up a number equal to that of the workers' delegates. At the meetings of the Departmental Councils there will also be one delegate appointed by the Union representing the Men and one by the Union representing the Women, who shall be allowed to speak, but shall have no votes. Such delegates shall be deemed to hold a watching brief for the Union, but shall be in the employment of the Firm and working in the Department. Further, the Workers will be entitled to have the attendance of a Permanent Official of their Union, not necessarily in the employment of the Firm, during the discussion of any matter on which they con- sider it essential that they should have skilled assistance and advice. Any such Official attending a Departmental Council Meeting shall withdraw as soon as the matter is disposed of upon which his or her advice has been required. Nothing that takes place at a Sectional or Departmental Council shall prejudice the Trade Union in raising any question in the ordinary way. Questions of general principle, such as the working week, wage standards and general wage rules, shall not be within the jurisdiction of the Councils. The meetings of the Departmental Council will be held once a month during working hours, with myself as Chairman and Mr. Linney as Secretary. No decisions of the Councils, either Sectional or Departmental, will take effect until confirmed by myself or another Director. Qualifications for Voting for both Sectional and Departmental Councils. All male employees over 21 years of age and all female employees over 16, who have been employed by the Firm for six months (whether 101 on the Regular Staff or not), will be eligible to vote for delegates to both the Sectional or Departmental Councils, and to become Members of such Councils. Delegates will be elected to serve for one year. They will be eligible for re-election so long as they remain in the employment of the Company. No deduction will be made from the wages of Day-workers for the time occupied as delegates in attending the Council Meetings, and Pieceworkers will receive an average wage for the time so occupied. Application to the Almond Paste Department. Based upon the aforementioned constitution, the Sectional and Departmental Councils in the Almond Paste Department will work out as follows : — Sectional. There will be 6 Sectional Councils as under : — Women. (1) Bottoms and Centres. (2) Pipers and Coverers. (3) Makers. (4) Packers and Labellers. Men. (5) Slab, Machine and Boiling (4th Floor). (6) Crystallizing and Piping (5th Floor), Cage and Carting (3rd Floor). The number of delegates for each of these Councils will work out thus : — (1) Bottoms and Centres. no. of delegates. Bottoms — Room 2 2 Bottoms — Room 1 2 Centres — Room 1 3 Centres — Room 2 1 Total 8 (2) Pipers and Covers. Room 1 11 Room 2 5 Total 16 (3) Makers 6 (4) Packers and Labellers. Packers 9 Labellers 1 Total 10 (5) Slab, Machine and Boiling (4th Floor) .... 5 (6) Crystallising and Piping (5th Floor) 6 Cage and Carting (3rd Floor) 1 Total 7 102 Method and Dates of Elections. In order to facilitate the election of delegates, a list of employees eligible to vote and to become delegates (men of 21 years of age and over, and girls of 16 years and over, who have been employed by the Company for six months) is now hung up in each Section, and these are asked to nominate sufficient delegates for their particular Section. Nomination papers will be hung up in the Department and employees eligible to vote and wishing to nominate delegates for their Section, should make out ond sign one of these papers, and place it in the locked box fixed in the Department for this purpose. A voter is at liberty to nominate as delegate any other voter in his or her Section, provided the person nominated is willing to stand as a delegate. The nomination papers will be collected on Thursday, March 1st. at 5.30, and the names of those nominated will then be printed upon the voting papers which will be given out on Wednesday, March 7th. The election of delegates will take place on Thursday, Marcli 8th. Departmental. The same method will be followed in the Election to the Depart- mental Council, which, however, to avoid confusion, will not take place until after the completion of the Sectional Council Election. Nomination papers will be issued on Wednesday. March 14th. and collected March 15th. The Election will take place on Thursday, March 22nd. The number of delegates to the Departmental Council is shown below : — Bottoms and Centres. no. of delegates. Bottoms — Rooms 1 and 2 1 Centres — Rooms 1 and 2 1 Pipers and Coverers. Room 1 v3 Room 2 1 Makers 2 Packers and Labcllers 3 Slab, Machine and Boiling (4th Floor) 1 Crystallising and Piping (5th Floor) and Cage and Carting (3rd Floor) 2 Total 14 It is intended to hold the first Meetings of the Sectional Councils within fourteen days and the Departmental Council within one month of the Elections. T. H. Appletox, (Director. R. & Co.. Ltd.). 103 (U.) A Printing Office. In this office there is only the one Chapel, composed at present of about a dozen compositors. In larger offices there are usually several Chapels.* The Chapel meets quarterly. Any member may call a special meeting by "placing a shilling on the stone" ; such member will say to the Father "I call Special Chapel at 6 o'clock to-night." If his complaint is found by the Chapel to be a frivolous one the shilling is forfeited. The meetings are held in the office at closing time. In the case of large offices there may not be a room big enough for a chapel meeting, and in such cases meetings are held outside. It is the duty of the Father to interview the head of the firm when anything is wrong; to report to the General Committee of the Union from the Chapel and to the Chapel from the General Committee ; to see that subscriptions are paid ; to interview newcomers regarding membership of the Union, &c. Piecework is not now in operation in this shop, so that the Chapel is not called upon in this connection as it may be in other offices. The employer is strongly inclined towards regular joint meetings between management and representatives of the Chapel. This is rather striking because, as is easy in so small an establishment, he is in direct touch with each of his men. The present Father (he has been in the office for only a few months) did not seem to have entertained the idea of the need for such meetings in this office ; he referred to the good conditions and relations prevailing in the office. He said, however, that in bigger offices there was a need for such meetings, and he was pre- pared to consider the applicability of them to this office. The employer has, in an informal way, for a long time held meetings with the present Father's predecessor and one or two others of the Chapel. He would have them to tea, during which they would have a discussion on shop questions. As examples of the kind of things which joint meetings could discuss, the employer mentioned the following points : — (1) The adjustment of work, when new circumstances arise; there had been such joint discussions when recently the previous Father, who had been a long time in the firm, was forced to leave. (2) A break for lunch in the morning; this he means to bring forward, as the five hours' stretch, though in accordance with the Union agreements and the general practice, is too long. (3) As an example of how, even in a small establishment (where the relations obviously are friendly), there may be unnec- essary distance between employer and workmen, he mentioned that * For example, in one office, there are chapels of compositors, stereotypers, machine minders, m.achine assistants, warehousemen and certain women em- ployees. The compositors in this office are divided among several departments each of which has its local father while the father of the compositors' chapel is colloquially known as "imperial" father. The compositors' chapel, as is usual, appoints also a clerk of the chapel. The father of the chapel among the women employees is, appropriately, known as the mother of the chapel. 