"iiili: CHILD LABOUR IN THE UNITED KINGDOM FREDERIC KEELING ^^^^^S^^ ^^s-^^-^^^^^g nioersiti^ of ^4^ 4 4®alifcirnia ^ :?^teJ'rVyi-!te: m!SCT I 'a.ur er ^cncbrlB CHILD LABOUR IN THE UNITED KINGDOM. A STUDY OF THE DEVELOPMENT AND ADMINISTRATION OF THE LAW RELATING TO THE EMPLOYMENT OF CHILDREN. BY FREDERIC KEELING, M.A., late Scholar of Trinity College, Cambridge ; formerly Manager and Senior Organizing Officer in the Board of Trade Labour Exchanges. Prepared on behalf of the British Section of the International Association for Labour Legislation, Queen Anne's Chambers. Westminster, LONDON : 1^ P. S. KING & SON, ORCHARD HOUSE, WESTMINSTER. 1914. y^i^X^ uxc wvm\uil\im\Jii".\}'tW,i-:k CONTENTS. INTRODUCTION. I. Origin and Scope of the Report. II. Outline of the History and Present Position of Child Labour Legislation in the United Kingdom. PART I. The Developnaent of Child Labour Regulation (outside Factories, Workshops and Mines) in the United Kingdom. . 1. The Climbing Boys 2. Children in Agricultural Gangs 3. Children in Public Entertainments 4. Street Traders . . 5. General Employment . . PART II. The Administration of Child Labour Regulations . . 1. The Adoption by Local Authorities of Bye-laws under the ment of Children Act, 1903 2. The Enforcement of Child Labour Regulations (i.) Public Entertainments (ii.) Street Trading., (iii.) General Employment 3. General Results of the Regulation of Child Labour. . 4. Proposals of Reform . . 5. Summary of Recommendations I 3 9 II 16 26 . 29 Employ - 31 37 37 40 • 47 • 56 59 65 PART III. Tabular Analysis of General Employment and Street-trading Bye-laws made by Local Authorities.. .. .. .. .. .. .. .. gy General Employment . . . . . . . . . . . . . . yi Street Trading . . . . . . . . . . . . . . . . 168 PART IV. Reports, Notes, and Tables relating to the action of Local Authorities in enforcing Child Labour Regulations 1. Specimen Bye-laws made by Local Authorities 2. Table showing the action taken by Local Authorities in England and Wales to regulate the Employment of Children by Bye-laAvs 3. Classified Statement showing the Departments to which Local Authorities have assigned the Administration of General Employment and Street-trading Bye-laws 4. The Statistics of Street-trading Licences 1908, 1911,1912.. 5. Table showing number of Persons proceeded against under the Employment of Children Acts and kindred Acts in each Police District of the United Kingdom in each Year, 1904-1911 199 201 2X6 217 6. Detailed Reports on the Administration of the Employment of Children Act and kindred Acts by certain Local Authorities. . 226 I. London.. .. .. .. .. .. .. .. 226 II. Norfolk.. .. .. .. .. .. .. .. 232 III. English Municipalities and Urban Districts :— Bath . . . . . . . . . . . . . . . . 235 Birmingham.. .. .. .. .. .. .. 235 Birkenhead . . . . . . . . . . . . . . 237 Bootle . . . . . . . . . . . . . . 240 Bradford . . . . . . . . . . . . . . 241 Bristol . . . . . . . . . . . . . . 242 Dewsbury . . . . . . . . . . . . . . 247 Exeter . . . . . . . . . . . . . . 248 Hull 250 Kettering . . . . . . . . . . . . . . 250 Leeds. . . . . . . . . . . . . . . . 251 Liverpool . . . . . . . . . . . . . . 256 Manchester . . . . . . . . . . . . , , 266 Norwich .. .. .. .. .. .. .. 270 Nottingham . . . . . . . . . . . . . . 272 Oxford . . . . . . . . . . . . . . 274 Wallasey . . . . . . . . . . . . . . 275 7. Note on the Administration of the Law relating to the Employment of Children in Public Entertainments in Scotland . . .. .. 277 8. Statement showing action taken by Local Authorities in Prohibiting for Children (under 14) specified forms of Employment . . 279 PART V. The Law relating to the Employment of Children : — Introductory Note The principal Acts (and Orders made thereunder) regulating the Employment of Children I. Employment of Children Act, 1903 Employment of Children Order, 1903 . . Prevention of Cruelty to Children Act, 1904 [Extract] Children Act, 1908 [Extract] Children's Dangerous Performances Act, 1879 . . Dangerous Performances Act, 1897 Children (Employment Abroad) Act, 191 3 Order under the Children (Employment Abroad) Act. . Education (Scotland) Act, 1878 [Extract] Education (Scotland) Act, 1901 [Extract] Employment of Children Bill, 191 3 12. Home Office Circular to Local Authorities on the Employment of Children Act, 1903 10. II. 281 283 285 28q 288 289 291 292 293 293 295 297 298 299 PART VI. Bibliography of the Employment of Children in the United Kingdom . Indices : — 1. Places 2. Persons 3. Subjects ADDITIONAL ERRATA. Page xxiv., second paragraph, line 2. For the word "protected" read " protective." Page xxvi. Last line but one of Table, columns 6 and 7. Add (f ) after " ID " and " 54." Last line of Table, column i. For " 191 1 " read " 1908 " ; columns 6 and 7, delete " 10 " and " 54." Pages 76-1 54. Where a form of employment is prohibited, the minimum age is always 14, whether this is specified or not. Page 273, lines i and 6. For " Inter-departmental " read " Depart- mental." Digitized by the Internet Archive in 2008 with funding from IVIicrosoft Corporation http://www.archive.org/details/childlabourinuniOObritrich ERRATA. Page 8, line iS of second pai'agraph. After " 1864 " add, " In view of the enactment of the law of 1875, the Factory and Workshop Act Commission, which was appointed in that year, decided that it was unnecessary to adopt the proposal to place the enforcement of the Cliimney Sweepers' Acts in the hands of the Factory Inspectors " (cf. Report of the Commission, 1876, p. xxv., C. 1443). Page II, line 11. Add after the word " Acts " the words, " the Employment of Children Act." Page 18. Footnote. For " Cory " read " Clifford." Page 22, second paragraph. For " Departmental Committee " read " Inter-departmental Committee," except in the last line but one. Page 26. Begin third paragraph with the words : " The Factory and Workshop Commission of 1875-6 considered and rejected a proposal to regulate the hours of employment of errand and van boys, together with children employed in public entertain- ments, street-selling, and on canal boats." (See the Report of the Commission, 1876, Vol. I., p. xxiii., C. 1443.) Page 63. Add footnote to line 12 of second paragraph : " Cf. Report of Chief Medical Officer of the Board of Education for 1912, p. 326, Cd. 7184; also Circular 813 of the Board of Education to Local Education Authorities (issued i8th December, 1912)." Page 64, second paragraph. Add footnote : " After this Report had been written it \vas announced in the press (12th November, 191 3) that, in accordance with the recommendation of the Departmental Committee on Reformatory and Industrial Schools (Report 1913, p. 95, Cd. 6838), the Home Secretary had constituted a new division of the Home Office to deal with questions relating to children. The new di\'ision will not only, as the Departmental Committee suggested, be responsible for administrative action affecting the treatment of young persons and children who are or should be brought before the courts under the Acts relating to Reformatory and Industrial Schools, or who are subjected to super- vision under tlie Probation Acts. It will also, it is stated, deal with children's courts generally, cruelty to children and street trading. Presumably the whole administration of the Employment of Children Act will come within its scope." Page 78. " Hertfordshire." Add footnote : " The bye-laws are not applicable tliroughout the county, but only in certain scheduled districts, viz., the borough of Hertford, the urban districts of Barnet, Bishop's Stortford, Bushey, Cheshunt, Great Berkhamsted, Harpenden, Rickmansworth and Tring, and the rural parish of Letchworth. The total population of these districts according to the census of 19 II was 62,372." Page 234. The footnote on this page should be transferred to page 233. INTRODUCTION. I. Origin and Scope of the Report. THE regulation of Child Labour, as a specific branch of labour legislation, has for some years been among the subjects with which the International Association for Labour Legislation has concerned itself. At the Conference of the Association held at Ziirich in September, 1912, one of the five " Commissions," into which the delegates were divdded, was charged with considering the subjects of Child Labour, Workmen's Insurance, and the Enforcement of Labour Legislation. At the suggestion of the Commission, the Conference resolved that the different National Sections of the Association should be requested to draw up reports on the subject of Child Labour in their respective countries, and present them to a Special International Com- mission appointed to discuss this question alone. A schedule which had been drawn up by the International Labour Office for the purpose of suggesting the lines to be followed in the report was circulated to the National Sections. In October, 1912, the Committee of the British Section appointed a special Sub-committee to draw up a Report on Child Labom^ in the United Kingdom. This Sub-committee consisted of Lord Henry Bentinck, M.P., Miss Constance Smith, Miss Mary Phillips, Mr. F. Keeling, and Miss S. Sanger (the Secretary of the British Section of the Association). The Sub-committee held six meetings, at which various points connected with the scope and method of the inquiry, together with the practical proposals to be recommended for extending and enforcing the regulation of child labour, were discussed. The actual drafting of the Report was entrusted to Mr. F. Keeling, who acted as chairman of the Committee ; but the draft has been considered by all the members of the Committee and revised in certain details in the light of their criticisms. The local reports were drawn up b^^ members of the Committee, with the assistance, in some cases, of the members or officials of local authorities. Much of the material comprised in the Report is original, in the sense that it has been collected by means of personal interviews or communications with the officials and members of local authorities, and is not to be found in printed documents of any kind. Official and other documents have also been freely used, a large proportion of them having been specially collected for the purposes of the inquiry. In addition to acquiring a complete collection of aU bye-laws made by local authorities throughout the United Kingdom for regulating the employment of children, the Committee circulated schedules to all the local authorities in England and Wales which are responsible for the administration of the Employment of Children Act, whether they had made bye-laws or not. The information secured through these schedules formed the basis of much of the material contained in Part IV. of the Report. The members and officials of local authorities and other persons who rendered assistance to the Committee by furnishing information — often at the cost of considerable time and trouble — are too numerous to be mentioned by name ; but the Committee desires to express its obhgation to them in no formal sense. Thanks are also due to Mrs. E. Hubback, who assisted in the compilation of the analysis of street -trading bye-laws, and to Mr. R. J. Parr, Director of the National Society for the Prevention of Cruelty to Children, and Mr. Arthur Greenwood, who kindly read considerable portions of the proofs and suggested useful amendments. The largest share of the laborious task of preparing many of the tables and analyses was taken by Miss Dorothy Ballen, the capable librarian of the British Section of the International Association for Labour Legislation. Without her assistance the completion of the work would have been considerably delayed. Some explanation of the scope of the Report is needed. It does not constitute a detailed survey of all branches of the child labour problem in the United Kingdom. The reasons for this are fully explained in the concluding paragraphs of this Introduction, which contain a brief outline of the history and present position of the problem. The Committee have concentrated their attention upon those aspects of the question with regard to which information is most defective, and the stimulus of discussion and agitation seems, perhaps, most needed. There is urgent need for the improvement of the regulation of child labour through the Factory and Mines Acts. But this part of the problem is a relatively simple one, because it depends solely upon straight- forward amendments of the existing law and reforms in the administrative machinery, which is, throughout the United Kingdom, under the sole control of one Department — the Home Office.* The children employed under the Factory and Mines Acts have, so to speak, been railed off from the remainder of the child workers, and placed in a position in which the progressive amend- ment of the existing regulations for their protection is a relatively simple matter for any Government willing to undertake it. Moreover, there is a growing consensus of opinion in favour of the fixing of 14 as an absolute minimum age for factory employment, and for the extension of full-time elementary education at least to that age. But the children who work outside the Factory and Mines Acts are protected by a number of different enactments, for the execution of which local authorities alone are directly responsible. They are employed for the most part, not in large aggregations, but in scattered units, and very largely in occupations which do not involve continuous employment in a single workplace. The protection of these children is far more difficult than that of children employed in factories, or even workshops. But many of those who are most ready to demand the restriction of wage-earning by children in irds- cellaneous employments seem to have very vague ideas as to the methods by which regulations, when secured, are to be made really effective. The Report itself, therefore, deals with children employed outside the Factory and Mines Acts, It is, further, primarily a study of the administration of the law, rather than of the facts vs'hich necessitate the adoption of regulations. These facts have been elucidated in literally scores of investigations conducted by central and local authorities and by private societies and individuals. The reports of these investigations, for the most part, present close resemblances, both in regard to their general conclusions and in regard to the detailed facts with which they deal. It seemed to the Committee that it would be more valuable to investigate the practical steps which can be taken to deal with child labour, rather than to elaborate further the inquiries into its character and effects. At the same time, allusions will be found in the Report to the most important statistics of wage-earning children, while a certain amount of fresh information is given on the subject, particularly in the special reports * Although under the Home Rule Bill it is proposed that the administration of the Factory and Mines Acts in Ireland should be transferred to the new Irish Executive. contained in Part IV. Moreover, the Bibliography in Part VI. includes all known works which deal with the conditions of child labour outside factories and mines in the United Kingdom, as well as with its regulation. It is hoped that the analj^sis of bye-laws contained in Part III. of the Report will be a means of bringing to the notice both of Parliament and of local authorities the urgent necessity of raising the standard of protection. It will be noted that, in many cases, bye-laws allow children to be employed for fom", or even five, hours, in addition to attending school full time. Such a standard is ob\T.ously unnecessarily low. It has hitherto been practically impossible for the public to obtain information with regard to the standard of regulation which was being adopted throughout the country under the Employment of Children Act. If the central authorities responsible for the execution of the Act in the three di\isions of the United Kingdom would consent to issue annually a volume containing clear analyses of all bye-laws adopted by the different localities, a great stimulus would be given to effective administration. The districts which have been selected for treatment in special reports in Part IV. are not by any means all distinguished by an eminently satisfactory administration of the law in aU directions. Some of them are selected as being typical rather than exemplary. Had it not been for considerations of space, a number of other local reports might have been compiled from the material at the disposal of the committee ; but those which have been prepared are probably sufficient to give a general indication of the proceedings of local authorities in dealing with the problem. The re-printing, in Part V., of the Acts and Sections of Acts (other than Local Acts) affecting child labom" outside the Factory and Workshop Act, has been undertaken because most of the legal handbooks which cover the same ground are unsatisfactory for one reason or another, and because it may be convenient to those responsible for the administration of the law to have the statutory provisions readily available in conjunction with a full summary of existing bye-laws. Another point with regard to the scope of the Report requires special attention. It deals primarily with " children " in the sense of the word most generally adopted in English labour legislation, \dz. : persons aged under 14 years. The problem of child labour is generally distinguished in England from, that of the regulation of " young persons " or " juveniles " aged from 14 to 17. (inclusive). At the same time, the distinction is, of course, a wholly artificial one. In connection with the regulation of one important employment — street trading — the Employment of Children Act confers upon local authorities powers to regulate the labour of juveniles aged over 14 and under 16 almost equal to those which it confers for regulating the labour of children. In the treatment of street trading it is impossible to disentangle the action of local authorities in connection with " children " and in connec- tion uith " young persons." The Report accordingly deals with this problem as a whole. It is to be hoped that local authorities will shortly be given complete freedom with regard to the restriction of all forms of the employment of juveniles aged under 18 outside the Factory and Mines Acts. But except in the case of juveniles employed in street trading, " dangerous performances," chimney-sweeping, and agricultural gangs, local authorities at present possess no powers to regulate the employment of young persons, and it has appeared simpler to deal with the problem of " children " in the usually accepted sense of persons aged under 14. For this and other reasons no detailed examination of the work of Juvenile Labour Exchanges has been attempted. There are now some 423 Labour Exchanges under the control of the Board of Trade in the United Kingdom, which deal with the placing of children and young persons. In 44 districts* the Board of Trade has established Advisory Committees for juvenile employ- ment, and in London there are 19, and in Surrey 15, local Advisory Committees, acting under the supervision of the County Juvenile Advisory Committees. In 58 districtst local education authorities have estabhshed committees under the Choice of Employment Act, which, in most cases, act in close co-operation with the local Labour Exchange. The object of both these types of employ- inent committees is to supervise the operation of the machinery for placing girls and boys in employment, and also to secure the advantage of the assistance of voluntary workers in dealing with individual cases. There is no doubt that Juvenile Labour Exchanges are of considerable value in so far as they are able to afford assistance to the three-quarters of a million boys and girls who leave school each year in finding the most suitable kind of work and in passing through the breach of continuity in employment, which the varying age distribution of different occupations and other causes render inevitable for a considerable proportion of juvenile workers. But it has been, perhaps, imperfectly understood that Juvenile Labour Exchanges, whether they are controlled by the Board of Trade or by the local Education Authority, or by both jointly, can do nothing directly to improve the conditions under which the available work for juveniles is con- ducted. Nor, taking the country as a whole, can they materially affect the proportion of juveniles who enter the different classes of occupations. The organisation of the labour market is one problem ; the regulation of employment is another. The extent to which the two overlap or affect each other can easily be exaggerated. The Government has been prepared to spend large sums of money, probably not far short of ^^50,000 per annum, in providing staff and premises for juvenile departments in the Labour Exchanges, officers of the Board of Education to encourage local authorities to adopt the Choice of Employment Act and guide their action after they have adopted and grants-in-aid to defray half the salaries of the officers of local authorities engaged in work under the Act. But it has not provided a penny towards the cost of preventing the industrial exploitation, while they are attending school, of the school children upon whom it is prepared to lavish attention, when they subsequently leave school and come to choose their employment. Since the Home Office Circular with regard to the Employment of Children Act, issued in 1903, the Government has not given a * Aberdeen, Ashton-under-Lyne, Barrhead, Bath, Belfast, Blackburn, Bristol, Bury, Carlisle, Chester, Coatbridge, Cork, Devonport, Dewsbury, Dublin, Exter, Glasgow, Halifax, Huddersfield, Hull, Hyde, Ipswich, Kirkaldy, Leeds, Limerick, London, London- derry, Middlesbrough, Motherwell, Northampton, Norwich, Nottingham, Plymouth, Pontypridd, Radcliffe, Rochdale, Southampton, Southport, South Shields, Sunderland, Surrey, Tynemouth, Waterford, West Hartlepool. t List of Schemes under the Education (Choice of Employment) Act, 1910, APPROVED BY THE BOARD OF EDUCATION, TO DaTE NOVEMBER 25TH, I9I3. BarrOW-in- Furness, Barry, Birkenhead, Birmingham, Blackpool, Bootle, Bournemouth, Bradford, Brighton, Bromley, Burton-on-Trent, Cambridge, Cardiff, Cheltenham, Chiswick, Cornwall, Coventry, Croydon, Cumberland, Denbighshire, Ealing, Finchley, Folkestone, Gloucester, Great Yarmouth, Hendon, Hornse3^ Huntingdonshire, Kidderminster, Lincoln, Liverpool, Lowestoft, Maidstone, Manchester, Merthyr Tydfil, Middlesex, Montgomeryshire, Newcastle-upon-Tyne, Oldham, Oxford, Oxfordshire, Penge, Portsmouth, Reading, Rotherham, Salford, Salisbury, Scarborough, Smethwick, Stockport, Swansea, Torquay, Wallasey, West Ham, Wigan, Wiltshire, Wood Green, York. At Edinburgh the School Board also conducts an Employment Bureau in co-operation with the Board of Trade Labour Exchange. word of moral, let alone financial, encouragement to the local authorities responsible for the administration of that Act. It is small wonder that the memory of the Employment of Children Act has, in not a few cases, been effaced by the enthusiasm which has been manifested for the Choice of Emploj^ment Act, and that the officers, as well as the members, of local authori- ties sometimes manifest ^^ery hazy notions with regard to the respective contents and objects of the Employment of Children Act, the Children Act, and the Choice of Employment Act. On the other hand, it is satisfactory to note that in some districts the Juvenile Advisory Committees, or committees appointed under the Choice of Employment Act, have been moved, as the result of the knowledge which they have acquired of child labour problems, to induce the local authorities to frame bye-laws under the Employment of Children Act, and to execute more efficiently the existing provisions of the Act or of forgotten bye-laws. History repeats itself in a remarkable way in con- nection with English experiments in social legislation. The story of the regulation of the cliimney-sweepers' boys, given in Part I. of the Report, shows that in the eighteenth as in the twentieth century reformers experimented with apprenticing committees, and with the exercise of moral influence upon bad employers for many years before they were driven to regulate by pro- tective legislation the evils, which nothing short of the direct interference of the State could (or ever can) cure. II. Outline of the History and Present Position of Child Labour Legislation in the United Kingdom. There are two essential features of Child Labour Regulation — first, the limitation of the number of children who may be employed, and, secondly, the restriction of the conditions under which legally employed children may work. The Hmitation of the employment of children may be achieved in four different ways, \T.z., by the establishment of minimum standards of (i) age, (2) educa- tional attainment, (3) physical fitness, and (4) by the limitation, in specific trades, of the proportion of children or juveniles employed in relation to the number of adult workers. The first three of these methods have all played an important part in the history of Enghsh child labour regulation. In \dew of the difficulty of determining the ages of children before the existence of a system of civil registration of births or compulsory education, the Government was forced to require in the Factory Acts from 1833 onwards that every child should be examined by a doctor, who should testify to the child's age as nearly as he could determine it. The institution of Certifying Factory Surgeons would never have been established if it had not been for the difficulty of ascertaining, with any degree of accuracy, the ages of the children. But as it was necessary to set up a system of medical examina- tion of children, it was obviously an advantage that it should be used not merely in order to determine the children's ages, but also in order to reject from employment those who were physically unfitted for it, although they might be above the statutory age. The certifying surgeons were accordingly given the power of rejecting physically unfit children from employment. The system of general medical inspection of all children and young persons aged under 16, at the commencement of their employment, and on every occasion on which they change their employment, was by 1867 established in aU fac- tories. Factory inspectors were also empowered to require the re-examination of any child or young person aged under i6, who appeared to be physically unfit for the employment, in any factory or workshop in which he or she was engaged. The Home Secretary was given the power in 1878 to extend the system of preliminary medical inspection to employment in workshops. This power lay dormant for nearly thirty years, but by an Order in 1906, preliminary medical examinations were required in workshops where the following pro- cesses were carried on : File cutting ; carriage building ; rope and twine making ; brick and tile making ; making of iron and steel cables, chains, anchors, grapnels, and cart gear ; making of nails, screws, and rivets ; baking bread, biscuits, and confectionery ; fruit preserving ; making, altering, ornamenting, finishing, or repairing wearing apparel by the aid of treadle sewing machines. After the establishment of the registration of births in each of the three kingdoms, and still more after the development of compulsory education and of a ubiquitous service of school attendance officers, the functions of the certi- fying factory surgeons became practically superfluous, from the point of \Tew of enforcing the statutory minimum age for employment. Demands were frequently made in the last quarter of the nineteenth century for their aboli- tion (largely by employers who disliked pa5dng the fees for the examination of the children). It was rather the formal conservatism, so characteristic of English administrative institutions, than the inherent value of the system of medical inspection as it was then carried out, which preserved the institution of the certifjdng factory surgeon during this period. But the development of general interest in the physical welfare of children during the past decade has stimulated the certifying surgeons to increased activities in the direction of rejecting children from employment for which they are physically unfit, or of accompanying the permission to work by conditions suited to indi\'idual cases.* The extension of the requirement of a medical certificate to a con- siderable number of workshops in 1906 showed that the system of medical inspection is likely to play an increased part in the regulation of child labour in the future. The Employment of Children Act in 1903 prohibited the em- ployment of children aged under 14 in a manner likely to be injurious to their health or education, especially in connection with the mo\'ing of heavy weights, and empowered local authorities to send a medical certificate to the em- ployers of children, engaged in occupations not regulated by the Factory and Mines Acts, to the effect that they were physically unfit for such employ- ment. The establishment of a School Medical Service in England and Wales by the Education (Administrative Provisions) Act, 1907, and in Scotland by the Education (Scotland) Act, 1908, provided the local authorities in Great Britain with officers who have opportunities for making effective use of tliis provision of the Employment of Children Act. The amalgamation of the services of the certifying factory surgeons and of the school medical officers is a problem which \irgently needs attention, f * In 1912 the 2,279 certilying surgeons made 42,203 medical examinations of half- time children, 91,222 of children aged 13 employed full time, and 373,301 of young persons aged 14 to 16. The number of children and young persons rejected from employment on physical grounds Avas 9,830, of whom 4,338 were aged under 14, and 1,559 were proposing to enter half-time employment. In 7,376 cases, children or young persons were only "passed" with conditional certificates, which forbade employment near machinery, in lifting weights, or in other ways. t Cf. Report of the Department Committee on Accidents in Places under the Factory and Workshop Acts, igii.p. 54. A work by F. Keeling on the history and present position of medical inspection of employed cliildrcn and juveniles will be published shortly. For a summary of the question see a paper on " The Medical Supervision of Juvenile Workers," by Arthur Greenwood, in the Proceedings of the National Conference on the Prevention of Destitution, 191 2. But the establishment of definite minimum age standards must always be the most imjwrtant form of the limitation of child labour. The develop- ment of the minimum age standard in the United Kingdom is shown by the table on pp. xiv.-xvii.* It should be noted that, in addition to what may be termed the normal minimum age standards established by Parliament and indicated in the table, a system has gradually grown up of estabhshing higher minimum ages for employment in specially dangerous occupations. This has been achieved to some extent by direct statutory enactment — that is to say, by the special provisions of Factory Acts which establish for dangerous occupations an age limit higher than the normal minimum. For instance, the Factory Act Extension Act of 1864, established 11 as the minimum age for employment in fustian cutting, as opposed to the normal minimum of 8. The Factory Act Extension Act of 1867, while retaining 8 as the normal minimum age for employment, established minima of 11 for the metal grinding trades, 16 for girls in brickmaking, and 12 for boys in melting and annealing glass, while the employment of women and girls was prohibited in the last occupation. In recent years, the Home Secretary has made use of the extensive powers which are conferred upon him for the regulation of dangerous trades, to extend further the system of special age limits under the Factory Acts. The present position of these special age limits under the Factory and Workshop Act is indicated by the table on pp. xviii., xix. The table on pp. xiv.-xvii. deals with the school attendance provisions of the Education Acts as well as with the minimum ages established by in- dustrial legislation. Up to 1870 such compulsory education as existed in the United Kingdom (other than that provided for in ancient Scottish statutory enactments) was dependent upon the educational clauses of the Factory and Mines Acts. These established an indirect system of compulsory attendance in two ways. ^AlHh£_Factoi-^_A made the cmpl(n'mf^'nt of cMldren_jage£^^S^3^Tor3[it attendance at school. The Mines Act of i860 also empowered mine owners to employ children aged lo-ii on condition that they attended school for six times a week ; but it allowed them to employ children without any school attendance if the chil- dren had a certificate of proficiency in reading, writing, and arithmetic. This alternative method of securing a minimum of educational attainment was first incorporated in the Factory Acts in 1874, when the full-time employ- ment of a child of 13 in a textile factory was made conditional upon the pro- duction of an educational certificate. The system of making full-time employ- ment conditional upon an educational certificate was dropped out of the Mines Acts in 1872, but until 191 1 the half-time system remained incorporated in these Acts. The Factory Acts from 1878 until the present day have retained both the half-time system and the educational certificate system, as indicated in the table. But while industrial legislation was thus a lever for introducing com- pulsory education," oil the other hand during the last forty years educational demands have been to an increasing degree a motive for postponing the minimum * In addition to the Acts themselves, the excellent table contained on pp. 213-7 of the Report of the Factory and Workshop Commission, 1876 (Vol. I., pp. 213-7, C. 1443), should be consulted by anyone seeking detailed information with regard to the develop- ment of industrial regulation in the United Kingdom. There is a good summary of the development of the Mines Acts in the Second Report of the Royal Commission on Mines, 1909., pp. 2-1 1, Cd. 4820. See also Hutchins and Spencer's "History of Factory Legislation," 2nd edition, 191 1, and (for a very accurate study of the development of the Factory Acts down to 1878) O. Weyer, " Englische Fabrikinspektion," Tiibingen, 1888. DEVELOPMENT OF THE LEGAL MINIMUM AGE FACTORY AND WORKSHOPS ACTS. Textile Factories. Non-Textile Factories and Workshops. MINES ACTS. Coal Mines.* Metalliferous Mines. MISCELLANEOUS EM Chim- ney Sweep- ers. (Vna^\ Enter- wf.o= ! tain- 1802. Nil. 1819. Cotton mills, 9. 1833. All textile fac- tories (with exceptions for silk), 9 ; full time, 13- 1844. All textile fac- tories, 8; full time, 13. 1 861. Lace factories, 8; full tinie, 13. 1874. Textile fac- tories (including lace), 10 ; full time, 14, or 13 with educational cer- tificate. 1845. Print works 8; full time, 13. 1 860. Bleach and dye works, 8 ; full time, 13. 1 864. Earthenware (except bricks), match, percussion caps and cartridges, paper stain- ing, fustian cutting factories, 8 ; full time, 13- 1867. All non-textile factories and work- shops, 8 ; full time, 13- 1842. Below ground. Boys 10; Girls and Women prohibited i860. Below ground. Boys aged lo-ii only to be employed either with educational certificate, or if attending school three hours on two days a week. 1872. Below ground, Boys, 12, except in thin seams in mines, where 10, full time, 12. Above ground. Boys and Girls, 10, full time 12. 1878. All factories and work- shops, 10; full time 14, or 13 with educational certificate. 1872. Be- low ground, Boys, 12. Above ground, no regulation. 178J 8. 1834. 10. 1840, 16; in climb- ing chim- neys, 21. 1867. 8. 1873- 10. FOR EMPLOYMENT IN THE UNITED KINGDOM. PLOYMENT ACTS. EDUCATION ACTS. (School Attendance Provisions.) Street Trading.t ENGLAND & Wales. General ■ Minimum Age Employ- I for ment. Employment. Bye-law-making Powers re School Attendance. Scotland. Ireland. Minimum Age for Employ- 'Minimum Age for Employ- ' ment. , ment. ' Exemption provisions. Exemption provisions. 1876. 10. 1870. School Boards (where in existence) empowered, but not obhged, to make bye laws covering children 5-13- 1876. School Attend- ance Gammittees cre- ated in all areas with- out School Boards, and given similar bye-law- making powers, except that in rural parishes such powers only to be exercised on requisition of parish. 1872. Duty of par- ents and employers to provide education for all children aged 5-13. Educational certificate granted by H.M. In- spector alone exempts from this duty. 1878. 10. Educa- tional certificates re- quired for employment for all children under 14, unless employed half-time under Fac- tory or Mines Act. DEVELOPMENT OF THE LEGAL MINIMUM AGE FOR FACTORY AND WORKSHOPS ACTS. mNES ACTS. MISCELLANEOUS EM Textile Factories. Non-Textile Factories and Workshops. Coal Mines.* Metalliferous Mines. + Chim- ney Sweep- ers. Agric. Gangs (Eng. & Wales only). Public Enter- tain- ments. 1887. Below ground. Boys 12 (no excep- tions). Above ground, Boys and Girls, 12 ; full time, 13. 1900. Below ground, 13. : 191 1. Below ground, 14. Above ground, 13 (Boys and Girls). 1900. Be- low ground, 13. 1891. 11 ; full with educational 1901. 12; full with educational time, 14, or 13 certificate. time, 14, or 13 certificate. 1889. 7. 1903. 10. * Since 1872 the Coal Mines Acts, as distinct from the Metalliferous Mines Acts, have covered ironstone mines. t From 1899-1903 Local Acts in several town empowered the municipal authorities to fix a higher minimum age than 11. X In 1894, by the Quarries Act, the provisions of the Metalliferous Mines Act with regard to the Employ- ment of Children were extended so as to cover children employed in quarries over 20 feet deep. f EMPLOYMENT IN THE UNITED KlNGDOM-continued. PLOYMENT ACTS. Street i General Trading.tl Employ- ment. EDUCATION ACTS. (School Attendance Provisions.) England & Wales. Minimum Age for Employment. Bye-law-making Powers re School Attendance. Minimum Age for Employ- ment. Exemption provisions. Ireland. Minimum Age for Employ- ment. Exemption provisions. 10 1894. 11. 1903. Local Authori- ties em- powered to raise mini- mum age up to 16. ] 1880. Enactment of jbye-laws made com- Spulsory on all Local Education Authorities. Education Department 1893. 11. given power to make bye-laws in default of the Local Authority. 1900. Higher age limit of children sub-' 1901. 12. Up to 14 ject to bye-laws ex- educational certificate tended from 13 to 14. required. School Boards given complete discretion with regard to granting or with- holding such certifi- cates. 1899. 12; cept that in rural areas 1903. Education Local Authority Authori- may allow ties em- partial exemp- powered tion at 11, if to fix total exemp mini- tion not al mum lowed till 13 age up to 14. I 1908. School Boards empowered to compel young persons aged 14-17 to attend con- tinuation classes dur- ing the normal hours o f employment, a s regulated by Act of Parliament. 1892. In municipal boroughs and towns and townships under .Commissioners, e m - ployraent of children under 11 forbidden, ex- cept in setting or plant- ing of potatoes, hay- making or harvesting ; educational certificate required for employ- ment of children aged 11-14, except where lallowed by Factory [Act. Commissioners of ;Education empowered to extend provisions to suburbs. ; 1898. Same provi- sions applied to County Council areas. M-1 Ij S I ■^ H UJ 2 W 8 IS >< -Si o *"tS hJ S fe 5^ W o o -t fe ^ 05 •^^ w S o < ;n s s t3 h^ 2 t^ .is >> >: ^ Oi CLh (X •d f) 03 ^ H-4 X o o Ol 0* u M Cm CLh di CL| d, o o Ph P-i P-i o* o o 0-1 Ph 'fi 1| •SI o bS - ^ ^ s g i ^ ^ n 3 "^ ^'^ MH M X »-* ,0 3 ^> bSj'-' 2 bO t> 45 U > ^ : 3 XT3 t;? id TO -t-* i 't:;3 -5 >^i« « rt 3 1 £ a^ rt 3 !3 ■»^ t- j^ - — - - 3 tC g 3 3 «> M^ r3 j:; ■3 '1-1 3 (f) <3 3 ^ a c^ .S "*S , o age for employment in factories and elsewhere. This has been achieved in the English Education Acts partly by the establishment of a statutory minimum age for employment, or from exemption from full-time school attendance, and partly by the bye-law-making power given to local authorities. The Act of 1876 fixed 10 as the minimum age for employment, while the minimum age in non-textile factories and workshops was still 8. School Boards (wherever they existed) were empowered, but not obliged, in 1870, to make com- pulsory school attendance bye-laws concerning children aged 5-13. In 1876, School Attendance Committees were given similar power in areas where School Boards did not exist. In 1880, the adoption of bye-laws was made compulsory in all areas, and in 1900 the higher age limit of children subject to bye-laws was raised from 13 to 14. Meanwhile, the Act of 1893 had fixed II, and that of 1899 12 (with a small exception), as the lowest age at which bye-laws might exempt children from school. In Scotland, the Act of 1870 made it necessary for a cliild to secure an educational certificate before he or she could be employed. The Act of 1878 fixed 10 as the minimum age for employment, and continued the educational certificate system, but laid down specifically that the part-time employment allowed by the Factory Act was not fmlher hmited in any way by the Education Acts. The Scottish Education Act of 1901 raised the minimum age for employment to 12 at the same time as the amendment of the Factory Act achieved the same end as regards employment in factories and workshops. Unlike the existing English and Irish Education Acts, this Act also clearly overrides the right of employers under the Factory Act to engage children aged 12 to 14 for half-time employ- ment without the consent of the local Education Authority. The Irish Education Act of 1892 fixed II as the minimum age for employment (with certain excep- tions) in all municipal boroughs and towns and townships under Commis- sioners, and forbade the employment of children aged over 11 unless they possessed an educational certificate or unless their employment was such as was allowed by the Factory Act. This system was, in law, extended to all rural areas in 1898. But the financial difiiculties and sectarian strife which characterise Irish administration have prevented the execution of the law, and, according to the report of the Commissioners of National Education in Ireland for 1912-13, 38 municipal and iii rural districts had in that year not yet established School Attendance Committees in accordance with the Act of 1892.* The success of the Education Acts of the three kingdoms as a means of establishing a higher minimum age for employment than that established by industrial legislation, has, however, been qualified by two considerations, which have formed the subject of controversies, now historic. The first consideration centres round the question of the power of the Education Act, or of bye-laws made thereunder, or (in the case of Scottish and Irish Acts) of administrative action thereunder, to prevent children from being employed under the Factory Act, when the Factory Act taken by itsejf would allow them to work. It has been noted above that the Scottish Act of 1878 and the Irish Act of 1892 specifically wthheld from local authorities the right to prevent children from being employed under the Factory Acts in accordance * See page 41 of the Report of the Commissioners of National Education in Ire- land, School Year 1912-13, Cd. 7141. School Attendance Committees existed in 92 urban and 141 rural districts. The clearest and most concise account of the development of the school attendance provisions of the English Education Acts is contained in the Report of the Inter-departmental Committee on Partial Exemption, 1909 (Vol. II., pp. 286-8, Cd. 4887). with the provisions of those Acts. The question of the power of bye-laws made under the EngUsh Education Acts to override the Factory Acts had been the subject of htigation for nearly forty years. As regards full-time employment the question is not important. The Factory Acts have since 1878 rather" strengthened the hands of local authorities in connection with the complete exemption of children from school ; and although the English local authorities (vmJike the Scottish authorities since the Act of 1901) cannot unconditionally prohibit full-time employment before the age of 14, they can, by strict administration, reduce the number of children, who obtain full-time exemption, to a negligible quantity. There are still educational administrators who hold the \dew that the English local authorities can prohibit half-time employment under the Factory Act. But there can be little doubt after the latest judicial decisions that, however unfortunate the situation may be, this cannot, in strict law, be done. The Home Office and the Board of Educa- tion both appear to accept this view.* Nothing but an amendment of the inextricably confused and incompetently contracted EngHsh law of school attendance can aboUsh the legal right of employers to engage children for half-time labour under the Factory Act, at any rate if the children have made 300 attendances at school in each of five previous years. The second weakness of the Education Acts, as a means of restricting employment, is the fons et origo of the main subject of this volume. Whatever may have been the intentions either of the draughtsmen of the Acts or of the Parhaments which passed them, it is certain that in fact the Acts have not availed to prevent the employment of children attending school out of school hours. It has not even been possible to enforce the apparently unconditional minimum age of 10, which was established by the Enghsh Act of 1876 and the Scottish Act of 1878. The question as to whether the employment of children out of school hours is prohibited by the Enghsh Acts has never been tested by the Courts. But it is doubtful whether, even if a decision had been * Cf. Report of the Inter-departmental Committee on Partial Exemption, 1909, Vol. II., p. 287 (Cd. 4887) ; Report of the (Board of Education) Consultative Committee on Attendance, Compulsory or Otherwise, at Continuation Schools, 1909, Vol.1., pp. 277-8 (Cd. 4757). Cf. also a Report of the West Riding Education Committee with regard to certain proposed school attendance bye-laws (quoted in Yorkshire Post and Bradford Daily Telegraph, nth March, 1912) containing the following passage: "It is clear that the bye-laws do not abolish half-time in factories and workshops, and they do not profess to do so. Half-time is permitted in factories and workshops under the Factories and Workshops Act, 1901, and the following proviso in the bye-laws expressly reserves the rights of children to attend half-time in factories and workshops : ' Provided always that nothing in these bye-laws have any force or effect in so far as it may be contrary to anything contained in any Act for regulating the education of children employed in labour or other- wise.' The Home Secretary states that he is advised that in the case of Stevenson v. Craig it was decided that a child who had made the attendances required as a condition of partial exemption from school attendance under the Elementary Education (School Attendance) Act, 1893, Amendment Act, 1899, viz., 300 attendances in each of five preceding years, could be employed half-time in a factory, notwithstanding that the bye-laws contained no provision for partial exemption. The case did not raise the further question whether a child who had failed to make the attendances so required was entitled to be employed half-time in a factory or workshop if attending school half-time. The Inspectors of Factories are instructed in the case of any half-timer who is found by them to be employed in a factory or workshop without a certificate of exemption from school attendance, and for whom such exemption is claimed on the ground of compliance with the Act of 1899, as regards previous attendance or otherwise, to refer the matter to the local Education Authority for any action they may consider necessary. As regards total exemption, the bye-laws operate for the purpose of the Factory and Workshop Act, and a certificate of proficiency (Standard VII.) as required by the bye-laws is necessary to secure such exemption." given under the Education Acts against the employment of children in this way, the Acts, worded as they are, would have proved a sufficiently effective weapon for dealing with such cases before the average petty sessional court, even with regard to the employment of children aged under lo. At any rate, the Inter-departmental Committee, which was appointed to inquire into the question in England and Wales in 1901, decided that fresh legislation was necessary, and the Employment of Children Act was the outcome of its labours. In Scotland the Education Act of 1878 had specifically recognised out-of-school employment, and had attempted to restrict it by hmiting the hours within which it might take place. But the prohibition of the employ- ment of children aged under 10 was apparently nulhfied by the drafting of the Act,* and the restrictions with regard to the hoius of labour do not seem to have been effectively enforced by the School Boards. It was thought desirable in 1903 to make the provisions of the Employment of Children Act appHcable to Scotland, and also to Ireland, since the Irish Education Act of 1892 did not affect the employment of cliildren out of school hours. The fourth method of reducing child labour — \dz., by the limitation of the number of children or juveniles employed in any trade in relation to the number of adult workers — has played only a relatively unimportant part in the history of English child labour regulation. Trade unions have often attempted to secure such regulations by collective bargaining in the interest of their members ; but the legal hmitation of the proportion of juvenile workers only appears in the earliest and latest child labour regulations, and then only in a very modified form. The Chimney Sweepers Act of 1788 forbade masters to take more than six apprentices. The Trade Boards established under the Tr?.de Boards Act of 1909 for the Hand-hammered Chain, the Dollied or Tommied Chain, and the Machine-made Lace and Fancy Net finishing Trades have required that aU learners who receive less than the minimum rate pay- able to adults shall obtain certificates from the Trade Board. They have laid down that " in granting or withholding such certificates the Trade Board may take into consideration whether, having regard to the number of learners employed in any factory or workshop or under any journeyman or worker, the learner proposed to be certificated has a reasonable prospect of receiving due instruction. Provided also that the certificate may be withdrawn if the Trade Board consider that the conditions have ceased to be such as would have originally justified the grant thereof." The determination of the Paper Box Trade Board also contains the following clause : — " A female learner is a worker who is employed as described in Section 2 hereof, subject also to the following conditions : — (c) Is employed by an employer who provides such learner with reasonable facilities for practically and efficiently learning the branch or branches of the trade (as carried on by the employer subject to the provisions of this Section) in which the learner is for the time employed. The Trade Board may, if any of the conditions . . . are not in fact comphed with, cancel the original certificate, "t * Cf. below pp. 16-7, 27. t Memoranda in reference to the working of the Trade Boards Act, H.C. 134, 1913, pp. 17 seq. It may be noted that a large number of Australian Wages Boards have limited the proportion of apprentices who may be employed. The foregoing account mil, it is hoped, have served to make clear the various categories into which employed children aged imder 14 have been di\'ided by child labour legislation in the United Kingdom. They are as follows : — 1. Children aged 13 employed full-time under the Factory Act with an educational certificate. 2. Children aged 12-13 inclusive employed half-time under the Factory Act. 3. Children aged 12-13 inclusive employed under the Coal and Metalliferous Mines Acts (either above ground or, in metalliferous mines, underground). 4. Children aged 12-13 * inclusive in Great Britain, or 11-13 inclusive in Ireland, employed full-time outside the Factory and Mines Acts. 5. Childi'en aged 12-13 inclusive in Great Britain, or 11-13 inclusive in Ireland and in agricultural districts of England, employed under a system of partial exemption from school attendance in miscel- laneous occupations outside the Factory and Mines Acts. 6. Children attending school full-time and employed out of school hours in miscellaneous occupations. The second branch of child labour legislation, as defined above, consists of the imposition of conditions upon the employment of those children who are allowed to work. There are six important protective principles underlying the greater part of the complicated inclustrial code of the United Kingdom : — (i) The protection of leisure by means of — (a) the estabhshment of maximum daily and weekly hours of labour ; {b) the estabhshment of a normal working day (viz., the fixing of limits for the maximum working hours) ; (c) the hmitation of speUs of work, and the provision of compulsory meal-times ; (d) the pro\nsion of compulsory holidays, viz., : (i.) one compulsory complete weekly rest-day — i.e., Sun- day, or, in the case of Jews, Saturday ; (ii.) one compulsory weekly half -holiday — generally Satur- day ; (iii.) compulsory additional rest-days or half -holidays, generally coinciding in part with the customary secular or religious holidays. (2) Provision for education : (a) by part-time attendance at school ; [b) by regulations with regard to the training of learners, such as those specified in the Trade Board determinations. (3) The safeguarding of general moral conditions {i.e., through the systems of licensing obtaining for agricultural gangs and employment in public entertainments). (4) The protection of health by means of : {a) sanitary regulations affecting premises (provision of ventilation, conveniences, lime-washing, etc.) ; * There are still a few thousand children wlio are completely exempted from school attendance at the age of 12 in England and Wales. Even cities such as Manchester and Bradford contain such children. (b) regulations affecting the employees themselves {e.g., com- pulsory washing of hands in dangerous trades).* (5) The prevention and mitigation of accidents by means of : (a) regulations affecting premises and machinery {e.g., fire- escapes, fencing of machinery) ; (6) personal regulations {e.g., compulsory wearing of respira- tors) ; (c) compensation for, or compulsory insurance against, accidents. (6) The protection of earnings by means of the regulation of : {a) the place of payment {e.g., prohibition of payment in pubhc- houses) ; (b) the method of payment (prohibition of truck) ; (c) the method of contracting {e.g., compulsory statement in writing of piece-work particulars) ; {d) the method of recording earnings (provided for in the par- ticulars clause — and under the check- weighing system) ; {e) the regulation of fines and deductions ; (/) the estabhshment of a legal minimum wage. To describe, even in outline, the development of the expression of each of these " protected principles " in legislation and administration would necessitate a summary of the whole history of modern English industrial regulation. As regards principles (4), (5) and (6), children are, for the most part, protected by provisions which apply to all employees of all ages ahke. There are, however, apart from the complete exclusion of children from dangerous trades, certain measures which are specially devised in order to safeguard the health and security of juvenile workers. Thus the certifying surgeons can, and not infrequently do, require through the issue of conditional certificates that children or young persons under 16 shall wear spectacles, shall not be employed in a dusty atmosphere, or (in the case of girls working near machinery) shall wear the hair tied back. Weight -carrying by children and young persons was dealt with in 843 certificates in 191 2, and is also regu- lated in Orders issued under the Factory Act in connection with fruit - preser\dng and the manufacture of pottery. The trade boards have also fixed special minimum wage scales for juveniles. Principles (2) and (3) are connected almost wholly with the employment of children and young persons. Regulations for the safeguarding of general moral conditions only play a very small part in the English industrial code, as compared with (for instance) the German. The system of part-time education, as a condHion of employment, originated with the Factory Act of 1833, and was converted into the half- time system of 1844, mainly owing to the efiorts of the great inspector Leonard Horner. The lingering remnants of the half-time system of employment for * The system of National Health Insurance established bj^ the Acts of 191 1 and 191 3 does not affect the question of health conditions in work-places, except indirectly to a small extent. The decision of Parliament to provide a considerable proportion of the funds for administering the scheme by means of a poll-tax collected through employers of labour, does not affect the fact that the scheme is not a measure of industrial regulation. Children and young persons aged under 16 are excluded from the scheme. It is noteworthy that, while there is now a school medical service to meet the needs of children attending school and a scheme of national health insurance to provide medical attendance for workers aged over 16, the only special public medical service for the benefit of boys and girls aged under 16 who have left school is the very imperfectly organised system of meaical inspection (A\ithout treatment) conducted by the certifying factory surgeons. The juvenile workers aged under 16, the non-employed women, and the children below school age, are the three sections of the community which are most neglected from the public health point of view children, which was rightly regarded at its initiation as a great achievement, and which moved the admiration of Karl Marx* are now the anathema both of educational and of factory reformers. But the pregnant phrases in which Marx described the advantages of the combination of education and employ- ment as " the only method of producing fully developed human beings," may be read with profit at a time when we are witnessing the birth of a new half- time system, applied to the years of adolescence, instead of to those of childhood. The restriction of the hours of labour is the central and most conspicuous feature of the protection of employed children. Its history in connection with children employed under the Factory Acts is best summarised in tabular form. The details are somewhat intricate, and the following table aims at giving substantial accuracy without complicating the figures by relatively unimportant exceptions. DEVELOPMENT OF NORMAL MAXIMUM WORKING DAY FOR CHILDREN UNDER THE FACTORY ACTS. Textile Factories. Children emploTed as Youne Persons. CHILDREN EMPLOYED UNDER PART-TIME SYSTEMS. DATE OF ACTS. Morning and Afternoen Sets. Alternate Day System. Normal Normal Normal Maxi' Work- Maxi- Maxi- mum Sats. ing mum Working Week. mum Working Week. Working Week. Working Working Days, Day. Day. 1802, 1819 12 13 72 — 1825, 1831 12 9 69 — — — — 1833 12 9 69 8 48 — — 1844 13 9 69 7 42 10 30 1847 10 8 58 7 42 10 30 1850 10* 7f 60 7 4ii 10 30 1874, 1878 10 6i 56^ 6* 34 and 32J in alternate weeks. 10 30 and 26J in al- ternate weeks. 1901 10 5i 5Si 6i 33 and 32^ in alternate weeks. TO 30 and 36|- in al- ternate weeks. Non-Textile Factories and Workshops. 1845 to i867t 1878, 1901 io| 10^ 7i 7\ 60 60 7 6^ 41^ 34 and 32^ in alternate weeks. 10 10 30 and 37^ in al- ternate weeks. 30 and 27^ in al- ternate weeks. Male children employed as young persons might, in certain trades, work at night until 1901. But in that year night-work was aboUshed for all children under 14. The Mines Acts of 1842 and i860 did not deal with the hours of labour, except that the Act of i860 required that boys aged lo-ii inclusive should attend school for six hours a week if they did not possess a certificate of educational proficiency. The school attendance (if enforced) probably did not affect the ordinary hours of labour. The following table shows the course of the regulation of hours by the Mines Acts. * See Mar.x, " Capital," English translation, loth edition, 1904, pp. 488-9. t The standards indicated in this line were only secured at the end of the period 1845-1867. by the gradual extension and improvement of the Factory Acts during these years. in H O < S S ad a Q 1^ H Di W Q X o cd o < Q o 2 o « w Q > 5 u 1— 1 pq o s "< (^ ^■2 s O ■5 m g 'P ,5^ s O P TJ "5 a ^ li-1 P4 Z w P o g ^1 fe o P.S 13 H s •^ 1 w H ^ § '5 s pq PP s VO '3 -g^s ro o 1-§ 1 u 1 6.§ ''^ ro wh S ON ^^ pq 6 rt ^ Q o Pi O w > C3 t! en rt ^ a (3 ^ S o < <1J -S 1 ^ Tf ^ ^«j V 1 u-l u-i r^ 6 ^1 66 -.6 03 ^ s c^ 2^ ^ <^ c/5 f-; 53 •«. !"=« ^ ^ pq ^ s rt _^ g J u^ ^ s CO -< o ^ -I 3 s u 1 1 O 2 §^ 6h 6 to ^ ^ Q G O ^■^.s « '2 1 1 pq ^ Q § ^ O s ^ ^s s "S . '^ Ti- 00 M >>aj k"" h \J^ 10 ■* PQ -2 6 ^" g U3 (In •^i >-. OO § '2 pq o\ t^ t^ 00 l-« 00 00 ON " '-' " a, o 'a ^ . 0) ry) ^ Tl -M c< r<- o lO eo iO eo d M-l o ^ «* ^ ^ «" w o ,a ^1 >.a:s 1 o Ti- ^1° 6 Q Q i So HZ ^ 1 itj Ho Normal Daily- Maximum. O l-l 1-1 ^ CO- o '. -d !-< ci (D o ^ Sj3 6< i i i ■: CiC iH »M 3 TJ^ ,-1.2 en O O c3 •-3.S w o « § b o Q en r- -1- o 5 Q W Ji ti 4 ■^ en" en Xj '•^ >> iH J- >— 1 xjyo .r^j ro N o C CI---2 •^ g 2 .S ^' U (1) 3 01 T3 ^H C g ^ TJ ■" K^ 3 c t3 S " 2^° ^ s 7^ •— 1- ^■•B< •? — -d . '2< -S *^ ?>. as c 3 1; >> as rG y en -cog M fi ^ u-t December, 1912, the number of half-time pupils of all kinds in Irish elemen- tary schools was 3,606, a number considerably smaller than the figure for the factory and workshop half-timers in 1907. In Scotland the number of half- timers seems to be dechning to a neghgible quantity.* In view of all these facts the estimate of factory half-timers in 1912 has been arrived at by reducing the figures for English and Irish half-timers in 1907 by 1,000 each and the figures for Scottish half-timers to 200. The figures for Class III. of employed children are taken from the General Report of the Chief Inspector of Mines for 1912 (Part I., pp. 11-3, Cd. 7025). AH except two of the 4,824 children employed about mines and quarries in 1912 were working above ground. f Only 30 of them were girls. The numbers given for Class IV. are calculated in the following manner. The Consultative Committee of the Board of Education estimated, in 1909, that there were, in 1906-7, 211,164 children between 12 and 14 whose names had been removed from the registers of pubhc elementary schools. { It appears that the number of children aged between 12 and 14 in attendance at Enghsh and Welsh elementary schools has increased by less than 30,000 (to 1,032,392) between 1906-7 and i9ii-i2.**The estimate of the Consultative Committee is therefore probably substantially correct for the year 1912. (The tendency to keep children longer at school may be set off against improved trade, which encourages exemptions, and against increase of population.) Deductions are made from this figure of 211,164 {a) of 55,000, being the estimate for full-time children under the Factory Act, (6) of 4,740, being the number of children employed under the Mines and Quarries Acts, and (c) of 15,000, being the estimate for exempted children not employed. This leaves 136,424 as the estimate for children employed full-time in England and Wales outside the Factory and Mines Acts. The number of exempted children aged 12-13 inclusive in Scotland on 30th April, 1912, was 3,500. ft From this is deducted (rt) the estimated number of Scottish children employed full time in factories, (6) 84, viz., the number of Scottish children employed in mines, and (c) an estimated number (250) of children, who obtain exemption and are not employed. The number of completely exempted Irish children is calculated from the return of the ages of children in attendance at Irish elementary schools, contained in the seventy-eighth report of the Commissioners of National Education in Ireland (p. 20). The number of children aged over 9 and under II is here given as 142,118. It appears, therefore, that, if all Irish children remained at school until reaching the age of 14, the number of children in attendance at school aged between 11 and 14 would be about 200,000. But the actual number in attendance at these ages was according to the Commis- sioners, 170,104 in 1912-13. The total number of wholly exempted Irish children appears, therefore, to be 29,896, a figure which probably errs on the sideof smallness.JJ From this figure must be deducted the estimate of 3,500 * Report of Committee on Partial Exemption, Vol. II, Q. 1304, and p. 246. The half-time system is, however, not yet extinct in Scotland. (C/. Report of Chief Inspector of Factories for 1912, p. 109, Cd. 6852.) f There would, therefore, seem to be no reason why the labour of children under- ground should not be prohibited in metalliferous mines, as it has already been in coal mines. J Report of Consultative Committee on Attendance at Continuation Schools, Vol. I., p. 27, Cd. 4757. ** Op. cit., p. 29, and Report of Board of Education for 1911-12, p. 48, Cd. 6707. ff Report of Committee of Council on Education in Scotland, 1912-3, p. 51, Cd. 6726. II On account of the imperfect system of enforcing school attendance, which prevails m Ireland. No allowance is made for the non-employment of exempted children in Ireland, partly because the figure of 29,896 is almost certainly too small, and partly because in the rural districts probably some use is made of the labour of nearly all exempted children in agricultural employments. Some allowance has been made for emigration in .calculating the figure of 200,000 But the whole calculation is very rough-and-ready. Irish children employed under the Factory Act, leaving 26,500 as the estimate of Irish children employed whole time outside that Act. The estimate of Class V. again involves a somewhat elaborate calculation. It is assumed that the proportion of the average number of half-timers in England and Wales to the total number of school children employed as half- timers at any time during the year was the same in 1912 as in 1906-7, for which year the Partial Exemption Committee obtained the actual figures in each case.* The Board of Education Report for 1911-12 gives 70,255 as the number of cliildren, who were partial exemption scholars during the year, as against 82,970 for 1906-7. If the average bore the same relation to the total number during the year in 1911-12 as in 1906-7, the average for the former year should have been 40,101. From this must be deducted the estimate of 31,140 factory and workshop half-timers, leaving 8,961 children employed part-time outside the Factory Act. The Irish Commissioners of National Education f give 3,606 as the number of half-time pupils on the roUs on 31st December, 1912. Deducting from this the estimate of 3,195 Irish factory and workshop half-timers, the figure for non-factory half-timers in Ireland is 411. The estimate for the number of wage-earning children attending school full time (Class VI.) is necessarily even more vague than those of any of the other classes of employed children. A calculation of the number of v.-age- earning school children employed in England and Wales was made in the year 1901 by the Inter-departmental Committee on the Employment of School Children. J The estimate was certainly not exaggerated at the time when it was prepared. Since 1901, the influence of the Employment of Children Act Act has reduced the amount of emplo^nnent of school children in some districts. But, on the other hand, the population has increased, and the age of school attendance has been raised. If the children employed in industrial work at home (whom the Interdepartmental Committee estimated at 15,000) are included in the Committee's figure of 240,000 (since it is practically impossible to distinguish home-working children employed under the Factory Act from those employed outside it), it is certain that this figure is an absolute minimum for the present time. The only other basis on which an estimate could be formed of the total number of children attending school fuU-timc, who are engaged in employment, v/ould be the figm^es obtained by local education authorities in the latest and most rehable inquiries into wage-earning by children, made through the schools, such as those at Birmingham, Leeds, and Dewsbury, alluded to below (pp. 237, 251, 248). The proportions borne by the figures obtained in these inquiries to the total number of children aged over 7 in the local schools can be calculated. The proportion thus obtained maj' be assumed to apply to the children attending school in the whole country, and an estimate of the total number of wage-earners amongst them can thus be formed. An examina- tion of the figures for Leeds, Birmingham, and Dewsbury, makes it clear that the estimate formed in this way would be considerably higher than the figure which is actually adopted. The percentage of employed children (other than street traders) in the senior departments of the elementary schools of Birmingham was 9.32 in 1912. The inclusion of the 1,500 hcensed street -trading school children would bring the percentage up to over 10. The percentage of employed Dewsbury children in the same year was 7.6, while the percentage of Leeds * Report, Vol. II, pp. 236, 246. ■{• Seventy-Ninth Report, p. 43. I Report, p. 17, Cd. 849 (out of print). children was 7.8. It should be noted that general employment bye-laws were in force in none of these towns, when the inquiries were made. But it would seem that 7 per cent, is the lowest proportion of elementary children aged over 7 throughout the country who can be assumed to be employed. There are almost exactly 4 million school children aged 7-13 inclusive in England and Wales.* The number employed would therefore appear to be over 280,000. But since it is well to avoid any possibihty of exaggeration, the estimate based on the figures adopted by the Inter-departmental Committee is allowed to stand. The estimates of 34,000 for Scotland and 30,000 for Ireland are obtained by assuming that the number of wage-earners in these countries bears roughlj' the same proportion to the total number of school children as it does in England and Wales. It may, therefore, be taken as an established fact that the total number of employed children aged under 14 in the United Kingdom is over half a million — possibly considerably over 600,000. The detailed figures of the estimate are given with considerable diffidence, and with a full conscious- ness of the defects in the methods by which they have been calculated. But since no Government Department or private investigator has even attempted before to make such an estimate, in spite of the considerable amount of attention which has been devoted to the child labour problem in the last decade, it seems desirable that an effort should be made to secure an ap- proximation to the truth, if only in order to encourage more adequate inquiries in the future. The Census Returns of the number of employed children aged under 14 are of very little value except to a limited extent in the case of some of the occupations in which children cannot be emplo3''ed without being exempted from school attendance. The following table shows the number of children aged under 14 in Great Britain recorded as " occupied " in the censuses of 1901 and 1911. (The figures for Ireland are not available.) 1901. 1911. Boys. Girls. Total. Boys. Girls. Total. England & Wales Scotland . . 138,130 10,977 70,262 6,652 208,392 17,629 97.141 1,016 49,276 590 146.417 1,606 Total .. 149,107 66,914 225,021 98,157 49,886 148,023 The number of children aged under 13 recorded as " occupied " m England and Wales was 36,452 in 1901 (including 13,314 girls) and 31,823 in 191 1 (including 10,243 girls). In Scotland the number of children aged under 13 enumerated as " occupied " was 3,175 in 1901. The figure is not given in the last census. It is obvious from the most superficial comparison of these figm^es with the estimates calculated above that the former are far too small. The deficiencies in some of the details of the census figures are easy to detect. For instance, the total number of children aged under 14 engaged in street trading in 1911 is given as 8,513 (including 82 girls) in England and Wales and 11 (including two girls) in Scotland. Similarly the number of children engaged in agriculture in the same year is stated to have been 9,654 (including 496 girls) in England and Wales, and 87 (including 16 girls) in Scotland. It * Report of Board of Education for 191 1 -12, p. 48, Cd. 6707. would seem that the under-statement of the facts of child labour which appears in the census figures is due mainly to the failure to secure the enumeration of wage-earning school children as "occupied," although some employed children, who are exempt from school, are also probably wrongly excluded from this category.* * The Abstract of Labour Statistics issued by the Board of Trade, in the pages devoted to the occupations of children aged under 14, reproduces the census figures without comment. This is misleading to those who use the Abstract without a knowledge of the deficiencies of the sources upon which it is based. PART L The Development of Child Labour Regulation (outside Factories^ Workshops^ and Mines) in the United ^ Kingdom. The Development of Child Labour Regulation (outside Factories; Workshops and Mines) in the United Kingdom* 1. THE *' CLIMBING BOYS *' (Chimney Sweepers). Forty j'ears before the passing of the first Factory Act in 1802, the earhest* recorded agitation in England for the protection of child labour on modern lines began. In 1760 an anonymous letter appeared in the Public Advertiser, -f calling attention to the ill-treatment of chimney-sweepers' boys, and, in particular, the inadequacy of the clothing with which they were provided by their masters. The letter came to the notice of Jonas Hanway, the philanthropist, who made inquiries into the conditions under which these children were employed. He found that girls, as well as boys, were sometimes employed to sweep chimneys. Children, from the age of five upwards, were compelled to climb chimneys in a perfectly naked state and contracted skin and other diseases from contact with the soot. Frequently the climbing boys were crippled for life. Generally they found themselves unable to remain at the trade after reaching the age of sixteen. Sometimes they were compelled to ascend chimneys in order to put out fires. On occasions they were said to be actually bought and sold,| or hired out by a master, who kept an excessive number of apprentices. * There had been a certain amount of discussion as to the treatment of pauper apprentices during the eighteenth century. In 1697 the Board of Trade had inquired into the question, and a Bill had actually been drafted to deal with it, (cf. Dunlop and Denman, " English Apprenticeship and Child Labour," 1912, pp. 256-260). But there does not seem to have been any attempt, except the climbing boys' agitation, to secure the legal protection of working children other than pauper apprentices. In an anonymous " Sketch of the Life and Opinions of Richard Oastler," published in Leeds in 1838, it is stated (p. 4) that Richard Oastler's father, Robert Oastler, a cloth merchant of Leeds, " was the father of the agitation on behalf of the ill-used and neglected climbing boys, in which he spent much time, as well as money." It has not been possible to trace any other references to Robert Oastler's activities in this direction. The passage in the anonymous " Sketch of the Life and Opinions of Richard Oastler " is quoted in " Richard Oastler, the Factory King," by Arthur Greenwood (published by the Huddersfield Branch of the Workers' Educational Association, in connection with the celebration of " Oastler Day," 8th June, 1913). t. Quoted by Jonas Hanway, " Sentimental History of Chimney Sweepers," pp. XX. -XXI. ; also by Hodder, " The Seventh Earl of Shaftesbury, K.G., as Social Reformer," pp. 69-70. + Cf. Blake's poem " The Chimney Sweeper," in his " Songs of Innocence," pub- lished in 1787 : WTien my mother died I was very young. And my father sold me while yet my tongue Could scarcely cry, " Weep ! W^eep ! Weep ! Weep ! " So your chimneys I sweep, and in soot I sleep. " Poetical Works of William Blake," edited by W. ]\I. Rossetti, 1885, p. 83. Blake was evidently deeply moved by the details of the lives of the climbing boys. See his references to their bags [of soot] and brushes in the latter part of the poem. In 1770, Hanway secured the co-operation in a practical scheme of one David Porter, a model employer amongst chimney-sweepers, who had " derived his principles of philanthropy " from Hanway himself and Horace Walpole. Hanway and Porter endeavoured to improve the lot of the boys by forming a " friendly society " amongst the masters. But the masters were found to be too rough and uncultivated to be susceptible to moral influences. The meetings of the society became disorderly, and Porter himself recom- mended its dissolution.* Three years later several London merchants, under Hanway's influence, formed a Committee to deal with the question. In June, 1773, the Committee addressed a letter to all known master chimney-sweepers, drawing their attention to the abuses connected with the employment of climbing boys. The remedy proposed was that all the boys should be legally indentured. The Committee claimed to have made a beginning with the introduction of the system of indenturing, and enclosed a form of indenture for the information of the master sweepers. But in six months the Committee only succeeded in securing the indenturing of 15 boys. In December, 1773, they therefore addressed a second letter to the master chimney-sweepers, in the course of which they wrote : " If such evils cannot be remedied by an association of your trade, we are to inform you that it is intended to appeal to Parliament, in the hopes of restraining master chimney-sweepers from taking a certain number of apprentices, as the weavers of Spitalfields have been, agreeable to the regulation established by the authority of the legislature." Apparently the Committee of Merchants were prepared to pay, or to assist in paying, for the five-shilling stamp which had to be affixed to the indentures. Hanway states | that a considerable number of apprentices were thus " regularly placed out," and that for a short time the treatment of the boj^s improved. " But," he continues, " this was not of long continuance ; nor is it to be conceived that any method less than a legislative regulation can control a body of people of whom many are as unaccustomed to moral as to political discipline." In 1785, therefore, Jonas Hanway published in his " Sentimental History of Chimney Sweepers " a direct appeal for legislative interference. His proposals were as follows : All chimney-sweepers were to be formed into a Company, with a Master, Warden, and Court of seven Assistants. There were to be separate " fraternities " for each district. All chimney-sweepers were to be licensed. Only hcensed masters (not journeymen) should take appren- tices, and all climbing boys must be legally indentured, and not under eight years of age. No master was to have more than four climbing boys at one time. Boys under 14 were not to be hired out from one master to another, and boys below a certain age were not to be employed at calling for work J in the streets. On Sundays all apprentices should be properly dressed and washed and allowed to attend public worship. Boys were not to be sent up * David Porter, " Considerations on the Present State of Chimney Sweepers," 1792, p. 15. f " Sentimental History of Chimney Sweepers," 1785, p. 67. + The pitiful spectacle of little children calling " Sweep " in the streets inspired Blake's second poem on " The Chimney Sweeper," beginning with the lines : A little black thing among the snow, Crying, " Weep ! Weep ! " in notes of woe ! This poem was published in his " Songs of Experience " in 1794. {Cf. " Poetical Works of William Blake," edited by W. M. Rossetti, 1885, p. 103.) chimneys measuring less than a certain size. Finally, in order that the chimney-sweepers might not be able to urge inadequate remuneration as an excuse for the maltreatment of their boys, Hanway proposed that the precedent of the Spitalfields Act should be followed in the estabhshmcnt of legal minimum rates of pay. " In order," he wrote, " the more effectually to furnish them with the necessaries of life, food, raiment, cleansing their persons, decent lodging, and suitable instruction, it shall be lawful to demand one shilling for [sweeping] every chimney not being a kitchen chimney, and eighteenpence for a kitchen chimney."* Hanway 's proposals are full of interest as representing the transition from ancient to modern ideas of industrial regulation. He suggested the formation of a " Company " primarily as a means of securing some regulation of child labour. The old ideas of the limitation of the number of apprentices and the minimum standard of remuneration, had been previously upheld in the interest of the adult workers in various trades. Parliament had, in 1773, applied them to the Spitalfields weavers from that point of view."]" Hanway proposed the adoption of these principles, but in the interest of the children, not of the existing adult workers in the trade. In fixing a minimum age for the employ- ment of children as climbing boj^s, he was evidently influenced by the views of some of the magistrates, who supervised the apprenticing of Poor Law children. But the idea of statutory regulation both in this and in the other detailed proposals for protecting children, was new. Hanway died in 1786. But as the result of his efforts, a Bill to regulate the conditions of chmbing boys was introduced into the House of Commons in 1788. The Bill fixed eight as the minimum age for the employment of climbing boys. No master was to have more than six apprentices. It was forbidden to hire out apprentices. Boys might not be employed in " calling the streets." Apprentices were to be properly clothed and fed, were to wear a badge bearing the name and address of their master, and were not to wear their " sweeping dresses " on Sundays. Boys might not be made to climb a chimney which was actually on fire. Only householders might take boys as apprentices. The Bill was passed by the Commons without any alteration. But the Lords insisted on cutting out the clause limiting the taking of apprentices to house- holders, and provided that boys should be allowed to " call the streets " between 7 a.m. and noon in the winter and 5 a.m. and noon in the summer. According to Porter's view, these excisions very largely nullified the value of the Act. But even the provisions of the Act as they finally stood were largely a dead letter from the first. Porter wrote a pamphlet in 1792, in which he stated that the prohibition of the hiring out of boys was evaded, and the clause ordering the pro^•ision of proper clothing ignored. { In spite of his practical experience with the " friendly society," in 1770, he revived Hanway 's proposal for a corporation of master chimney-sweepers, suggesting it should carry out a systematic inspection of its own members. Possibly he hoped to secure effective discipline through the influence of the Lord Mayor, to whom he * The average price for sweeping a chimney was ninepence ; less than sixpence was often paid. Porter, "Considerations on the Present State of Chimney Sweepers," 1792, p. 25. f Cf. Webb, "History of Trade Unionism," 1911 edition, pp. 48-9, 55; Cunningham, " English Industry and Commerce, Modern Times," 1907 edition, p. 796. See also the Act itself, 13 Geo. III., c. 68. X Porter, Op. cit., pp. 19, 20. proposed to give a general control over the organisation. He laid special emphasis on the necessity of placing the boys out to other trades when they reached the age of i6 — since few of them could continue to be chimney-sweepers. Porter's proposals were taken up by the Society for Bettering the Condition of the Poor, who published in their collection of Reports for 1798 a report on the Chimney Sweepers' Boys by Sir Thomas Bernard,* one of the founders of the Society. The Bishop of Durham (another prominent member of this Society) was grieved to find that the chimney-sweepers' boys of Kingston- on-Thames were " not only destitute of instruction, but in some degree of clothing, and when unemployed were left to wander about in a state of nature, excluded from the advantages of rational and Christian beings." t He drew attention to the necessity of protection for the boys in country towns. In 1803 a special Society for Superseding the Necessity of Climbing Boys was founded. It received the patronage of the Prince Regent, and had a long list of subscriptions varying from one to ten guineas. It was active in practical measures, as well as in advocating reform by legislative interference. It offered a premium of two hundred pounds for the best " practical machine " for doing the work of the climbing boys. Having thus secured the invention of a " machine," it published what we shoidd now call a " wdiite list " of master chimney-sweeps who used it, instead of boys, and carried on a propaganda in favour of the " machine " by means of public meetings. It also appointed inspectors of its own, and set them to watch for cases of ill-treatment, while endeavouring to make the provisions of the law of 1788 known as widely as possible. Attempts were made in vain to induce Parliament to amend the Act of 1788 in 1804, 1807, 1808 and 1809. In 1817 and 1818 both the House of Commons and the House of Lords appointed Select Committees to report on the desirability of amending the Act. The Committees examined a large number of witnesses, and from their reports it appears that the horrors against which Hanway had agitated forty years before were as prevalent as ever. Children were stolen from their parents, or sold by them, or apprenticed by the Poor Law authorities. Moreover, the practice of cleaning chimneys by climbing boys was spreading. During the previous twenty years it had been introduced for the first time in Edinburgh. In the Bill promoted by the Society for Superseding Climbing Boys it was proposed that the minimum age for climb- ing boys should be immediately raised to 14, and that all climbing by persons under 21 should be prohibited after the lapse of a year. The Commons passed the Bill. But not even the revelations contained in their own Report could induce the Lords to agree to it. Nothing was done by Parhament till 1834. Then, in spite of the opposition of some of the Fire Insurance Companies, the minimum age was raised by two years (to 10), and it was enacted that flues should not in future be constructed so as to measure less than 14 inches by 9, and that all projecting angles should be rounded off. In 1840 Shaftesbury threw himself into the struggle. The Society for Superseding Climbing Boys is said to have had some success in suppressing the * In 1800 Bernard was advocating the legal regulation of the employment of children in cotton mills, on the lines subsequently followed by the Act of 1802. He had paid a visit to Dale's mill at New Lanark. See Reports of Society for Bettering the Condition of the Poor, Vol. II., 1800, pp. 363-374. t Reports of the Society for Bettering the Condition of the Poor, Vol. II., 1800, pp. 149-150. boys through its inspectors in London under the Act of 1834.