104 some time ago he gave facilities to the men to acquire review copies of books. This was greatly appreciated and one man hajjpaned to remark that he had often hoped some such arrangement could be made. When challenged by the employer fur not suggesting the arrangement, the man could only plead that it wasn't his place. The incident was quoted as probably typical of many situations in which, for want of proper arrangements, the atmosphere clings even to the very best firms much more closely than might other- wise be the case. (4) The employer further said that he had known of a very serious grievance existing in a large office of which the l\ead of the firm was kept ignorant. He had informed the head of the firm and the grievance, which had been causing great irritation right through the shop, was instantly remedied ; it should not have been left to an outsider — obtaining the information onlv by chance and, again, only by chance knowing the head of the firm concerned — to be the avenue of information. In regard to the last point (4), the employer was emphatic as to the necessity for the heads of establishments meeting the men's repre- sentatives. The need was greater the larger the office.* (V) Welfare Committee (or Social Union). 1. The Works Council as it is called, (perhaps it may rather be termed a Welfare Committee), has for its purpose the collection, direct from the workers, of any suggestions for the improvement of their surroundings, and the putting of such suggestions." in the form of mature proposals, before the directors for their approval. It is not intended that these suggestions should in any way be connected with labour conditions. It is the function of the Council to deal solely with suggestions relating to the amelioration of the surroundings of the men's work. 2. The Council is a Joint Council, and its composition is as fol- lows : — There are two representatives of the management and from 19 to 21 of the workmen. The two former are the technical director of the works, who acts as Chairman, and a representative manager! nominated by the firm from the sectional managers. The honorary secretary and the honorary treasurer of the Council may be either per- sons co-opted by the Council, or representatives of the workers on the Council who have been elected by the Council to these offices. The * The same need for regular meetings between the management and repre- sentatives of the employees was emphasised by the manager of a large printing establishment. He has from time to time held meetings with the foremen and the fathers of the different chapels in the office to discuss questions of common interest; lately, the question of the application of the Whitley Report and, at other times, shop regulations, sanitation, &c. t The representative manager is said to act as a very useful link between the firm and the workmen, particularly when he is a young man interested in the social side of the works. 105 representatives of the men are elected (by ballot, and for a period of 3 years) by the different wards into which the works is divided for electoral purposes, (19 in number), and all the workers in the establish- ment have a vote. Some of the wards represent working departments {e.g., the offices, or again the boilermakers and their labourers) ; others are artificial creations. These artificial creations are necessary in order that representation may be divided equally among all the departments, without any neglect of small sections and oddments of work. Some of the wards in which women are in a majority are represented by a woman; on the whole Council there are 16 men representatives and 3 women. 3. The Committee has been in existence for some 15 years. As has been said, its function is to deal with shop amenities or works betterment. This includes (a) conditions of work during working hours, and {h) social activities outside working hours. Of these two the latter is apparently the more considerable, and thus — if one dis- tinguishes between Works Committee, Welfare Committee and Social Union — the Works Council really belongs to the third category rather than the second. The Council, under this head, maintains a recreation ground, for the purchase and equipment of which money was advanced by the firm. The weekly subscriptions paid by the men form at once a sinking fund to extinguish this loan, and a working fund to meet cur- rent expenses. The origin of the Works Council, some 15 years ago, was connected with these facts. A number of requests had come from the men to the management, asking for assistance in the promotion of sports, and the advance made by the firm, and the institution of the Works Council, both sprang from these requests. 4. The Works Council thus deals in large measure with questions that lie outside the works. Inside the works its scope is less conider- able. The canteen, for instance, is under the control of the firm, which provides meals at less than cost price ; the Works Council only deals with the amenities of the canteen. The main concern of the Works Council within the works is with matters such as ventilation, sanitation, and the general comfort of the workers. About half-a-dozen times, but not more, questions have been brought up at the Works Council which have had to be ruled out. Generally, the men's representatives draw a careful distinction between matter belonging to the Works Council and matters belonging to the sphere of Trade Unionism. There has been no difficulty with Trade Unions ; on the contrary, the good feeling engendered by the Works Council has led to easy relations between the firm and Trade Unions. The firm, it should be said, recognises Trade Unions, and deals with them regularly. 5. It may be added that while the Works Council has nothing to do with suggestions for improvements in the works, there is a depart- mental arrangement under which employees can make suggestions. In each department there is a suggestion box. into which any workman 106 can drop a memorandum of his suggestion; tlie memoranda of sug- gestions are regularly collected, and awards of prizes are made for good suggestions. 6. In the matter of meetings and procedure, the Works Council meets once a month, sometimes in the employer's time (in which case the men are paid during the time of their attendance) but generally in the evening, when work is over for the day. There is a regular agenda, prepared by the secretary, containing matters brought up on the reports of sub-committees or raised by individual representatives. (W) A Miner's Statement on Output Committees.* The following statements form part of the answer by a miner working in the area of the Midland Federation to the Questionnaire printed in Appendix I. The references are to the Output (or Absen- tee) Committees in his district. The functions of these Committees, as in other districts, are concerned with two matters — cases of absence from work and facilities for increasing output (improvements, negli- gence on the part of officials, &c.) : — 1. Origin. — (/') The Joint Comniitteet found out that output was not only affected by absenteeism, but by faulty management, and they began to frame rules which would embrace the faults of the manage- ment, as well as the workers' negligence in absenteeism, and would call the Committees, instead of Absentee Committees, Output Committees, which gives wider facilities and administration in working. (c) The meeting of representatives of employers and employed soon became lively and it showed the intense interest that was taken in the Government suggestions, and the men soon pointed out to the coal owners that there were other causes which caused a reduced out- put of coal besides absenteeism — the faults of the management in allowing the miners to wait for timber, no facilities in taking men to their work and bringing them back, the waiting for tubs through scarcity and uneven distribution of the same. If they were going to work this scheme and draw up rules, they must bring the management in as well as the men. The coal owners, after consultation, decided to accede to the request of the men and asked them to withdraw from this meeting, take it back to their delegate board and appoint a small committee to draw up rules which would give them a voice in the management of the colleries concerned. 2. Constitution — (d) The worker's side constitutes a separate Committee only so far. Just to illustrate what I mean ; if there is a serious case which has to be brought to the Joint Committee the worker's side will meet together separately before going to meet the management side, so that they can as far as they are concerned get agreement. * For Rules of these Committees in another district see p. 114. t Sectional joint committees of the miners. 