* But Shaftes- bui"y found that the existing laws were still often ignored. Largely as the result of his efforts, the Commons, in 1840, passed a Bill to prohibit the employment of any person aged under 21 to climb chimneys in order to sweep or clean them or to extinguish fires in them. Chimney-sweepers were pro- hibited from taking apprentices under the age of 16, and further regulations were made with regard to the construction of flues. The Lords, after con- siderable opposition, finally consented to pass the Bill. The Act of 1840, like its predecessors, contained no provisions for inspection. Had it not been for the public-spirited action of private individuals, it would probably have remained a dead letter everywhere. In London, Shaftesbury himself successfully undertook one or two prosecutions soon after it was passed. On the whole, the Act seems to have had the effect of reducing the number of climbing boys employed in London. But in 1854 Shaftesbury wrote that he thought that " the accursed system was returning to London " ; and in 1862 the Children's Employment Commissioners found several cases of the employment of boys in London, although it was generally kept secret. Mean- while private societies were started in the Midlands to suppress the labour of climbing -boys. Some of them employed inspectors. The Midland Association presented 97 cases in 1857. The North Staffordshire Association in 1857, the first year of its operations, laid 36 cases, and by 1862 had completely suppressed the climbing boys in the Potteries. A Mr. Ellis had, mainly by his own efforts, succeeded in achieving equally successful results in Leicester. The Birmingham Association spent £500 in five years in attempting to suppress chmbing boys. Nevertheless, in 1862, 26 boys were employed by master chimney-sweepers in that city. Mr. Peter Hall, who had been_ agent for two societies in the Midlands, had in twenty years secured 400 convictions against chimney-sweepers for employing children. But it was only in some of the large towns that any effort was made by the police and by philanthropic associations and individuals to enforce the law. In Liverpool and Manchester, and in the smaller towns and country districts the law was altogether dis- regarded. A chimney-sweeper who lived near Hemel Hempstead, and who claimed to be the only sweeper in the county of Hertfordshire using machines instead of boys, wrote to Shaftesbury in 1862 complaining of his position. He had prosecuted one of the employers of boys, having secured a police- constable as witness of the offence. But the magistrates dismissed the case, and ordered him to pay 12s. costs, while one of them openly abused the Act ! In the greater part of Scotland and Ireland the evil was, at the beginning of the 'sixties, as great as in England. But in Glasgow and Edinburgh it had been successfully stamped out by means of Local Acts. The Glasgow Burgh Police Act, 1843, ordered that no person should act as a chimney-sweeper for hire unless he were licensed by the magistrates and town council, who were empowered to make regulations as to the conditions of the licence. Such regulations (including a fixed scale of rates for sweeping chimneys) were made and strictly enforced. In 1862 the provisions of the 1843 Act were re-enacted in another Glasgow Pohce Act, which also fixed penalties for the employment of young persons in ascending chimneys. In 1849 Edinburgh made regulations under a Local Act similar to those prevailing in Glasgow. ♦ Children's Employment Commission, First Report, 1863, p. 310. In 1862 the Children's Employment Commissioners conducted an exhaustive inquiry into the employment of climbing boys. It appeared that in spite of the Chimney Sweepers' Acts thousands of children were still employed in this way, and that the conditions of employment were still often as bad as they had been half a century before. The Commissioners were inclined to think that the employment of climbing boys was, at least in several districts, on the increase. They recommended that the licensing system which had been so successful in Glasgow and Edinburgh should be extended to the whole country. In 1851, and again in 1855, Shaftesbury had unsuccessfully introduced BiUs to strengthen the law, but had met with no support from the Governments of the day. In 1863* he was able to make use of the first report of the Chil- dren's Employment Commissioners, containing a mass of evidence on the subject. In that year he again introduced his Bill. At last — in 1864 — he succeeded, and an amending Act was passed. The improvements in the existing law consisted mainly in two provisions. A chimney-sweeper was prohibited from taking a person aged under 16 into a house in which he intended to clean a chimney ; magistrates were empowered to order imprison- ment as a penalty for offences against the Act. The licensing system recom- mended by the Commissioners was not adopted. There are indications that the Act of 1864 had some practical effects. For instance, the Chief Constable of Leicestershire claimed to have suppressed climbing boys by enforcing its provisions. But in 1866, the Children's Employment Commissioners, who were still continuing their work, made some inquiries from the various private societies dealing with the question, and found that the evil was as mdespread as ever in most of the Midland districts and in Yorkshire. Mr. Peter Hall stated that nothing short of the Glasgow and Edinburgh system of licensing chimney-sweepers would serve to meet the difficulties in enforcing any legal prohibition of the employment of boys. In 1872, 1873 and 1875, boys were suffocated in flues in Staffordshire, Durham, and Cambridge. On the third of these occasions Shaftesbury, backed by the Times, at last succeeded in thoroughly rousing the public, and the Chimney Sweepers Act of 1875 was passed. This Act extended the most important provisions of the Glasgow and Edinburgh system throughout the country. Every master chimney-sweeper who employed a journeyman, assistant, or apprentice! was compelled to take out a licence from the police, at a cost of half-a-crown. The Act further definitely laid upon the chief constable of every district the duty of enforcing the previous Acts of 1840 and 1S64. In 1894 it was provided that in England and Wales the fees received for the chimney-sweepers' licences should be applied to the local police pension fund. The regulation of the chimney-sweeping industry was not in itself a large or relatively important problem, as compared with the Factory Acts or Mines Acts. There were, at the beginning of the nineteenth century, only some 200 master chimney-sweepers in the whole of London. But the movement which occupied over a century in securing the protection of a few hundred — or, at * In this year appeared the first edition of Charles Kingsley's " Water Babies," which, along with Blake's poems mentioned above, has immortalised the climbing boy in English literature. ] The system was thus not quite as complete as that established in Glasgow and Edinburgh. In these towns every chimney-sweeper had to be licensed, whether he employed an assistant or not, and the local authority had power to fix the rates of pay. The Burgh Police Act of 1892 (Section 275) conferred these powers upon all Scottish municipalities. most, a few thousand — children is of special interest, for several reasons. It affords the first instance in this country of State regulation of child labour, as it is understood to-day. In its earliest phases it constitutes an important link between ancient and modern ideas of State interference with industry. And, finally, the whole agitation is an extraordinary example of the futility of enacting labour laws without providing adequate means of enforcing them. It is curious that even Shaftesbury, the most prominent figure in the history of English industrial legislation, does not always seem to have grasped fully the importance of the administrative side of the problem. He had not welcomed the Whig proposal for factory inspectors in 1833, and he was often suspicious of the action of the inspectors during the first ten years of their existence. 'No doubt the problem of inspecting chimney-sweepers presented special difficulties. But it was never really faced by Parhament until the licensing system of 1875 was established. In consequence, we have the spectacle, at once tragic and ridiculous, of the Legislature spending ninety years in unsuccessful attempts to protect a few thousand boys from the daily risk of being suffocated, burnt or crippled. 2. CHILDREN IN AGRICULTURAL GANGS. The second class of children employed outside factories a.nd workshops, who came under legal regulation, were the children engaged to work in agricu- tural gangs. In certain parts of the Eastern Counties economic circumstances brought about the employment of several thousand persons, mostly children and young persons (of both sexes), in what were known as "organised" agricultural gangs. The old law of settlement had caused a destruction of cottages in the eighteenth century. In some areas (such as the Wolds of Lin- colnshire) arable cultivation had been pushed into hitherto uninhabited districts owing to the high price of corn during the Napoleonic Wars. Improvements in the draining of the Fens had caused similar extensions. But in the newly cultivated areas few cottages were built, so that labourers could not be housed on the farms. In these same districts a particularly large amount of relatively light work was required in connection with the cultivation of root crops, weeding, hoeing and manuring. Accordingly many of the farmers in the Fen districts, and in other parts of Norfolk, Suffolk and Lincolnshire, found it convenient to sub-contract a considerable part of their labour to " gang- masters," who brought children and young persons from the neighbouring towns and large villages. The gang-masters themselves were below rather than above the status of the ordinary agricultural labourer. Children were frequently taken a considerable distance from home, and had to walk from three to eight miles to work each day. School attendance was, of course, impossible, and in a considerable number of cases the moral conditions in the gangs were of the worst description. The Assistant Poor Law Commissioners, who prepared a Report on the employment of women and children in agriculture in 1843,* drew attention to the abuses of the gang system in Norfolk. During the succeeding twenty years the evils connected with it became more widely known. In 1865 1 * Reports of Special Assistant Poor Law Commissioners on Employment of Women and Children in Agriculture, 1843, pp. 220-226. t Not 1863, as stated in Hodder's "Life of Shaftesbury," Vol. III., p. 224. lO Shaftesbury moved in the House of Lords an Address to the Queen, praying that the Children's Employment Commissioners, who were already inquiring into the conditions of child labour in trades and manu- facturies unregulated by law, should be further instructed to inquire into the agricultural gang system. The motion was carried, and during the two following years the Commissioners made exhaustive investigations into the question. They found that some 6,000 persons, mostly children, and boys and girls aged under eighteen, were employed in "public " gangs — i.e., gangs working on land not in the occupation of a gang-master — in addition to those employed in " private " gangs, organised by farmers for themselves. The evidence disclosed in 150 pages of the Report showed that the abuses of the system had been by no means exaggerated by the persons who had demanded an inquiry. The Commissioners recommended that all gang-masters should be licensed by the magistrates. They urged that a statutory minimum age for employment in gangs should be established — eight for boys and twelve for girls — while magistrates should have power to insist on a higher minimum age, when hcensing individual gang-masters. In gi'anting licences the magis- trates should also specify the distance up to which children should be taken from home. The hours of work should be limited to eight per day for children and twelve for young persons (aged thirteen to seventeen inclusive). Magistrates should further be given power to order a separation of the sexes in the gangs. Where women were employed in a gang a female superinten- dent should also be licensed. It should be illegal to employ women, young persons or children in entering high, wet corn for weeding, unless adequate measures were taken to protect them from the danger and discomfort of being wetted. A register of all children employed in gangs should be kept. A system of partial attendance at school should be made compulsory for all children employed in gangs. Finally, the Commissioners stated that they saw no reason why any distinction should be made between private and public gangs in the system of regulation. The Gommissoners' recommendations were partially accepted by Parlia- ment, which passed the Agricultural Gangs Act in 1867. The Act required that all gang-masters of public gangs should be licensed by at least two magis- trates sitting in petty sessions. It fixed eight as a minimum age for employ- ment in gangs, prohibited the employment of females and males in the same gangs, and required that wherever females were employed in gangs a licensed gang-mistress should also be present. Magistrates were required to annex to the licence a condition specifying the distance which children were to be allowed to travel to work. Pubhcans were forbidden to hold licences as gang-masters. The occupier of the land on which gangs were employed, as well as the gang- master, was liable to penalties if the statutory conditions with regard to the employment of women and children in gangs were infringed. The Act did not apply to Scotland or Ireland. The Norfolk Chamber of Agriculture welcomed the new Act, and in 1868 the Commissioners on the Employment of Children, Young Persons and Women in Agriculture reported that it was producing some good effects. Some of the worst characters among the gang-masters had been unable to obtain licences, and the clause requiring the presence of a licensed gang-mistress where women or girls were employed in gangs, was being carried into effect. But the Act had also had the effect of causing the " pubhc " gangs to be replaced to some extent by " private " gangs, which had been left unregulated by Parha- merit.* In 1873 the Agricultural Children Act was passed to provide generally for the education of agricultural children. It raised the age for employment in gangs to ten, repealing the clause of the Agricultural Gangs Act which had fixed eight as the minimum age. In 1876 the Agricultural Chil- dren Act was itself repealed by the Education Act, which established ten as a general minimum age for employment. But since it has been held that this regulation does not apply to the employment of children in ways which do not directly interfere with their school attendance, there would now appear to be no restriction upon the employment of children by licensed gangmasters, other than that which is establishecl by the educational requirements of the Educa- tion Acts and bye-laws made thereunder. In 1894, by the Local Government Act, the duty of licensing gang-masters was transferred from the magistrates to the Rural District Councils. The investigators of the Royal Commission on Labour had only found the gang system in operation in one Union in Norfolk, and in one in Cambridgeshire.-j" But in 1905 there were, in Norfolk, fourteen licensed gang-masters and two licensed gang-mistresses ; while in the Isle of Ely ten licences were issued by the Wisbech Rm"al District Council, t 3. CHILDREN IN PUBLIC ENTERTAINMENTS. In 1872 a Bill to regulate the employment of children under twelve as acrobats was introduced into the House of Lords, with the support of Shaftes- bury, but got no further than the second reading. A similar fate met another Bill deahng with the same subject which was introduced in 1873. Instances of cruelty to children employed in this way continued to be brought to the notice of the public, and in 1879 ^ " Children's Dangerous Performances Bill " was introduced in the Lords by Earl De La Warr. As in 1872, Shaftesbury emphasised the necessity of regulating the training of children as acrobats, etc., as well as their employment in this way, if the law was to be made effective.** But the Act, as passed in 1879, simply prohibited the employment of children aged under fourteen in any performance which, in the opinion of the Coml was dangerous. The Act remained a dead letter throughout the country. In 1883 Shaftesbury raised the question of its administration in the House of Lords, *j and quoted cases of cruelty to children who were being trained and employed as acrobats. But the Government took no action on the subject, beyond expressing the hope that School Boards would attend more effectively to the education of such children. In 1889 these children came under the general system of regulations which were established for all children employed in public entertainments. *J In 1894, under the Prevention of Cruelty to Children Amendment Act, the proposal, which Shaftesbury had made over * First Report of the Commissioners on the Employment of Children, Young Persons, and Women in Agriculture." 1868, p. xii. ; also Section A, p. 11. t Royal Commission on Labour. " The Agricultural Labourer," Vol. I. (England), Mr. Chapman's Summary Report, p. 22. Mr. Wilson Fox's Summary Report, p. 8. 1 Cf. article on " Gangs " in the " Dictionary of Political Economy," 1906, by H. Lee Warner. A later return obtained by the Norfolk County Council showed that there were eight gang-masters in the areas of four district councils. Cf. Eastern Daily Press, 27th November, 191 1. "=* Hansard, 29th May, 1879, Col. 1408. *t Hansard, 3rd August, 1883, Cols. 1462-5. *l Vide infra., p. 13. twenty years before, was at last, in part, adopted. A licence was required (to be obtained under the same procedure as the licences for theatre children) in respect of all children and young persons aged under sixteen who were taken to any place for the purpose of being trained as acrobats, contortionists, or circus performers, unless such children were being trained by their own parents. In addition, any constable was empowered under certain circum- stances to take into custody, without warrant, persons who within the view of the constable commit an offence against the Children's Dangerous Performances Act. In 1897 the provisions of this Act of 1879 were extended to ah boys aged under sixteen and to all girls aged under eighteen. The children employed in specifically dangerous performances were, however, only a small portion of all the children employed in entertainments in one way or another. The national Enghsh institution of the Christmas pantomime involved the employment of thousands of young children every year. At other times of the year children are employed in considerable num- bers on the stage, both in plays and in variety entertainments. A large proportion of them are taken from town to town by touring companies. Considerable difficulty was experienced by School Boards in enforcing the school attendance of these children. The attention of the Government had also been drawn to the problem from another quarter. In 1873 the Italian Government had secured the enactment of a law to restrict the employment of children in " vagrant professions." Finding that a number of children were taken to England for the purpose of being employed in this way, it had subsequently entered into correspondence with the British Government on the subject, and had suggested that this country might find it possible to adopt a law analogous to that enacted in Italy.* In Scotland the employment of school children in theatres came under the definition of " casual employment " which was regulated by the Scottish Education Act of 1878.! School children could, therefore, only be employed up to 9 p.m. in summer and 7 p.m. in winter. The School Board could, how- ever, grant exemptions from these regulations for a period or periods not exceeding six weeks in the whole year. A few years after the passing of the Act the Glasgow Board was stimulated to make full use of its powers to control the employment of children in theatres, partly by the efforts of its Vice-chairman, Mr. W. Mitchell, who made special inquiries into the conditions of employment of theatre children. J In the winter of 1885-6, through its exemption hcences, it prescribed strict conditions as to the hours of employ- ment, school attendance, and meals of the school children taking part in theatre performances.** Meanwhile an agitation arose in England with regard to the employment of children in theatres. In 1884 Miss Ellen Barlee published a book dealing with the condition of " Pantomime Waifs " and other children employed in public entertainments. Shaftesbury made the last of his many efforts on behalf of child labour regulation in connection with these children. He contributed a preface to Miss Barlee's book. When, on his death-bed, he sent * Hansard, 19th June, 1889, cols. 243-4; see also Correspondence on the Employ- ment in this country of Itahan Children (C. 1764) 1877. f For the provisions of this Act see p. 16. + Cf. W. Mitchell, "Rescue the Children," 1886, pp. 55-74; and Royal Com- mission on Education, Third Report, 1887 (Cd. 5158), Evidence, Q. 50,446. ** Royal Commission on Education. Ibid., Q. 50,445. 13 for Mr. Benjamin Waugh, who had recently been active in founding the London Society for the Prevention of Cruelty to Children, and handed him a copy of the book with the words, " Mr. Waugh, right those wrongs." j\Ir. Waugh, in the succeeding months, made thorough inquiries into the treatment of the children employed in the London theatres. He came to the conclusion that the charges made in Miss Barlee's book were exaggerated, but that there was a decided need for special regulation of this form of child labour.* Mrs. Fawcett had also been engaged in investigations on the question, and gave detailed evidence with regard to it before the Royal Commission on Education in 1887. f She drew the attention of the Commission to the procedure which had been adopted in Glasgow. In their report, issued in the following year, the Commission estimated the number of children employed in public enter- tainments in London alone at a thousand, and suggested that this form of labour should be placed under the Factory Acts. The Society for the Prevention of Cruelty to Children^ brought the question into actual politics. In a Bill which it promoted to secure more effective protection for children, special provisions were included dealing with the employment of children in public entertainments. WTien the Bill came before Parliament in iS8g, the regulation of child labour in theatres was the occasion of lengthy discussions in both Houses.** The arguments, which have been brought forward in every subsequent discussion of the question, v/ere explained at length. The names of famous actors and actresses who commenced their career on the stage in early cliildhood were cited in evidence of the beneficial effect of employment on the stage for young children. Bright pictures were drawn of the romance of hfe as a stage-fairy for the slum child. The House of Commons first decided by large majorities to prohibit the employment of children under the age of ten in places of entertainment. But it eventually consented to amendments moved in the Lords by which seven was fixed as the minimum age. Employers of children aged over seven and under ten were required to obtain a licence, in England, Wales and Ireland, from the Petty Sessional Court. In Scotland, as the result of the system which had developed under the Scottish Education Act of 1878, the School Board was made the licensing authority. Following the successful form of administrative pro- cedure which had been worked out, particularly by the Glasgow School Board, the Act provided that the Court or School Board could attach any conditions which it might think fit to the licence. It was laid down that a separate licence should be obtained for each child ; and the licence issued by any Court or School Board would, of course, only be applicable within the district of the issuing authority. The Home Secretary was empowered to order any factory inspector to inspect any place of entertainment in order to see whether the restrictions imposed by the licence were observed. In 1894 the law with regard to the licensing of children for employment in places of entertainment was amended by the Prevention of Cruelty to Children Act of that year. The age below which a licence was required for * Rosa Waugh, " Life of Benjamin Waugh," 1913, pp. 148-9 ; cf., also, Gertrude Tuckweil, " The State and its Children," 1894, pp. 1 18-126. f Royal Commission on Education. Ibid., Qq. 50,431-50,639. Cf. also evidence of Mr. Charles T. Mitchell. Qq. 50,640-50,752. X The National Society for the Prevention of Cruelty to Children was formed by a combination of the London and other societies a few weeks before the Prevention of Cruelty to Children Act, 1889, became law. '** Cf. Hansard. 1889 : 4th July, cols. 805-821 ; loth July, cols. 6-38 ; 30th July, cols. 950-968 ; 5th August, cols. 280-301 ; 8th August, cols. 718-720; 14th Augu t, cols. 1284-7. 14 these children was raised from ten to eleven. The system of licensing was extended to all children aged under sixteen, who w^ere to be trained as acrobats, contortionists or circus performers or " for any exhibition or performance which in its nature is dangerous," unless the child were being trained by his parents or legal guardian.* Certain provisions were also enacted in order to facilitate the administration of the Act. Any person intending to apply for a Ucence was required to give at least seven days' notice to the Chief Officer of Pohce for the district in which the licence was to have effect. That officer was empowered to appear or to instruct some person to appear before the authority hearing the application, to show cause why the licence should not be granted. Further, the hcensee was ordered, under penalty of a fine not exceeding five pounds, to send a copy of the licence to the factory inspector for the district within ten days of its issue. The provisions of the Acts of 1889 and 1894 for the protection of theatre children were not allowed to remain a dead letter, although the steps taken to enforce them were doubtless inadequate in most parts of the country. Mr. Redgrave, who was chief inspector of factories in 1889, endeavoured, soon after the passing of the fii^st Prevention of Cruelty to Children Act in that year, to ensure that it should be administered as effectively as possible. Finding that, while some of the courts issued the licences carefully, in others the procedure was perfunctory, he drew up a model form for the licence. The use of this involved the production of a medical certificate of the fitness of the child to the magistrate, while the applicant for the licence agreed to produce a certificate of birth to the factory inspector when required, to allow intervals of rest of at least four hours where a child was employed in two performances in a day, not to allow the child on the stage after a specified hour, to provide a matron, to provide satisfactory dressing-rooms, and to terminate the employment of the child if required by an inspector of factories. | Some few of the magistrates and School Boards took a particular interest in the work of hcensing the theatre children. In 1893 the Edinburgh School Board went to the trouble of taking counsel's opinion as to whether it possessed complete discretionary power to refuse licences to children aged between seven and ten. J The factory inspectors frequently paid visits to theatres when they received notice of the licensing of children, and cases of the infringement of the conditions of the licences are noted from time to time in the Reports of the Chief Inspector.** But there were many weaknesses in the system of adminis- tration. It is clear that in the great majority of cases the employers of children did not forward copies of the licences to the inspectors (if they troubled to obtain them at all).*t Until after the passing of the Act of 1894 the number of copies of licences forwarded in any year to the inspectors never exceeded a hundred for the whole country. After 1894 it varied between 238 and 623. Inspectors were constantly complaining that notice of the licences was received too late for any action — (the law only required that notice should be sent by the person obtaining the licence within tot days of its issue). In 1894 the Home Office endeavoured to remedy this to some extent in England and Wales by requesting the clerks to Justices of the Peace to forward copies * Vide supra, pp. 11-12. ■f Report of Chief Inspector of Factories for Year ended October, 1889, pp. 55-8. + Graham, " The Education (Scotland) Acts, 1901, pp. 391-2- ** E.g., 13 cases in 1896 (Report, p. 55), 11 in 1901 (Report, p. xii.), 24 in 1902 (Report, p. XX.). *f Cf. Reports for 1893, p. 326 ; Report for 1895, p. 205. 15 of licences to the local authorities as soon as they were issued.* Further, the law merely laid upon the inspectors the duty of seeing that the conditions of the licence were observed. It did not authorise them to interfere where licences were not taken out at all.t In such cases they could merely urge the local police authority to take action. Nor did the law specifically confer upon them any duties of prosecution, or any rights of entryj analogous to those provided in the case of factories. It is not surprising that in these circumstances the inspectors felt that their position in connection with the theatre children was exceedingly unsatisfactory, and suggested that the whole of the work should be transferred to the police. Complaints appeared in the Chief Inspector's report with regard to the amount of time spent in undertaking sometimes long journeys for the sake of inspecting a theatre, where notice had been given of the employment of a single child.** When the Government introduced Employment of Children Bills in igo2 and 1903, as the result of the inquiries of the Inter-departmental Committee in 1901, it did not propose to make any special exception for the theatre children from the statutory prohibition of employment after 9 p.m. But an agitation was at once aroused amongst the employers of these children. It was claimed that the prohibition of the employment of children after 9 p.m. would be a serious blow at dramatic art. The Government lent an ear to the theatrical managers, and when the Bill was being considered by the Standing Committee on Trade, proposed as an amendment that the Section of the Prevention of Cruelty to Children Act, 1894, deahng with theatre children, should be re-enacted as a part of the Employment of Children Act. This would have the effect of enabling children to be employed in theatres during horus which were prohibited either by the Act or by the bye-laws made thereunder, if a licence were obtained sanctioning their employment within this period. Although the Government amendment was defeated in the Standing Committee on Trade, Mr. Akers Douglas, the Home Secretary, moved it again when the Bill came back before the House, and succeeded in carrying it by a party vote. But the upholders of a high standard of child labom' regulation were able to secure the raising of the minimum age for employment in theatres from seven to ten*t — as against nine proposed by the Home Secretary. The Act also conferred upon inspectors of the local authority the powers of factory inspectors for the pm'pose of enforcing the provisions dealing with theatre children. In 1904 another Prevention of Cruelty to Children Act was passed. This Act removed a slight ambiguity in the Employment of Children Act, which left some doubt as to whether the general statutory prohibition of employment after 9 p.m. was overridden by the licensing clause of the 1894 Act as re-enacted. It fm'ther put an end to the duty of the factory inspectors to enforce the regulations with regard to theatre children, thereby throwing upon the local authority the sole responsibility in this matter. The Children Act in 1908 required*} that whenever children were brought before the magis- trates in connection with the application for licences for theatre employment, the proceedings should take place in a Juvenile Comt. * Circular to Clerks of Justices of the Peace, 1894 (copy in Children's Department of the Police at Manchester). t Report of Chief Inspector of Factories for 1893, P- 3-^- I Report for 1901, pp. 276-7. ** Report for 1900, pp. 192, 276-7. *^ The statement in the Supplement to The Crusade for October, 1912 (p. 118), that^the minimum age for employment in theatres is still seven, is therefore not accurate. *l Section in (i). i6 In 1912 an attempt was made to secure some supervision over children who were taken out of the United Kingdom " for the purpose of singing, playing, performing or being exhibited for profit."* A Bill was introduced into the House of Lords by Lord Strachie, on behalf of the Government, to compel any person procuring or allowing a " child or young person " to go out of the country for any of the above purposes to obtain a licence from a poHce magistrate. Such Ucences were to be renewed every three months, a satis- factory report from a British Consular officer being a condition of renewal. The Bill was not passed, but was reintroduced in the Session of 191 3 and became law. It is stated that the Act has aheady affected the Employment of English children as dancers in the Paris music-halls. t 4. STREET TRADERS. It is only within the last fifteen j^ears that effective measures have been taken to control the employment of children in street trading. But the evils of this form of labour have been recognised by civic administrators and philanthropists for nearly a centm-y. In 1826 the Glasgow magistrates con- sidered that " selling articles on the streets provided a school of vice for the young of both sexes. "J Half a century later the miserable condition of child street -sellers in London and elsewhere was often commented on.** In 1878 the ]^Ianchester City Council proposed that it should be made illegal for any child aged from eight to thirteen to hawk after 8 p.m. The ]\Ianchester, Birmingham and Glasgow School Boards also discussed the possibility of special measures to deal with, the problem.*! Parhament first regulated street trading by children through the Scottish Education Act of 1878. The provisions of this Act affected every kind of employment of school children out of school hours, but it seems that they were primarily aimed at the street -trading problem. *t It was apparently the intention of the framers of the Act to forbid children aged under ten years to engage in street trading at any time. School children aged over ten and under fourteen might not trade after 9 p.m. from April to October inclusive, and after 7 p.m. during the rest of the year. A child was exempted from these regulations only if no school existed v.'ithin three miles of his home, or if the School Board granted him in writing a special exemption from them for a period or periods not exceeding six weeks in the year. But the intention of Parliament to draw a distinction between children aged above and under ten years for purposes of street trading was frustrated by the drafting of the Act. When, in 1884, the Aberdeen School Board prosecuted a parent for employing * See the Children (Employment Abroad) Bill, 1912 (Bill 159). An Act to deal with the same problem has been passed by the Australian Commonwealth Parliament. (Act No. 26 of 1910. See Bulletin of the International Labour Office, 1912, Vol. VII., p. 326). t Daily News and Leader, 20th September, 1913. The London County Council Education Committee suggested that notice of application for a licence under the Bill should be given to local education authorities. (Cf. School Government Chronicle, 26th April, 1913.) This suggestion was not adopted. X Glasgow Chronicle. 7th January, 1826. Street-selling of papers by boys was not unknown in London in the early part of the eighteenth century. Cf. article on " The Pro- blem of the Newsboy " in the Westminster Gazette, 21st July, 1910. ** See, e.g.. Mayhew, " London Labour and the London Poor," 1861, Vol. I., pp. 468-485 ; the Printing Times and Lithographer, ist July, 1874, p. 104. *t Printing Times and Lithographer, 15th February and 15th April, 1878. *X Cf. Speech of the Duke of Richmond and Gordon, in introducing the Bill, Hansard, 22nd March, 1878, col. 1828. 17 his child, aged nine-and-a-half, in selling papers, the Sheriff held that a child aged under ten was not prohibited from engaging in street trading, bnt was merely subject to the same restrictions with regard to the hours of employment as older school children.* As regards England, Parliament first dealt with the problem in 1882. The history of the action of English local authorities in regulating the employ- ment of children in the streets in the succeeding twenty years is somewhat complicated. "The problem was attacked in three different ways, viz : (i) by a series of Local Acts ; (2) by bye-laws made under the Municipal Corporation Act, 1882 ; (3) by the Prevention of Cruelty to Children Acts, 1889 and 1894, and bye-laws made thereunder. In 1882 Manchester introduced a clause into its Corporation Bill basedt on the provisions of the Scottish Education Act, 1878. The original proposals were amended { by the House of Commons Committee on Police and Sanitary Regulations, which had just been appointed to consider Local Bills. In its final form the clause prohibited children under fourteen in attendance at school from engaging in street trading after 9 p.m. from April to October inclusive, and after 7 p.m. during the rest of the year. Any person who employed a child contrary to these regulations was liable to be fined. The regulations were to be enforced by the officers of the School Board. This clause was tabulated by the Police and Sanitary Regulations Committee in 1882 and in 1884, and subsequent years, as a "model clause," which it was prepared to insert in any Corporation Bill.** In 1883 slightly different street -trading clauses were included in the Sheffield and Birmingham Corporation Acts. 9 p.m. was fixed as the latest hour up to which children might engage or be employed in selling throughout the year.*f In Birmingham this rule was applicable to children aged under twelve, and in Sheffield to children aged under fourteen. These variations from the " model clause " were probably due to the fact that the Police and Sanitary Regulations Committee did not sit in 1883. In 1884 and succeeding years a considerable number of towns adopted the " model clause " in Local Acts. Amongst them were Cardiff* J (1884), Hastingsft (1S85), Swansea, Norwich, Stockton-on-Tees and Chelten- ham (all in 1889). tt Other towns attempted to regulate street trading by means of bye-laws made under the Municipal Corporations Act, 1882. Section 23 of this Act conferred upon municipalities general powers to " make such bye-laws as to them * Graham, " The Education (Scotland) Acts," 1902, pp. 244-5. This decision was due to the words " save as hereinafter mentioned " in Section 6 of the Act. See the Sections of the Act reprinted in Part V. t Cf. Report of Select Committee on Police and Sanitary Regulations, 1882, p. v. + Ibid. ** Ihid., p. xxviii. ; cf. also 1884 Report, p. iv. ; 1887 Report, p. xxiii. ; 1889 Report, p. iv. *t London County Council, Report of . . . Public Control Department as to . . . Employment of School Children . . ., 1900, p. 8 ; Inter-departmental Committee on Employment of School Children — Evidence, 1902, pp. 307-8. *X Inter-departmental Committee on Employment of School Children — Evidence, 1902, pp. 273-4. It Ihid., p. 263. \X Hansard, 19th June, 1889, col. 251, Speech by Mr. Mundella. There were probably other towns which included the street-trading clause in Local Acts during the 'eighties. Leicester and Nottingham had street-trading regulations before 1889 [cf. Hansard, 19th June, 1889, col. 254, Speech of Mr. Picton) ; but it is not clear whether these were bye-laws under the Municipal Corporations Act, similar to those made at Liver- pool, Hull and Newcastle-on-Tyne, or clauses in Local Acts. l8 seem meet for the good rule and govermnent of the borough." Such bye-laws had to be submitted to the Home Office, and might be disallowed within forty days. In 1884 Liverpool* made bye-laws under this Section to limit and regulate street trading by children. Other towns followed the example of Liverpool, including Newcastle-on-Tyne (1885), Hull (1885) and Bristol. None of these bye-laws were objected to by the Home Secretary. The Liverpool bye-laws fixed nine as the minimum age for engaging in street trading, and prohibited children aged under thirteen from trading between 9 p.m. and sunrise from April to December, and between 7 p.m. and sunrise from October to March. Hull also made nine the minimum age, but fixed 9 p.m. to 5 a.m. as the prohibited hours for street trading throughout the year. It would appear that there must from the first have been some doubt as to the power of local authorities to restrict and regulate street trading under the Municipal Corporations Act, 1882. The Police and Sanitary Regulations Committee of the House of Commons made a general practice of striking out from Local Bills all clauses proposing to confer powers which it considered that local authorities already possessed under general Acts.f But the Committee made no objection to the clauses dealing with street trading which appeared in a long series of Local Bills. In 1887 the validity of the bye-laws under the Municipal Corporations Act was tested in the courts. The Newcastle-on-Tyne police prosecuted a parent for causing one of his children aged under eight to sell in the streets, and another, aged under twelve, to sell after 10 p.m. The magistrates, however, held that the bye-laws were invalid, since the Corporation had no power to regulate street trading under the Mimicipal Corporations Act. The Corporation appealed to the High Court, bat the decision of the magistrates was upheld. J All the bye-laws dealing with street trading made under the Municipal Corporations Act, 1882, were rendered void by this judgment. But it would appear that the decision did not become generally known. In 1898 the Corporation of Hull prepared a revised code of bye-laws under the same Act, and forwarded them to the Home Secretary, who pointed out that they could not legally be put into force.** The collapse of the attempt to regulate street trading in England by means of bye-laws made under the Municipal Corporations Act was the principal cause which induced Parliament to deal with the problem by means of a measure which would be apphcable throughout the country. In 1884 ^^e London Society for the Prevention of Cruelty to Children was founded, chiefly through the efforts of the Rev. Benjamin Waugh. It soon discovered that street trading by children was one of the most fruitful sources of suffering and demoralisation with which it had to deal. When the Newcastle bye-laws were declared invalid in 1887, ^'^^^ Waugh (failing to distinguish between the bye- laws made under the Municipal Corporations Act and the street -trading clauses in Local Acts) was evidently under the impression that the whole of the attempts which had hitherto been made to regulate street trading were * These Liverpool bye-laws were not, as is stated in " Women and Child Wage Earners in Great Britain " (published by the American Bureau of Labour, 1909), p. 27, made under a Liverpool Corporation Act. f Cf. Cory, History of Private Bill Legislation, 1857, Vol. II., p. 540 ; Report of Select Committee on Police and Sanitary Regulations, 1882, p. xxiv. ; 1884, p. iii. ; 1885, p. iv. I Cf. Benjamin Waugh, " Street Children," in Contempoyary Review, June, 1888. ** London County Council : Report of Public Control Department as to Employ- ment of School Children, 1900, p. 8. 