107 {e) They are duly elected, not for 12 months but for any time. This seems to me a ^eat mistake. They ought to be elected every 12 months, as some of them have lost the confidence of the men, and it causes discontent and friction; annual elections would make for con- fidence and efficiency. The classes represented by these Committees are miners, datal, haulage, surface workers, who are manipulators of coal. I might say it would have been better when the rules were drawn up if it had been stated that all classes must be represented. You have on most of the Committees datal, haulage, and surface workers without representation. These Committees are only set up as far as the Miners' Federation of Great Britain are concerned. Shop men, shunters, labourers, and locomen are outside, as the idea amongst the coal owners is that these classes of workers do not affect the output of coal. (/) (i) The trade unions have all the representation as far as the workers are concerned. Of course, it is possible for the men at the colliery to appoint a non-unionist, but he would be a rare species. (ii) No, it has none; it can suggest, but not appoint; this is left entirely to the men. In one colliery they refused to set up a Pit Com- mittee though the Miners' Union wanted to set one up and the leaders held meetings; but they failed to persuade the men. The Coal Con- troller was pressing the Directors, and the Directors the management, but they could not persuade the men ; the men were afraid of vicitmisa- tion and I think they had a good case. Where men stood by their comrades, they were soon out of work not knowing what for, only the management saying ''inefficient." (iii) The trade union official can pay a visit to any of the Com- mittees when sitting and listen to all the business and see whether it is being conducted in the interests of the men, or to see fair play all round, or to see that the management are not abusing the powers set by rule. (iv) The relationship is good in many of them, but there are doubts in the men ; if some of the stewards are put in contracting places and coal is pretty easy to get, the representatives are open to attack by the men as they say "you would not have such a soft job only you have been acting in the master's interests" ; and some of them play more than the usual time allowed, and nothing is said. I am sorry to say that if a strong man is on the Committee and he goes in for pulling the management up the harmony is broken a good deal ; you can fine the men and forgive them, but when you come to the management it is another thing. (g) They are chosen by the Managing Director; he asks the Underground Manager, and the under-lookers, or deputies, as they call them, who are responsible for diflferent coal seams. By this method you get an all round representation as far as the underground workers are concerned, but datal and surface management is left out. 108 I (;■) I will be most frank in what 1 ha\e j^ol to say in this ini|.i)rtani question. The employing side want no change, as it onlv applio n. absenteeism as far as they are concerned. 'J"hc rules give the men a voice in the management, but I am sorry to .say there is no Committee strong enough to administer the rules as it relates to management : thev go so far but stop as they see an invisible pressure being brought upon them which is going to atTect the security of their living, a kind of victimisation which you cannot prove. Your contracting place is finished and you want another place but the management sends you "odding" — you are middle-aged and you cannot keep pace with the younger element ; and you look after a fresh place, but every where is full up. and when you come out of the office yon can see other men set on. This is what is going on all round the district, and you want to strengthen these men by having the rules enacted by Act of Parliament to make them binding; and if cases like this happen, there wants to be a Tribunal appointed by Government, representative of all classes, so that a man shall have a fair hearing and equality of justice ; this will give him a security and it will reduce this insecurity of work. 3. Functions. — (a) iv. The suggestion of improvements is within the scope of Committee and some good work has been done, which has affected the output of coal and increased the wages of the men. V. None of these points are dealt with by our Committee or onlv indirectly; it would be a splendid thing if these points were dealt with. There is more friction caused under these heads between the manage- ment and the men than under any other points. Timekeeping. — The management promises the men they will j^ut so many turns to their credit for doing certain dead work in the mine, and when the time arrives for them to receive the wage at the week end, the money has not been put in to their credit ; so the men often have to go to the office to make complaints, with a promise from the management it will be in for next week. If this was brought before a committee of this standing, a more harmonious s]-/irit would be brought to bear on the industry. Language. — The language by some of the management to the Avorkers is disgraceful and is not fit for any child in the pit to hear. This point can come before the Committee but I have not known of any case yet, though reports have been made to the leaders of the men and they have taken up the cases. In one case I know the men refused to go to work until the management were removed, but wise counsels prevailed and the bitterness was removed. Methods of Foremen. — The mining industrv requires great changes as the methods of the foremen are at fault in not paying for dead work, such as emptying dirt, or packing it ; they should i)ay for so many tubs, but if 1 or 2 tubs are over the stated number that they pay for. they reckon them nothing; in measuring ripping, instead of going to the widest part of the level they go to the narrowest, which may mean to 109 the man a difference of 5s. on that piece of work ; in not seeing to a good distribution of wagons going in and about the mine, &c. There is a splendid scope for a Committee, but ours have only limited powers as far as the methods of the foremen are concerned. vii. Canteen. — This question does not come within scope of our Committee, but one large colliery has a canteen, and suggestions have been made from the Committee there in the management of the canteen. It would be a good thing for a colliery to have a canteen, as many men are called upon to work overtime and cannot get food, and they work on many hours without, which only means inefficiency. In the colliery which has a canteen, the men can get a good meal and hot drinks at cost price. I know when winter time comes on and the output of coal depends on the surface workers sticking to their work, the management have rest periods for individuals and the management gives them hot drinks to keep them at it. But at collieries where there are no can- teens they have to knock off on account of the weather. Sanitation. — Not within the scope of our Committee, but con- ditions are awfully bad. Works Amenities. — Manners: There are hardly any about the collieries ; the management have an idea that nothing can be done with- out swearing and shouting, and it is a disgrace lo hear it. Some man- agers are extremely nice, but they are very rare. 4. Procedure. — (a) ii. The Committee meets once a week where a large colliery is concerned (say 1,000 to 2,000 employees), but where there are less employees, they are specially summoned by notice from the Secretary of the Committee. iii. Yes, the worker members meet separately, but only when the questions are vital and contentious. V. They take place in the workers' time and the employers' time. The meeting is called for 1 o'clock. The management allow the worker members to come out of the pit before the time but at their own (the workers') expense, and the Committee sits till it comes into the workers' time after 2 o'clock. vi. It generally lasts 2 or 3 hours. It all depends on how many defendants and who are the defendants. vii. The worker members are paid out of the Trade Union funds at the rate of 2s. 6d. per meeting. This causes friction as it is costing the Union a great amount of money and they feel that the Government ought to pay or part pay for this work, as it is being carried on in the national interests to secure a greater output of coal. Some suggest that the management ought to pay half. 5. Relations with Trade Unions. — (b) They only recognise the Miners' Union as far as the jurisdiction of this committee is concerned. They (the owners) did try to bring offenders in from other unions, but the miners would have nothing to do with them.