19 rendered null and void.* The Society for the Prevention of Cruelty to Children therefore decided to include provisions for dealing with its action in the Prevention of Cruelty to Children Bill which it was promoting in Parliament. t The Bill was dealt with in the Session of i88g. The desirability of fixing a minimum age and prohibited hours for child street traders was fully discussed in both Houses. Little has been added since to the general arguments which were then used on both sides. The Factory Acts and the Scottish Education Act of 1878 were quoted as precedents for establishing some sj'stem of regulating ages and hours. Finally ten was settled as the minimum age, and from 10 p.m. to 5 a.m. as the prohibited hours for boys under fourteen and girls under sixteen. J But as the result of a petition from the Nottingham Town Council, an amendment was accepted by which local authorities were empowered to vary the hours which were mentioned.** There was one fatal weakness in the Act : it contained no provision directly forbidding children to infringe the regulations, but merely prescribed penalties for any person who should " cause or procure " any child to act contrary to them.*t In 1894 some attempt was made in an amending Act to raise the meagre standard of regulation which had been fixed in the Act of 1889. The minimum age was raised to eleven. The prohibited hours were extended to the period from 9 p.m. to 6 a.m. (the power of local authorities to vary the hours being left untouched). It was further made an offence merely to allow (as against " causing or procuring ") a child to infringe against the restrictions which were laid down.*f Bye-laws were made by a number of towns under these two Acts, extending the hours during which the employment of children in street trading was prohibited. Liverpool, Bristol, Leicester, and Hull were amongst the towns which took action in this direction. In 1899 the Birmingham Watch Com- mittee recommended the Corporation to make bye-laws under the Act of 1894, * See Benjamin Waugh, " Street Children," in the Contemporary Review, June, 1888. t Although the Society for the Prevention of Cruelty to Children was thus instru- mental in securing the first national regulation of street trading by children in England, it has never attempted to deal with offences against the law through its officers. This is due to the fact that shortly after the passing of the Act an informal understanding was arrived at between the Society and the Commissioner of Metropolitan Police by which the Com- missioner agreed to hand on to the Society all cases of cruelty to children (other than street offences) discovered by the police, while the Society agreed to leave all street offences to be dealt with by the police alone. The Society thought it wise to adopt a similar policy in provincial towns. On the other hand, the Scottish Society for the Prevention of Cruelty to Children has taken action in connection with street-trading offences in various towns. Cf. Departmental Committee on the Employment of Children Act, 19 10 — Evidence, Qq. 4286-4307. % The summary of the provisions of the Act given in Dunlop and Denman's " English Apprenticeship and Child Labour," p. 316, is incorrect. ** Hansard, 1889: 19th June, cols. 242-266; 4th July, cols. 798-808; 3rd July, cols. 1376-9 ; 30th July, cols. 950-968 ; 8th August, cols. 716-8 ; 13th August, col. 1284. *t The Scottish Education Act of 1878, on the other hand, provided (Sec. 9) that " a parent of a child . . . who permits such child to be engaged in any such labour on its own behalf, shall be deemed for the purposes of this Act to take_ such child into his employment." *X These slight extensions of regulation were not secured without considerable opposition. Cf. Hansard, 23rd May, 1894, cols. 1099-1108. 20 and in 1901 the School Board of Northampton approached the Corporation in the same sense.* It is clear that these early attempts to deal with the street -trading problem, whether made under the Municipal Corporations Act, or under the Prevention of Cruelty to Children Acts, or under Local Acts, had, in general, very little effect. Only in a few places do there appear to have been systematic attempts to follow up the enactment of the regulations, after they had been made, by efficient administration. In Cardiff the School Board had from the first objected to being made the authorityf for carrying out the street-trading provisions of the Corporation Act of 1884 ; and in spite of repeated remonstrances from the Town Council, it declined to take any steps in that direction. After the passing of the Prevention of Cruelty to Children Act, 1894. the Council, therefore, themselves took the matter in hand, posted notices warning parents against sending children into the streets for the purpose of selling, and regularly instituted proceedings against offenders under that Act. J The Salford School Board in 1896 decided to utilise the services of their attendance officers in order to put into force the street -trading clauses of the Act of 1894. The officers were sent into different parts of the borough two or three nights a week, took home children found offending, and warned the parent. If such warnings proved ineffective, parents were summoned before a Committee of the Board, and in some cases legal proceedings were taken. Mr. Duthie, the clerk to the Board, stated in 1901 that these measures had had some effect in reducing street trading. The number of children found offending was fewer in each year.** Similar efforts were made by the Manchester School Board ;*t its officers dealt with 2,358 instances of street selling by children in 1901, and prosecuted parents in 306 cases. But the zealous actions of the Cardiff Corporation and the Manchester and Salford School Boards were exceptional. Ob\"iously the enforcement of the prohibition of street trading by children during certain hours would require a special effort, and could not be carried out solely by the ordinary police constable on duty in the street. From Bristol it was reported in 1900 that the police "did not pay much regard to the bye-laws." In Hull in the same year it was said that the bye-la wsj" had not been vigorously carried out."*} In Sheffield apparently the Town Clerk and the Clerk to the School Board were not, in 1901, aware that the Corporation had obtained a street- trading clause in a Local Act.tt Moreover, the drafting of the Prevention of * The Liverpool bye-laws (1893) fixed the period from 8 p.m. to 7 a.m. as the prohibited hours ; Bristol, 9 p.m. to 7 a.m. between April and September, and 8 p.m. to 7 a.m. between October and March ; Leicester, 9 p.m. to 6 a.m. between April and Sep- tember, and 8 p.m. and 6 a.m. between October and March. There is a copy of the Liverpool bye-laws in the Library of the London School of Economics. For details of the other bye-laws and proposed bye-laws, see London County Council, Report of . . . Public Control Department on the . . . Employment of School Children, 1900, p. 8 ; and Inter-departmental Committee on Emploj'ment of School Children — Evidence, 1902, pp. 265-6. f In accordance with the provisions of the " model clause " of the Police and Sanitary Regulations Committee. I Inter-departmental Com.mittee — Evidence, 1902, p. 274. ** Ibid., p. 269. *t R- Peacock, " The Employment of Children," in Report of the Proceedings of the Third International Congress for the Welfare and Protection of Children, 1902, pp. 191-202. *l London County Council, Report of Public Control Department, 1900, p. 8. ft They informed the Inter-departmental Committee in 1901 that the only action taken in Sheffield to deal with street trading was the effort of the police to carry out the Prevention of Cruelty to Children Act, 1894. Cruelty to Children Acts, 1889 and 1894, rendered it exceedingly difficult to carry out the obvious intentions of the legislature. In London,* in Sheffield, and in Huddersfieldf the police found that the necessity of proving actual cognisance on the part of parents of the fact that street trading was being carried on by the children made it practically impossible to enforce the law. The failure of all previous experiments made it clear that some more adequate measure of control over child street-traders was necessary. An obvious device was to require a licence for all children below a certain age engaging in street trading, analogous to the hawkers' and pedlars' licences. This method was first sanctioned by Parliament in the Scottish Burgh Police Act of 1892. Section 275 of that Act empowered the burgh magistrates to license " porters, messengers, chimney-sweepers, golf cadies [sic] or vendors of newspapers or small wares " of any age, and to make bye-laws to regulate their employments and charges. The following Section made it compulsory for all children aged under twelve engaged in street -selling to take out a licence from the magistrates, and forbade all such children to sell after 9 p.m. The magistrates were ordered to make bye-laws to regulate their conduct. Parents who permitted children to contravene the Act or bye-laws, and persons who supplied unlicensed children with newspapers for sale, were rendered liable to penalties. In 1895 the Glasgow Corporation inserted a clause in a Private Bill to establish a special local system of licensing. This proposal did not, however, become law. J In Liverpool the magnitude of the street -trading problem was brought to the notice of the City Council by philanthropic agencies which had been endeavouring to improve the condition of the children by providing homes and clothing, and by the reports of the Medical Officer of Health and the Home Office Inspector of Reformatories. A Sub-committee of the Watch Committee, appointed to consider the question in 1897, recommended that the Corporation should obtain Parliamentary powers (i) to require all boys aged under fourteen and girls aged under sixteen engaged in street trading to take out a licence, (2) to enable it to provide lodgings for the children in cases where this seemed desirable, and (3) to regulate the hours and ages of the children employed. These proposals were approved by the Corporation, and were brought before Parliament in the Liverpool Corporation Bill in 1898. The Police and Sanitary Regulations Committee, acting on the advice of the Home Office, consented to the new scheme of regulation on the ground that conditions in Liverpool were exceptional. The Act conferred power on the Corporation to make '*veet-trading bye-laws subject to the approval of the Home Secretary.** Similar powers were applied for by Manchester in 1899, but were refused by the Police and Sanitary Regulations Committee on the grounds that sufficient time had not elapsed to show the result of the experiment in Liver- pool, and that no evidence had been brought forward to prove the necessity for special regulation in Manchester. On account of this rebuff the Birming- ham Corporation refrained from asking Parliament to sanction a system of * London County Council, Report of Public Control Department as to Employ- ment of Children, 1900, p. 6. •j- Inter-departmental Committee — Evidence, pp. 264, 271. J Inter-departmental Committee -Evidence, p. 411. *♦ It is stated in Danlop & Denman's " English Apprenticeship and Child Labour," p. 316, that a general Local Government Act conferred power on local authorities in 1898 to regulate street trading by bye-laws. No such Act was passed. The Act to which a reference is given in the footnote is the Liverpool Corporation Act of 1898. control similar to that established in Liverpool. But in 1900 Bradford, Halifax, Preston, Oldham, Scarborough, and Southport asked for powers on the same lines. The Home Office objected in the case of Oldham, on the ground that there did not appear to be many street traders. The Preston Corporation withdrew its application. In the case of the other four towns the powers were conferred, with certain modifications insisted on by the Home Office. The first of these was the insertion in the Acts of a direct statement that no licence should be refused on account of the bad character of the child or its parents. (The Home Office had required that a similar provision should be included in the original Liverpool bye-laws.) The other important modifica- tion was the omission of the power to provide lodgings for street traders. This was recommended by the Home Office owing to the sectarian differences, to which the question of the religious supervision of the children thus provided for had given rise in Liverpool.* In 1901 Manchester, Bolton, Bury, and Lowestoft applied for powers. These were granted, with the modifications described above. The desire of the Manchester Watch Committee to secure discretionary powers with regard to the licensing of gkls was not acceded to.f But somewhat larger powers were conferred upon Manchester in one direction, since authority was given for licensing boys as well as girls up to the age of six- teen. Liverpool, by another Corporation Act, in 1902, secured a similar exten- sion of the age limit for the licensing of boys to sixteen, and also obtained power to provide clothing for child street traders. In 1902 York, Huddersfield, Wigan, Swansea and Leamington, and in 1903 Middlesbrough, obtained street-trading clauses in their Corporation Acts. Edinburgh received power, by the Edinburgh Corporation OrderJ of 1901, to license boys under fourteen and girls under sixteen. Meanwhile the question of street trading by children had become to a certain extent merged in the larger problem of the employment of school children generally. As a result of the agitation on this subject, which had begun in 1897, a return of wage-earning school children in England and Wales had been obtained by the Committee of Council on Education. The return was incomplete, but it showed that in 1898, 17,617 school children, attending the schools from which particulars were sent, were engaged in street trading. In 1901 the Departmental Committee, which had been appointed to inquire into the employment of school children in England and Wales, estimated that the number of street traders attending school amounted to at least 25,000. It is therefore practically certain that the number of child street traders aged under sixteen in the whole of the United Kingdom approached 40,000. It may even have reached 50,000. The Departmental Committee examined in detail the operation of the new experiment in regulation initiated by Liverpool. In its report, issued in 1901, it recommended that bye-law-making powers, on the lines of those contained in the Manchester and other recent Local Acts, should be conferred on all municipalities and county councils. But it upheld the point of view of the Home Office that a licence should not be refused to any applicant who fulfilled the general conditions laid down in the regulations. A separate Departmental Committee inquired into the problem in Ireland, and in 1902 issued a report containing recommendations similar in general to those made * Inter-departmental Committee — Evidence, p. 413. f Peacojk, Op. cit., p. 200. + The special Private Bill procedure which had been adopted by Parliament for Scottish Bills in 1899 made it unnecessary for the Edinburgh Order to be considered by a Select Committee. Cf. Atkinson, " Local Government in Scotland," 1904, pp. 364-5. 23 by the English Committee. It suggested, in addition to the recommendations of the English Committee, a statutory prohibition of street trading by children on Sunday. The Irish Committee appear to have felt some doubt on the ques- tion as to whether the local authorities should be allowed discretionary powers with regard to the issuing of licences. But it would seem that its members were of the opinion that the local authority should have power to withhold or revoke licences in cases in which it was clearly established that the parents' economic circumstances did not make it necessary for their children to engage in street trading, or that the children's earnings were spent in drink. The Government Employment of Children Bills of 1902 and 1903 con- tained provisions applicable to the whole of the United Kingdom framed on these lines suggested by the English Departmental Committee. In England, the authorities for issuing licences were to be the municipalities with a population of over 10,000, the urban districts with a population of over 20,000, and elsewhere the county council. In Scotland the authorities were to be the burghs with a population of over 7,000, and elsewhere the county councils. In Ireland, urban districts were made licensing authorities, instead of the county council, where they had a population of over 5,000. It was proposed that the Section of the Burgh Police (Scot- land) Act dealing with street trading by children should be repealed. An attempt was made, without success, during the passage of the Bill through the House of Commons, to secure the absolute prohibition of street trading by girls aged under sixteen. Only one alteration was made by Parliament in the provision of the Bill dealing with street trading. The House of Lords, for reasons best known to itself, excluded from the definition of street trading the words " plying for hire in carrying luggage or messages." It has subsequently been shown by a detailed inquiry that the occupation of the " station lounger " is one of the very worst forms of street trading in which boys could be engaged.* During the six years which followed the passing of the Employment of Children Act, 1903, increasing attention was paid to problems of child and juvenile labour. Evidence was accumulated from many quarters that of all forms of " blind-alley " labour, street trading was, without exception, the worst.! It was clear that the bye-law-making powei of the local authorities was not making a very great impression on the problem. When the Govern- ment in 1908 took in hand the codification of the various Acts for the protection of and prevention of cruelty to children, the Committee on Wage-earning Children and other bodies demanded that the law with regard to street trading should be made more stringent. { But the Government refused to bm'den itself with additional problems other than those already involved in the Children Bill. The Children Act only affected the street -trading question in one detail. Children under fourteen were prohibited from entering the bars of pubUc-houses. This provision made universal, in so far as concerned children under fourteen, the prohibition of the selling of newspapers, etc., in the bars of public-houses, which had been adopted by several local authorities in their bye-laws. ♦ Cf. Norman Chamberlain, " The Station Lounger," in " Problems ot Boy Life," Ed. J. H. Whitehouse, 1912. t Cf. Cyril Jackson, Report on Boy Labour, Appendix Vol. XX. of Report of Poor Law Commission, 1909, pp. 23-25. t Cf. " The Children's Bill : A Serious Omission," leaflet issued by the Executive Com,mittee of the Fabian Society, 1908. 24 In consideration of the fact that httle was done by the Children Act to raise the standard of child labour regulation, the Government promised to constitute a Departmental Committee to inquire into the street -trading pro- blem. This Committee was actually appointed in 1909, its Chairman being Mr. (now Sir) J. A. Simon, the Solicitor-General. Unlike the Inter-depart- mental Committee in 1901, it only contained a minority of officials. Its terms of reference related to all portions of the Employment of Children Act, but it chose to confine itself almost entirely to the problem of street trading. It inquired into the problem in Scotland and Ireland, as well as in England and Wales. Its report was issued in 1910. The main conclusion of the Majority of the Committee was summed up in the following passage : " We have come to the conclusion that the difficulties of the situation cannot be said to have been met, or any substantial contribution to the solution of the problem made, by the existing law and the machinery set up for its enforcement. Regulation, however well organised and complete, Nvill not turn a wasteful and uneconomic use of the energies of children into a system which is beneficial to the community."* Consequently, the Committee recommended the complete prohibition of street trading by boys under seventeen, and girls under eighteen. They further proposed that the administration of the law should be transferred to the local authority in its capacity as Education Authority. The Minority, including the Home Office representative, agreed to the statutory prohibition for girls, except in the case of coster mongers. As regards boys, it recommended that the local authority should have power to prohibit street trading up to eighteen, if it could show that alternative suitable forms of employment were available ; that the licensing system should be extended to all urban districts ; and that local authorities should be required to appoint a sufficient number of specially selected officers to enforce the Act.f The Government did not attempt to act upon the recommendations of either of the reports for three years. In 1911 a private member's Bill was promoted by the Committee on Wage-earning Children embodying the the recommendations of the Majority report. It was introduced into the House of Lords by Lord Shaftesbm"y. But an organised opposition from the proprietors of halfpenny evening newspapers, which had already made itself felt in connection with the adoption of local bye-laws, now appeared in Parlia- ment. The arguments and attitude of the upholders of this vested interest were exactly the same as those which can be read in Hansard or other con- temporary documents describing the forty or fifty struggles which have taken place over the child labour question during the last hundred years. The pro- posals of the Bill were weakened in the House of Lords. The minimum age for street trading by boys was still further cut down in the Commons. At the wish of the Irish Members, the operation of the Bill was confined to Great Britain. In the hope of seeming the passage of the Bill, a compromise was arranged between its promoters and the representatives of the newspaper proprietors. By this compromise, J fourteen was fixed as the minimum age for boys in towns having a population of 150,000 and thirteen in smaller towns. Street traders under seventeen were to be licensed. 'The aboUtion of street * Departmental Committee on the Employment of Children Act, 1903 ; Report, 1910, p. 13. t Ibid, p. 23. X Eleventh Annual Report of the Committee on Wage-earning Children, 191 1, p. 10. I 25 trading by girls was maintained, except in the case of girls trading in the company of their parent or guardian. But these concessions did not prevent a belated individualist, Sir Frederick Banbury, from " blocking " the Bill, and thus preventing it from becoming law. In 1912 Mr. Beck and Mr. Denman introduced into the House of Commons a second Bill to amend the Employment of Children Act (except in so far as it applied to Ireland). This Bill was drafted upon somewhat different lines from the Bill of 1911. Fifteen was fixed as the minimum age for street trading by boys, and eighteen as the minimum age for girls. All street trading boys aged over fifteen and below seventeen were to be licensed. But Section 2 of the Employment of Children Act was to be repealed, and the licensing would therefore be undertaken compulsorily under the Act, and not under bye-laws. Concessions were made to the demands of costers and market- sellers, by a clause allowing both boys and girls aged over fourteen to assist their parents or guardians in street trading. Power was given to local authorities to delegate their licensing powers to committees established under the Choice of Employment Act or to Advisory Committees for Juvenile Employment constituted by the Board of Trade under the Labour Exchanges Act. The provisions of the Bill were weakened by a Standing Committee. The minimum age for street trading was cut down to eleven in the areas of rural district councils and of municipal boroughs and urban district councils having a population of less than 10,000. Fm-fher, the definition of street trading was modified so as to exclude from its scope the " occasional sale (by a boy or a girl) to other than the customers of his employer of articles of a kind which he is engaged to deliver and is in course of delivering from door to door." The Education Committee of the London County Council protested strongly against several of the provisions of the Bill. It urged (i) that the "costers' clause" destroyed the complete prohibition of street trading by all girls under sixteen (even vvhen in the company of their parents) secured by the London bye-laws of igii ; (2) that it would be in practice impossible for the Council's officers when administering the Act to enforce the distinction between legal and illegal street trading as laid down in the " occasional sale " clause ; (3) that the repeal of the bye-law-making power of local authorities under Section 2 of the Act left it doubtful whether the Council could overcome these difficulties by bye-laws made under Section i of the Act (even if the Home Office consented to sanction such bye-laws).* In spite of the weaknesses of the Bill, efforts were made by its friends to secure its passage. But Mr. Handel Booth opposed it as infringing the liberty of the subject, and the Government refused to give any time for the discussion of a measure which was treated as contentious by any section of the House. In the Session of 1913, however, the Government itself introduced a Bill which followed in most of its details the Bill of 1912 as it stood after amend- ments adopted in Committee. The Bill received the general support of the Committee on Wage-earning Children, and of all those who were endeavouring to secm"e a higher standard of child labour regulation. But the London County Council drew attention once more to the weaknesses which the Bill had inherited from its predecessor of the Session of 1912. It received the support * See School Government Chronicle, 13th July, 1912 ; also IMiiiutes of the London County Council Education Committee, 2nd July and 9th July, 1912. It should be noted that Section i of the Act, if amended in accordance with the proposals of the Bill, would have conferred general bye-law-making powers upon local authorities with regard to all boys and girls aged under sixteen, instead of fourteen as hitherto. 26 of the Birmingham Education Committee in its contentions with regard to the need of amendments. An agitation arose in the National Union of Teachers against the Bill on the ground that it did not go far enough in restricting street trading. Meanwhile the newspaper owners were bringing pressure to bear on the Government to weaken the Bill still further. The Government decided to sacrifice the Bill altogether to the exigencies of the political situation, when it became clear that there was no prospect of securing its passage without some difficulty.* 5. GENERAL EMPLOYMENT. The basis of the law of school attendance in England and Wales was laid down by the Education Acts of 1876 and 1880. There is some doubt as to whether these Acts did not legally prohibit completely the employment of children who were being compelled to attend school full-time by the bye-laws of the local authorities.! But the question as to whether the employment of such children is rendered illegal by these Acts, has never been decided in the courts. The wording of the Acts would seem to be too indefinite to enable them to be used to prevent the employment of children, except when it interferes with their education by taking place in the normal hours of school attendance. Until 1897 little attention was given to the problem of wage-earning by school children, except in the special occupations mentioned in the preceding pages. In that year an inquiry was made into the employment of London school children by Mrs. Hogg, on behalf of the Women's Industrial Council. The Daily News also published a series of articles on the same subject. The revelations of the sufferings of thousands of children which were made by these investigations, gave rise to a widespread agitation among members of School Boards and other persons connected with educational administration. Sir John Gorst, the Vice-President of the Committee of the Privy Council on Education, agreed to obtain from the whole of the elementary schools in England and Wales a return of the number of children working for wages. The return was issued in 1899. Information was obtained only from about half the 20,000 elementary schools in England and Wales. In these it appeared that nearly 144,000 children were employed. 17,500 of them were engaged in street-selling, and 76,000 in connection with shops, mainly as errand-boys. 27,000 were employed between 21 and 30 hours in the week ; 10,000 between 31 and 40 hours, and 3,200 over 40 hours. It would have been thought that these facts would have been sufficient to move Parliament to action. A Joint Committee on Wage-earning Children was formed by representatives of a number of philanthropic organisations, with the object of securing legislation to deal with the problem. Members of both parties in the House of Commons combined, in 1900, to insert in a Government Education Bill a special clause which aimed at securing a more * The details of the problems connected with the amendment of the street-trading provisions of the Employment of Children Act can best be understood by reference to the text of the amending Bills themselves, viz. : Bills 27 [H.L.], 191 1 ; 243 [H.L.], 191 1 ; 5, 1912 ; 268, 1912 ; 74, 1913. The last Bill is re-printed in Part V. t For a discussion on the exact legal effect of the provisions of these Acts, see the London County Council Report of the Chief Officer of the Public Control Department on the Employment of School Children out of School Hours, 1900, pp. 1-5 ; also Report of Committee on Wage-earning Children, Employment of Children for Wages, 1900, pp. 2-7 ; and Inter-departmental Committee — Evidence, p. 307. 27 effective limitation of child labour.* But the Government refused to agree to the clause. It promised that the question should be dealt with in the follow- ing year ; and in 1901 it appointed an Inter-departmental Committee to inquire into the whole question in England and Wales, and recommend the form which legislation should take. The Committee, which consisted of officials of the Home Office, Board of Education, and Board of Trade, collected a mass of e\"idence, which only went to corroborate the facts elucidated in previous public and private inquuies. At the end of 1901 the Committee issued its Report. It estimated the number of school children employed outside the Factory and Workshop Act in England and Wales at 240,000. (This figure includes 25,000 street traders and a relatively small number of half-timers employed outside the Factory and Workshop Act.) The details of the Committee's recommendations were embodied in an Employment of Children Bill, which was introduced by the Home Secretary in the following Session of Parliament. Meanwhile in Scotland the provisions of the Education Acts had im- posed more definite restrictions upon wage-earning by school children. The Act of 1878 restricted the employment of school children in any occupa- tions outside the child's home the hours of which were not regulated by law. Children might not be employed after 7 p.m. in winter and 9 p.m. in summer, unless the School Board permitted a special extension of employment for not more than si.x weeks in the year by a licence. School Boards vvere also specially empowered to grant hcences for the employment of children aged over eight in agriculture and the fisheries for not more than six weeks in the year. It is clear that Parliament intended to establish a normal minimum of ten for all forms of employment. But if the decision in the Aberdeen street -trading case quoted abovef was correct, there would appear to ha\'e been no restriction wth regard to the age at which children might be employed. In any case, there does not appear to have been any attempt in Scotland to enforce sys- tematically either an age hmit or a limit of hours for the employment of school children. An inquiry, conducted by the Scottish Council for Women's Trades in 1901, showed that out of 1,406 children employed in Edinburgh Schools, 159 engaged were under ten ; 242 out of the 1,406 worked for 30 hours and upwards in the week, so that it is practically certain that a large proportion of children must have been employed after 7 p.m. in winter. J The Education (Scotland) Act of 1901 contained the words : " it shall not be lawful for any person to take into his employment any child . . . who is under the age of twelve years." But it appears from the context that this prohibition only refers to employment which would interfere with school attendance, and that the position as regards the wage-earning school child was, therefore, the same as before the passing of the Act. This view is confirmed by the fact that most of the existing bye-laws under the Employment of Children Act made by Scottish School Boards fix ten as the minimum age for employment. As a result of the sectarian struggle over the Education BiU of 1902, Parliament could not find time to deal with the Employment of Children Bill during that year. In 1903 the Bill was passed into law, with practically no alterations of its original proposals \\ith regard to general employment. Considerable discussion took place in the Committee of the House of Commons, which dealt with the Bill, as to whether local authorities should be compelled * Cf. Inter-departmental Committee — Evidence, p. 308. t Pp. 16-17. X The Employment of Children. Report of an Inquiry conducted for the Scottish Council for Women's Trades, 1901, pp. 6-7. 28 to make bye-laws under the Act, or whether this should be optional. The latter course was finally decided upon. The chief provisions of the Act in connection with general employment were as follows. All employment of children aged under fourteen (whether attending school or not) was prohibited between 9 p.m. and 6 a.m. The employment of a child in carrying heavy weights or "in any occupation likely to be dangerous to his life, limb, health or education," was forbidden. Local authorities were empowered to make bye-laws, with the sanction of the Home Office, restricting absolutely, or permitting subject to conditions, the employ- ment of children, either generally or in specified occupations. In this way the establishment of a minimum age for employment and of a more stringent regulation of hours was made possible. The Act apphed to the whole of the United Kingdom, and it did not rescind the provisions of the Scottish Education Acts of 1878 and 1901 with regard to the employment of school children. The duty of enforcing the Act was placed upon the local authorities. These were the same as the authorities for enforcing the street -trading pro- visions of the Act, except in Scotland, where the duty of controlling general employment was laid upon the School Boards. A clause was introduced into the Employment of Children Bill of 1912 by which the bye-law-making power of local authorities, in connection with general employment, was extended so as to cover " young persons " aged over fourteen and under sixteen, as well as children. The Government incorporated this provision in their Employment of Children Bill of 1913, and also proposed to amend the Principal Act, so that the clause prohibiting the lifting of excessive weights would also be made applicable to all boys and girls aged under sixteen. The Departmental Committee on Van and Warehouse Boys, which reported in 1913, recommended that local authorities should be empowered to regulate by bye-laws the hours of employment of van-boys aged under eighteen. It is possible that effect might be given to this recom- mendation through an amendment of the Employment of Children Act. The Education (Scotland) Act, 1908, affected to some extent the regulation of the employment of children. It enabled School Boards to introduce com- pulsory attendance at continuation schools for young persons aged over fourteen and under seventeen. Employers were forbidden to employ young persons at times when their attendance at classes was required by the School Board ; and it was categorically laid down that the hoius of schooling and employment must not together exceed those allowed by the Factory Act in the case of young persons employed in factories or workshops, or those allowed by the Shops Act in the case of young persons employed in shops. But apparently these provisions do not apply to children aged under fourteen School Boards can, and do, grant exemption certificates to children of thirteen on condition that they attend continuation classes ; but the clauses of the Act, which aim at preventing young persons aged over fourteen from being overworked by employers, either under the Factory Act or outside it, are so drafted that the exempted child aged under fourteen is not covered by them. " The School Board has, however, power to lay down conditions siiitable to each particular case, and it is the expectation of the Scotch Education Department that in every case the conditions imposed by the School Board as regards the combined time of work and attendance at continuation classes will not be less stringent than those imposed by Section 9 (3) of the Act, as regards children over fourteen."* * Extract from letter dated loth April, 191 3, addressed by the Scotch Education Department to the Hon. Secretary of the Committee on Wage-earning Children. PART IL The Administration of ^ Child Labour Regulations. The Administration of Child Labour Regulations* I. The Adoption by Local Authorities of Bye^Iaws under the Employment of Children Act, 1903. Local authorities are entirely free to make bye-laws under the Act of 1903 or to refrain from doing so. Shortly after the passing of the Act the Home Secretary issued a circular* to all the English and Welsh local authorities, explaining their powers under the Act. The circular suggested that special regulations should be made for different occupations. It further reminded local authorities that " in regard to the limitation of hours, it should be borne in mind that fixed daily hoiirs are easier to enforce than a daily maximum of hours, and both are easier to enforce than a weekly maximum." It was suggested that when the hours laid down in Section 3 (i) of the Act were varied, it was desirable that the total possible period of employment should not be increased. For instance, if employment was allowed in agricultural districts before 6 a.m., an earlier hour than 9 p.m. should be fixed for its termination. It was fm'ther stated that street trading caUed for more stringent regulation in the case of girls than in the case of boys. The circular contained a specimen form of bye-laws to guide local authorities. The Committee on Wage-earning Children endeavoured to arouse interest in the adoption of bye-laws by issuing a leaflet explaining the Act during the municipal elections of November, 1902. But local authorities were slow to make use of their powers. The actual progress made in the adoption of bye- laws f in England and Wales is shown by the following Tables : — GENERAL EMPLOYMENT. Year. London. Counties. County Boroughs. Boroughs. Urban Districts. Total. 1904 1905 1906 1907 1908 1909 1910 1911 1912 1913 I I I I I 2 3 6 4 5 6 3 2 I 8 I 2 9 I 3 2 3 3 2 4 3 I I 3 3 I 4 2 3 I 3 16 7 13 12 7 10 7 18 5 Total 2 9 36 32 19 98 Authc without )rities 3ye-la% V'S — 53 42 106 30 231 * Reprinted in Part V. t For particulars with regard to each local authority see Table showing action taken by local authorities, in Part IV., Section 2. 32 STREET TRADING. Year. London. Counties. County Boroughs. Boroughs. Urban Districts. Totals. Bye-laws und 2r Local Ac ts before 190 4- — — 5 2 — 7 1904 — I 9 3 — 13 1905 — — 13 9 I 23 1906 I — 7 5 — 13 1907 I I 5 4 4 15 1908 — — 7 3 5 IS 1909 — — 3 2 I 6 1910 — — 3 3 4 10 1911 — I 2 I 3 7 1912 — 2 7 S 3 17 1913 — — I 3 I 5 Total 2 5 62 40 22 131 Authorities without Bye-la ws — 57 16 98 27 19S There are now 967 School Boards in Scotland, 52 of which are for burghal districts, and 915 for parish districts. 17 of the Burgh and 13 of the Parish School I3oards have made general employment bye-laws. 56 bui-ghs, which had a population of over 7,000 in 1901, are entitled to make street -trading bye-laws. Six of these have now done so. In Ireland no local authority has made general employment bye-laws, but 5 out of the 43 urban districts (including cities and boroughs), which possessed a population of over 5,000 in 1901, have made street -trading bye-laws. It will thus be seen that in a very large proportion of the country there is no regulation of child labour, except the meagre standard of protection provided directly by the various Acts of Parliament. The reasons for this are not far to seek. Since the Circular of 1903, the Home Office, the Secretary for Scotland, and the Lord-Lieutenant of Ireland have taken no steps whatever to press upon the local authorities the necessity of making bye-laws. Conse- quently the adoption of bye-laws in each locality has depended solely upon the existence of some individual or individuals possessing sufficient disinterested enthusiasm to set the machinery of the local authority in operation. In some cases the impetus has come from a member or members of the local authority ; in other cases an official of the local authority — the Secretary of Education, the Medical Officer of Health (as at Wallasey), or the Superintendent School Attendance Officer — has stimulated the elected members of the Council to action. In Colchester, Barnstaple, Surrey, and London, investigations by school doctors into the employment of school children and its effects have raised the question or facihtated the process of the adoption of bye-laws. Elsewhere the stimulus has come from outside. The Committee on Wage- earning Children is continually conducting a propaganda and urging the adoption of bye-laws. In some towns the bye-laws have been secured pri- marily as the result of its activities. At Poole the Town Council proceeded to the adoption of bye-laws as the result of the representations of the Children's Aid Association. Recently the Advisory Committees for Juvenile Employment, 33 formed by the Board of Trade to assist in the work of finding suitable employ- ment through the Labour Exchanges for children leaving school and juveniles aged under seventeen, have in several places prompted the local authority to make bye-laws. In Dewsbury the adoption of bye-laws was due to inquiries made by the local Advisory Committee for Juvenile Employment, and in Huddersfield the local authority is at the present moment in process of adopting bye-laws as the result of representations from the same quarter. The first difficulty which has to be overcome in attempts to secure the adoption of bye-laws by local authorities is ignorance of, or indifference to, the problem on the part of both members and officials. Of course, such ignorance and indifference is not by any means characteristic of all local authorities. But fifteen years of investigation, inquiry, and propaganda on the subject of the employment of school children have not served to dispel it in many quarters. Another serious difficulty arises from the present position of public finance in connection with local authorities in the United Kingdom. The proportion of the expenditure of local authorities which is met by local rates has increased in the last fifteen years ; consequently it has become increasingly difficult to secure even the small additional expenditure necessitated by the appointment of one or two officials for any new under- taking of a " social " character. A third difficulty has been the resistance of employers of children whose labour it is sought to protect by means of bye- laws. Newspaper proprietors, milk dealers, grocers, barbers, and shopkeepers of all kinds, and in some cases farmers, have often opposed the adoption of bye-laws on the committees and in the council chambers of the local authorities, and also by outside agitation. These particular classes of employers are, if anything, over-represented on the local authorities, and have therefore been able to throw considerable difficulties in the way of the adoption of bye-laws The opposition of these vested interests has been made more effective by the traditional English policy of providing that the actions of local authori- ties shall be jealously controlled wherever they are likely to come into conflict mth private interests. In accordance with the recommendations of the Inter-departmental Committee of 1901, the Employment of Children Act provided that the local authority, after approving the draft bye-laws, should publish them, and that any person affected should have a right, within thirty days, to state his objections to them to the Home Secretary. Should any objections be made, the Home Secretary is bound to consider them. He may refuse to confirm the bye-laws until they have been altered so as to meet, either wholly or partially, the objections which have been made ; or he may order a quasi- judicial inquiry to be held (at the expense of the local authority) by a person appointed by himself, in order to determine the action which he shall take in regard to the dispute between the local authority and the objectors. A progressive Home Secretary, anxious to enforce a high standard of child-labour regulation, could overrule all objections by vested interests, and, indeed, do much to spin: on the local authorities in making and enforcing bye- laws. But since the passing of the Employment of Children Act the various Home Secretaries have mostly been absorbed in other questions coming within the cognisance of their department, which loom larger in the pubhc eye. Even after local authorities have decided to make bye-laws their efforts have not always met with warm encouragement from the Home Office. The Order of the Secretary of State regulating the procedure to be adopted in making bye-laws practically compels the local authority, in advertising draft bye-laws. 34 to invite objections to them. Objections have, accordingly, been made in a large number of cases. Organisations of traders (such as hairdressers), having once found that the attempt of local authorities to regulate child labour could be hampered and possibly defeated, have spread the information from town to town. In a considerable number of cases the Home Secretary has ordered local inquiries. A stipendiary police magistrate, or a prominent barrister, has been appointed to cross-question the chief officials of large municipal authorities and weigh their statements against those of small grocers or barbers who wish to be able to employ boys of twelve or thirteen till ii p.m. on Saturday nights, or milk-sellers who object to a prohibition of child labour before 7 a.m. Such inquiries have been held in London (twice), Bristol, Southampton, Ilford, Hali- fax and Devonshire. In other cases the Home Secretary has insisted on a modification of the bye-laws without a formal inquiry. Owing to delays of this kind as much as two years sometimes elapses between the date when a local authority first considers bye-laws and the date when they are actually put into force. The bye-laws made by local authorities vary considerably in the extent to which they restrict the employment of children, and in the details of their provisions. The three most important principles which find expression in the bye-laws are : — (i) The establishment of a minimum age for employment ; (2) The fixing of maximum hours of employment ; (3) The fixing of limits of hours within which the employment must take place. Each of these principles may, however, be applied in a large number of different ways. Regulations may be made applicable to all children in all occupations, or, on the other hand, special rules may be made for different trades or forms of employment. Further, restrictions may be applicable : — (i) To children on the days when they are actually in attendance at school ; or, (2) To school children, both on school days and on holidays ; or, (3) To all children aged under fourteen, whether they are on the school registers or are " exempted " from school attendance. The maximum hours of employment for each day may be either less than or coincident with the total number of hours within the limits of employ- ment. In some cases, in addition to a daily limit, a weekly limit of horu'S has been fixed. Many of the bye-laws contain provisions excluding all children under fourteen from certain occupations. The forms of employment from which children are most commonly excluded in this way are the sale of alcoholic liquor* and assisting in barbers' shops. Special regulations other than the fixing of a minimum age and maximum hours are often made in order to protect children. For instance, many bye-laws contain a provision that children who are employed in theatres may not be employed on the same or following day in any other occupation. The same provision is often applied to children employed in home work. Rotherham, and recently Nottingham, have introduced into their bye-laws special regulations as to the weights which may be carried by children. The bye-laws of Govan School Board * The Children Act of 1908, by excluding all children from the bars of public houses, prevents the employment of children in the most general form of the sale of alcohol. But it does not affect the employment of children in the sale of alcohol in grocers' or other shops with off-licences. For complete list of absolute prohibitions of child labour by the different local authoiities see Table in Part IV. 35 require parents to obtain " working certificates " before their children may be employed in any way, and prohibit the employment of children without the consent of their parents. The bye-laws of the Gourock Board recommend (but do not definitely prescribe) that a " working certificate " should be obtained. The following Table shows the extent to which the bye-laws made by local authorities in England and Wales have fixed a minimum age for the employment of children : — GENERAL EMPLOYMENT BYE-LAWS {England and Wales). General Minimum Age for Employment. Bye-laws ; No No Mini- Bye-laws. mum Age. 10 II 12 Total. London . . — — — 2 2 Counties 53 7 — 2 — 62 County Boroughs 42 12 Sb i6fl 3 78 Non-County Boroughs 106 15 4 12a I 138 Urban Districts . 30 6 2 loa I 49 Total . . 231 40 II 42 5 329 a Including two cases where the minimum age is not absolutely general, but covers the great majority of child workers. 6 Including three such cases. The maximum hom"s for the employment of children on school-days are often fixed at 3 or 3^. But it is not uncommon to find them extended to 4 or even 5. Sometimes the period for which children may be employed on Satm'days (when the schools are closed) and during the holidays is the same as on school-days.* But more often the bye-laws allow much longer periods of employment, varying from 7 to 12 hours, on days when children are not in attendance at school. Sometimes no attempt is made to regulate hours at all on holidays or for exempted children, further than they are regulated by the provision of the Act which forbids employment before 6 a.m. or after 9 p.m. for all children aged under fourteen. It must be noted that the bye-laws are often not very well drafted, and it is frequently not easy to see exactly how the employment of a particular child is regulated. The following Table gives some idea of the standard of regulation adopted in the bye-laws of the Enghsh and Welsh local authorities in regard to the daily limits of hours allowed for school children : — * It may be suspected that this is not infrequently due to the failure of the local authority, through inadvertence, to distinguish between school-daj's and other days, when the bye-laws were being drafted. 36 MAXIMUM HOURS OF EMPLOYMENT ON SCHOOL-DAYS ALLOWED BY BYE-LAWS. (England and Wales.) Duration of Maximum Hours. Form of Employment. 3 hours. No. of districts. Over 3 to 3 J hours. No. of districts. Over 3i to 4 hours. No. of districts. Over 4 to 5 hours. No. of districts. Over 5 hours. No. of districts. Total No. of districts with regu- lations fixing maximum hours. Districts with General Em- ployment Bye- laws but with no regulations fixing maxi- mum hours. General* . . 4a 326 gc Sid ge 85 13 Sale and Delivery of Milk 12 37 19 14 10 92 6 Sale and Delivery of Newspapers 8 31 16 28 7 90 7 The street -trading bye-laws, with a very few exceptions, contain regu- lations providing that all persons aged under sixteen engaging in street trading must obtain a licence, and (at least in the case of boys) wear a badge when engaged in selling in the streets. A considerable number of the bye-laws either prohibit absolutely girls aged under sixteen from engaging in street trading, or permit it only when they are accompanied by a parent or guardian. There is an increasing tendency towards the adoption of such a provision. The following Table shows the minimum age for employment fixed by the street- trading bye-laws of England and Wales : — MINIMUM AGE FOR STREET TRADING {England and Wales). Boys. Districts. No Bye-laws. 11 12 13 14 Total. London 2 2 Counties . . 57 3 2 — — 62 County Boroughs 16 28 29 2 3 78 Non-County Boroughs . . 98 16 20 2 2 138 Urban Districts . . 27 16 4 2 49 Total 198 63 55 4 9 329 * In a number of cases the daily maximum is not absolutely general, but covers practically all the boys' occupations. In Rotherham, Sheffield, Cambridge, and Finchley it also covers domestic work (the principal occupation of girls who are employed while in attendance at school). Cases where the daily maximum is not absolutely general : — (a) Barnsley, Bradford, Halifax. (b) Birkenhead, Cheshire. (c) Cambridge. (d) Wiltshire, Bolton, Croydon, Leicester, Newcastle-on-Tyne, Northampton, Reading, Stoke-on-Trent, Wallasey, Banbury, Crewe, Darlington, Doncaster, Dover, East Ham, Macclesfield, Nelson, Peterborough, St. Albans, Todmorden, Torquay, Erith, Finchley. (e) Ipswich, Rotherham, Sheffield. 37 Girls. a d a li •C45 t>. J5.2 J3.S fc. j=.2 t«. J3.2 .^ •« .-■" .-•0 » &is 13 ts a its a &!; d &S3 JS u 3 w 3 en 3 Districts. "" ""•5 a 2 M c e ?, a e 11 •0 d c ° 3d d d Z a d c r'. j: □ s^.'s: c p 2. 3 s. s. a 0. London . . 2 2 Counties •^7 I I — — — — — — I 2 62 County Boroughs i6 14 7 — — I I 6 — 2 4 27 78 Non-County Boroughs 98 8 2 I — 2 I — I 4 21 138 Urban Districts 27 2 2 I I 2 14 49 Total 198 25 12 2 I 3 8 — 3 13 64 329 2. The Enforcement of Child Labour Regulations. The enactments dealing with child labour, which are of importance at the present moment, may be divided into three sections, the administration of which in practice presents three more or less distinct problems. First there are the various regulations dealing with the employment of children in public entertainments ; secondly, the street -trading regulations ; and lastly, the Act and bye-laws deahng with all other forms of miscellaneous employment. (i.) Public Entertainments. The most important points in connection wdth the children employed in this way are the issuing of the licences to their employers, and the inspection of the places where they are employed. It should be noted that licences have to be obtained for the employment of children aged over ten and under eleven at any time, and for the employment of children aged over eleven and under fourteen in hours during which general employment is prohibited either by the Employment of Children Act or by bye-laws made thereunder. Therefore the latest time up to which children aged over eleven may be employed without hcences in towns, which have made no general employment bye-laws, is 9 p.m. If a local authority has made bye-laws which place further restrictions upon general employment {e.g., prohibiting it after 8 or 8.30 p.m.), and if no special provision is included with regard to theatre employment, then hcences must be obtained by employers who desire to employ children within the prohibited hours. But some bye-laws* (such as those of London and Bradford) contain provisions specifically excluding theatre employment from the operation of the restrictions on general employment. In such cases children may be employed in theatres up to 9 p.m. ^vithout licences. Except in the case of the children employed in the Christmas pantomimes (and sometimes in the case of these) most of the children who take part in public performances are taken from town to town at intervals of a week. But a separate licence has to be taken out at each place where the children per- form, and seven days' notice has to be given of an intention to apply for a licence. This provision gives opportunities for very effective supervision of the children employed in theatres if the local authorities choose to make use * For complete list of the bye-laws which contain this clause, see Introductory Kote to Tabular Analysis of General Employment Bye-laws, in Part III. 38 of it. In some places — such as London, Manchester, Bristol and Bradford — every effort is made to protect the interests of the children. At Manchester, as soon as notice is received of the application for the licence, a form is sent to the applicant requiring him to show where the child has previously been licensed, whether the consent of the parent or guardian has been obtained, the nature of the performance in which the child is engaged, and the period for which the child will be on the stage. A birth certificate is also asked for, in order that the age of the child may be authoritatively determined. On receipt of the reply, inquiry is at once made of the police in the district in which the child was last employed as to whether the conditions of the licence granted there were satisfactorily observed. When the application is made in the police-court, the presence of the children themselves is required in the separate Children's Court. A special police inspector, who devotes practically all his time to children's questions, appears in the com-t, together with a school attendance officer, who instructs the person having charge of the child as to the school to which it may conveniently be sent. No children are, in Man- chester, allowed to perform on the stage at hours which interfere with normal school attendance. The magistrate always grants the licence, if no objection is raised by the police. It is very rarely that objections are made, since the reports from other to\\ais do not generally contain any complaints. The licences always fix the latest hour up to which the children may be employed. The magistrates have power to fix what charge they please for the licence. In Manchester, the charge is 5s.* Every week one of the six special children's police officers visits the theatres where children are employed in plain clothes in order to see that the conditions of the licence and the other regulations affecting the employment of children (such as the Dangerous Performances Acts) are observed. Some difficulty is experienced by the Manchester author- ities in enforcing the law on account of the fact that there is no provision definitely placing the obligation to prove the age of the children upon the employer. In the case of local children the age can generally be determined without great difficulty. But when children (sometimes alleged to be foreign) are brought to Manchester by a touring company, it is not always easy to ascertain their ages correctly. There is no town in England where the regulations protecting theatre children are more effectively ca^rried out than in Manchester. In London the problem of administration is complicated owing to the fact that the police, who receive the applications for licences, are not (as in most other districts) under the control of the local authority which has the duty of seeing that the conditions laid down in the licences and regulations are observed. More- over, until the present year, the inspection of the theatres, both for purposes of the child labour regulations and for all other purposes (such as provision of safety appliances against fire) were carried out by the officer of the Public Control Committee of the London County Council, while the School Attendance Department, besides administering the Employment of Children Act, was represented in the courts when licences were being taken out for the employ- ment of children. Now, however, the officers of the School Attendance Depart- ment carry out the inspection of the theatres in connection with the employment of children, as well as appearing before the magistrates when licences are applied for. As in Manchester, inquiries are made about particular children (if necessary by telegraph) from the authorities which have granted licences * It appears generally to be less ; in Salford the charge is said to be 2s., and in Liverpool 2s. 6d. 39 previously. When the children are being educated privately, steps are taken to inquire whether the teaching provided is efhcient. The children performing in pantomimes are frequently taken between the afternoon and the evening performances to a particular school, where special classes are conducted for their benefit. The Education Committee of the London County Council does not favour this arrangement, and would like to see the appearance of children at both matinees and evening performances on the same day pro- hibited. But up to the present time it has not been possible to secure this. Objections have been recently made to the licensing of children before the magistrates by the officers of the School Attendance Department on account of the conditions under which children are housed, and on account of the absence of any guarantee that the relatively large sums which are sometimes paid for child performers will be used in the interest of the children. As the result of these representations, magistrates have recently prevented children from being taken from their homes into lodgings in distant parts of London. They have also insisted in some cases that a certain proportion of the earnings of the children shall be put into the Post Office Savings Bank in the child's name, and have insisted on the production of the Savings Bank book when a second licence was applied for in connection with the same child. The police do little to assist in the protection of the children, which depends solely upon the persistent efforts of the School Attendance Department. At Bristol there is careful inspection of the theatres by a pohce officer specially charged with enforcing child labour regulations. An employer was recently successfully prosecuted for employing a number of children without a licence. At Brighton and at Bradford effective inspection is carried out by officers of the Sanitary Department. But it is to be feared that there are few other towns in which the regulations governing the employment of children in public entertainments are administered as thoroughly as they are in Man- chester and London. Although the Manchester authorities always make inquiries from the last town in which children have been employed as to the treatment of the children, they do not receive a great many similar inquiries from other towns. Bradford, Birmingham, London and Leicester are almost the only towns from which inquiries have been received. An employer of some children, who had been on tour through 62 towns, recently complained to the Manchester authorities that he had never before been compelled to send the children to school in the afternoon, when he wished that they should perform during school hours. In most towns visits of inspection are not made to the theatres, as at Manchester and Bristol, by officers specially engaged in enforcing the Employ- ment of Children Act and kindred Acts. It has been noted above that this practice has only recently been introduced in London. Elsewhere the local authorities — if they are interested in the matter at all — rely upon the ordinary police inspection of the theatres to secure the observance of the child labour regulations. This, for instance, is the case at Liverpool, while at Birkenhead the inspection of the theatres is in the hands of a police officer, who divides his time between this duty and that of inspecting hackney carriages. It is obvious that inspection of this kind is not likely to secure the same results as inspection carried out by an officer specially appointed to deal with questions of child labour. There are also great advantages in the inspection being carried out by the officer who represents the local authority in court when applications are made for the licences. 40 In Scotland, where the School Boards are the local authorities for enforcing the regulation of child labour in public entertainments, it is interesting to note that Edinburgh has ceased to issue licences in respect of local children altogether, while Glasgow issued only six such licences in 1912.* (ii.) Street Trading. There is considerable variation in the methods adopted by different local authorities in their administration of the street- trading bye-laws under the Employment of Children Act, or Local Acts and the statutory regulations dealing with street trading by children. In the early Local Acts, which dealt with street trading between 1882 and 1890, the School Boards were always (in accordance with the " model clause " of the Police and Sanitary Regulations Committee) entrusted with the work of enforcing the regulations. But the street -trading clauses of the Prevention of Cruelty to Children Acts, 1889 and 1894, were carried out — in so far as they were carried out at all — by the police. In the towns which obtained power under Local Acts to license and control street traders between 1898 and 1903, the police were always charged with the duties of issuing the licences and enforcing the restrictions. In the circular which was issued by the Home Office on the administration of the Employment of Children Act in 1903,! it was suggested that the police should administer the street -trading bye-laws. The suggested course has been followed in the great majority of towns. But in London and in the boroughs and urban districts of the Greater London area, which are within the jurisdiction of the Commissioner of Metropolitan Police, the local autho- rities have no control over the constabulary. Since the Commissioner of Metropolitan Pohce showed no keen desire to have the bye-laws administered by his force, the local authorities were compelled to place the duty upon some one of their own departments. In London (outside the City area) the Pubhc Control Department at first undertook the work, but it was in 1907 transferred to the School Attendance Department of the Education Ofhce. In the area of the City, and also in the Walthamstow, Ilford, and Leyton districts, the street -trading regulations are administered by the officers who are also charged with the enforcement of the Shops Act. In West Ham, Penge, Beckenham, Chiswick, and Erith the School Attendance Department administers the bye-laws. J In the provinces, in accordance with the recom- mendation of the Home Secretary, the work was entrusted to the pohce in the great majority of cases. But there has been a tendency in recent years to place it in the hands of the officers of the Education Committee, thus, in Bolton in 1905, in Halifax in I9ii,and in Bradford in 1912, it was transferred from the pohce to the Education Department. In Leeds, where the street- trading bye-laws came into force in 1912, they were from the first enforced by the School Attendance Department.** In Torquay, *t Darlington, Southend, * See note on regulation of child labour in theatres in Scotland, in Part I\'. I Reprinted in Part V. + In some districts within the IMetropolitan Police area (e.g. INIiddlesex County and Beckenham, Penge and Erith Urban Districts) it is stated that the police also take action occasionally to enforce the statutory and bye-law restrictions on street trading. ** Though half the cost of administering the street-trading and general employment bye-laws is assigned to the Watch Committee. *t At Torquay it was thought that the Education Committee could not legally administer the Employment of Children Act, since, owing to the presence of co-opted members, it was not wholly representative of the local authority. A special Employment of Children Act Committee was therefore constituted, consisting of the members of the Education Committee excluding the co-opted members. 41 Doncaster, Gosport and Alverstoke, and Aberdare, the work of issuing street- trading licences appears to be in the hands of officers of the Education Depart- ment. At Keighley, Bournemouth, Abertillery, and Pontypridd the issue of Hcences is in the hands of the Sanitary or Shops Inspectors. In some of these cases the authorities appear to rely wholly or partly on the police for preventing unhcensed children from trading, or licensed children from trading at illegal hours. In other cases some action is taken by the department which issue the licences, to secure the enforcement of the regulations. In Cambridge there is an anomalous arrangement by which the street -trading licences are issued from the Town Clerk's Office, the police being entrusted with the duty of enforcing the restrictions contained in the bye-laws. The following Table shows the departments administering the street- trading bye-laws under the Employment of Children Act and Local Acts in England and Wales* : — Bye-laws Administered by London. C°-ties. gC-ty Boroughs. Urban Districts. Total. Police . . . . . . — 2 51 24 I 78 Education Department . . i — 5 7 8 21 Sanitary or Shops Inspectors . . I — I 2 5 9 Other Departments. . — I — I Unknown . . — 2 5 ; 7 8 22 Total 2 5 62 40 22 131 1 No Bye-laws . . . . — 57 i6 98 27 198 Where there are no bye-laws the statutory regulations affecting street trading by children are enforced, if at all, by the police. In Scotland, where the School Board is the education authority, the Employment of Children Act placed the duty of making and enforcing street- trading bye-laws upon the county councils and burghs. The only Local Act now in force dealing with the question in Scotland — the Edinburgh Corporation Order, igoif — also made the burgh the authority. Throughout Scotland the duty of controlling street trading by children is in the hands of the police. In Ireland circumstances are complicated by two facts — there are no fully developed local education authorities, as in England and Scotland ; and the police are controlled by the Central Government. In Dublin the issue of licences is controlled by the Public Health Committee, while two special police officers enforce the restrictions. In Belfast the School Attendance Committee of the Corporation issues the licences. In view of the failure of the police to enforce the regulations adequately, in 1909 it began to make use of its own officers for patroUing the streets. The detailed measures necessary to secure effective administration are the same, whatever department of the local authority deals with them. The * For details with regard to particular local authorities, see Table in Part IV. + See Section 61. 42 administration of street -trading regulations centres round five points : (i) the issue of licences ; (2) the inspection of the employment of child street traders in the streets and elsewhere ; (3) the exercise of other methods of control ; (4) the steps taken to deal with offenders — including the juvenile street traders themselves, their employers and their parents ; (5) the provision of assistance to street traders in the form of clothing, etc. The Issue of the Licence. As regards this first point, the freedom of action of local authorities is confined within close limits by the provisions of the Employment of Children Act and the Local Acts and by the policy of the Home Office. Section 2 of the Act provides that " The grant of a licence or the right to trade shall not be made subject to any conditions having reference to the poverty or general bad character of the person applying for a hcence or claiming to trade." In the model bye-laws circulated by the Home Office in 1903 the following clause was inserted : "A licence to engage in street trading shaU not be refused by the Council to any person between the ages of and sixteen applying for it, except on the ground that the appli- cant is by reason of physical or mental deficiency unfit to trade in the streets, or that he has not his parent's or guardian's consent to his being so employed." As the result of pressure from the Home Office similarly worded clauses have found their way into all of the street -trading bye-laws.* In a number of English bye-laws the Home Office has agreed to the additional proviso that children shall not engage in street trading unless they are properly clothed. But in spite of this restriction on the right of local authorities to refuse to grant licences where they think fit, much depends upon the manner in which the issue of licences is controlled. In the fii'st place, it is possible to act upon the words of the bye-laws which require the consent of the parent in many different ways. The most general procedure is for the child to apply in person (in most cases unaccompanied by a parent) at the police office or other place where the local authority arranges for the issue of the Hcences. Particulars are then entered upon a form by the officer receiving the application. Subse- quently the same or anotlier officer visits the home of the child in order to ascertain whether the consent of the parent has been in reality given. It is not uncommon to find that it has not, and that the parent strongly objects to the child engaging in street trading, t If, therefore, the local authority omits (as it sometimes does) to have an inquiry made in the child's home as to whether he or she wishes the child to engage in street trading, the effect of the licensing system may be even to encourage street trading. In Leicester the local authority has gone a step further, with great advantage. The issue of licences is closely supervised by a Sub-committee of the Watch Committee which interviews all applicants in person. In 1908 this Sub-committee decided that in futm-e it would grant no licences unless a parent attended with the child. This reform in procedure had the effect of reducing the number of licences issued by 500. In 1908 the numbers were 748. In 1909 they were * The bye-laws for London County, London City, Hendon, Leyton, and one or two other urban districts near London, contain no licensing provisions, but compel child street traders to wear badges. No limitations are contained in the bye-laws on the right of the local authorities to refuse to issue badges. But, in point of fact, the authorities do not attempt to exercise discretion in the matter of issuing them. t See the statistics of the number of cases in Birmingham where the parent refused consent after the child had applied for a licence, in the special report on Birmingham in Part IV. 43 250.* In Worcester and in Bradford applicants for street -trading licences are examined by school doctors who ascertain whether they are physically fit to engage in the work. Thus the best local authorities exercise every care to see that children do not engage in street trading unless their parents actively desire (and not merely passively consent) that they shall do so. Local authorities can, in addition, take steps to see that every effort is made to dissuade parents from exercising their right to allow their children to trade in the streets. Much can be done in this way, short of a positive refusal to issue a licence. In Bolton, for instance, as the result of pressure upon parents from the education authority, the number of licensed street traders was reduced and kept within small limits. It is exceptional for members of the local authority themselves — as in Leicester — to interview parents of children who apply for licences. But in some cases the officials, special police officers, or school attendance officers warn both parents and children of the disadvantages of street -trading. Thus, at Manchester, the police inspector in charge of the street -trading work has alwaj'S made a point of endeavouring to persuade parents to make their children give up street -trading licences when they leave school. As an effective means of achie\ing this object he developed the practice of finding situations for street-trading boys when they came to leave school. After the Board of Trade Labour Exchange was established in Manchester he made use of the juvenile department as a means of finding regular work for such boys. In Birmingham the Labour Exchange has also placed a considerable number of street -trading boys in regular work as the result of co-operation with the police officer in charge of the licensing arrangements. At Dewsbury the secretary of the Juvenile Advisory Committee receives particulars with regard to all children (both those who are attending and those who are exempt from school) who are licensed for street trading. At Nottingham and at Huddersfield the pohce supply the Labour Exchange with lists of boys holding street-trading licences, who have left school. The London County Council recently arranged to take similar steps in conjunction with the local Juvenile Advisory Com- mittees. But in Nottingham and Huddersfield, and also in Northampton and Manchester, it has been ascertained by careful inquiries that nearly all the boys who have left school and hold street-trading licences are employed in factories or elsewhere, and sell papers in the streets after they have finished their regular work. Such boys cannot generally be persuaded to give up street trading by the offer of alternative employment. At Liverpool, in the arrangements made for licensing street traders under the Local Act of 1898, much attention was paid to the use of a licensing system as a means of securing the more regular attendance of children at school. Here, before licences are granted to school childi-en, a preliminary inquiry is made from the School Attendance Department as to whether the school attendance of the child is satisfactory. Similar procedure is adopted at Manchester and at several other towns. * A considerable number of licences are, of course, refused on the ground that the applicants do not conform (by reason of their age or for other reasons) to the general conditions laid down in the Act or bye-laws. The Departmental Committee on the Employment of Children Act obtained in 1910 a return from local authorities as to the number of licences which had been refused in each year. Cf. Departmental Committee — Evidence, 1910, pp. 381-2. 44 Inspection of Employed Street Traders. In most cases the local authorities still rely solely upon the ordinary police constables on duty in the streets to secure the observance of the regulations. Even in Liverpool there is no systematic patrolling of the streets by special officers engaged solely upon children's work. But the tendency in most towns where the bye-laws are effectively administered is to appoint officers dealing wholly or mainly with children's work to patrol the streets in order to secure effectively the observa- tion of street -trading regulations. In London it is found most convenient to deal simultaneously with the enforcement of the general employment and of the street -trading regulations, since so much of the general employment is errand running. All the 368 school attendance officers are liable to be employed in the special " street work." Between 20 and 30 are generally employed each evening patrolhng the streets, while a few are employed in a similar way in the mornings. Frequently a " raid " is made in the streets of a particular district. In Manchester there are six special officers who devote their time almost wholly to children's work, i.e., work in connection with juvenile offenders as well as street trading. But the control of street trading engages a considerable part of their time. In Dublin two police officers are specially told off to enforce the provisions of the bye-laws — one on the north and one on the south side of the city. In Belfast the failure of the police to do the work effectively led to complaints from various societies engaged in social work, as the result of which the Corporation arranged that the officers of its School Attendance Department should patrol the streets in the afternoons. In Leeds one or two special school attendance officers are told off to look after the street traders every day. In Bradford a special police officer attached to the Education Department patrols the streets periodically in order to enforce the bye-laws. These examples serve to show the efforts made by local authorities who attempt at any rate in some degree to deal with the street -trading problem seriously. The large number of infringements of the regulations, which are detected wherever this is done, shows the difficulty of dealing with the problem effectively. According to a return obtained by the Departmental Committee on the Employment of Children Act* in 1909 the number of reported contra- ventions of statutes or bye-laws affecting street trading in the whole of England and Wales outside London was 836 in 1904, 1,389 in 1905, 1,937 in 1906, 2.501 in 1907, and 3,206 in 1908. In London 9,263 infringements were dealt with in the year 1908-9, 6,478 in 1909-10, 5,291 in 1910-11 and 3,867 in 1911-12. In Manchester the number of infringements of the bye-laws by Hcensed children was 215 in 1911 and 231 in 1912. The number of unlicensed children found trading in Manchester in these two years was 157 and 148, while the number of parents reported for permitting the same was 376 and 379. The child street -seller is inevitably an elusive person. In the great majority of places where bye-laws have been made, the system of inspection is by no means commensurate with the efforts which are really necessary. In some districts (such as London and Bootle) difficulty has been caused from time to time by the fact that the officers of each local authority have no powers to deal with children who trade a short distance beyond the local boundary, and in the area of an authority which makes little or no effort to deal with street trading by bye-laws or inspection. I Report of the Committee — Evidence, 1910, p. 38S. 45 The compulsory wearing of a badge has been copied from Liverpool in nearly all the towns which have bye-laws dealing with street trading.* Without it a system of control is almost impossible. In London there is no licence distinct from the badge, the name and address of the child and other particulars being entered on a slip inside the badge. It was not thought desirable in London to compel girls engaged in street trading to wear a badge, during the period previous to the revision of the bye-laws in 1911. Other Methods of Control. Chief amongst these is the periodical renewal of the licence. A licence issued for an indefinite time is very little use. The local bye-laws generally contain a provision that all licences must be renewed on a certain date in the year.f A large proportion of the local authorities require a deposit of 6d. when the badge is issued. When this is not required there is often difficulty in recovering the badge, and in preventing the loan or even sale of badges to unlicensed children. Another provision frequently occurring in bye-laws is a regulation requiring the street trader to notify changes of address. In the Liverpool and other Local Acts of the period 1898- 1902 it was common to make regular school attendance a condition of retaining the licence. It was arranged that a quarterly return of the school attendance of licensed street-trading children should be forwarded from the School Attendance Department to the police. In Liverpool and Manchester this has been the means of securing a much more regular attendance of street traders at school. The provision has been copied in a few bye-laws under the Employ- ment of Children Act — for instance, those of Lincoln and Cork. But in most cases local authorities have relied simply upon the prohibition of street trading by school children during school hours, to prevent the employment from interfering with school attendance, and do not inquire systematically into the school attendance of hcensed children. Steps Taken to Deal with Offenders. In considering the problem of offences against street -trading regulations, it is important to distinguish two different sets of circumstances. The case of the child who is trading in the employment and direction of another person, whether a parent, a newsvendor or a newspaper company, must be carefully distinguished from that of the street trader who buys newspapers or other goods and sells them for his own or his parent's profit. " In the first case it is obvious that the employer must be proceeded against. But in some instances local authorities have thought it desirable to strengthen their case by proceeding against the parent as well. In dealing with the second class of street trader the local authority can proceed against the child or against the parent. It can, moreover, deal with the child either in an extra- judicial manner — by warnings, and in the case of licensed street traders by suspension or revocation of the licence — or by proceedings in Coiu"t, since 1908 necessarily taken in a special children's court. In some cases local authorities have, to a considerable extent, adopted the policy of warning and ultimately prosecuting the parent rather than the child. Birmingham has, for instance, made considerable use of Section 3 of the Prevention of Cruelty to Children Act, 1904, in this way. But the most general method of procedure on the part of the most active local authorities * The exceptions are Croydon, Hornsey, Finchley, Hendon, Cheltenham. t A few bye-laws contain a provision that the licence must be delivered up each night. This apparently originated in Liverpool in connection with the proposals for clothing children, the intention being to prevent the children from being deprived of the clothes provided by the Corporation. It is believed that no use has ever been made of the provision. 46 in the case of offences by licensed street traders is to summon them before a Sub-committee of the Watch or Education Committee (whichever administers the bye-laws). This, for instance, is done in Liverpool, Manchester, Bolton, Dublin and Birmingham. In the first instance, the offenders are cautioned, and for subsequent offences the licences are suspended, or in the last resort revoked. In somewhat smaller towns such as Norwich and Barnsley the Chief Constable personally inter\dews offenders and their parents. Children found trading without licences are also brought before a Sub-committee or the Chief Constable, in this way. There is a strong feeMng in many towns that formal prosecutions should be avoided as much as possible. It is note- worthy that Manchester, which employs a larger number of officers specially devoted to children's work than any other provincial town, has very few prosecutions in connection with street -trading offences. By emplo3dng an adequate and efficient staff it avoids the necessity for them. At the same time prosecutions in connection with street -trading offences are no doubt in some cases necessary. Some difficulty has been experienced by the officers of the London County Council in proving the age of street traders. The pro\dsion of Section 17 of the Prevention of Cruelty to Children Act, which places the onus of proving the age to a certain extent upon the defendant, would appear to be inapplicable when the child himself is the defendant.