* * In this respect the practice differs from that of the timekeeping committees at the Cleveland and Durham blastfurnaces. See p. 117. 110 i 6. General — (a) The attitude of the management to Committees is fairly good; just according to what the business is. If it apphes to men they are good, but when it appHes to the management the feeling changes a little; but on the whole it is good. I don't know of any decisions they have not carried out, but it takes them a long time to do it; when they promise, your tenacity has to be great. (f) As far as colliery workers are concerned separate Committees are not needed as they would deal with all questions that could arise ; what would be essential would be to see that all grades are represented on the committee. 111 Appendix III Summary of a District Investigation in the Engineering and Shipbuilding Industries. Of 32 firms in the engineering and shipbuilding industries in one district in which another enquiry was made as to the existence of Works Committees, eight were found to have Works Committees. In addition, one had a Dilution Committee, one a Welfare Committee, one a Women's Committee and in one there was a Shop Committee. In one other there was a Works Committee until recently. Expressions of opinion as to the value of Works Committees were obtained from 18 to 32 employers. Ten expressed themselves in favour and eight as opposed to Works Committees. Of the ten in favour, seven now have a Works Committee; of the eight opposed, one has a Dilution Com- mittee and one a Gunshop Committee, while six have no form of Committee. The following are notes of opinions of these employers : — Favourable: — (1) "Useful work in the outcome." (2) "Committee should be encouraged . . . .' much depended on class of men chosen from both sides." (3) "Applied to large establishments very commendable." (4) "If established generally would do an infinite amount of good." (5) "Nothing but good would accrue if such Committees were general." (6) "In entire sympathy." (7) "Experience is a very happy one and not by any means one-sided as the members of the Committee do everything possible to render assistance to the firm." (8) "Very harmonious relations although .... griev- ances much too one-sided." (9) "Perfectly satisfied." Unfavourable : — (1) "Encourages men to leave work to engage in business which management should attend to." (2) "Power is taken from management and exercised by the men." (3) "Simply looking for trouble." (4) "Advantage would be taken to look for trouble." (5) "Any amount of friction would ensue." 112 I (6) "Afraid grievances would only come from one side and little endeavour would be made to assist the nianag-cment in con- duct of works." (7) "Dealing with accredited shop stewards entirely satis- factory." Of the opinions coming under "Favourable" all except (3) and (4) are from establishments which have Works Committees ; of those coming under "Unfavourable" (1) is from an establishment in which one shop has a Committee, (2) to (7) from establishments without Committees. The opinions of sixteen active trade unionists emploved in the same industries in this district also show differences. Of the sixteen seven are employed in establishments which have, or in one have had, a Work Committee, and nine in establishments which have no expe- rience of a Works Committee. Of the seven, five are favourable and two unfavourable ; of the nine, four favourable and five opposed. This investigation would appear to support the results arrived at in the report that the majority both of employers and of workpeople with experience are persuaded of the benefits of Works Committees. I 11.3 Appendix IV JOINT COMMITTEES ON ABSENTEEISM (A.) (i) Joint Committees at Collieries in Northumberland — Rules. (ii) Note on Committees at Collieries in other districts. (B.) (i) Joint Committees at Ironworks in Cleveland and Durham — Agreement. (ii) Note on Working of these Committees. (A.) (i) Joint Committees at Collieries in Northumberland — Rules. Northumberland Coal Owners' Association AND Northumberland Miners' Mutual Confident Association. Rules respecting the Formation and Procedure of Joint Committees for the purpose of securing greater Regularity of Work at the Collieries. In order to increase the output of coal the following rules are adopted by the above-named Associations : — 1. Where workmen are unable to work in their own working places such persons shall work in other places where there are vacancies in accordance with the custom of the colliery. If no such places are available and the man in consequence has to go home, he shall not be returned to the Authorities as an Absentee on that day. 2. Men prevented from getting to their work at the proper time, due to the workmen's train or car being late, shall on its arrival be allowed to go to work. 3. All deputations shall be held at such hours, whenever possible, as will cause no loss of time to the members of such deputations or the men who appear with them. 4. All persons shall attend every day on which the pit is working unless prevented by illness or other reasonable cause. 5. That a District Committee be set up consisting of an equal number of coal owners' and workmen's representatives. If all members are not present, only an equal number shall vote on each side. 6. That the District Committee shall meet as agreed upon for the purpose of dealing with disputes which have arisen under any of the Local Committees and any other business, except in the event of urgent business, in which case a meeting may be called on the representation of either side to specially deal with the matter. 114 7. That a Local Committee shall be established at each colliLMy, consisting of an equal number (not exceeding three each) of coal owners' and workmen's representatives to carry out these rules. If all members are not present, only an equal number shall vote on each side. 8. The Local Committee shall meet at least once a fortnight, and the management shall supply a "Time Lost Sheet," showing the names of the men against whom there is a complaint, and the Local Committee shall decide upon whom they shall summon to the next meeting. 9. The men who are called upon to appear before the Committee shall have at least two days' notice given to appear. Failing to attend they will be dealt with in their absence, and the method of giving notice to attend shall be left to the Committee at each colliery. Meetings are to take place so that men may attend without losing time. 10. The Local Committee shall be empowered to impose fines, and the persons so fined shall have the option of signing a book for such fines to be deducted or to be dealt with by the management. (a) If the first method is selected by the workman and he attends and works full time, as defined by Rule 4, for one month after the fine is inflicted, the fine to be returned to him. (b) All fines not so redeemed to be paid over to some chari- table institution to be selected by the Local Committee. (c) The amount of fines shall be: — For a first offence for which a fine is inflicted, 2s. 6d. per day of avoidable absence ; a second oft'ence, 5s. per day. In the event of a third ofifence the case to be dealt with at the discretion of the management. 11. The Local Committee shall report to the District Committee all cases in which they fail to agree. 12. Excuses for absence must be bona fide, and where an absentee claims he was away owing to illness, a doctor's note must be produced if demanded. 13. Any official responsible for the workmen losing work or fail- ing to do his best to get work for them shall be reported to the Local Committee, who shall investigate the circumstances, and if the charge appears to be justified the case shall be reported to the Central Com- mittee to deal with. 14. These rules to continue for the duration of the war. Reginald Guthrie, William Straker, Secretaries. 12th February, 1917. 