* In Scotland there have been few prosecutions owing to two considerations. First, the police cannot themselves prosecute, but must hand over cases to the Procurator-Fiscal. Secondly, the cases have, in accordance with the Employment of Children Act, 1903, to be taken not in the Burgh Court, which corresponds more or less to the English police court, but in the Sheriff Court, which is already fully occupied \\dth cases of a different character. The Children Act, 1908, enabled fines to be inflicted upon parents for offences committed by children. This provision is generally made use of in cases where small penalties are inflicted for street -trading offences. It is only in the worst cases that the magistrates make use of the power to send children to industrial schools. The Provision of Assistance to Street Traders. In Liverpool the original street-trading regulations were obtained in 1897-1899, as much from the desire to provide for the street traders as from the intention of restricting street trading among children. The provision of homes for street traders was more discussed than any other point in the whole scheme. This aspect of the question gradually shpped into the background. Very little use has been made in Liverpool of the power to require street traders to reside in suitable lodgings, in spite of the prolonged sectarian disputes which arose out of the effort to secure it. But the provision of proper clothing for street traders is a question which has been dealt with in many towns. The ragged con- dition of the child street traders had attracted the attention of philanthropists for some decades. When, however, the Liverpool Corporation desired to order that children engaging in street trading should be properly clothed, the Home Office, true to its attitude of zealous defence of individual rights, insisted that this should not be done unless the Corporation provided clothing for children either through voluntary agencies or from the rates. Thus, children might be forbidden to trade unless they were properly clothed, but in order that destitute children might not be prevented from earning a living by street trading, clothing must be provided for them, when they applied for * 1910 Committee, Q. 8905. 47 a licence. At first Liverpool arranged to clothe the children from voluntary funds through a " Police-aided Clothing Association." But in the second Liverpool Local Act deahng with street trading, power was given to the Corpora- tion to spend money out of the rates on this object. Since igo2 the Police- aided Clothing Association has confined its activities to destitute children other than street traders, the street traders being clothed by the Corporation itself. The cost is very small, since most of the sums expended are recovered by instalments from the children. The Manchester Local Act of igo2 also empowered the Corporation to clothe the licensed street-trading children out of the rates. But this power has never been used owing to the fact that the voluntary funds raised- by the Police-aided Clothing Association have sufficed. Since 1903 several local authorities have insisted in their bye-laws that licensed street trading children should be properly clothed. Before sanctioning such a provision the Home Office always insists on being satisfied that the organisation exists for a voluntary fund,, out of which the necessary expenditure can be met. (iii.) General Employment. The Authority Responsible for Adminis- tration. In England and Wales there is a considerable variety of practice as to the department through which the local authorities exercise their duty of enforcing both the statutory restrictions on the employment of children and also their bye-laws made under the Employment of Children Act. Where no bye-laws have been made it is most common for the local authority to rely on the police for enforcing the statutory restrictions contained in Section 3 of the Act.* Even where bye-laws have been made, the sole authority for carrying them out is sometimes left in the hands of the police. This is the case at Newcastle-on-Tyne, Cardiff, Leicester, Eastbourne, Southampton, Coventry, Carlisle, Norwich, Dewsbury, Northampton, Barrow, Reigate, Hove, Crewe and Cambridge. But the fact that children employed in connection with shops constitute in all urban areas by far the largest section of children affected by its provisions led many local authorities to place the duty of enforcing the Act upon special inspectors already engaged in inspecting shops under the Shop Hours Acts. In London the Shop Hours Inspectors of the Public Control Committee of the London County Council dealt with the local bye-laws until 1907. In Leeds, for a few months prior to the adoption of bye-laws, the Shop Hours Inspector was active in enforcing the 9 o'clock rule. In Liverpool, Bradford, Wallasey, Brighton, Keighley, Bournemouth, HaHfax, Chester,! Gillingham, Leyton, Pontypridd, Ilford and Walthamstow, Sanitary or Shop Inspectors are relied on to carry out the necessary inspection. In some towns the Shop Hours Inspector or Inspectors, even when they are a separate class of officers from the ordinary police force, are under the control of the Chief Constable and Watch Committee. This, for instance, is the case in Leeds. But in most cases the delegation of the duty of enforcing the Employment of Children Act to the Inspectors under the Shop Hours Act brought the work under the supervision of the Medical Officer of Health and the Sanitary or Public Health Committee. In the counties of Middlesex and Chester the duty of inspection is placed upon the Weights and Measm'es Department. * Though in some cases, as at Liverpool, Bradford and Wallasey, effective action was taken by inspectors of the Sanitary Department in enforcing the statutory restrictions on general employment before bye-laws were adopted. t It is now proposed in Chester to transfer the work, in so far as it relates to shops, to the Weights and Measures Department. The claims of the Education Departments of local authorities to a share in the administration of the Act could not, however, be overlooked. Through their teachers and school attendance officers they were closely in touch with the children, and in many ways in a better position than any other depart- ment to secure the proper administration of the law.* In some towns it was, therefore, arranged that the police or sanitary officers engaged in enforcing the child labour regulations should, as regards this duty, act under the direction of or in close co-operation with the Education Committee or one of its officers. At Birkenhead, for instance, the police officer who is specially charged with children's work is continually investigating cases of the employment of cliildren brought to his notice by the Secretary for Education. At Keighley and Bexhill there appear to be arrangements for joint action by the Sanitary Department and school attendance officers ; and in Lowestoft between the School Attendance Department and a special police officer. But in an increasing number of cases local authorities have decided that the administration of an Act which is so closely connected with other questions of child welfare is best entrusted to officers directly and solely responsible to the Education Committee. In London the enforcement of the bye-laws was transferred in 1907 to the School Attendance Department of the London County Council's Education Committee. In Leeds the Education Committee have administered the bye-laws ever since their adoption. In Birmingham, where no general employment bye-laws have yet been made, the Council has recently trans- ferred to the Education Committee the administration of the general employ- ment section of the Act and the framing of bye-laws thereunder. The Educa- tion Committee also exercises responsibility (through school attendance officers or special officers) in West Ham, Bolton, Worcester, Torquay,! Darlington, Southend, Doncaster, Aberdare, Tottenham, Gosport and Alverstoke, Becken- ham, Penge and Erith. The following Table shows the departments of the local authorities of England and Wales which are responsible for the enforcement of the general employment bye-laws J : — Bye-laws Administered by i London. | Counties. bSSs.! Boroughs. Urban Districts. Total. Police . . — 2 19 12 I 34 Education Department I 2 4 8 7 22 Shops or Sanitary Inspectors I — 8 ! 2 4 IS Other Departments . . — 2 — I — 3 Unknown — 3 5 1 9 7 24 Total 2 9 36 32 19 98 No Bye-laws , . . . . . — 53 42 106 50 231 * In at least one or two cases, however, the local Secretary for Education has been unwilling to assume direct and complete control of the administration of bye-laws, lest the work should bring upon him the odium of causing an increase in the Education Rate ! f Vide supra, p. 40, footnote. I For complete details with regard to particular local authorities, see tables in Part IV. 49 It should be noted that there are a fan" number of cases in England and Wales in which different municipal departments administer the general employ- ment and street -trading regulations. In some districts in which the police administer the street-trading bye-laws, the general employment bye-laws are enforced by either the Education or the Sanitary Department. This was the case in Bradford until 1912, and is now the prevailing arrangement in Liverpool, Hull, Birmingham, Chester, Brighton and Worcester. Sometimes the Sanitary Department is responsible for the control of general employment, while the Education Department deals with street trading. Bradford and Halifax now both adopt this plan. There are a considerable number of districts in which the local authority, which is responsible for the enforcement of the Employment of Children Act, does not control the police within its area. The districts within the area of the Metropolitan Police are an example of this, as are also boroughs such as Batley, Bridlington and Harrogate, and urban districts such as Shipley. In such districts (especially if no bye-laws have been made) there sometimes appears to be a confusion in the minds of the officials of the local authority as to their responsibilities under the Employment of Children Act, and an impression that it is solely the duty of the County or Metropolitan Police to take action in connection with it. In Scotland the Employment of Children Act made the School Board the authority for enforcing the provisions of the Act relating to general employment. Methods of Inspection. But the decision as to the department of the local authority to which the work of enforcing the regulations is to be entrusted is only the first step in securing effective administration. The employers of children under fourteen are very numerous, and much of the work is of the nature of delivering goods away from the actual shop or other place in connec- tion with which they are normally employed. Nothing short of a persistent and continuous inspection by several officers can serve to touch the problem in a city of half a million inhabitants. Even a town of ten or twenty thousand inhabitants needs intelligent and systematic inspection by at least a single officer for several hours a week if the law is not to remain a dead letter. The need for persistent inspection is shown by the experience of Liverpool. Three workshop inspectors, attached to the sanitary department, have for some years devoted a portion of their time to inspection under the Shops and Employment of Children Act. In addition, at intervals of a few months, about half-a-dozen sanitary inspectors have assisted in special efforts on certain evenings to detect offences against the bye-laws. Since the passing of the Shops Act, 1912, three extra inspectors have been appointed for the purpose of enforcing the Shops Acts and Employment of Children Acts. A complete register is kept of places emplojnng children, together with the number employed and their normal hours of work. Every visit paid by an inspector is recorded in a specially printed note-book, and subsequently entered in the register of places of employment. The number of visits paid was 5,103 in igio, 4,735 in 1911, and 7,183 in 1912 ; 342 contraventions were discovered in 1910, 278 in 1911, and 256 in 1912. In spite of these efforts to enforce the law during the year 1910, the school doctors in, the coiuse of their examinations in the schools discovered 417 cases in which cliildren were illegally employed. In 1911 the number was 441. If the amount of illegal employ- ment is as great as this in a city with an effective system of inspection, it is so difficult to imagine how much exists in tounis where the inspection is at best perfunctory and probably amounts to practically nothing. In Bradford the efforts to enforce the law are comparable to those made at Liverpool. Two inspectors devote the whole of their time to work under the Employment of Children Act and to the inspection of shops and work- shops. Registers of all places employing children are kept on the card index system. In Leeds the system of inspection is relatively new, but is very efficient. Two school attendance officers are continually engaged in the work, while four others are engaged in inspection for a few hours every week. Registers are kept on similar lines to those at Liverpool and Bradford, except that they deal exclusively with places (whether shops or not) where children are employed under the Employment of Children Act ; whereas the Liverpool and Bradford registers, being kept by the sanitary authority, include all places under the Shops Act. In London the organisation of the details of inspection is in the hands of the twelve di\asional offices which supervise the work of enforcing school attendance and other matters connected with the welfare of children. \Mien the administration of the Act was transferred from the Public Control Com- mittee in 1907, the recent introduction of certain changes in the system of keeping the records connected ^vith school attendance made it possible to spare a certain amount of the time of the school attendance officers for the new work. The children who are employed at illegal hours are not generally working actually in the shops in connection with which they are employed. It is, therefore, found that the officers can generally most conveniently carry on the work of inspection under the general employment and street -trading sections of the Act simultaneously. On the average from 20 to 25 officers are engaged in inspection work each evening in the whole of London. The local superintendents however can, and frequently do, arrange to employ a larger number of officers in the " street " work ; while the officers are all instructed to look out for cases of illicit employment when engaged in their ordinary duties of visiting the homes of school children. On Sundays, and in the early morning, a certain number of officers are specially employed to detect cases of illegal employment. The large number of cases of infringe- ment dealt \Ndth annually gives some idea of the scope of the problem of regulating child labour in London. The numbers have been as follows : — for:\i OF ILLEGAL EMPLOYMENT. Under 14 Under 12 selling or Under Sec- At Period. Under 11. in barbers' delivering tion 3 (4) illegal Total. shops. alcoholic liquor. ana (5) of Act. hours. August, 1908- July, 1909 1 196 IS 6 — 3960 5177 April, 1909- March, 1910 "34 17 8 346s 4624 April, 1910- March, 191 1 814 18 3 5 2522 3361 April, 191 1- March, 191 2 [Details n ot yet ava liable.] — — 5194 51 Only a very small number of cases of employment in industrial work at home have been detected in London. This is attributed to the facts that the officers have no right of entrj^ into domestic workshops, and that they have not access to the lists of home workers, which have, in accordance with the Factory Act, to be sent to the borough councils. But it is to be feared that as long as badly paid home work exists it will be almost impossible in London, or anywhere else, to prevent the employment of children in it for excessive hours. Most of the somewhat elaborate provisions for regulating the work of children at home which are contained in a considerable number of bye-laws may be assumed to be a dead letter. The chief hope of improvement in the welfare of these children lies in the bettering of the economic condition of their parents through the Trade Boards Act. Besides carrying on a persistent routine inspection, London and Liverpool make efforts in other directions to secure the enforcement of their bye-laws. When the bye-laws were fii^st adopted in London a quarter of a million copies were distributed to all classes of persons who were likely to be affected by or in- terested in them. In Liverpool copies of the bye-laws are from time to time served on all persons employing children under fourteen. The school doctors in Liverpool question all the older children whom they examine as to whether they are employed, and report all cases of illegal employment to the sanitary depart- ment lor investigation. In London efforts are made to secure reports from the teachers on the employment of children. Notices are from time to time put in the " London County Council Gazette," which is circulated to all the schools, asking the teachers to make inquiries as to employment amongst the school children. In Edinburgh the School Board appears to rely almost wholly upon the reports of the teachers for the detection of cases of illegal employment. At Brightan lists of employed children are systematically forwarded to the sanitary department by the teachers. In several places the failure of the local authority to take adequate measures to enforce the law has induced outside bodies interested in the welfare of children to agitate for the more effective system of inspection. Thus, at Hastings the Charity Organisation Society, finding that the bye-laws were ignored, suggested to the local authority that the school attendance officers should be instructed to take steps to secure their enforcement. At Leeds, although a special shop hours inspector had been inspecting shops for many years, he had never taken any steps to enforce the statutory pro- visions of the Employment of Children Act. As the result of the complaints of the Advisory Committee for Juvenile Employment in 1911, this officer was instructed to prevent the illegal employment of children. Similarly at Dewsbury and at Northampton the Advisory Committee for Juvenile Employ- ment stimulated the local authority to action. At Norwich, as the result of the failure of the police to enforce the bye-laws, a number of members of the Liberal Christian League personally investigated the amount of illegal employment in the early morning hours, and sent in a report to the local authority. In Birkenhead the local Association of Workers with Boys has recently succeeded in securing a more active administration of the bye-laws by the local authority. Unfortunately, however, an5rthing in the nature of a systematic inspection for the purpose of enforcing regulations under the Employment of Children Act is exceptional. There are only too many local authorities which have spent a considerable amount of energy in discussing and passing bye-laws, and have then taken no steps to enforce them after they have been sanctioned by the Home Office. In some of the large towns, in the great bulk of the smaller towTis, and in nearly all ti\e rm'al districts there is no inspection what- ever. The action of the Norfolk police in preventing the emplo\Tnent of school children in fruit picking before 6 a.m. is an exceptional instance of inspection in agricultural areas.* Even in the districts in which effective inspection has been established, the action of the local authority has been confined to enforcing the provisions of the Act and bye-laws which establish a minimum age and maximum hours for employment. Very little use has been made of Sections 3 (4) and 3 (5) of the Act, which enable individital cases of injm'ious employment to be specially dealt with on the gi^ound of the physical unfitness of the child for a particular form of employment, or for emplo3-ment in general. There have only been about a dozen cases in Bradford and in London where action has been taken iinder these Sections of the Act. In Bradford medical certificates have, in a few cases, been obtained from the school medical ofiicer. In one case this was done in order to prohibit the butchei^'s boy from carrj-ing an excessive weight. and in another case in order to prevent a feeble-minded boy from being employed on a van. The Chief Medical Officer of the Board of Education, in his report for 1911, drew attention to the powers of school medical officers to deal with indixidual cases of injurious employment, and urged that greater use should be made of it. In Ireland there appears to have been no attempt whatever to enforce the provisions of the Employment of Children Act deahng with general employ- ment. In the report of a Departmental Committee on the " Making-up " Ti'adest in Ireland it was noted that cases were common in which children were employed after 9 p.m., contrary to the statutory prohibition of such employment in the Act. Proscciifiois. The annual judicial statistics for England and Wales, Scotland and Ireland, contain separate particulars as to the number of prose- cutions undertaken in the different counties under the heading of " child labour law " {i.e., all Acts affecting child labour other than the Factory and Mines Acts). But they do not distinguish between prosecutions of children for offences in connection with street trading and prosecutions of the employers or parents of children for offences in connection with any form of employment covered by the Acts. The prosecutions of children for offences against street- tradiiig regulations are fairly numerous in some areas. It is clear that these prosecutions are of a different character from those undertaken against persons who are making a profit out of child labour. The Departmental Committee on the Employment of Children Act obtained a return in IQ09 of the number of prosecutions of all kinds undertaken in connection with street-trading offences by English and Welsh local authorities which had made b\'e-la\\3. In the following table the return of street -trading prosecutions as given in the Report of the Departmental Committee of 1910 are shown, as well as the figures which are taken from the annual Judicial Statistics. J * As a result of this action, a bye-la\v was adopted (applicable to certain districts only) altering the legal hours of emplojnuent for children aged over 10 from the period 6 a.in.-9 p.m. to the period 5 a.m. -5 p.m. during the summer holidays. f i.e., machine and hand sewing of linen and cotton shirts, handkerchiefs, etc. I Detailed figures for each police district in the United Kinijdom are civen in the Table in Part IV. 55 o § a •a a c O ^ •£ I nt J3 !^ ^ F-i u 3 o s 3 CO C o 3 u •:3 w o '> o O Admonished (after Con- viction). 1 1 1 1 i 1 M 1 1 M 1 1 1 1 11-^21;;^ * a OsVO «0\0'-'C>0 ||||0riO\0\ 1 -"J-vC' oo ro M 0\ e^ t-X rn -^ \j-i t^zc -O DM Impri- soned.** ^' - 1 " i^^ ^^ 1 1 1 1 1 M 1 1 1 1 1 1 1 1 1 Under Street Trading Bye- laws. ^■S'^a^i II 1 1 1 1 1 1 1 1 1 1 1 1 1 1 II o ^o <7\u->f»~/0"-iO(Sr^ 1 1 1 |H-Ma\0\ |-+ tx>0 0\ ro <^ -Ti- ro 0\ Cl tx a\«o ■i'^) IIII'^-^-'On m«w ^m f) fl ro Tf Lnco On t^ n rt ^^ U O o-> > *^ o s Committed to Industrial School. ooo\-'-"<^>-i llllllll lllllll'^ 3 o H 1 1 1 1 f 1 VO CO O 1 1 1 1 1 1 1 1 1 1 1 1 - n m rn ^ a in un C\ - O Tj- "-1 -^ 1 1 1 1 00 ri cc Tf | | n c) i-<.-i>-.rO<~Orl-Tj-ro n Persons Proceeded Against under Street Trading Bye -laws.* S.c;<§o8 III llllllll llllllll d o H OOVO'-irtMD-^-OO-i i CT\OO\00 IM-CNONfOTj-CN" « \0 mco OOOTfro O...MroOs^ 1 ««a coi>. 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T"! .- y tfi 4) > 'So 1) > ci3 7) 1 m u ?r '3 03 JJ V4 Tt, (-H ^(On ■-^ a H— .C ++* 54 O W H O W O o w o iz; w ^\. fe.S O o > H hJ W Q !z; W o S o O ID H W o c 6§ o o-s -dO -3 a I o o "o-o o -^ O 00 fo 2 ° fc 1 1 1 ^ 1 r 1 s 1 ri- lii KH 1 r<-,cO -< >-< 3 c oi 1 r- 1 lr- fa l 1 1 1 1 1 1 " ^ 1 1 "- 1 1 ::^ Id C II 1 1 M t^ H S 11 1 1 IN t^ V-l _, 1 % III 11 " ro H fa 1 I 1 1 11 i 1 s 1 1 r 1 1 ^^ 3 1 i3 1 -^ t^O 1 ro fO Tj- •S 1 - - 1 ^ C) fa 1 1 r 1 r " ,_; 1 Tj- t^ -^ 1 fo M S 1 - - 1 VO N OOOOOO"-" 55 t/i < O PQ < Q o K H W w o O Q W I— I H W O Pi w fin CJ I— I Cases (included in other columns) which were tried in Juvenile Courts. 1 1 1 M U5^ u O CJ CO o ni Ph 'o o 1— ) 1 1 1 1 1 1 1 1 Police and Burgh Courts. I 1^1 1 1 o 0\ II 1 1 1 <0 Tj- ir. u 3 O CJ i? 'C in 1 "+0 0^. 1 T}- 0\ M-, OOOOOO"" 0>C\CT\0\CT\0\C?\0\ 56 It may be noted that in Nottingham and Leicester the police make a practice, in general employment cases, of prosecuting the parent of the employed child (for conducing to the offence) as well as the employer. Certain difficulties have arisen in undertaking prosecutions owing to the wording of the enactments affecting the general employment of children. In London the school attendance officers were met with the difficulty of pro\ang the age of the children. In cases under the Education Acts this can be done by the production of a birth certificate, and if this is disputed the onus of proof lies on the defendant. Section 17 of the Prevention of Cruelty to Children Act, 1904, has apparently not completely overcome the difficulties of the local authority in this matter in London. In Liverpool the stipendiary magistrate has agreed to accept the official school records and the statement of the parent to the inspector as evidence of the age of the child, unless the defendant disputes this. This arrangement has had the additional advantage of making it unnecessary to bring the child into court. A further difficulty arose in London owing to employers disputing the statements of school attendance officers as to the time at which children were employed. In order to overcome this difficulty it was necessary to arrange that the officers should to a certain extent work in pairs in order that there might be two witnesses of infringe- ments of the law. In Scotland one of the reasons why few prosecutions have been undertaken is the uncertainty as to whether the law empowers School Boards to spend money on undertaking them, as well as carrying on the work of inspection. In some places a pecuHar difficulty, which has hampered every step in the advance of both industrial regulations and of education in England has made itself felt in connection mth the administration of the Employment of Children Act. The Justices of the Peace are sometimes inclined to take up a hostile attitude towards the Act, and to refuse to convict offenders or to pass adequate sentences. This has been the case, for instance, at Wallasey. At the instigation of the Medical Officer of Health the local authority instituted prosecutions against a tradesman who, in spite of warnings, insisted on employing a boy aged under fourteen at 9 o'clock at night. But on two successive occasions the magistrates refused to convict the offender. In Leeds an extraordinary decision was given a short time ago by a magistrate. A milk-seller had sent a boy to complete the delivery of a round of milk. He alleged that he allowed him sufficient time to complete the delivery before 8.15 a.m., the latest hour at which such employment is allowed by the bye-laws. The boy was found deUvering milk after 8.15 a.m. When the case was brought before the court, the magistrate held that the milk-seller had not infringed the bye-laws, because the boy might have completed his work within the hoiu"s of legal employment had he not wasted time. Obviously such an interpretation of the law, if upheld, would render the enforcement of any limitation of hours almost impossible. Fortunately such decisions are not very common,* and the stipendiary magistrates in the larger towns generally take a reasonable view of the importance of securing the observance of the law. 3. General Results of the Regulation of Child Labour. {Outside the Factory and Mines Acts.) For the purposes of forming an estimate of the general results of the regulation of child labour outside the Factory and ]\lines Acts, the \'arious areas of the United Kingdom may be roughly graded into four classes. There * Though they are not unknown in London. 57 are, in the first place, a large number of districts, including most of the rural areas and a not inconsiderable portion of the smaller urban areas, where no bye-laws have been made, and where the statutory restrictions on child labour are a dead letter. Secondly, there are the districts where a small effort has been made to secure regulation. A few prosecutions may have been taken under the statutory provisions of the Employment of Children Act or the Prevention of Cruelty to Children Act, 1904. Possibly bye-laws may have been made, but no effective measures taken to enforce them. Licences are issued to street -trading children in a perfunctory manner, but no adequate system of inspection either of street trading or of general employment is carried out. Cambridge, Norwich, Northampton, Rotherham and the City of London are examples of areas of this second type. A third class of districts comprises those in which one or more particular kinds of employment are effectively regulated, biit in which other kinds of employment are left untouched. Manchester and Birmingham are the most striking instances of local authorities which have acted in this way. Both administer their street -trading bye-laws well. Manchester is in addition distinguished by its careful administration of the regulations for the protection of theatre children. But in both these large cities nothing has been done to carry out the portion of the Employment of Children Act which deals with general employment. Finally, there are a certain number of areas in which at least a fair average of effectiveness is reached in the administration of all branches of child labour regulation. London, Bradford, Liverpool, Bristol, Leeds, and Bolton may all claim to be classed in this category. Naturally this estimate of the work which is being done under the Employ- ment of Children Act and kindred Acts is a very rough one. It would be almost impossible to decide dogmatically in which of the categories every local autho- rity in the United Kingdom should be placed. But it woiild appear that (on a very rough estimate) there is something approaching fairly effective all-round administration of child labour regulations in areas containing aboiit a fifth or a sixth of the population of the United Kingdom, while in areas containing something like a quarter of the population, the various laws might as well not exist. It is difficult to form an estimate of the extent to which child labour regulations are effective. But it is still m^ore difficult to estimate the extent to which the number of child workers has been diminished, and the excessive hours of those who remain curtailed by the operation of the regulations. With regard to the relatively small class of children aged under fourteen employed in public entertainments, who are protected by a special system of regulation, there is little doubt that their number has been very largely diminished during the last twenty years. In 1885 the Royal Commission on Education accepted the estimate that there v/ere 1,000 of these children in London. WTiether this imphes that there were 1,000 employed simultaneously is not clear. But it seems that there were at any rate several hundred in the Christmas season. At the present time it is stated by the officials of the London County Council that, except during the Christmas season, there are never more than 10 applications for hcenccs in the whole of London in each week, and generally only five or six. The number of children aged under 14 employed during the Christmas season does not exceed about 100. The diminution of the number of children employed in this way is, no doubt, partly due to the higher standard of school attendance enforced by the local education authority, both in London and elsewhere. But both in London 58 and in Manchester it is stated that the trouble involved in the licensing system causes the managers of theatres to make as little use as possible of children aged under fourteen. In the case of the variety theatres, in which practically all the children except the patomime children are employed, it is the touring artistes, not the managers of the theatres, who are anxious to be able to employ children aged under fourteen. There is httle doubt that the existing law has contributed to the diminution of the number of children employed in pubhc entertainments ; while it restricts the hours of their employment and prevents abuses. It is difficult to say how far, if at all, the other class of specially regulated child workers, the children trading in the streets, has been diminished by the operation of the regulations. The statistics with regard to street trading are apt to be very misleading.* The Inter-departmental Committee estimated in 1901 that there were not less than 25,000 street -trading children in attendance at school in England and Wales. The Departmental Committee on the Employment of Children Actf found that, in igo8, 37,000 children (aged under sixteen) were hcensed for street trading in England and Wales. A return obtained from 74 local authorities by the Committee on Wage-earning ChildrenJ gave over 32,000 as the number of street traders licensed in England and Wales in the early months of 191 1. The returns obtained in connection with the present inquiry show that in the areas of 77 local authorities in England and Wales about 22,500** licences were actually in force at the end of 1912. The total number of licences in force in England and Wales at that date was probably not less than 26,000 or 27,000. . . . But in view of the varying degrees of efficiency *t with which the hcensing system is worked, and the misunderstandings and errors, which have occurred in connection with most of the statistics of street -trading licences, it is certainly impossible at the present time (and will probably never be possible) to estimate from them the increase or decrease in street trading by children throughout the whole of England and Wales (to say nothing of Scotland and Ireland). All that can be said with confidence is that, in spite of all the weaknesses and difficulties in administration, the efforts at regulation are slowly having the effect, at any rate in England and Wales, of postponing the average age at which boys and girls are employed in street trading. The total number of street traders aged under fourteen is probably steadily diminishing on the whole, whatever may be the case with regard to the total number under sixteen or seventeen. Begging, under the guise of selling, by young children is not uncommon even now in some towns, such as Liverpool. But it is clear that in all large towns in England and Wales street trading by very young children has been considerably diminished as compared with the state of things fifteen or twenty years ago, if it has not been completely abolished. Selling late at night is also checked ; and in the cities and towns in which the licensing system is carried out best (such as Manchester and Birmingham) some of the worst result of street trading are undoubtedly counteracted to a certain extent. * See note on the statistics of street trading in Part IV. f Evidence, pp. 385, 390. I See Papers and Proceedings of the National Conference on the Prevention of Destitution, 191 1, p. 252. Returns from three Scottish towns were included in the statistics, but are excluded from the figure given above. ** The reduction as against the 191 1 figures is mainly due to the cessation of the issue of licences to boys aged under fourteen by the London authorities. *f The degree of efficiency varies both in different places and also often in the same place at different periods ; an increase in the number of licences issued often implies better supervision. 59 There is evidence from several towns that the regulation of the employ- ment of children engaged in miscellaneous occupations has to a certain extent caused work which was formerly done by school children, to be transferred to children and young persons who have left school. As regards the boys employed as lather-boys in barbers' shops, this has been done in some cases by the com- plete prohibition of the employment for boys aged under fourteen. Even in places where complete prohibition has not been secured, there is evidence that the restrictions on the employment of school children have caused barbers to cease to engage them. This has also been the case in other occpuations. For instance, the inspectors in Liverpool found that a large firm of meat importers, possessing a large number of shops both in Liverpool and in other towns, gave instructions that, as the result of the restrictions on the employment of school children as errand-boys, no boy should be engaged for this work under the age of fourteen. Similar evidence has been forthcoming from Bradford. Effective administration of the bye-laws has also certainly checked overwork to some extent in certain areas. But surveying the country as a whole, it would be optiinistic to assume that the total number of wage-earning school children has been diminished by more than lo or 15 per cent, as the result of the regulation of child labour by the Employment of Children Act and kindred Acts. It should also be remembered that the number of children aged between twelve and fourteen who are exempted from school attendance, wholly or partially, in order to enable them to work in occupations outside the Factory and Mines Act has been very considerably reduced in the last ten years. Local education authorities have both made stricter bye-laws with regard to the exemption of children from school attendance, and have also enforced their bye-laws more stringently. But the raising of the school-leaving age is liable to have the effect of increasing the amount of wage-earning by school children. In districts where there is a scarcity of juvenile labour school children may sometimes be found doing work which is generally done by " exempted " children."* Every step in the direction of the raising of the school-leaving age makes the effective regulation of the labour of school children a more urgent problem. 4. Proposals for Reform. Certain obvious defects in the law have been referred to which need amendment, even if the standard of the restrictions in child employment is not raised. All difficulty with regard to the proof of the age of children in court should be removed. Serious consideration should also be given to the question, whether it is not desirable to make special regulations with regard to the proof in coiurt of other facts connected with the infringement of the law. The evidence of children with regard to the time at which, or hours for which, they were employed cannot be relied upon with certainty ; and it seems ridiculous that it should ever be necessary to employ two officers to detect infringements. All doubt should also be removed as to the power of Scottish School Boards to bear the cost of prosecutions. The hcensing system for theatre children should be extended to cover all children employed (at present children aged over eleven may be employed at hours allowed for general employment by the bye-laws of the local authority, or by the Employment of Children Act, without * For instance, in Bradford school children are enaployed as van-boys, owing to the absorption of boys, who have left school, in the worsted mills. Cf. Departmental Committee on Van and Warehouse Boys — Evidence, 19 13, Qq. 6008, 6023. 6o a licence). The licensing of theatre children for employment should be placed in the hands of the Education Authority in England, as it already is in Scotland. The Education Authority is the best judge of the interests of the children, and it should be given complete discretion over the conditions of their employment. Even if the statutory restrictions on the employment of children in theatres are left unaltered, the licensing arrangements should be transferred to the Education Authority. But there seems to be no reason why the local authority should be prevented from restricting, by bye-laws, the employment of children in public entertainments — alone among all forms of employment outside the Factory and Mines Acts. It is, in any case, desirable that the statutory age for employment in theatres should be raised above the present low minimum of ten.* Even if the existing arrangements for the licensing of theatre children are left unchanged, there are certain reforms which could with advantage be introduced. The Home Office should seciure from all the magistrates' clerks an annual return of the number of licences issued, in such a form as would make it clear how many individual children they related to. At present neither the Home Office nor any other authority has any knowledge of the number of licences which are issued throughout the country. Further, the licensing authorities throughout the country should be induced to take steps which would make the issue of licences as effective a method of control as it is, for instance, in Manchester. Mr. F. Mead suggested to the Departmental Com- mitteet in 1909 that magistrates should insist on the appointment of a trustee (who might, in most cases, be the child's own parent) to receive the earnings of the child, in cases in which these are at all considerable. But the further suggestion made by Mr. Mead to the Departmental Committee, that a licence, when once issued in any district, should be vahd in any other district, should under no circumstances be adopted. The best feature of the existing system of licensing is that it forces upon the attention of the local authority in each area the presence of children who are employed in public entertainments. This is just the feature which it would be desirable to preserve in any new system of regulation which might be adopted. As regards street trading, it is certain that nothing short of the recom- mendation of the Majority of the Departmental Committee of 1910 for its complete abolition for boys aged under seventeen and girls aged under eighteen, will serve to prevent large numbers of boys and girls from being demoralised by it. But it is feared that the vested interests which profit from the labour of juvenile street traders will be strong enough to prevent this counsel of per- fection from being reached by a single effort, except in the case of girls. In London the minimum age hmit is at present fourteen ; and the Government Bill which was introduced in the Session of 1913 proposed to extend that age limit to all towns in England, Wales, and Scotland with a population of over 10.000. But it should be remembered that the actual dangers from street trading are even greater to boys between the ages of fourteen and sixteen (when a boy should be acquiring habits of regular work) than to school children. It is there- fore most important that there should be a really effective system of Hcensing * The Portsmouth Justices have recently circulated to the magistrates in a number of other districts a Memorandum in which the objections to the present system of allowing young children to perform on the stage at late hours are very forcibly stated. It is suggested in the Memorandum that no child under the age of thirteen should be allowed to perform after 9 p.m. Cf. Yorkshire Post, 12th June, 19 13. t Evidence— Qq. 888-9. 