115 (A.) (ii) Note on Committees at Collieries in other Districts. Committees formed on very similar lines have been set up in other, but not in all, mining districts. The statements as to functions and procedure may differ in certain particulars. (1) Provision is some- times made for the attendance of officials of the miners' and owners' associationes at Pit Committee meetings. (2) The scope of a Pit Com- mittee's functions is sometimes stated so as to include more than appears to be covered by Rule 13 above, which deals with officials "responsible for the workmen losing, or failing to do his best to get work for them." The functions may include the consideration of facilities for output and the suggestion of improvements, apart from cases arising under the circumstances referred to in Rule 13 above. This is commented upon in the report printed in Appendix II (W). (3) The rules vary also in such details as number of representatives, time of meetings, and amount of fines. The results achieved differ greatly from district to district. In some districts no Committees have been set up, while in some others, after being set up, the Committees have either failed to work at all or, after a period of successful operation, have weakened and been aban- dond. In other districts, however, the Committees have continued to work satisfactorily, improving timekeeping and organisation and increasing the output. The application of short time has in certain districts made the need for the Committees less urgent and an estimate of their value difficult. Among the reasons given for failure to insti- tute the Committees are (1) failure of employers to take the matter up, and (2) the younger men's dislike for the scheme; and for failure to work satisfactorily (1) the failure of employers to carry out agree- ments about Sunday work &c.. and (2) simple inability of the two sides to agree. (B.) (i) Joint Committees at Ironworks in Cleveland and Durham. Agreement setting up Works Committees to deal with Cases of Time-Losers. This Scheme has been suggested by the Ministry of Munitions and accepted by the Cleveland Ironmasters' Association and the Cleve- land Blastfurnacemen' s Association, in order to avoid the neces- sity of taking men before the Munitions' Tribunals. The Agree- ment will come into operation on Sunday the \2th day of August, 1917, at Ironworks. 1. At each works in the Ironmasters' Association there shall be set up a Committee consisting in the first instance of three workmen employed at the works. 116 2. The appointment of the three workmen (one of wliom must be the delegate) shall rest with the Cleveland and Durham Blast fur- nacemen's and Cokemen's Association. 3. The Cleveland Ironmasters' Association, or any individual member thereof, may. at any future time, and at the request of the Cleveland Blast furnacemen's Association must, also appoint to the Committee three employer representatives for each works or for such of the w^orks as are affected, and such representatives shall have equal powers and duties with the workmen's representatives. 4. So long as the Committee consists of three representatives, two shall form a quorum ; if the Committee consists of six representatives, four shall form a quorum. 5. There shall also be created a Central Committee consisting of six persons, three of whom shall be appointed by the Cleveland Iron- masters' Association, and three by the Cleveland Blastfurnacemen's Association; four to form a quorum. 6. The duties and the powers of the Works Committee shall be : — (a) To inquire fully into every case brought by the Manager of the Works of alleged bad time-keeping on the part of any work- man employed at the works under his charge. (b) To give warning and advice to any workman who may appear to need it. (c) To inflict, subject to the provisions of the Truck Acts, such penalty or fine as in the judgment of the Committee the case shall merit, such fine not to exceed 20s. in any one instance. (d) In the case of repeated offences, to transmit the facts and evidence to the judgment of the Central Committee. (e) In the event of the Works Committee being equally divided in their judgment on any case, the same shall be sub- mitted to the Central Committee for decision. (/) Each \\^orks Committee shall have power to reduce or remit altogether any fine imposed by the Committee, if the offend- er's conduct during the four weeks succeeding the hearing of his case justifies any variation in the original penalty. 7. The duties and the powers of the Central Committee shall be : — (a) To review all the facts and evidence in connection with any case which may be submitted to it by Works Committees, and, if it so decides, to impose upon the offender, subject to the pro- visions of the Truck Acts, a fine not exceeding 40s., or to submit the case to the judgment of the Ministry of Munitions. (b) To make regulations for the guidance of the Works Committees. 8. Fines shall be deducted, subject to the provisions of the Truck Acts, from the wages due to the workmen penalised, and unless remitted by the end of four weeks from date of deduction, shall be 117 handed over to some fund at the works where the offender is employed to be used for the benefit of the workmen or their dependants, or be handed over to some agreed upon local charity. 9. The regulations herein shall apply by agreement to all work- men members of the Cleveland Blastfurnacemen's Association. Any workman outside the Cleveland Blastfurnacemen's Association, and employed at the Ironmasters' works, may submit his case for judg- ment to the Committees if he so desires and be bound by the decision given. 10. Each Employer party to this arrangement shall authorise one of his clerical staff to act as Secretary to the Works Committee, and such person shall keep a record of the decisions given by the Com- mittee for the particular works and shall transmit at the end of each calendar month a record of such decisions to the Secretary of the Central Committee and to the Secretary of the Cleveland Blastfurnace- men's Association. 11. The Committees under this scheme shall exist so long as Munition Tribunals under the Munitions of War Act continue to operate, but the regulations may be varied at the end of six months on the application of either party hereto. 12. The requisite agreements to be made immediately by the two Associations concerned for enabling the Committees to exercise the powers and perform the duties specified above. 13. The Arbitration Act, 1889, shall not apply to any proceedings under this agreement. Signed on behalf of the Cleveland Ironmasters' Association. J. T. Atkinson. Secretary. Signed on behalf of the Cleveland and Durham Blastfurnacemen and Cokemen's Association. Thos. McKenna, Secretary. Middlesbrough, July 24th, 1917. (B) ii. Note on Working of These Committees. It is agreed on both sides that these Committees have worked very satisfactorily ; both employers and employees regard the Works Com- mittees as a far better means of investigating and settling questions of this character than that of taking the men before the Munitions Tribunals. Some twenty-eight Committees, all of them joint in mem- bership, have been set up, but it has not been necessary for all of them to meet. The Central Committee had not met up to the end of Janu- ary. 1918. though two or three cases had been recently filed for that Com.mittee. A Works Committee is generally unanimous about its 118 decision — whether or not a fine should be imposed, or the amount of the fine. In a large proportion of cases, more than half, a reduction or remission of fines has been allowed in accordance with section 6 (/). Those workmen who are not members of the union usually avail them- selves of section 9 of the Agreement to submit their cases to the Works Committee. 119 Appendix V NATIONAL AND DISTRICT SCHEMES— SHOP STEWARDS. (A) Memorandum of Conference between the Engineering Employers' Federation and thirteen Trade Unions. (B) Clyde Shipyards Joint Trades' Vigilant Committee. (C) Coventry Engineering Joint Committee — Shop Rules. The following schemes are printed as further illustrations of the problem discussed in Section VI. of the Report — "Relations with Trade Unions." (A) is the agreement come to in December, 1917, between representatives of the Engineering Employers' Federation and of thir- teen Trade Unions. (B) is a Trade Union district scheme of organisa- tion of Shop Stewards and Works Committees instituted before the war. (C) gives the proposals put forward by the Coventry Engineer- ing Trades' Joint Committee for their district before the negotiations which resulted in (A) were initiated. (A) Memorandum of Conference between the Engineering Employers' Federation and thirteen Trade Unions.