6i and control for boys aged over fourteen engaged in street trading. The definition of street trading should be widened so as to include " station loungers." Some arrangement should also be made whereby the authority of the officers of local authorities engaged in enforcing street -trading regulations should be extended, where necessary, over railway stations and their approaches. The question as to whether boys engaged in delivering newspapers and other goods (chiefly bread and milk), who occasionally sell in streets or from door to door, should be included in the definition of street traders, has been raised by the Employment of Children Bills of 1912 and 1913. It seems perfectly clear that the local authority should be free to include them, if it considers (as do the local authorities in London and Birmingham) that it is impracticable to administer the law without including them. The best course seems to be to include them in the statutory definition of street trading (as is done under the present law) and leave the local authoritj^ free to exclude any section of occasional sellers if it sees fit.* The Government's proposal f that hcensed street traders should be com- pelled to attend a continuation class is welcome. At the same time, every effort should be made to place the boys in regular work. There is no reason why arrangements should not be made in every town for all the licensed street traders to be registered at the juvenile branch of the Labour Exchange, so that whenever a suitable opening occurs it may be offered to them. Furthermore, the local authority should have complete discretion with regard to hcensing juvenile street traders. Its representatives (presumably a small sub-committee) should be able to consider each case on its merits and grant or refuse a licence after considering all the facts. J Complete freedom should be left to local authorities to adopt, by bye-laws, a standard of general restrictions upon street trading higher than that which is contained in any statutory provisions.** Arrangements should be made to enable the inspectors of authorities having contiguous areas to deal with street traders beyond the boundaries of their own area when circumstances render such a course obviously desirable. One other point in connection with the administration of street -trading regulations needs very careful attention. It seems preposterous that rich newspaper companies, which make large profits by giving out papers to boys on the sale-or-return system, should be allowed to facilitate breaches of street- trading regulations and counteract the efforts made on behalf of the boys at the expense of the community. Yet such is the case at present. A witness before * Selling from door to door and " occasional sale " by deliverers of goods are generally- treated by local authorities and magistrates as coming within the category of street trading. But in Liverpool the opposite view was taken some years ago by a stipendiary magistrate (Cf. Inter-departmental Committee — Evidence, 1902, Q. 7138). Bristol has excluded occasional newspaper-sellers from the definition of street traders in its bye-laws, as the result of a compromise arrived at after a Home Office Inquiry conducted by Mr. Pope (see special report on Bristol in Part IV.). There would seem to be little or no objection to excluding the occasional sale of bread or milk by boys engaged in delivering them from the statutory definition of street trading. It is the exclusion of the occasional sale of newspapers which would be likely to cause difficulties in administration. f First brought forward in a Government amendment to the Employment of Children Bill of 19 12. I The objections which the Home Office has always offered to this course seem to be entirely theoretical and academic. Mr. C. E. B. Russell has suggested that licences should always be refused where the income of the family exceeds 6s. per head per week. (Departmental Committee — Evidence, 19 10, Q. 3102.) ** For the deficiencies of the Government's Employment of Children Bill (1913) in this respect, cf. above, pp. 27-8. 62 the Departmental Committee of 1910 described how he had seen in the dis- tributing department of a Liverpool newspaper a considerable number of unlicensed boys receiving papers for sale.* At Reading it has been held in court that a person who gives out papers to a child is the employer of the child under the Employment of Children Act. But decisions in a contrary sense have been given at Wolverhampton and Newport (Mon.). The Employment of Children Act should certainly be amended so as to place any person who gives out papers for sale to a child or young person in the legal position of the employer of such child or young person (just as the National Insui'ance Act treats the taxi-cab company as the legal employer of the driver who hires a cab from it). The policy at present embodied in the Employment of Children Act with regard to general employment is to fix a very low standard of regulation by the statute, leaving local authorities free to fix a higher standard it they choose. This policy should be reversed. Twelve should be fixed as a minimum age for any employment. All work before or between school hours should be for- bidden, and 5 p.m.-8 p.m. should be made the only hoiu-s during which employ- ment should be normally allowed on school days. Certain undesirable forms of employment, such as lathering in a barber's shop, billiard-marking, etc., should be prohibited by statute to all children aged under fourteen. Any local authority which desired to fix a lower standard of regulation would then have to make bye-laws and obtain the approval of the central department. I'he onus of proving that a lower standard is desirable in view of local circumstances would be upon the locality, instead of the present system under which the local authority has to fight for its rights to establish a higher standard. As a general rule there would seem to be little doubt that the best results are likely to be obtained if the Education Departments of the local authorities are made primarily responsible for the administration of every branch of child labour regulation outside the Factory and Workshop Acts. The raising of the school-leaving age to fourteen in all the urban districts of Great Britain cannot be long delayed. When it is achieved the problem of regulating child labom^f Nvill be almost wholly confined to school children. The experience of London seems to show that inspection may be effectively carried out mainly by patrolHng the streets, rather than by visiting places of employment, owing to the large proportion of children who are mainly engaged in carrying parcels, etc. This work may be probably most conveniently allotted to school attend- ance officers. At the same time, there is need for co-operation with the inspectors of shops. The experience of Liverpool and Bradford shows that for many purposes visits may be conveniently paid simultaneously in connection with the Employment of Children Act and the Shops Act. In any case it should be remembered that the appointment of an adequate number of special officers for carrying out a persistent and regular inspection of all places where children are employed is the essential point in the administration of the Employment of Children Act and kindred Acts. As compared with this, the question as to which department of the local authority is to administer the law is relatively unimportant. There seems to be no adequate reason why inspectors under the Employ- ment of Children Act should not be given a right of entry equivalent to that of inspectors imder the Factory and Shops Act, in connection with all work- places under their supervision. (They already possess such powers in con- * Departmental Committee — Evidence, 1910, Q. 7755 ; cf. also special report on Liverpool in Part IV. t As opposed to the labour of "young persons" aged over fourteen. 63 nection with places of entertainment where children are licensed.) It is desirable that a notice* should be prominently exhibited in all places in which children are employed under the Employment of Children Act, showing the hours during which children may be legally employed. It would be desirable to make this a statutory requirement ; but in any case, the central authorities, which administer the Act, should endeavom' to secure a provision relating to it in the bye-laws of all local authorities. The suggestion has often been made that there should be some system of the registration of all employed school children, f Some such system will certainly be necessary if a progressive policy of gradually extinguishing all wage-earning by school children is to be adopted. Local authorities in whose areas a large number of children are exempted from school attendance before reaching the age of fourteen are compelled by law to issue labour certificates to such children, without which they may not be employed. It would not be very difficult in most areas to extend this system to wage-earning school children, at any rate in the chief occupations in which they are employed. The local authority would thus secure a record of all wage-earning by school children, and would be able to carry out a system of inspection far more easily. { Moreover, the recommendation of the Chief Medical Officer of the Board of Education that all employed school children should be medically examined could be carried out far more systematically if such a system of labour certificates were in force. The examination of employed school children by the school medical officer would then correspond to the examination of children and young persons employed in all factories, and in a considerable proportion of all workshops, now carried out by the certifying factory surgeons. The Board of Education has power now under the Education Administration Provisions Act, 1907, to include aU employed school children in the categories of children who must be medically examined each year. Without a systematic arrangement of this kind for medical examinations, the provisions for safeguarding the health of school children contained in Clauses 3 (4), 3 (5), and 3 (6) of the Employment of Children Act must remain for the most part inoperative. But it is impossible that an effective sj'stem of inspection, registration and medical examination of employed school children wiU be built up throughout the country, unless some * Analogous to the notices which have to be exhibited under the Factory and Shops Acts. ■]• Mr. Buckmaster has expressed the view, in his Report on the Bye-laws made by the London County Council, 191 1 (p. 6), that it is doubtful whether the Employment of Children Act confers power upon local authorities to establish such a system of regis- tration. But the Secretary for Scotland has sanctioned the Govan bye-laws, which compel parents to take out " working certificates " for their children attending school who are employed. It is difficult to see why a local authority should not, under the existing law, make conformity with a system of registration on the part of employers a condition of the right to employ school children. Cf. the wording of Section i (ii.) of the Employment of Children Act. Mr. Samuel Pope, who was appointed by the Home Office to inquire into the draft bye-law adopted by the Devon County Council, recommended that the employment of school children in the midday interval should only be permitted if the employer who intended to employ a particular child gave notice to the headmaster of the school attended by him, of his intention and of the proposed period of employment. This would, in effect, amount to an informal system of labour certificates. See Mr. Pope's Report on the bye-law made by the Devon County Council under the Employment of Children Act. 1913, p. 15 (Cd. 6988). X If it were thought desirable to discourage the employment of school children in anyrparticular occupation without absolutely prohibiting it, a relatively large fee (say half-a-crown or five shillings) could be charged to employers for the issue of certificates in such an occupation. 64 effective supervision is exercised over the local authorities by a central depart- ment. This can only be done if the central department pays a part of the cost of the system of inspection. A grant-in-aid amounting to two-thirds of the cost of administering child labour regulations should be paid by the central department to the local authority.* In return for this grant-in-aid it would insist on being satisfied that an effective system of inspection, registration, and medical examination was established. It would fmiher require from the local authority an annual report on the administration of the Acts affecting child labour, and would itself issue an annual report reviewing the work throughout the country. There is a great deal to be said in favour of transferring the super\ision of the action of local authorities in deahng with child laboiu in England from the Home Office to the Board of Education.! The latter department already super\dses local education authorities in the work of administering the Employment Bureaux for young persons established under the Choice of Employment of Children Act, and pays a grant-in-aid amounting to half the sum expended by the local authority on this object. Further, the desirability of bringing the school medical officers into close touch \vith the question of the employment of children is an additional reason for transf eiTing the administra- tion of child labour regulations to the department which supervises their activities. In any case there is need for a more consciously progi'essive pohcj' on the part of the central authority, if local authorities throughout the country are to be inspired with determination to apply adequate measiues for deahng with the problem. The commonest defence of child labour is probably contained in the argument that it is necessary in order to supplement the inadequate incomes of the parents of the employed children. It is not necessary in this Report to elaborate the well-known contentions by which this argument may be met. But it is desirable that the relation of the problem of child labour to the practical details of the development of the policy of the national minimum should be clearly recognised. In the first place every step towards the estab- hshment of a legal minimum wage makes it easier to set stricter hmits to wage- earning by children. Secondly, every instance in which it can be shown that children's earnings are used to supplement the insufficient income of famihes including no adult male wage-earners, strengthens immeasurably the case for adequate provision of a wholly honourable character for such families. + In the third place, the Home Office, the Board of Education and the Local Government Board (and the corresponding authorities in Scotland and Ireland) should take steps to urge on all local authorities that whenever public assistance is given to a family (whether in the form of Poor Law rehef , * This question has been raised in the House of Commons by ]\Ir. T. E. Harvey and Lord Henry Bentinck. Cf. Hansard, 20th November, 191 1, and 28th November, 1911. t The suggestion has also been raised that in view of the failure of the Home Office to secure the urgently needed amendments of the Employment of Children Act, the whole question might be more satisfactorily dealt with as part of an Education Bill. As has been indicated above, the regulation of the employment of school children is intimately connected with the problem of the raising of the school-leaving age, since the reduction of the supply of full-time juvenile workers may often create a demand for the labour of school children. X There are no adequate statistics showing the proportion of all child wage-earners who belong to such families. It may be noted that the local reports on Leeds and Bir- mingham, given below in Part IV., show that in each case about 10 per cent, of the licensed street traders were the children of widows. Any future annual reports on the administration of child labour regulations issued by a Central Department might incorporate any further information which can be obtained in connection with this question. 6s or in the form of school meals or medical treatment) care should be taken that the good effects of the assistance are not counteracted by the misuse of child labour. One of the members of the committee responsible for this Report happened to be associated with the supervision of school meals in London some years ago, before the present system of administration of the Employment of Children Act bye-laws had had time to produce its full effects. Cases actually occurred at that time of boys asking to be allowed to leave the dinner table, after the publicly provided meal had been hastily partaken of, in order to run errands for the shopkeeper by whom they were employed. It is probable that similar occurrences are not uncommon amongst the thousands of children who now receive school meals in every large town throughout the country. It does not appear that Boards of Guardians have ever taken any definite steps to make the payment of out -relief conditional upon the avoidance of excessive employment of children. Indeed, the policy of deterrence, and the inadequacy of the amounts which are still paid as out-door relief to widows in many districts,* are direct incentives to the misuse of child labour. When- ever steps are taken in any district to raise the standard of regulation of the employment of children, the Poor Law and Education authorities should be ready to meet any individual cases of special hardship by granting either in kind or in cash a sum equivalent to what would have been the earnings of the children.! The policy of the Home OfBce, in encouraging local authorities to see that clothes are provided for children in order to enable them to conform to the conditions required for street -trading licences, is of a very dubious character. If children need assistance of any kind from public or semi-public relief funds, it seems hardly desirable that they should be encouraged to supple- ment it by engaging in an employment which is less likely than any other to provide them with experiences of any value for the purposes of industrial training. 5. Summary of Recommendations. I. GENERAL EMPLOYMENT. (A) The Legal Limitation of Employment. 1. A normal statutory minimum age for the employment of school children should be established. Such age should be fixed at twelve. 2. Normal statutory maximium hours for the employment of children should be fixed, viz. : — (a) School children on school days — three hours, between 5 and 8 p.m. {b) School children on other days — four hours, between times to be fixed by the local authority. * C/., for example, " The Destitute of Norwich, and How They Live," with Preface by B. Seebohm Rowntree, 191 2 ; also " The Investigators' Reply to the Guardians' Report on the Destitute of Norwich," 19 13. t It is obvious that there can be no objection to such a course from an economic point of view. The earnings of school children are as much or as little a subsidy to wages as any form of public assistance. In some places in Germany {e.g., at Worms and in Hesse) the local authorities have taken steps to make special provision for poor families whose children have been prevented from earning wages by the strict enforcement of the Child Labour Law of 1903. Cf. Jorns, Gesetzlichen Kinderschutz in Deutschland, in Schriften des Zweiten Oesterreichischen Kinderschutzkongress in Salzburg, 191 3, Vol. I., p. 427. 66 (c) Exempted children aged under fourteen — nine hours on five days of the week, between times to be fixed by the local authority (such times to be varied for different occupations, if necessary) ; on one day of the week work to cease at i p.m. 3. The employment of children aged under fomteen should be statutorily prohibited — (a) in barbers' shops ; {h) as bilhard-markers ; (c) as assistants to betting-touts, tipsters, etc.* {d) in feather and rag-sorting. 4. The local authorities should be given discretionary power to make more stringent regulations, but should be allowed to modify the statutory provisions in the direction of a lower standard only after stating a case to a central authority. (jB) Adniinistration.'\ (i.) Local. 1. The Education Authority should be made primarily responsible for the enforcement of the law and bye-laws. J 2. Special officers should be appointed for the administration of the law. 3. Such officers should have all the powers of factory inspectors in respect of the inspection of workplaces of all kinds. 4. Periodical systematic inquiries should be made in the schools by teachers and school doctors as to wage-earning by school children. 5. It should be made obhgatory upon employers to obtain working certificates in respect of all employed school children. 6. Notices with regard to the legal hours of em.ployment, minimum age, etc., should be exhibited in all places where children are employed. 7. A special periodical medical inspection of all employed school children should be instituted. 8. School medical officers should be instructed to secure the efficient administration of Sections 3 (5) and 3 (6) of the Employment of Children Act. 9. Adequate provision should be made for the famihes of widows with young children ; special consideration should be given to cases of famihes where children are prevented from wage-earning by new child labour regulations. 10. An annual report should be published upon the administration of the Employment of Children Act and kindred Acts. (ii.) Central. I. Responsibihty for the administration of the law should be transferred in England and Wales from the Home Office to the Board of Education. * Cf. the bye-laws adopted by the Borough of Nelson. There are other occupa- tions which have been prohibited for children under fourteen by certain local authorities (see Table in Part IV.). The extension of such prohibitions is desirable, and might perhaps in some cases besides those suggested above be made by direct statutory enactment. t The measures included under this head would also affect the administration of the regulations dealing with street trading and with the employment of children in public entertainments. I In cases where a really efficient administration has already been built up by departments of local authorities other than the Education Department, it seems undesirable to insist arbitrarily upon the transfer of the work to the direct control of officials of the Education Department. But the suggested statutory annual report upon the adminis- tration of child labour regulations should in all cases be adopted by the Education Com- mittee of local authorities, which would thus be required to satisfy itself with regard to the ef&ciency of the work. 67 2. A gi^ant-in-aid should be paid to local authorities amounting to two- thirds of the salaries of officers engaged in the work of enforcing child labour regulations, on condition that the work is efficiently carried out. 3. The Medical Department of the Board of Education should exercise special supervision over the medical inspection of employed school children, and the enforcement of Sections 3 (5) and 3 (6) of the Employment of Children Act. 4. An annual report should be pubhshed on the administration of the Employment of Children Act and kindred Acts. XL STREET TRADING. {A) Legal Limitation of Employment. 1. Street trading by boys aged under seventeen, and girls aged under eighteen, should be statutorily prohibited. Faihng the prohibition of street trading by boys under seventeen, fourteen (at least) should be the minimum age in all urban districts with a population over 10,000. 2. Local authorities should be given complete discretion with regard to the fixing of a higher minimum age. 3. Local authorities should be given power to vary the statutory defini- tion of street trading, which should include " occasional sellers " of newspapers and luggage-carriers, etc. {B) Administration. 1. Local authorities should be compelled to establish a system of licensing for street -sellers aged under seventeen. 2. Local authorities should possess complete discretionary power with regard to the issue of licences. 3. All applicants for street-trading licences should be medically inspected before licences are granted. 4. All licensed street traders should be registered at Juvenile Labour Exchanges. 5. There should be effective co-operation between inspectors of street traders in contiguous areas. 6. Persons who sell papers or give them out for sale to boys aged under seventeen should be regarded as the legal employers of such boys. 7. Licensed street traders should be compelled to attend continuation schools as a condition of retaining their licence. in. PUBLIC ENTERTAINMENTS. {A) Legal Limitation of Employment. 1. The minimum age should be raised to twelve. 2. Children aged under fourteen should not be allowed to perform after 9 p.m. 3. Licences should be obtained in respect of all children aged under fourteen performing in public entertainments at any hour. 4. Local authorities should be free to fix a higher standard with regard to both minimum age and hours of employment. (5) Administration. 1. The duty of issuing licences should be transferred to the local educa- tion authorities in England and Wales. 2. The central authorities in eacli country should exercise supervision over the execution of the work by the local authorities, e.g., securing effective inter-communication between local authorities, and an annual return of licences issued and of the number of individual children to whom these relate. PART III Tabular Analyses of General Employment and Street ^ Trading Bye-laws made by Local Authorities* 1 I Tabular Analysis of General Employment Bye-laws. INTRODUCTORY NOTE. In reading this Table the following points should be borne in mind : — 1. The statutory limitation of the hours of employment of all children (except those holding a licence for employment in a place of entertainment under Section 3 of the Prevention of Cruelty to Children Act, 1904) to the period between 6 a.m. and 9 p.m. always prevails in any employment, unless hmits of hours for such employment are specifically provided for in the bye-laws. 2. The forms of employment specified in the different bye-laws are very frequently so conceived that a single child would at the same time be affected by the rules relating to two or more forms of employment, e.g. : " in connection with a shop " and " carrying parcels." In such a case it is to be assumed that the stricter regulation prevails. It is impossible to tabulate the provisions of the bye-laws so as to prevent this overlapping of provisions. 3. The regulations under the heading " General " may be assumed to cover all employments, in so far as they are not subject to special restrictions which diverge from the general limitations. 4. Many local authorities have regulated the daily hours of employment of school children without stating that such limitations apply only to school- days. In some cases the local authority certainly intended to regulate the hours of employment in holidays as strictly as during the school term ; but in other cases it probably only intended the limitations to apply to school- days. In the following tabulation the meaning of the bye-laws, as they stand, has alone been considered. 5. In columns (6), (8), (13) and (17), when an asterisk is placed against a figure it implies that the maximum numbers of hom^s referred to has been specifically mentioned in the bye-laws. In such cases it will generally be found that the number of hours is less than the total number included within the Umitations in the preceding columns. In cases where no asterisk is present the maximum number of hours has been calculated from the number included \nthin the limitations. 6. In columns (10) and (11), the weekly maximum number of hours is only given when it is specifically mentioned in the bye-laws. It is difficult to calculate it from the limitations of the hours in the other cases, because, in a gi-eat many instances, no special regulation of Sunday employment is made. When this is the case it is to be assumed that the regulations in columns (7), (8), and (9) would, strictly speaking, apply to Sundays. But although Sunday employment is common in connection with the delivery of milk and news- papers, and domestic work, it is not common in many other employments ; and it would hardly be fail" to say that Sunday employment ad lib. was allowed if the local authority had failed to regulate it, mainly because it rarely occurred. 72 y. The following districts have provided for the regulation of half-time employment outside the Factory Act in their general employment bye-laws : — COUNTIES. Chester (milk and newspaper delivery). Wilts (milk and newspaper delivery). YoRKS — West Riding (general). COUNTY BOROUGHS. Barrow-in-Furness (general). Bath (general). Bolton (milk and newspaper delivery ; lathering) Bradford (general). Cardiff (general). Chester (general). Exeter (newspaper delivery ; industrial work at home) Halifax (industrial work at home). Hull (industrial work at home). Leeds (general). Leicester (industrial work at home). Northampton (general). ROTHERHAM (general). Sheffield (general). Stoke-on-Trent (general). BOROUGHS. Bromley (general). Carlisle (industrial work at home). Chatham (newspaper delivery). Dover (newspaper delivery ; agriculture ; industrial work at home). GiLLiNGHAM (newspaper delivery). Keighley (general). Macclesfield (industrial work at home ; lathering). Nelson (industrial work at home). Peterborough (general). ToDMORDEN (newspaper delivery ; industrial work at home). The regulations are often very complicated, and it would have been difficult to include them in the tabular analysis. In the great majority of cases the local authorities have included or retained such regulations in their bye-laws in spite of the fact that half-time employment outside the Factory Act does not exist, or exists only to a very small extent, within their area. In any case, this form of half-time employment is not extensive, taking the United King- dom as a whole. It is still declining in amount, and is likely to be extinguished by Parhament at an early date. It has, therefore, been thought unnecessary to tabulate the somewhat elaborate provisions contained in the bye-laws which deal with it. 8. The introduction into bye-laws of a clause imposing more stringent general restrictions on employment than the limit of 6 a.m.-g p.m. included in the Act has the effect of compelling employers of children aged over eleven and under fourteen in public entertainments to obtain licences in respect of such children, if they desire to employ them after the latest hour at which general employment is allowed by the bye-laws. (Normally they need only obtain hcences if they desire to employ them after 9 p.m., while licences must be obtained in connection with the employment of children aged over ten and 73 under eleven at any hour). But several local authorities have introduced into their bye-laws a clause in which it is laid down that : " Nothing in these bye- laws contained shall restrict the employment of children in the occupations speci- fied in Section 3 (a) of the Prevention of Cruelty to Children Act, 1904, fuilher than such employment is already restricted by statute." The following local authorities have included this clause in their bye-laws : — London (County), London (City), Bournemouth, Bradford, Dewsbury, Keighley, Beckenham, Chiswick, Enfield, Hendon, Ilford, Leyton, Penge, Twickenham, Walthamstow, Wood Green. In these districts, and also in the districts where the bye-laws only deal with specified occupations, children aged over eleven can be employed in public entertainments until 9 p.m. without a licence being obtained in respect of them. But in districts such as Leeds, Hull and Coventry, which possess a general regulation of hours, and which have made no special exception to it for the theatre children, licences should be obtained in respect of children aged over eleven, if they are employed after 7 p.m. or 8 p.m., or whatever other hour may be fixed as the latest hour of employ- ment in the bye-laws. The Borough of Todmorden has made a special regulation fixing 7 a.m. to 10 p.m. as the limits within which children may be employed in public entertainments. There is thus nothing to prevent children aged over eleven from being employed after 10 p.m. with a licence from the magistrates. The bye-law simply has the effect of making it unnecessary to obtain a licence in respect of children aged over eleven if it is not desired that they shall be employed after 10 p.m.* On the other hand, Eastbourne prohibits absolutely the employment of children in or about a place licensed for public entertainment. This makes it necessary to obtain a licence in respect of their employment at any hour. 9. Considerable difficulty has been experienced in interpreting several of the bye-laws, owing to the manner in which they are drafted. Although every attempt has been made to secure accuracy in the tabular analysis there are some points which must remain doubtful for this reason. No doubt there are also some errors ; but it is hoped that these are few in number. * It seems strange that the Home Office should have permitted this lowering of the standard of protection in a single instance. 74 England and Wales* London Date of SCHOOL School Days. Other Days. Confirma- tion OF Bye LAWS. Form of Employment. MINI- sruM Age. District. Limita. Maxi- mum Hours. Limita. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) London County (excluding City) Pop. 1911 : 4,502,028. October, 1906. Revised June, 1911. Prohibitions : 1. Sale or delivery of in- toxicants, except where ex- clusively sold in sealed ves- sels. 14 - — — - 2. Lathering or similar em- ployment in barber's shop. 14 — — — — 3. In laundry not under Factory and Workshop Act, 1901. 14 — — — — Regulations : 1. General. 11 6.30-8 a.m., 5-8.30 p.m. 3i* 6.30 a.m.-9 p.m. 8« 2. Industrial work at home. — 5-8 p.m. 3 9 a.m. -12 noon ; 5-8 p.m. 6 London (City) .. Pop. 1911 . 19,657. December, 1906, Revised March, 1912. Prohibitions : 1. Sale or delivery of in- toxicating liquor, except where exclusively sold in sealed vessels. 14 - - - - 2. Lathering or similar oc- cupation in barber's shop. 14 — — — — Regulations : 1. General. 11 6.30-S a.m., 5-8.30 p. IK. 3J* 6.30 a.m.-9 p.m. 8* 2. Industrial work at home. 5-8 p.m. 3 9 a.m. -12 noon ; 5-8 p.m. 6 In reading this analysis, the explanations mentioned on p. 71 shovk i be borne in mind. i 75 -General Employment* LDREN. WHOLLY EXEMPTED CHILDREN. Maximum Weekly Hours. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) (all children). limum ervals, lours. (9) In School Term. (10) In Holi- days. (11) Limits. (16) Maxi- mum Hours. (17) Othek Provkions. (18) - 20 30 - — 7 a.m.-l p.m. Prohibited. 3* — 20 30 - — — - 7 a.m.-l p.m. Prohibited. 3* - 76 England and Wales* Counties Date of SCHOOL School Days. Other Days. Confirma- tion OF Bye-laws. Form of Employment. Mini- mum Age. Name op District. Limits. Maxi- mum Hours. Limits. Maxi- mum Houn. "' (2) (3) (4) (5) (6) (7) (8) Cheshire Pop. 1911 : 431,333. August, 1911. Prohibition : In connection with sale of intoxicants on licensed pre- mises. 14 - — - - Regulations : 1. General (except domes- tic work and carrying meals). 10 - - - - 2. Carrying parcels (other than dinners) as errand-boys, or in connection with any shop (except as otherwise pro- vided). 5.30-8.30 p.m. 3 Sats. in School Term : Either 8 a.m.-2 p.m. or 2-9 p.m. Sats. in School Term, 6 or 7 3. Selling or delivering milk. — 6.30-8.30 a.m. 4.30-7 p.m. H — — 4. Delivering newspapers. — 6.45-8.30 a.m. 5-7.45 p.m. 4i — — 5. Employment by barber or hairdresser. — 5.30-8.30 p.m. 8 Sats. : 10 a.m.-2 p.m. ; 5-9 p.m. During School Term, 8 6. Industrial work at home. — 7-8.15 a.m. 5-7 p.m. 3i — East Suffolk . . Pop. 1911 : 169,446. April, 1911. Regulation : In connection with a shop, stall or warehouse ; delivering or carrying milk, newspapers, etc. - 6-8.30 a.m. 5-8 p.m. 5| - 9,* in- clud- ing meal times. Gloucester Pop. 1911 : 280,072. December, 1904. Regulation : Ueneral. - - - Hampshire (Eastleigh, Bishop stoke and Itcheii Urban Districts only) Pop. of these Urban Districts 1911 : 34,731. December, 1912. Prohibitions : 1. Lathering or similar oc- cupations in barbers' shops. 2. Sale or delivery of in- toxicating liquors in any licensed public-house. 3. Sale of programmes or similar occupation in or about premises used for public entertainment. 14 — "1 Regulations : 1. General (except as other- wise provided) 11 7-8 a.m. 5.30-8 p.m. 3i* - - 2. Sale or delivery of milk. 3. Sale or delivery of news- papers. - 8.30-8 a.m. 4.30-6 p.m. 6.30-7.30 a.m. 6.30-7.45 p.m. 3 2i - - 4. Carrying parcels. 5. Industrial work at home. : 5-8 p.m. 5-8 p.m. 3 3 Either 8 a.m. -2 p.m. or 2-9 p.m. 7 6. In places of public en- tertainment under licence. ~ ~ Jn reading this analysis, th e explanations mentioned on p . 71 shoid d he home in mind. • n -General Employment* LDREX. WHOLLY EXEMPTED CHILDREN. Maximum Weekly Hours. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) (all children). aimum ervals, Sours. (9) In School Term. (10) In Holi- days. (11) Limits. (16) Maxi- mum Hours. (17) Other Provisions. (18) - - — — - - — - - — — - — — — — — — — - - - - — Children under 12 not to be employed during time in which religious instruc- tion is being given in the school attended by them. II 1 1 1 1 1 1 1 — 2i* Prohibited. — Not to be employed on same or following day in other occupation. 78 England and Wales. Counties Date of SCHOOL SCHOOL Days. Other Days. CONFIRMA- TIOX OF Bye-laws. Form of Employment. MlNI- MITM Age. Name of DISTKICT. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Hertfordshire Pop. 1911 : 239,324. May, 1912. Regulation : General. - 6.15-8.15 a.m. ; 4.30-9 p.m. 6i - Middlesex Pop. 1911 : 271.416. December, 1907. Prohibition : In connection with sale or delivery of intoxicating liquor, except where exclusively sold in sealed vessels. 14 - — - Regulations : 1. General. 6-8.30 a.m. ; 5-9 p.m. 3i* 6 a.m.-9 p.m. 8» 2. Lathering or similar occupation in barbers' or hairdressers' shops. 12 — — — — Norfolk .. (Petty Sessional Districts of Mirsh- land and ClatKclose only) April, 1910. Regulation : General employment dur- ing part of July in which schools are closed. - - - 5 a.m.-5 p.m. 8* Pop. of these Dis- tricts 1911 : 35,730. Wiltshire Pop. 1911 : 214,854. April, 1908. Prohibition : In connection with sale of intoxicating liquor on pre- mises with on-licence. 14 — — - - Regvlations : 1. In connection with any shop except as otherwise pro- vided. 8 a.m.-8 p.m. and not in interval be- tween school hours ; till 9 p.m. on one day if shop closes at 2 p.m. on another day. Nor- mally 5 8 a.m. -8 p.m. ; tlU 9 p.m. on one day if shop closes at 2 p.m. on another day. 12 2. Selling or delivering milk. — 7-8.15 a.m. ; 4.30-6.30 p.m. 3i — — 3. Selling or delivering newspapers. 7-8.15 a.m. ; 4.30-8 p.m. In Trowbridge U.D.: 7-8.30 a.m. ; 4.30-8 p.m. 4 5 4. Carrying parcels or as errand boy. ~ 4.30-8 p.m. H 4.30-8 p.m. Sats. : Either 8 a.m.-2 p.m. or 2-9 p.m. 3i; Sats., 7 5. Agricultural work. Aprll-Sept. : 4.30-8 p.m. ; Oct. -Mar. : 4.30-6.30 p.m. April- Sept. : 3i. Oct-Mar 2 Holidays during School Term : 6.30 a.m.-8.30 p.m. 7* 6. Industrial work at home. — 7-8.15 a.m. ; 4.30-8 p.m. — — — 7. Feather sorting. 12 - — — - Jn residing this aiialysis, the explanations mentioned on p. 71 shotdd be borne in tnind. 79 General Employment. — Continued. [LDREN. WHOLLY EXEMPTED CHILDREN. Sunday EMrLOYMEXT (all children). Maximum WEEKI/Y Hottrs. Limits. Maxi- mum Hours. Minimum Intervals, in Hours. Maxi- mum Weekly Hours. aimum ervals. Hours. In School Term. In Holi- days. Limits. Maxi- mum Hours. Other Provisions. (0) (10) (11) (12) (13) (14) (15) (16) (17) (18) — — — 5 a.m. -5 p.m. 8* — Regulations apply only to children aged over 10. Children aged under 10 may be employed between 6 a.m. and 9 p.m. — — 8 a.m. -8 p.m. ; till 9 p.m. on one day if shop closes at 8 p.m. on another day. 12 - - — — — - — — — — — Prohibited. - Not to be employed on same day in other occu- pations. — — — — — — — — — 8o England and Wales. Counties Date of SCHOOL School Days. Other Days. Confirma- tion OF Bye-laws. Form of Employment. Mini- mum Age. Name of District. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Yorkshire, West Riding Pop. 1911 : 1,143,016. Sept., 1912. Prohibitions : 1. Sale or delivery of in- toxicating liquor, unless sold only in sealed vessels. 14 — — — - 2. Sale of programmes or other articles in any tlieatre or music hall. 14 — — — — 3. Sorting rags or refuse of any kind. 14 — — — — Regulations : 1. General. 11 6-8.30 a.m. ; 5-8 p.m. 5i 6 a.m.-8 p.m. (except in agricul- ture). 6* if under 12 JT., 8* if aged 12-13 2. Agriculture. — — — No limits. None. 3. Distribution of news- papers which arrive by train timed to arrive at the nearest railway station after 7 p.m. In reading this analysis, the explanations mentioned on p. 71 should be home in mind. General Employment. — Continued. [LDREN. WHOLLY EXEMPTED CHILDREN. Sunday Employment (all children). Maximuji Weekly Hoinis. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) ninmm ervals, Hours. (9) In School Term. (10) In Holi- days. (11) Limits. (16) Maxi- mum Hours . (17) Other Provisions. (18) — 24 36 6 a.m. -8 p.m. (except in agricul- ture). — — — ; Boys aged over 12 may be employed till 9 p.m., notwithstanding provisions of 1. 82 England and Wales* County Date of Name of Confirma- DiSTHICT. tion OF Bye-laws. Form of employment (1) (2) (3) Mini- mum Age. (4) SCHOOL SCHOOL Days. Limita. (5) Maxi- mum Hours. (6) Other Days. Limits. (7) I Maxi- 1 mum j Hours. I (8) Barnsiey Pop. 1911; 60,614. July, 1910. Prohibitions : 1. Sale of intoxicating liquors on licensed premises or in registered clubs. 2. Sale of programmes etc., in theatres or music- halls. Regulations : 1. General (except as pro- vided below). '.. (i.) In connection with shop or stall. (ii.) Carrying parcels. (iii.) Messenger work or work as carrier's assistant 3. Delivering milk and newspapers. 4. Industrial work at home. 5. Public entertainments. 7 a.m.-8 p.m. 5-8 p.m. Either 6-8 a.m. or 5-8 p.m. 5-8 p.m. 7 a.m. -8 p.m. 5-8 p.m. ; Sats: 7 a.m. -2 p.m. or 2-9 p.m. 13 3; Sats. 7 Either 6-8 a.m. or 5-8 p.m. Sats. : Either 6 a.m. -1 p.m. or 2-8 p.m. 3; Sats. 7 5-8 p.m. Sats. : 3; Sata 8 a.m.-l p.m. 6 BaiTOW-ln- November, FupnesB 1907. Pop. 1911; 63,770. Prohibitions : 1. Sale of intoxicants on licensed premises or regis- tered club. . Billiard or bagatelle marking. 3. Sale of programmes in theatre or music-hall. 4. In shifting scenery in theatres or music-halls. 5. In kitchen of hotel, cookshop, eating-house or refreshment room. Regulations : 1. General. 2. Sale or delivery of milk 3. In barber's shop. 4. Industrial work at home. 5. Public entertainments. 14 14 14 6-8 a.m., 5-8 p.m. 6-8.30 a.m., 5-8 p.m. 6-8 a.m., 5-8 p.m Sats. 6 a.m. -8 p.m. Sats. 6 a.m. -8 p.m. Sats. 6 a.m.-8 p.m. Sats. 6» Sata. 6* Sats. In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 83 Boroughs — General Employment* IILDREX. WHOLLY EXEMPTE1> CHILDREN. Sunday Employment (all children). Weekly Hootis Limits. Maxi- mum Hours. Minimum Intervals, in Hours. Maxi- mum Weekly Hours. [inimuni atervals, 1 Hours. In School Terra. In Holi- 1 days. Limits. Maxi- mum Hours. Other Provisions. (0) (10) 1 1 (11) 1 (12) (13) (14) (15) (16) (17) (18) — — 7 a.m.-8 p.m. 13 — — — — — On four days 7 a.m. -8 p.m. ; on one day 8 a.m.