* It is mutually agreed to recommend as follows : — Regulations Regarding the Appointment and Functions of Shop Stewards. With a view to amplifying the provisions for avoiding disputes it is agreed : — 1. The workmen who are members of the above Trade Unions, employed in a Federated establishment, may appoint representatives from their own number to act on their behalf in accordance with the terms of this Agreement. 2. The representatives shall be known as Shop Stewards. 3. The method of election of Ship Stewards shall be determined by the Trade Unions concerned, and each Trade Union, parties to this Agreement, may appoint Shop Stewards. 4. The names of the Shop Stewards, and the shop or portion of a shop in which they are employed, and the Trade Union to which they belong, shall be intimated officially by the Trade Union concerned in the management on election. * Steam Engine Makers' Society, Society of Amalgamated Toolmakers, &c., U. K. Society of Amalgamated Smiths and Strikers, National Society of Amalgamated Brassfounders and Metal Mechanics, Associated Blacksmiths and Iron Workers' Society, Workers' Union, National Amalgamated Union of Labour, United Machine Workers' Association, Elestrical Trades Union, United Journeymen Brassfounders, &c., Amalgamated Society of Coremakers, National Union of General Workers, and National Amalgamated Union of Enginemen, &c. 120 5. Shop Stewards shall be subject to the control of the Trade Unions, and shall act in accordance with the rules and regulations of the Trade Unions and agreements with the employers so far as these effect the relation between employers and workpeople. 6. In connection with this Agreement, Shop Stewards shall be afforded facilities to deal with questions raised in the shop or portion of a shop in which they are employed. In the course of dealing with these questions they may, with the previous consent of the manage- ment (such consent not to be unreasonably withheld), visit any other shop or portion of a shop in the establishment. In all other respects they shall conform to the same working conditions as their fellow- workmen. 7. Employers and Shop Stewards shall not be entitled to enter into any agreement inconsistent with agreements between the Engineer- ing Employers' Federation or Local Association and the Trade Unions. 8. The functions of Shop Stewards, so far as they are concerned with the avoidance of disputes, shall be exercised in accordance with the following procedure : — (a) A workman or workmen desiring to raise any question in, which he or they are directly concerned, shall in the first instance discuss the same with his or her foreman. (b) Failing settlement, the question shall, if desired, be taken up with the management by the appropriate Shop Steward and one of the workmen directly concerned. (c) If no settlement is arrived at, the question may, at the request of either party, be further considered at a meeting to be arranged between the management and the appropriate Shop Steward, together with a deputation of the workmen directly concerned. At this meeting the Organising District Delegate may be present, in which event a representative of the Employers' Association shall also be present. (d) The question may thereafter be referred for further consideration in terms of the Provisions for Avoiding Disputes. (e) No stoppage of work shall take place until the question has been fully dealt with in accordance with this Agreement and with the Provisions for Avoiding Disputes. 9. In the event of a question arising which affects more than one "branch of trade, or more than one department of the works, the nego- tiations thereon shall be conducted by the management with the Shop Stewards concerned. Should the number of Shop Stewards concerned exceed seven, a deputation shall be appointed by them, not exceeding seven, for the purpose of the particular negotiation. 10. Negotiations under this agreement may be instituted either hy the management or by the workmen concerned. 121 11. The recognition of Shop Stewards is accorded in order that a further safeguard may be provided against disputes arising between employers and their workpeople. 12. Any questions which may arise out of the operation of this Agreement shall be brought before the Executive of the Trade Union concerned, or the Federation, as the case may be. (B) Clyde Shipyards Joint Trades' Vigilant Committee.* 1. This Committee shall consist of Trade Unions representative of the workmen employed in the Clyde Shipyards. 2. Its object shall be to endeavour to adjust all complaints of a general character, endeavour to secure uniformity in the conditions of employment of the members and strengthen and perfect the organi- sations of the affiliated Unions. (a) By representatives of the Society affected at once report- ing the matter to the Secretary of the Yard Vigilant Committee. (b) By insisting that all non-union members of the respec- tive trades shall become members of their Trade Union. (c) By dealing with any member of an affiliated Union who fails to keep himself in compliance with the Rules of his Union. Yard Vigilance Committees. 3. A Vigilance Committee shall be appointed in each yard or dock, composed of one representative from each Society affiliated. Societies having more than one section of workmen shall be entitled to one representative from each section. 4. The Committee shall appoint a Secretary to whom all com- plaints shall be lodged by members of the Committee. 5. Each Shop Steward must examine the contribution cards of the members of their own societies on the first Wednesday of each month, and interview new starts immediately after starting. 6. The Committee will meet at least monthly. 7. Representatives of each society must attend and report to the Committee as to the condition of the members under his supervision. 8. On receipt of a complaint, the Committee shall endeavour to effect a settlement by interviewing the foreman or management. Fail- ing adjustment the matter must then be reported to tlie Secretary of the Central Board. 9. The machinery of each society for dealing with such questions must first be exhausted before reporting to the Yard Vigilant Com- mittee. * The first meeting was held on the 14th February, 1911. A similar organisa- tion in Engineering — The West of Scotland Locomotive and General Engineering Joint Trades' Vigilant Committee — was instituted in September, 1914. It had then been under consideration for some months. 122 10. The Secretary must send in his official report to the Secretary of the Central Board on the second last Thursday of March, June, September, and December. 11. Should any member of the Yard \ igiiant Committee be penal- ised for taking part in the work of the Committee, such cases must be immediately reported to the Secretary and taken up jointly. 12. Where the Secretary of the Committee has been changed, the name and address of his successor must be forwarded to the Secre- tary^ of the Central Board. 13. Expenses incurred by the Committee for room rent, station- ery and postages, will be met by Central Board. All such accounts must be sent quarterly to the Secretary and submitted to the Central Board for approval. 14. Under no circumstances can the Yard Vigilant Committee authorise a stoppage of work, either of a partial or general nature. Arrears. — Members over 10.?. in arrears must reduce same at the rate of 2s. 6d. per week; I5s. 5s., per week; and 20s., lOs. for the first week and 5s. per week thereafter. Central Board. 15. A Central Board shall be appointed and shall consist of a responsible representative of each Union affiliated. Societies having separate sections administered separately shall be entitled to one repre- sentative from each section. 16. Their duties shall be to see that a Vigilant Committee is appointed in each yard or dock, and deal with all complaints remitted to them by the Yard Committees. 17. They shall annually elect a Chairman and Secretary from amongst their number, the latter to act as Treasurer. 18. The Secretary on receiving a complaint from a Yard Com- mittee, may, after consultation with the Chairman of the Central Board and the representative of the Trade directly concerned, endeavour to get the matter adjusted, failing which the Central Board will be convened. 19. Before any stoppage of work takes place, the consent of the Central Board of this Committee must be obtained. 20. To meet expenses the Central Board shall make a call upon each society affiliated for such sum as may from time to time be agreed upon. 21. Meetings of the Central Board will be held on the last Friday of each quarter, or oftener if, in the opinion of the Chairman and Secretary, such is necessary. 123 (C) Coventry Engineering Joint Committee* Shop Rules and Instructions for Stczmrds. 1. That the Coventry Engineering Joint Committee shall be the Executive Committee over all Shop Stewards and Works Committees affiliated. Any change of practice in any shop or works must receive the consent of the Joint Engineering Committee before being accepted by the men concerned. 2. That all nominees for Shop Stewards must be members of Societies affiliated to the Coventry Engineering Joint Committee. 3. Stewards shall be elected by ballot for a term not exceeding six months ; all retiring Stewards to be eligible for re-election. 4. Each section shall be able to elect a Steward, irrespective of Society. 5. The Stewards of each department shall elect a Chief Steward. 6. The Chief Stewards of departments shall constitute the Works Committee, who, if exceeding 12 in number, can appoint an Executive Committee of seven, including Chairman and Secretary. 7. All Stewards shall have an official Steward's Card issued by Joint Committee. 8. Each Steward on being elected, and the same endorsed by his Society, the Joint Committee Secretary shall send him an official card. 9. The Steward must examine any man's membership card who starts in the shop in his section. He should then advise the man to report to his respective Secretary, and give him any information required on rates and conditions, &c. There shall be a show of cards every month to ascertain if every member is a sound member, and if any member is in arrears (eight weeks) he must report same to the Chief Steward. 10. If there is any doubt of any man not receiving the district rate of wages, the Steward can demand to examine pay ticket. 11. Any member accepting a price or time basis for a job must hand record of same to his Section Steward, who shall keep a record of times and prices on his section of any work, and hand the same to Chief Shop Steward. 12. The Chief Steward shall keep a record of all times and prices recorded to him by sections of his department. On a section being not represented he shall see to the election of Steward for such section. * The twenty-one societies affiliated are: — Friendly Society of Ironfounders, Steam Engine Makers, United Machine Workers, Amalgamated Society of Engineers, Amalgamated Toolmakers, Smiths and Strikers, Brassworkers and Metal Mechanics, Coppersmiths, United Brass Finishers, Electrical Trades Union, Boilermakers, Coremakers, Patternmakers, United Coach Makers, Pro- gressive Tin Plate Workers, National Federation of Women Workers, National Union of Clerks, Amalgamated Carpenters and Joiners, General Union of Carpenters and Joiners, London and Provincial Coach Makers, and Amalgamated Wood Cutting Machinists. 124 13. Any grievance arising on any section must be reported to Chiel' Shop Steward, who shall, with Steward on section and man concerned, interview foreman or manager. Failing redress, the Chief Steward then to report to the Works Committee. 14. The Works Committee shall be empowered to take any case of dispute before the management, not less than three to act as depu- tation. 15. On the Works Committee failing to come to any agreement with the management, they must immediately report to the Engineer- ing Joint Committee, who shall take up the matter with the firm con- cerned, a representative of the Works Committee to be one of the deputation. It is essential, pending negotiations, that no stoppage of work shall take place without the sanction of the Engineering Joint Committee. 16. A full list of all Shop Stewards must be kept by the Joint Committee. Any change of Stewards must be reported to the Joint Committee's Secretary. 17. The Joint Committee shall be empowered to call meetings of Stewards at any works, also meetings of all Chief Stewards in the district when the Joint Committee so decides, if necessary. 18. If at any time of dispute the Engineering Joint Committee decides upon the withdrawal of its members from any firm or firms, the Steward shall be issued a special official badge from this Committee with the idea of assisting to keep order, if necessary, in the interests of the members concerned. 125 Appendix VI MINISTRY OF RECONSTRUCTION. Committee on Relations between Employers and Employed. Supplementary Report on Works Committees. To the Right Honourable D. Lloyd George, M.P., Prime Minister. Sir, In our first and second Reports we have referred to the establish- ment of Works Committees,* representative of the management and of the workpeople, and appointed from within the works, as an essen- tial part of the scheme of organisation suggested to secure improved relations between employers and employed. The purpose of the present Report is to deal more fully with the proposal to institute such Com- mittees. 2. Better relations between employers and their workpeople can best be arrived at by granting to the latter a greater share in the con- sideration of matters with which they are concerned. In every industry there are certain questions, such as rates of wages and hours of work, which should be settled by District or National agreement, and with any matter so settled no Works Committee should be allowed to inter- fere ; but there are also many questions closely affecting daily life and comfort in, and the success of, the business, and affecting in no small degree efficiency of working, which are peculiar to the individual workshop or factory. The purpose of a Works Committee is to establish and maintain a system of co-operation in all these workshop matters. 3. We have throughout our recommendations proceeded upon the assumption that the greatest success is likely to be achieved by leaving to the representative bodies of employers and employed in each indus- ary the maximum degree of freedom to settle for themselves the pre- cise form of Council or Committee which should be adopted, having regard in each case to the particular circumstances of the trade ; and, in accordance with this principle, we refrain from indicating any definite form of constitution for the Works Committees. Our pro- posals as a whole assume the existence of organisations of both employers and employed and a frank and full recognition of such organisations. Works Committees established otherwise than in accord- ance with these principles could not be regarded as a part of the scheme we have recommended, and might indeed be a hindrance to the * In the use of the term "Works Committees" in this Report it is not intended to use the word "works" in a technical sense; in such an industry as the Coal Trade, for example, the term "Pit Committees" would probably be the term used in adopting the scheme. 126 development of the new relations in industry tc which we look for- ward. We think the aim should be the complete and coherent organi- sation of the trade on both sides, and Works Committees will be of value in so far as they contribute to such a result. 4. We are of opinion that the complete success of Works Com- mittees necessarily depends largely upon the degree and efficiency cf organisation in the trade, and upon the extent to which the Commit- tees can be linked up, through organisations that we have in mind, with the remainder of the scheme which we are proposing, viz., the District and National Councils. We think it important to state that the success of the Works Committees would be very seriously inter- fered with if the idea existed that such Committees were used, or likely to be used, by employers in opposition to Trade Unionism. It is strongly felt that the setting up of Works Committees without the co-operation of the Trade Unions and the Employers' Associations in the trade or branch of trade concerned would stand in the way of the improved industrial relationships which in these Reports we are endeavouring to further. 5. In an industry where the workpeople are unorganised, or only very partially organised, there is a danger that Works Committees may be used, or thought to be used, in opposition to Xrade Unionism. It is important that such fears should be guarded against in the initia- tion of any scheme. We look upon successful Works Committees as the broad base of the Industrial Structure which we have recom- mended, and as the means of enlisting the interest of the workers in the success both of the industry to which they are attached and of the workshop or factory where so much of their life is spend. These Committees should not, in constitution or methods of working, dis- courage Trade organisations. 6. Works Committees, in our opinion, should have regular meet- ings at fixed times, and. as a general rule, not less frequently than once a fortnight. They should always keep in the forefront the idea of constructive co-operation in the improvement of the industry to which they belong. Suggestions of all kinds tending to improvement should be frankly welcomed and freely discussed. Practical proposals should be examined from all points of view. There is an undeveloped asset of constructive ability — valuable alike to the industry and to the State — awaiting the means of realisation ; problems, old and new, will find their solution in a frank partnership of knowledge, experience and goodwill. Works Committees would fail in their main purpo.se if they existed only to smooth over grievances. 7. We recognise that, from time to time, matters will arise which the management or the workmen consider to be questions they cannot 127 discuss in these joint meetings. When this occurs, we anticipate that nothing but good will come from the friendly statement of the reasons wthy the reservation is made. 8. We regard the successful development and utilisation of Works Committees in any business on the basis recommended in this Report as of equal importance with its commercial and scientific efficiency; and we think that in every case one of the partners or directors, or some other responsible representative of the management, would be well advised to devote a substantial part of his time and thought to the good working and development of such a committee. 9. There has been some experience, both before the war and dur- ing the war, of the benefits of Works Committees, and we think it should be recommended most strongly to employers and employed that, in connection with the scheme for the establishment of National and District Industrial Councils, they should examine this experience with a view to the institution of Works Committees on proper lines, in works where the conditions render their formation practicable. We have recommended that the Ministry of Labour should prepare a sum- mary of the experience available with reference to Works Committees, both before and during the war, including information as to any rules or reports relating to such Committees, and should issue a memoran- dum thereon for the guidance of employers and workpeople generally, and we understand that such a memorandum is now in course of preparation.* 10. In order to ensure uniform and common principles of action, it is essential that where National and District Industrial Councils exist the Works Committees should be in close touch with them, and the schemes for linking up Works Committees with the Councils be considered and determined by the National Councils. 11. We have considered it better not to attempt to indicate any specific form of Works Committees. Industrial establishments show such infinite variation in size, number of persons employed, multiplicity of departments, and other conditions, that the particular form of Works Committees must necessarily be adapted to the circumstances of each case. It would, therefore, be impossible to formulate any satisfactory scheme which does not provide a large measure of elasticity. * The reference is to the present Report. 128 We are confident that the nature of the particular organisation necessary for the various cases will be settled without difficulty by the exercise of goodwill on both sides. We have the honour to be. Sir, Your obedient Servants.* J. H. Whitley, Chairman. F. S. Button. S. J- Chapman. G. H. ClAUGHTON. J. R. Clynes. F. N. Hepworth. Wilfrid Hill. j. a. hobson. A. Susan Lawrence. Maurice Levy. J. J. Mallon. Thos. R. Ratcliffe-Ellis. Allan M. Smith. D. R. H. Williams. Nona Wilson. H. J. Wilson, | A. Greenwood, j ISth October, 1917. * Sir G. J. Carter and Mr. Smillie were unable to attend any of the meetings at which this Report was considered and they therefore do not sign it. Sir G. J. Carter has intimated that in his view, in accordance with the principles indicated in paragraphs 3, 4 and S of the Report, it is important that Works Committees should not deal with matters which ought to be directly dealt with by the firms concerned or their respective Associations in conjunction with the recognised representatives of the Trade Unions whose members are affected. 129 Appendix VII SCHEME OF LOCAL JOINT PITS COMMITTEES. The following scheme has recently been introduced. It is par- ticularly interesting as an attempt to apply the ideas of the Whitney Report to part of the coal-mining industry. ToiNT Committee of Representatives of the Lancashire and Cheshire Coal Association, and the Lancashire and Cheshire Miners' Federation. Resolved: That the Joint Committee recommend the establish- ment, with the least possible delay, of Local Joint Pit Committees at the various Collieries in the two Counties, and that the functions af the Committees shall be those set out below, and that the Rules of Procedure also set out below should be adopted. The functions exercisable by the Local Joint Pits Committees and the Rules of Procedure for the conduct of the business. 1. The Title of the Committee shall be "The Local Joints Pits Committee." 2. The Committee shall exercise the following functions : — (a) To investigate and report to Manager cases of shortage of tubs. (b) To investigate and report anything interfering with the possibilities of output, such as poor haulage, blocked or congested roadways. (c) To investigate and report to Manager complaints of minimum wage and abnormal places allowances. (d) To stimulate regular attendance and report to Manager persistent absentees. (e) Generally to investigate and report to the Manager any- thing else which in their opinion is interfering with the satis- factory working of the mine. (/) Any other functions which may from time to time be delegated to them by the Joint Committee. 3. The Committee shall consist of not less than three, nor more than five representatives of the employers, and an equal number of representatives of the workmen employed at the mine. The Manager of the mine shall be the Chairman. 4. The members of each class of representatives present shall form a quorum. 130 5. The respective representatives on the ("omniitlce shall cii-h appoint one of their number to act as Secretary. 6. Meetings of the Committee shall be held once a month. Pro- vided that a Special Meeting may be held at any time at the rc(|ucst of the whole of the members of either side given to the Secretary of the other side. Five days' notice to be given of any meeting, ordinary or special ; and the Agenda of the business to be considered at the meeting to be submitted by the Secretaries to each member of the Board with the notice calling the meeting. No business to be trans- acted at any meeting other than that on the agenda. No matter shall be placed on the agenda without an opportunity having been i)re- viously given to the officials of the mine of dealing with it. 7. The proceedings of each Committee shall be taken and trans- cribed in duplicate books, and each book shall be signed by the two Secretaries at the meeting at which such minutes are read and con- firmed. One copy of such minutes shall be kept by each of the Secre- taries. The Secretaries shall also conduct the correspondence for the respective parties, and conjointly for the Committee. 8. In the event of any matter arising which the Committee cannot agree upon, and failing agreement between the Manager and the local Federation Agent, the difference shall be submitted to the Joint Dis- trict Committee, whose decision shall be final. 9. Each party shall pay and defray the expenses of its own repre- sentatives and Secretary. Dated this Eleventh day of February, 1918. Lionel E. Pilkington, President of the Lancashire and Cheshire Coal Association and of the Joint Committee. Thomas Greenall, President of the Lancashire and Cheshire Miners' Federa- tion, and Vice-President of the Joint Committee. Thos. R. Ratcliffe-Ellis, Secretary of the Lancashire and Cheshire Coal Association, and of the Joint Committee. Thomas Ashton, Secretary of the Lancashire and Cheshire Miners' Federa- tion, and of the Joint Committee. 131 ...IBHARY. »LOS ANQELES. CALiF. traylord tiros. Makers Syracuse, N. Y. HD5545 .G79 y L 009 530 996 9