-9 p.m. Hi li Oats, excepted) Notice to be kept con- stantly affixed of day on which employment ex- tended to 9 p.m. and of day on which it ceases at 1. - - - 8 a.m. -9 p.m. On one day work must stop at 1 p.m. a - - - — — — 6 a.m. -8 p.m. On one day work must stop atlp.m.o Nor- mally Hi Notice to be kept con- stantly affixed of day on which employment ex- tended to 9 p.m. and of day on which it ceases at 1. On 4 days either 7 a.m.-7 p.m. or 8 .i.m.-8 p.m. On one day work must cease at 1 p.m., a on another may con- tinue till 9 p.m. Ditto. — — — — — — — — — No other work same or next day. ot more n 5 hrs. th u t erval of r. — 6 a.m.-8 p.m. ; to 9 p.m. on one day if work ends at 2 p.m. on another. 10 and 11 Not more than 5 lirs. without inter- val of i hr. ; 4 irs. intervals m one day. — — — — - - - — — — — - - — — — — — — — Prohibited. — — — — — — — ~ 1 — — — No other work on same ^^ next day. a In weeks immediately preceding Easter, Whit, Banisley Feast and Ctoistmas weeks, work need not ceaae at 1 p.m. on any day. 84 England and Wales. County Boroughs Date of SCHOOL School Days OTHER Days. Name of District. Confirma- tion OF Bye-laws. Form of Euplotment. MINI- jniM Age. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (S) (4) (5) (6) (7) (8) Bath Pop. 1911 ■ 50,721. July, 1905. n Regulations : 1. Sale or delivery of milk. 2. Sale or delivery of newspapers. - 6-8 a.m., 4-6 p.m. 7-8.30 a.m., 5-8.30 p.m. 4 5 6-8 a.m., 4-6 p.m. 7-8.30 a.m., 5-8.30 p.m. ; Sats. : 7.30-9 a.m., 3-8.30 p.m. 4 5, Sate. 7 3. Carrying parcels. " 5-8 p.m. 3 5-8 p.m. ; Sats. : Either S a.m.-2 p.m. or 2-9 p.m. Sats. 7 4. In or in connectiou with shops. 8 a.m.-8 p.m. ; 8 a.m. -9 p.m. on one day if on another shop closed at 2 p.m. No work during in- ter^'al between school hours. 5 8 a.m. -8 p.m. ; 8 a.m. -9 p.m. on one day if shop closed at 2 p.m. on another. 12 or 13; Sats. 7* 5. Lathering or similar occupation in barber's shop. 13 — — — — 6. Public entertainments under licence. — — — — — 7. General. Birkenhead Pop. 1911 : 130,794. October, 1909. Prohibition : Sale or delivery of intoxi- cating liquors, except where exclusively sold in closed vessels. 14 — - - - Regnlations : 1. General. 11 Not after 8 p.m., or 9 p m. on Sats. 6* for girls n-13 (fe boys 11 ; 8» for boys 12-13 2. Delivery or sale of milk or newspapers. 11 7 a.m. -8. 15 a.m. (or if breakfast provided by employer, 8.30 a.m.) ; 5.15-8 p.m. 3i* 3. In or in connection with shop or in carrying parcels. 11 5.15-8 p.m. 3i» 8 a.m. -8 p.m. ; on one day in week till 9 p.m. if shop closed at 2 p.m. on another. 4. Lathering or similar occupation in barber's shop. 13 — — — — 5. In place of public en- tertainment under licence. In readinfj this analysis, the explanaiioni mentioned on p. 71 should be borne in mind. — General Employment. — Continued. CHILDREN. WHOLLY EXEMPTED CHILDREN. Sunday Employment (all children). Maximum Weekly Hours. Limits. Maxi- mum Hours. Minimum Intervals, in Hours. Maxi- mum Weekly Hours. Minimum Intervals, in Hours. In School Term. In Holi- days. Limits. Maxi- mum Hours. Other Provisions. (9) (10) (11) (12) (13) (14) (15) (16) (17) (18) - 8 a.m. -8 p.m. ; 8 a.m. -9 p.m. on one day if shop closed at 2 p.m. on another. 12 or 13 — — — — Notice as to day on whi employment extended 9 p.m. to be kept cc stantly affixed. - - - - - — — — No other work on sai or following day. No school child to' employed in any occup tions specified above a in any other occupation the same day for over hours, or for more than hours on Saturdays, — - — - - - - 7 a.m.-l p.m. 3* - — — - 8 a.m. -8 p.m. ; on one day in week till 9 p.m. if shop closed at 2 p.m. on another. - — - - Notice to be constant affixed in shop of one d on which employment e tended till 9 p.m. — - — — — — — - — No other work on sar or next day. 86 England and Wales. County Boroughs Date or CoxrmjiA- TIOX OF BVE-LAWS. SIIKI- mtjm Age. SCHOOL Name of District. School Days. Other Dats. Form of Emplovmext. Limits. Maxi- mum Hours. Maxi- Limits. mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Bolton Pop. 1911 : 180,851. June, 1909. Prohibition : In or in connection with sale of intoxicating liquor on licensed premises. 14 - — — Regulations : 1. In connection with any shop, except as otherwise provided. — 8 a.m. -8 p.m. Not in interval between school hours. 5 8 a.m.-S p.m. 12 2. Sale or delivery of milk. — 6-8.15 a.m., 5-8 p.m. 5i — Sats. 6* 3. Sale or delivery of newspapers. — 6-8 a.m., 4.45-7.15 p.m. ; Fridays 6-8.15 a.m., 4.45-7.15 p.m. 4 J or 4i — Sats. 6* 4. Industrial work at home. — — — — 5. Lathering or similar occupation in barber's shop. 12 Full-timers : 5-8 p.m. 3 Sats. : Either 8 a.m.-2 p.m. or 2 p.m. -8 p.m. Other days 5-8 p.m. 3: Sats. 6 6. Currying parcels. 12 5-8 p.m. 3 Sata. • Either 8 a.m. -2 p.m. or 2 p.m.-8 p.m. Other days, 5-8 p.m. 3; Sats. 6 7. Public entertainments under licence. " Boupnamouth Pop. 1911 : 78,674. Februar>% 1912. Prohibitions : 1. Sale or delivery of in- toxicants, except where sold only in sealed vessels. 14 — — — - 2. Lathering. 14 — — — - Regulations : 1. General work, unless " of a light and casual charac- ter and of short duration." 12 — — 6 a.m. -8 p.m. ; Sats. 6 a.m. -9 p.m. Boys 8*; Girls 6* 2. Delivery of newspapers. — 7-8.30 a.m. and 5-8 p.m. H* - - 3. Delivery of milk. — 7-8.15 a.m. and 5-8 p.m. 3i* — — 4. Carrying meals. — 12 noon-1.15 p.m., 5-8 p.m. 3i» — — 5. (i.) Xursiiig or other domestic work. (ii.) Running errands. (iii.) In or about a shop (except as otherwise pro- vided). 7-8.15 a.m. ; 12.30- 1.15 p.m. ; 5-8 p.m. 3i* 6. Carrying parcels. — 5-8 p.m. 3 — — 7. Industrial work at homo. 5-8 p.m. 9 a.m.-12 noon and 5-8 p.m. 6 In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 87 — General Employment. — Continued. CHILDREN. WHOLLY EXEMPTED CHILDREN. Sunday Empi.oyiiext (all children). M.iXIMUM Weekly Hours. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals. in Hours. (14) Maxi- mum Weekly Hours. (15) Minimum Intervals, in Hours. (9 In School Term. (10) In Holi- days. (11) Limits. (16) Maxi- mum Hours . (17) Other Provisions. (IS) — - — 8 a.m. -8 p.m. 6 a.m. -8 p.m. 6 a.m.-8 p.m. 6 a.m. -8 p.m. ; Sats. 6 a.m. -2 p.m. 12 9i 9| 9*; Sats. 5i 4i 4^ 4i; Sats. 2 J — Prohibited. — No other work on aa or following day. — 20 30 - — — Prohibited except as be- low. 7-9 a.m. 3-4 p.m. 4 - 88 England and Wales. County Boroughs Date of SCHOOL School Days. Other Days. Name of District. Confirma- tion OF form of Employment. Bye-laws. Mixi- JIUM AGE. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) padfopd Pop. 1911 : 288,458. August, 1906. Regulations : 1. General. - 7 a.m.-8 p.m., ex- cept as below. 8 7 a.m. -8 p.m., ex- cept as below. 13 2. (i.) In or in connection with shop, except as other- wise provided. (ii.) In carrying parcels. (iii.) As messenger. (iv.) As carrier's assist- ant. 11 5-8 p.m. 3 5-8 p.m. ; Sats. either 7 a.m.- 2 p.m. or 2-9 p.m. 3; Satfl. 7 3. Sale or delivery of — (i.) Newspapers, (ii.) Milk. 11 Either 6-8 a.m. or 5-8 p.m. 2 or 3 Either 6-8 a.m. or 5-8 p.m. ; Sats. either 6 a.m.- 1 p.m. or 2-8 p.m. 2 or 3; Sats. 6 or 7 4. Industrial work at home. 11 5-8 p.m. 3 5-8 p.m. ; Sata. 8 a.m.-l p.m. 3; Sats. 5 5. In place of public en- tertainment under licence. — - — - — tpiKhton Pop. 1911 : 131,237. February, 1905. Prohibitions : 1. Lathering or similar occupation in barber's shop. 2. In connection with sale of intoxicating liquor in pub- lic-houses or premises licensed for entertainment. 14 14 — — — — Regxdations : 1. General. 10 7-8 a.m., 5-S p.m. 4* — 2. In laundry not under Factory and Workshop .\ct, 1901. 12 7-8 a.m., 5-8 p.m. 4* — — 3. Industrial work at home. 10 7-8 a.m., 5-8 p.m. 4* — — 4. Sale or delivery of milk. 10 6-8 a.m., 4.30-6.30 p.m. 1* 5. Sale or delivery of news- papers. 10 6.30-8.30 a.m., 6.30-8.30 p.m. 4* — — 6. Carrying parcels. 10 5 p.m. -8 p.m. 3 Either 8 a.m.-2 p.m. or 2 p.m.-9 p.m. — 7. Places of public enter- tainment under licence. Jn Ttading this analysis, the explanations mentioned on p. 71 shoiild be borne in mind. 89 —General Employment. — Continued. HILDREX. WHOLLY EXEMPTED CHILDREN. 1 Sunday Employment (all children). ^.LtxnirM Weekly Hofrs. Maxi- Minimum Maxi- Other Provisions. Minimum In In mum Intervals, mum Maxi- Intervals, School Holi- Limits. Hours. in Hours. Weekly Limits. mum in Hours. Term. days. Hours. Hours. (9) (10) (11) (12) (13) (14) (15) (16) (17) (18) — 20 20 7 a.m.-8 p.m. on four days ; 7 a.m.- 2 p.m. on one day ; 7 a.m.-9 p.m. on one day. llj or 12i or 7 li - — — No provision for meal- times when work ceases at 2 p.m. Notice to be kept con- stantly affixed in place of employment of day on which employment will cease at 2 p.m. and of day on which it be continued - — — - - — — - ~ till 9 p.m. - — 6 a.m. -7 p.m. on four days ; 6 a.m.- 2 p.m. on one day ; 6 a.m.-9 p.m. on one day. Hi or 12i or 8 H - — Either 7 a.m. -7 p.m. or 8 a.m. -8 p.m. on four days ; 7 a.m. 2 p.m. on one day ; 7 a.m. -9 p.m. on one day. lOJ or 12J or 7 li " Not to be employed on same or following day in any other occupation. — _ - — — — — Prohibited. — - i ■ — — — — — — — Not to be employed on same or following day in any other occupation. 1 90 England and Wales. County Boroughs D.-VTE OF SCHOOL School Days . Other Dats. Name of District. Confirma- tion OF Bye-laws. Form of Employment. MINI- MU.M Age. Limits. Maxi- mum Hours. Maxi- Limits. mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Bristol . . Pop. 1911 : 357,048. Nov., 1908. Prohibition : In sale or delivery of intoxicating liquors — except where exclusively sold in closed vessels. - - - - - Regulations : 1. General. 11 6-8.15 a.m., 5-8 p.m. 3i* 6 a.m. -8 p.m. 8* 2. Lathering or similar occupation in barber's shop. 12 — — — — 3. Industrial work at home. 11 — — — — 4. Sale or delivery of milk. 11 6-8.30 a.m., 5-S p.m. — - — CaPdifT . . Pop. 1911 : 182,259. August, 1907. Regulations : 1. General. — 5-8 p.m. 3 Sats. in School Term: either 7a.m.- 2 p.m. or 2-9 p.m. All days, 10* ; Sats. in School Term, 7 2. Sale or delivery of news- papers. — Either 6-8 a.m. or 5-8 p.m. 2 or 3 Sats. in School Term: either fi a. m.- 1 p.m. or 2-9 p.m. Do. 3. Sale or delivery of milk. — Either 6-8 a.m. or 5-8 p.m 2 or 3 Sats. in School Term : either 6 a.m.- 1 p.m. or 2-9 p.m. Do. 4. Industrial work at home. 5-8 p.m. 3 Sats. in School Term : 8a.m.-l p.m. AU days, 10* ; Sats. in School Term, 6 5. Domestic work. — — — — All days, 10* Chester . . Pop. 1911 : ■•59 028. Sept., 1908. Prohibitions : 1. Carrying or sorting refuse. 2. Sale or delivery of in- toxicants, unless sold and dealt with only in sealed vesseLs. 14 14 — - — — 3. Billiard-marking, scor- ing or attending games in billiard or bagatelle saloon or room. 14 Regulations : 1. General. 11 6-8 a.m., 5.30-8.30 p.m. 3i* 6 a.m.-8.30 p.m. 8* 2. Lathering or similar occupation in barber's shop. 12 - - - — 3. Industrial work at home. — 5.30-7.30 p.m. — 9 a.m. -12 noon, 5.30-7.30 p.m. 5 4. Public entertainments under licence. — — — — -■ In reading this analysis, the explanations mentioned on p. 71 shouU I be borne in mind. i 91 — General Employment. — Continued. CHILDREN. WHOLLY EXEMPTED CHILDREN. Sunday Employmext (all children). Maxim tm Weekly Hoims. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (U) Maxi- mum Weekly Hours. (15) Minimum Intervals, in Hours. (9) In School Term. (10) In Holi- days. (11) Limits. (16) Maxi- mum Hours. (17) Other Provisions. (18) 1 1 1 1 1 - - - - — Not to be employed or; same day in any other oc- cupation. 1 III 1 48 7 a.m.-9 p.m. 10* — 48 Prohibited, except as be- low. Allowed. Allowed. - - Interval of h hour after spell of 4.y hours. 20 30 - - Interval of i hour after spell of 4i hours. — 7.30-10..30 a.m. 3 No other work ou same day. No other work on same or following day. 92 England and Wales. County Boroughs Name of District. (1) Date of Confirma- tion OF Bye-laws. (2) Form of EirpLOVMENT. (3) Mini- mum Age. (4) SCHOOL School Days. Limits. (5) Jlaxi- mum Hours. (6) Other Days. Limits. (7) Maxi- mum Hours.- (8) Coventry Pop. 1911: 106,349. April, 1910. Prohibitions : 1. Sale of intoxicating liquors in public-houses or registered clubs. 2. Billiard or bagatelle- marking. 3. Selling programmes in music-halls or theatres. 4. Shifting scenery music-halls or theatres. Regulations : 1. General. 2. Delivery of milk. 3. Delivering newspapers and preparing for delivery (other than as licensed sel- lers). 4. Lathering or similar occupation in barber's shop ). All other employment in connection with shop. 6. Industrial work at home. 7. Domestic work. 13 5-7 p.m. 6.30-8.15 a.m., 5-7.30 p.m. 6.30-8.15 a.m. 5-8 p.m. 5.30-8 p.m. Thurs. prohibited. 7-8.15 a.m., 5-7.30 p.m. 5-7 p.m. 4i 4i 2i 31 Sats. in School Term : either 7 a.m.- 1 p.m. or 1-7 p.m On other days no regulation. Sats. in School Term : 6.30 a.m.-] p.m. or 2-7.30 p.m On other days nc regulation. Sats. in School Term : either 6.30 a.m. -12. 30 p.m. 2-8 p.m. On other days no regulation 5.30-3 p.m. Thurs. prohibited. All Sats. : 12 noon-9 p.m. Sats. in School Term : either 7 a.m.- 1.30 p.m. or 1.30-8 p.m. On other days no regulation. Sats. in School Term : 8 a.m.-l p.m. On other days no regulation. Jn reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 93 — General Employment. — Continued. CHILDREN. WHOLLY EXEMPTED CHILDREN. SrxDAY Employment (all cliildren). Maxdium Weekly Hottrs. Limits. jraxi- nium Hours Minimum Intervals, in Hours. Maxi- mum Weekly Hours. Minimum Intervals, in Hours. In Sclvool Term. In Holi- days. Limits. Maxi- mum Hours. Other Provisioss. (9) (10) (11) (12) (13) (14) (15) 16) (17) (13) — — — — - — Prohibited. - — - - — 6.30 a.m.-7.30 p.m. 13 — 6.30-9 a.m., 4-7.30 p.m. 6 — - - — 6.30 a.m. -8. 30 p.m. 13 - — - Delivery must not com- mence before 7 a.m. Only folding and preparing news- papers for delivery may be carried on 6.30-7 a.m. \ — — 5.30-S p.m. Thurs. prohibited. Sats.: 12noon-9p.m. Sats 8i h — — — — 7 a.m.-7 p.m. , till 9 p.m. on one day if on another day shop closes not later than 2 p.m. 7J or 6 4i or 2i Notice of day on which employment extended to 9 p.ni. to be kept con- stantly affixed in shop. Intervals 1 hour only, when employment ceases at 2 p.m. 7 a.m. -7 p.m., Sats: 7 a.m. -4 p.m. 7i ; Sats. 6i hours. 4i; Sats. 2i Not to be employed on same day in any other occupation. " " Allowed. 94 England and Wales. County Boroughs D.\TE OF SC HOOL School Days Other Days. COXFreilA- TION OF Bye-laws. Form of Employment. Mini- mum AGE. Name of District. Limits. >raxi- mum Hours. Limits iiaxi- mum Hours. (1) (2) (3) (4) rr') (6) (7) J (8> Croydon Pop. 1911 : 169,551. October, 1907. Prohibitions : 1. Sale or delivery of in- toxicants, unless sold only in sealed vessels. 14 — — — — 2. Step-cleaning 14 - — - — 3. Billiard-marking. 14 - - - — 4. Lathering or similar occupation in barber's shop. 14 — — — Regulations : 1. General. 11 2. Delivering milk. 11 6.30-8 a.m. U 6.30-8 a.m. '* i 3. Sale or delivery of news- papers. 11 6-8 a.m., 5.30-7.30 p.m. 4 6-8 a.m., 5.30-7.30 p.m. 4 4. Carrying parcels. 11 5-8 p.m. 3 5-8 p.m. Sats. : either 8 a.m.- 2 p.m. or 2-8 p.m. 3 ; Sats. 6 5. In or in connection with shops. 11 8 a.m. -8 p.m. 8 a.m. -9 p.m. on one day if on another shop closes at 2 p.m. Not till after school hours. 5 8 a.m.-8 p.m. 8 a.m. -9 p.m. on one day if on another shop closes at 2 p.m. 12 6. In connection with lanndry work. 11 Dewsbupy Pop. 1911 : 63,351. June, 1912. Prohibitions : 1. In connection with sale or deliverj' of intoxicating liquors, except where exclu- sively sold in closed vessels. 14 - — - — 2. In sale of anj'thing in theatres or music-halls. — — — — — 3. In sorting rags or refuse. — — — — — Regulations : 1 (ieueral (except agricul- ture.) 11 6-8.30 a.m., 5-8 p.m. bh 6 a.m.-8 p.m. Chil- dren aged 11. 6* chil- dren aged 12-13, 8* .-* -1 2. Agriculture. 11 6-8.30 a.m., 5-8 p.m. 5i hi reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 95 — General Employment. — Continued. CHILDREN. WHOLLY EXEMPTED CHILDREN. Minimum Intervals, in Hours. (9) Maximum Weekly Hottrs, In School Term. (10) In Holi- days. (11) Limits. (12) Maxi- mum Houre. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Sunday Employment (all children). Limits. (16) Maxi- mum Hours. (17) Other Provisions. (18) 24 6.30-9 a.m. 8-10 a.m. 6.30-9 a.m. 2i 2 2i ! a.m. -8 p.m. 8 a.m. -9 p.m. on one day if on another shop closes at 2 p.m. Notice of day on which employment extended to 9 p.m. to be liept con- stantly affixed. Prohibited. 24 a.m. -8 p.m. 24 96 England and Wales. County Boroughs Date of SCHOOL School Days. Other Days. Confirma- tion OF Bye-laws. Form of Employment. Mini- mum Age. Name of district. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Eastbourne Pop. 1911 : 52,642. Jan., 1906. ProMntions : 1. In part of public-house used for intoxicating liquors. 14 _ 2. In or about premises licensed for public entertain- ment. 14 _ — — — Regulations : 1. General. — — 5* 2. (i.) Sale and deliverj- of any goods, wares or mer- chandise for any shopkeeper or trader. (ii.) In domestic work. 10 3. Sale or delivery of milk. — 6-8.30 a.m., 4.30-7 p.m. 5* — — 4. Sale or delivery of news- papers. 7-9.30 a.m., 6-8.30 p.m. Weds. : 6.30-9.30 a.m., 6-8.30 p.m. 5; Weds. 5J 5. Industrial work at home. — — — — — 6. In laundry not under Factory and Workshop Act, 1901, 12 — 5 ; Weds. 5i — — 7. In place of public en- tertainment under licence. Exeter . . Pop. 1911 : 48,664. April, 190S. Regulations : 1. General. 2. Sale or delivery of milk. — 7-8.30 a.m. 4.30-6.30 p.m. 5* 3i — 7* 3. Sale or deliverj- of news- papers. — 7-8.30 a.m. 5-8 p m. 4J 6.30 a.m.-9 p.m. 7* 4. Carrj-ing or delivering goods. — 5-8 p.m. 3 Either 8 a.m. -2 p.m. or 2-9 p.m. 6 or 7* 5. In connection with shop, except as otherwise provided. 7.30 a.m. -8 p.m. 7.30 a.m. -9 p.m. on one day if shop closes at 2 p.m. on another day. No work dur- ing intervals between school hours. 5* 7.30 a.m.-8 p.m. 7.30 a.m. -9 p.m. on one day if shop closes at 2 p.m. on another day. 7* 6. Industrial work at home. — 5-7 p.m. 2 — — 7. Lathering or similar occupation in barber's shop. 13 — 5* - 7* 8. Public entertainments. 13 5* 7' In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 97 General Employment. — Continued. CHILDRExV. WHOLLY EXEMPTED CHILDREN. ^lAXIMUM Weekly Hotjrs- Limits. (12) Maxi- mum Hours- (13) Minimum Intervals, in Hoiurs. (14) Maxi- mum Weekly Hours. (15) (all children). Minimum Intervals, iu Hours. (9) In Scliool Term. (10) In Holi- days. (11) Limits. (16) Maxi- mum Hours. (17) Other PROviaioNS. (18) III II II II - — — Prohibited. - Not to be employed oa same day in any other occupation. \ : - — 7 30 a.ra.-8 p.m. 7.30 a.m. -9 p.m. on one day if shop closes at 2 p.m. on another day. 6 a.m. -7 p.m. Sats. 6 a.m.-2 p.m. 12i 8J 4i (Sats. 2 J). Interval of i hour after every 4 hrs. — Prohibited. — Notice to be kept con- stantly affixed of day oa which employment ex- tended to 9 p.m. No other work on same or next day. G 98 England and Wales. County Boroughs Date of SCHOOL School Days. Other Days. Confirma- tion OF Bye-laws. Form of Employment. MlNl- MXTM Age. Naite of District. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Halifax .. Pop. 1911 : 101,663. Februarj', 1912. Prohibitions : 1. Sale or delivery of in- toxicating liquor except where sold in sealed vessels. 14 - - — — 2. Lathering, for girls. 14 - — - — RegxdMioM : 1. General. 11 — - - 2. (1.) Delivery of milk, (ii.) In connection with shop, except butchers (lii.) As stable boy. (iv.) Cart driving. (V.) Domestic work. 6.15-8.15 a.m. 5-7.30 p.m. a 6.15-9.15 a.m. 4-7.30 p.m. 6i 3. Delivery of newspapers. — 6.15-8.15 a.m. 4.45-5.15 p.m. 5.45-7.30 p.m. a 6.15-8 a.m. 9-11 a.m. 4.30-7.30 p.m. 6i 4. In connection with but- cher's shop. Fridays : 5-8.30 p.m. Other days pro- hibited. Fridays : 5-8.30 p.m. Sats. 8a.m.-12noou. 2-5 p.m. Other days prohibited. Sata. 7 5 . Industrial work at home. — 5-S p.m. 3 9 a.m. -12 noon. 5-8 p.m. 6 6. Lathering or similar occupation in barber's shop. 12 Mon. and Tues. 5- 7.30 p.m. ; Wed. and Fri. 5-8 p.m. Thurs- prohibited. 2Jor 3 Mon. and Tues. 5- 7.30 p.m. ; Wed. and Fri. 5-8 p.m. Thurs. prohibited. Sats. either 9 a.m. -3 p.m. or 2.30-8.30 p.m. 2i or 3 ; Sats. 6 Hastings Pop. 1911 : 61,146. Sept., 1905 Regulations : 1. Lathering or similar occupation in barber's shop. 2. In connection with sale of intoxicating liquor in public-houses. 12 Exempt from school. - — — — 3. Milk sale or delivery. — 6.30-8.30 a.m. 4.30-6.30 p.m. 4* — — 4. Newspapers sale or delivery. 7.45-8.45 a.m. 5-8 p.m. 4* • In reading this analysis, the explanations mentioned on p. 71 should he home in mind 99 — General Employment.— Continued. CHILDREN. M.OCIMUM Weekly houks. Minimum In Intervals, School in Hours. (9) Term. (10) In Holi- days. (11) WHOLLY EXEMPTED CHILDREN. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Sunday Employment (all children). Limits. (16) Maxi- mum Hours. (17) Other Provisions, (18) Sats. J Mon. and Tues. 5- 7.30 p.m. ; Wed. and Fri. ."i-Sp.m. ; Thurs. prohibited ; Sats. either 9 a m.-3 p.m. or 2.30-8.30 p.m. 2i or 3 ; Sats. 6 Sats. J Prohibited except as be- low. 7.30-10 a.m. 5-7.30 p.m. Not to be employed on same day in any other occupation. England and Wales. County Boroughs Date of SCHOOL School Days. Other Days. Name of District. CONTIEMA- TION OF BYE-LAWS. Form of Employment. Mini- mum Age. Limits. Maxi- mum Hours. j Limits. Max- mum Hours. (1) (2) (3) (4) (5) (6) (7) (3) Huddepsfleld .. Pop 1911 : 107,821. Draft. Regulations : 1. General work, unless of a light and casual character. 12 7 a.m.-8 p.m. 8 7 a.m. -8 p.m. In holidays : 6.30 a.m.-8 p.m. 13 ; In holi- days, 6* 2. (1.) Sale of intoxicants on licensed premises. 13, or so long — — — - (ii.) Lathering or similar occupation in barber's shop. as liable to attend school. (iii.) Billiard or bagatelle marking. (iv.) Sale of programme? or refreshments in theatres, music-halls or picture shows. (v.) Shifting scenery in theatres, music-halls or pic- ture shows. (vi.) In kitchen of hotel, cook-shop, eating-house or refreshment room. 3. (i.) In connection with shops. (ii.) Carrying parcels. (iii.) As messenger. (iv.) As carrier's assist- ant. 6.30-8 p.m. 2i 5.30-8 p.m. Sats. either 7 a.m.- 2 p.m. or 2-9 p.m. Sats. 7 ;- 4. Sale or delivery of milk and newspapers. — Either 6.30-S a.m. or 5.30-8 p.m. U or 2i Sats. either 6 30 a.m. -1 p.m. or 2-8 p.m. 6ior6 5. Industrial work at home. — 5.30-8 p.m. 2i Sats. 8 a.m.-l p.m. 5 6. Public entertainments. — — — — In reading this analysis, the explanations mentioned on p. 71 should he home in mind. ^ — General Employment. — Continued. CHILDREN. Minimum Intervals, in Hours. (9) ilvxijutm Weekly Hours In School Term. (10) In Holi- days. (11) WHOLLY EXEMPTED CHILDREN. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Sunday Employment (all children). Limits. (16) Maxi- mum Hours. (17) Other Provisions. ?8- 7 a.m. -8 p.m. Not later than 2 p.m. on one day, unless em- ployed under 30 hrs. a week. If em- ployed not later than p.m. on one day may be employed till 9 p m.on another 9i* li except on short day. 7 a.m. -7 p.m. 6 a.m.-8 p m. Either 7 p.m. or 8 8 p.m. a.m. a.m. Prohibited, except as be- low. Notice to be kept co stantly affixed specifyi; day on which employme of exempted children sto at 2, and days on whi extended till 9 p.m. Allowed for milk. No limits. No other work on Bam or next day. I02 England and Wales. County Boroughs: Date of SCHOOL 1 School Days. Other Days. Confirma- tion OF Bye-laws. Form of Employment. Mna- MtlM Age. Name of District. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Hull Pop. 1911 : 277,991. August, 1906. Prohibitions : 1. Billiard m.arlting or scoring. 2. In any place licensed (or gamei. 14 14 - - — — 3. In any club-room. 14 — — — — Regulations : 1. General. 2. Sale and delivery of milk. Children under 12 .• 7-8.30 a.m., 5-8 p.m. 6-8 a.m., 4-6 p.m. 4 Children tinder 12 .• 7-8.30 a.m., 5-8 p.m. Sats. either 7 a.m.- 2 p.m. or 2-8 p.m. All children : In summer holi- days either 7 a.m.- 2 p.m. or 2-8 p.m. 6-8 a.m., 4-6 p.m. 4 3. Fetching, selling and delivering newspapers. — 6.30.8 a.m., 5-8 p.m. 4J- Sats. 6.30-8 a.m., 11 a.m.-l p.m., 6- 9 p.m. Sata. 6i 4 In connection with shop. — 5-8 p.m. 3 Sats. either 8 a.m.- 2 p.m. or 2 8 p.m. Sats. 6 5. Industrial work at home. - 5-8 p.m. 3 5-8 p.m. 3 6. Barber's assistant or attendant, or lathering. 13 - - - 7. In public entertainments under licence. - - — — - 8. In agriculture. 6-8.30 a.m., 5-8 p.m. April-Sept. ; 7- 8.30 a.m., 5-7 p.m. Oct. -March. 5i or 31 6 a.m. -6 p.m. in holidays only. Ipswich . . Pop. 1911 : 73,932. October, 1907. Regulations : 1. (i.) In or in connection with any shoi , stall or ware- house. (ii.) In delivering or carrying milk, newspapers or other anicles. - 6-8.30 a.m., 5-8 p.m. 5i — 9* (in- clud- ii.g meal times). 2. Industrial work at home. — — — — — 3. In place of public enter- tainment under licence. — — — — Leeds Pop. 1911 : 445,550. June, 1912. Regulations : General (unless employ- ment " of light and casual character and short dura- tion "). 12 Full Timers . 6.4.5-8.15 a.m. 5-8 p.m. 3* 6.45 a m.-8 p.m. J Indu.strial work at home. 5-8 p.m 3 9 a.m. -12 noon. 5-3 p.m. G In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. I03 — General Employment. — Continued. CHILDREX. WHOLLY EXEMPTED CHILDREN. Maximum Weekly Hoitrs. Limits. Maxi- mum Hours- Minimum Intervals, in Hours. Maxi- mum Weekly Hours. (all children). Minimum Intervals, in Hours. In School Term. In Holi- days. Emits. Maxi- mum Hours. Other Provisions. (9) (10) (11) (12) (13) (14) (15) (16) (17) (18) — — — - - - - — — — — — — — — - — — — — - — 8 a.m. -8 p.m. on four days ; 8 a.m.- 2 p.m. on one day ; 8 a.m. -9 p.m. on one day. 12 — - Prohibited. Also on Chr i s t m a s Day & Good Friday. — Notice to be kept con stantly aflaxed of days o which employment cease at 2 p.m. — — 6 a.m. -9 p.m. Sati. 6 a.m.-4 p.m. lOi Sats. 7J 4i Sats. 2} — Prohibited. — No other work on sam day. Not over 5 hr3. with- out inter- val of k hr. Not over 5 hrs. without interval of * hr. — — — — — — — — — No other work on sam or following day. Sats. 6 a.m. -4 p.m. from April-Sept. ; 7 a.m. -4 p.m. from Oct. -March - 6 a.m.-8 p ra. 8*; Sats. 6* — — Not to be employed oi same or following day i any other occupation. - 21 36 6 a.m. -8 p.m 9i» - - Prohibited. - — — — - — - - — — — - t If employed on Saturdays only, 8 liours. I04 England and Wales. County Boroughs Date of SCHOOL School Days. Other Days. Confirma- tion OF Bye-laws. FORM OF Employment. iiisi- MXJM Age. Name of District. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Leicester Pop. 1911 : 227,222. April, 1905. Revised July, 1905. Prohibitions : 1. Lathering or similar occupation in barber's shop. 14 ._ 2. In connection with sale of intoxicating liquor on licen- sed premises or registered club. " ~ " " 3. BllUard or bagatelle marking. — -- — — -- 4. Selling programmes in any music-hall or variety theatre. — ■ — — — — 5. In shifting scenery in any music-hall or variety theatre. — — — — — 6. In kitchen of any hotel, cook-shop, etc. — — — - Regulations : 1. Milk delivery or sale. - 6.30-8.15 a.m. 6-8 p.m. 4i 6.30-8.16 a.m. 5-8 p.m. 4i 2. Newspaper delivery. 6.30-8.15 a.m. 5-8 p.m. 4i 6.30-8.16 a.m., 5- 8 p.m. Satfl. eltiier (1.) 6.30-8.15 am. and 5-8 p.m., or (11.) 6.30 a.m.-12.30 p.m., with interval of at least 1 hr. 4J 3. Carrying or delivering parcels. 6-8 p.m. 3 5-8 p.m. Sate, either 8 a.m. 2 p.m. or 2 p.m.- 8 p.m. 3 or 6 4. In connection with any shop. " 8 a.m.-8 p.m. Not in interval be- tween school hours. 5 8 a.m. -8 p.m. 8* 5. Industrial work at home. - 5-7 p.m. 2 5-7 p.m. 2 6 In places of public en- tertainment under licence. — - - - — In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. -General Employment— Continued . CHILDREN. Minimum Intervals, in Hours. (9) Maximum Weekly houks. In School Term. (10) In Holi- days. (11) WHOLLY EXEMPTED CHILDREN. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Sunday Employment (all children). Limits. (16) Maxi- mum Hours. (17) Other Provisions. (18) Not over 5 hrs. with- out inter- V a 1 for meals . 8 a.m. -8 p.m. 6 a.m.-7 p.m. Sats. 6 a.m.-2 p.m. Sats. 5i 4i (Sats. 2i). Not over 5 hrs. without interval of J hr. Prohibited. Not to be employed o same day in any oth« occupation. Not to be employed o same or following day i any other occupation. io6 England and Wales. County Boroughs Date of SCHOOL School Days. Other Days. | CON-FIRMA- TION OF Bye-laws. Form of Employment. Mixi- MTDl Age. Name of DISTKICT. Limits. Maxi- mum Hours. Limits. Maxi mum Hours (1) (2) (3) (4) (5) (6) (7) (8) Liverpool Pop. 1911 : 746,421. Sept., 1908. Prohibitions : 1. In connection witii sale of intoxicants on licensed premises or registered clubs. 14 — — — - 2. In billiard or bagatelle marking. 14 — — — — 3. In selling programmes or other articles in any theatre or music-hall. 14 — — — — 4. In shifting scenery on stage of any theatre or music- hall. 14 — — — — 5. In kitchen of any hotel, cook-shop, etc. 14 — — — — Regulations : 1. General. 11 2. In connection with any shop (except as otherwise provided). 7-S.15 a.m. 12..30-1.15 p.m. 5-8 p.m. 3i* 8 a.m. -8 p.m. ; till 9 p.m. on Sats. Boys aged 11 and all girls, 6* ; boya 12-13 8* 3. Deliveiing milk. - 7-8.15 a.m., 5-8 p m. 3i* - Do. 4. Delivering newspapers. — 7-8.15 a.m., 5-8 p.m. 3i* — Do. 5. (i.) Nursing or other domestic work. (ii.) Running errands. — 7-8.15 a.m. 12.30-1.15 p.m. 5-8 p.m. 3i* — Do. 6. Carrying meals. — 12 noon-1.15 p.m. 5-8 p.m. 3i* — Do. 7. Carrying parcels or de- livering goods. — 5-3 p.m. 3 — Do. 8. Lathering or similar oc- cupation in barber's shop. 13 5.30-8.30 p.m. Thurs. prohibited. 3 Sats. in School Term: 10 a.m. -9 p.m. 81 9 Industrial work at home. 5-8 p.m. 3 5-8 p.m., except Sats. 3 Sats , 5* 10. Agriculture - Apr.-Sept. : ft-8.30 a.m. : 5-8 p.m. Oct.-Mar. : 7-8 30 a.m. ; 5-7 p.m. 5i or 3i 6 a.m. -6 p.m. 12 11. In places of public entertainment under licence. In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. I07 —General Employment.— Continued . CHILDREN. Minimum Intervals, iu Hours. ■ (9) >rAXIMUJI Weekly Hottrs In Scliool Term. (10) In Holi- days. (11) IJ for din- ner ; 1 for tea. WHOLLY EXEMPTED CHILDREN. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Sunday Employment (all children). Limits. (16) a.m.-8 p.m till p.m. on one day if shop closed at 2 p.m. on another. 7 a.m.-8 p.m. Sats. : 7 a.m. -4 p.m. 9J. Sats. 7 1 for break- fast ; li for dinner ; 1 for tea. Sats. : 1 for breakfast ; 1 for dinner. Not over 4 hrs. without interval of 1 hour. Maxi- mum Hours. (17) Prohibited. 7-9 a.m. 3-4 p.m. Other Provisions. (18) Notice to be kept 'on- stantly affixed of day on which employment ex- tended to 9 p.m. No other work on same day. No other work on same or following day. io8 England and Wales. County Boroughj Name of District. (1) Date of Confirma- tion OF Bte-laws (2) Form of Employment. (3) MINI- MTTM Age. (4) SCHOOL School Days Other Day; Limits. (0) Maxi- mum Hours. (6) Limits. (7) New^castle-on Tyne Pop. 1911 : 266,603. Dec, 1905. Prohibition : Girls in lathering or similar occupation in barber's shop. Regulations : 1. In connection with shop (except as otherwise pro- vided). 2. Selling or delivering milk. 3. Selling or delivering newspapers. 4. Carrying parcels. 14 Noptfiainpton Pop. 1911 : 90,064. Jan., 1908. Revised Aug., 1908. Prohibitions : 1. Heaving, carting, or delivering coal or coke. 2. Lathering or similar oc- cupation In barber's shop. 3. Sale of Intoxicants on licensed premises or club. 4. Billiard or bagatelle marking. 5. Selling programmes, etc., in theatres, music-halls, variety theatres. 6. Shifting scenery in theatres, music-halls, variety theatres. 7. In kitchen of hotel, cook-shop, eating-house or refreshment -room. Regulations : 1. (I.) In connection with any shop except as otherwise provided. (ii.) As messenger, (iii.) As carrier's assi9t- iint. 2. Delivering any articles. 3. Milking cows or sale or delivery of milk. 4. Selling or delivering newspapers. 14 14 14 14 14 14 8 a.m. -8 p.m. Not in interval between school hours. Till 9 p.m. on one day in week if shop closed at 2 p.m. on another day. 6.30-8.30 a.m. 5-7.30 p.m. 6.30-8.30 a.m. 5-8 p.m. 5-8 p.m. 4i 8 a.m. -8 p.m. On one day till 9 p.m. if shop closed at 2 p.m on anotjier day. 6.30-8.30 a.m. 5-7.30 p.m. 6.30-8.30 a.m. 6-8 p.m. 5-8 p.m. 3; Sats. either 8 a.m.- Sats. 4 p.m. or 1-9 p.m. 8 a.m. -8 p.m., and not in interval between school hours. Till 9 p.m. on one day if shop closed at 2 p.m. on another. 5-7.30 p.m. 7-8 a.m. 5.30-7.30 p.m. 6.45-8.15 a.m. 5.15-S p.m. 2i 4i I a.m. -8 p.m. Till 9 p.m. on one day if shop closed it 2 p.m. on another day. Sats. in School Term : either 8 a.m.- 2 p.m. or 2-8.15 p.m. Dming vacations : 6.45 a.m. -8 p.m. Sats in School Term : either 8 a.m.- 2 p.m. or 2-8.15 p.m. During vacations : 6 45 a.m.-8 p.m. Sats. in School Term : either 8 a.m.- 2 p.m. or 2-8.15 p.m. During vacations : 6.45 a.m.-8 p.m. 7rt reading this analysis, the explanations mentioned on p. 71 should be borne in mind 109 —General Employment.— Continued . CHILDREN. WHOLLY EXEMPTED CHILDREN. Minimum Intervals, in Hours. (9) Maximfji Weekly Hours. In School Term. (10) In Holi- days. (11) Limits. (12) Maxi- mum Hours (13) Minimum Intervals, in Hours. (U) Sunday Employment (all children). Maxi- mum Weekly Hours. (15) Limits (16) Maxi- mum Hours. (17) Other Provisions. (18) 8 a.m. -8 p.m. On one day till 9 p.m. if shop closed at 2 p.m. on another day. Notice to be kept con- stantly affixed of day on which employment ex- tended to 9 p.m. (Shops) 3 ; Sats. 2. 8 a.m. -8 p.m. Till 9 p.m. on one day if shop closed at p.m. on another day. (Shops) 3; Sats. 2. Prohibited in connection with any shop. Allowed. Notice to be kept con- stantly affixed of day on which shop closed at 2p.m. (Continued.) England and Wales. County Boroughs Date o f SCHOOL School Days Other Days. Confirma- tion OF Bye-laws. Form of Employment. MINI- MUM Age. Name of DISTKICT. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5). (6) (7) (8) Northampton {coTitinued) 5. Industrial work at home. 12 5-7.30 p.m. 2i Sats. in School 6* Term : either 8 a.m.-i \ 2 p.m. or 2-8.15 p.ra.j During vacations :| 6.45 a.m.-S p.m. | 6. (i.) Running errands, (ii.) Domestic work. 11 - - - — 7. Nursing, unless work is of light and casual character and of short duration. 12 — — — 8. In public entertainment under licence. — — — — — Norwich Pop. 1911 : 121,478. March, 1907. Prohibitions : 1. Lathering or similar oc- cupation in barber's shop. 2. In connection with sale of intoxicating liquor in any public-house. 14 - - - — Regtdations : 1. General, except such employment as is of a light and casual character and of short duration. 12 7.30 a.m.-8 p.m. Not during interval betweeu school hours. 6» 7.30 a.m.-8 p.m. 6* 2. Domestic service for 12 Do. 6* Do. i 6* wages. Nottingham .. Pop. 1911 : 259,904. Dec. 1912. Prohibitions : 1. Lathering or similar oc- cupation in barber's shop. 14 - — - - 2. Billiard or bagatelle marking. 14 — — — — 3. Sale of programmes in theatres, music-halls. 14 — — — — 4. Shifting scenery in theatres or music-halls. 14 — — — — 5. In kitchen of hotel, cook-shop, eating-house, or refreshment room. 14 — " Regulations : 1. (ieneral. 11 6.30-8.30 a.m. 5-8 p.m. H* 6.30 a.m.-8 p.m. 8* 2. Carrying or delivering or assisting to carry or deliver parcels or goods. - 5-8 p.m. 3 9 a,m.-6 p.m 8 3. In connection with shop. — — - 9 a.m -6 p.m. 8 4. Sale or delivery of milk. — 7-8.30 a.m. 5-7.30 p.m. 4 7-8.30 a.m. 5-7.30 p.m. 4 5. Delivery of newspapers. — 6.30-8.15 a.m. 6-8 p.m. H 6. .'^0-8.15 a.m. 6-8 p.m. — 6. Industrial work at home. — 5-8 p.m. 3 9 a.m.-12 noon. 5-8 p.m. 6 7. Public entertainments. — — — — " In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. -General Employment. — Continued. CHILDREN. WHOLLY EXEMPTED CHILDREN. Sunday Employment (all children). Maximum Weekly Houks. Limits. Maxi- mum Hours. Minimum Intervals, in Hours. Jlaxi- mum Weekly Hours. Minimum Intervals, in Hours. In School Term. In Holi- days. Limits. Maxi- mum Hours. Other Peovistons. (9) (10) (11) (12) (13) (14) (15) (16) (17) (18) 7 a.m. -7 p.m. Thurs. or Sata. 7 a.m. -2 p.m. 8J; Sats. 3i; Sats. 2i Not over 5 hrs. without interval of \ hr. Prohibited. No other work on same day. - - - - — - — - - No other work on same or following day. — 21 21 — — Prohibited. - - — 21 21 - - - - - 3* - Not over 5 hrs. with- out inter- eallof i hr. 20 — — Not over 5 hrs. without i hr. interval. — 7 a.m.-12 noon. 3* 1 " — " " Parcels must not weigh more thnn 20 lbs. 1 - — - — - - 9 a.m.-12 noon. 3 — — — — — — - - Prohibited. — — — - — 6.30 a.m.-7 p.m. Sats. 6.30 am.-2 p.m. - 4J; Sats. 2i Prohibited. - No other work on same day. — — — — — — — — No other work on same or next day. 112 England and Wales. County Boroughs Date of SCHOOL School Days. OTHER Days. Name of DlSTKICT. Confirma- tion OF Bye LAWS. Form of Employment. MIXI- MITM AGE. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Reading.. Pop. 1911 • 75,198 Oct., 1911. Prohibitions : 1. Lathering or similar oc- cupation in barber's shop. 14 — — — — 2. Sale or deliverj- of in- toxicants, unless sold only in scaled vessels. 14 ' " Regulations : 1. General. 11 ' 6.30 a.m. -8 p.m. 8* 2. In connection with shop, (except as otherwise pro- vided). — 8 a.m. -8 p.m. Not in interval be- tween school hours. 5 8 a.m. -8 p.m. — 3 Sale or deliverv of — (i.) Milk. — 6.30-8 a.m. 5-8 p.m. 4i — ~ (ii.) Newspapers. 4. Industrial work at home. 5-8 p.m. 3 Rotherham Pop. 1911 : 62,488. .Tune, 1908. Prohibitions . 1. Lathering or similar oc- cupation in barber's shop. 2. In connection with sale of intoxicating liquor in li- censed premises or registered clubs. 14 — — - — 3. In Rale of programmes or other articles in any the- atre or music-hall. — — — — — Regulations : 1. In connection with any shop. 10 7-8.15 a.m. 5-7.30 p.m. 3i Boys : 6-10 a.m. 4-8 p.m. Girls: 7-10 a.m. 3-6 p.m. Boys : 8 Girls . 6 2. In grocers', greengrocers', butchers', ironmongers', or bootmakers' shops. 12 — — - - 3. Delivering milk. — 7-8.15 a.m. 5-7 p.m. 3i Boys : 6-10 a.m. 4-8 p.m. Girls : 7-10 a.m. 3-6 p.m. Boys 8 Girls 6 4 Delivering newspapers. 10 6-8.15 a.m. 5.15-7.30 p.m. 4i Ditto. Do. 5. Delivering any other goods or running errands. 10 7-8.15 a.m. 5-7.30 p.m. 3i Ditto. Do. 6. Nursing or other domes- tic work. 10 7-8 15 a.m. 5-7.30 p.m. 3i Ditto. Do. 7. Carrying meals. 1 7-8.30 a.m. 12 noou-1.30 p.m. 4.30-8.30 p.m. 7 Ditto ; Do. In reading this analysis, the explanations mentioned on j). 71 should he borne in mind. 113 — General Employment. — Continued. CHILDREISr. WHOLLY EXEMPTED CHILDREN. Minimum Intervals, in Hours. (9) Maximum WkeklyHouks, In School Term. (10) In Holi- days. (11) Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (U) Maxi- mum Weekly Hours. (15) Sms'DAY Employment (all children). Limits. (16) Maxi- mum Hours. (17) Other Provisioss (18) 8 a.m.-8 p.m. 6.30 a.m.-8 p.m. Sats. 6.30 a.m.- 2 p.m. 81; Sats. 5; Sats. 2 J 8 a.m.-8 p.m. Till 9 p.m. on one day if shop closed at 3 p m. on another day. Prohibited. 7-10 a.m. Prohibited. Prohibited. 7-10 a.m. Prohibited. Notice to be kept coi stantly affixed of day c which employment e: tended to 9 p.m. Children under 12 not ( deliver articles weighii over 16 lb., including ve sel or basket. Minimum age of 12 n( to apply to children en ployed before bye-laws wei in operation. Children imder 12 not I deliver milk weighing ovi 16 lb., including vessel. Children under 12 not t deliver articles over 16 11 in weight, including vessi or basket. (Continued.) 114 England and Wales. County Boroughs Name of district. •{1) Date of Confirma- tion OF Form of Employment. Bye-laws. (2) (3) MlNI- MITM Age. (4) SCHOOL School Days. Limits. (5) Maxi- mum Hours. (6) Other Days. Limits. (7) Maxi- mum Hours. (8) Rotherham (continued) 8. Industrial work at home. 9. In places of public en- tertainment under licence. 5-8 p.m. Boys : 6-10 a.m. 4-8 p.m Girls : 7-10 a.m. .3-6 p.m Sats.: Boys and Girls a.m.-4 p.m. Boys : 8 Girls : 6 Sats. : Boys and Girls 5* Sheffield Pop. 1911 : 454,632. Dec, ISOoAProhibitions : and April, 1906. 1. In connection with sale of intoxicating liquor on licensed premises or in regis tered club. 2. In sale of programmes other articles in theatre or music-hall Regulations : 1. In or in connection with any shop (except as otherwise provided). 11 2. Lathering or similar oc- cupation in barber's shop 3. Delivering newspapers. 4. Delivering milk. 5. Carrying meals. 6. Nursing or other domes- tic work or running errands, 7. Industrial work at home 8. In place of public enter- tainment under licence. 12 10 11 10 1 10 7-8.15 a.m. 12.30-1.30 p.m. 5-7.30 p.m. 6-8.15 a.m. 5.15-7.30 p.m. 7-8.15 a.m. 5-7 p.m. 12 noon-1.30 p.m 4.30-8,30 p.m. 7-8.15 a.m. 12.30-1.30 p.m. 5-7.30 p.m. 5-8 p.m. 3i 5i 4} 7-8.15 a.m. 12.30-1.30 p.m 5-7.30 p.m. (except on Sats.). 6-8.16 a.m. 5.15-7.30 p.m. (except on Sats.). 7-8.15 a.m. 5-7 p.m. (except on Sats.). 2 noon-1.30 p.m 4.30-8.30 p.m. (except on Sata.). 7-8.15 a.m. 12.30-1.30 p.m. 5-7.30 p.m. (except on Sats.). 5-8 p.m. 4J. Sats. : Boys under 12 and all Girls, 6* Boys 12-13, 8» Do. Do. and 3i and Do. Do. Smethwick Pop. 1911 : 70,694. Sept., 1912. Regulations : 1. General. 2. In hairdresser's .shop. 6.30- S. 15 a.m. 4.45-8.30 p.m. 3i' 6.30 a.m. -9 p.m. In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. —General Employment.— Continued. OHILDREX. WHOLLY EXEMPTED CHILDREN. Sunday Employment (all children). Maximum Weekly Houks. Limits. Maxi- mum Hours. Minimum Intervals, in Hours. Maxi- mum Weekly Hours. Minimum Intervals, in Hours. In School Term. In Holi- days. Limits. Maxi- mum Hours. Other Provisions. (9) (10) (11) (12) (13) (14) (15) (16) (17) (18) 7 30-S p.m. Sats. 7.30-4 p.m. " 1 for break- fast, 1§ for dinner, 1 for tea. Not over 4 hours without interval of i hour. ' Prohibited. " Not to be employed o same day in other oerapf tion. — — — — — — — — — Not to be employed o same or following day i other occupation. — — - 8 a.m. -8 p.m. Till 9 p.m. on one day in week if shop closed at 2 p.m. on another day. - — - _ — Notice to be kept coi stantly affixed of day c which employment e: tended to 9 p.m. Children may be en ployed in delivering fro shops at age of 10. - — — — — — — — — — — — — — — — - - — — — — — — - — - — - - — — - — — - - - — - - — - — - - - - - 6 a.m. -9 p.m. Sats. 6 a.m. -4 p.m. 1 hr. for breakfast, li hrs. for din- ner, 1 hr. for tea. Not over 4 hrs. without interval of J hour. Prohibited. Not to be employed o same day in any othe occupation. " " '" Not to be employed o same or following day i any other occupation. - - — — — — — — - — - - — — - Prohibited. - - Ii6 England and Wales. County Boroughs Date of SCHOOL School Days . OTHER Days. Name of District. Confirma- tion OF Bte-laws. Form of Employment. MlNI- MtTM Age. Linilts. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Southampton Pop. 1911 : 119,012. March, 1909. Prohibitions : 1. Lathering or similar oc- cupation in barber's shop. 2. Sale of intoxicants on licensed premises. 14 14 — - - — 3. Sale of programmes, etc., on premises licensed for pub- lic entertainment. 14 Regulations : 1. General (except as pro- vided below). 11 7-8 a.m. 5.30-8 p.m. 3J* - 2. Sale or delivery of milk. — 6.30 a.m.-8 a.m. 4.30-6 p.m. 3 — — 3. Sale or delivery of news- papers. — 7.30-8.30 a.m. 7-8.45 p.m. 21- — — 4. Carrying parcels. — 5-8 p.m. 3 Either 8 a.m. -2 p.m. or 2-9 p.m. — 5. Industrial work at home. — 6-8 p.m. 3 — — 6. In public entertainments under licence. Stoke-on-Trent Pop. 1911 : 234,534. Feb., 1906. Regulations : 1. In connection with any shop (except as otherwise provided). — 8 a.m. -8 p.m., and not during school hours ; till 9 p.m. on one day if shop closed at 2 p.m. on another day. 5 8 a.m. -8 p.m. Till 9 p.m. on one day if shop closed at 2 p.m. on another day. 12 2. Selling or delivering milk. — 7-9 a.m. 4.30-7 p.m. 4i 7-9 a.m. 4.30-7 p.m. 41 3. Selling or delivering newspapers. — 7-9 a.m. 5-3 p.m. 5 7-9 a.m. 5-S p.m. 5 4. Industrial work at home. — 5-8 p.m. 3 5-8 p.m. S 5. Carrying parcels. - 5-S p.m. 3 5-8 p.m. Sats. : 10 a.m. -9 p.m. 3; Sats. : 8i 6. Lathering or similar oc- cupation in barber's shop. 13 6-9 p.m Thurs. prohibited. 3 6-9 p.m. Thurs. prohibited. Sats. 12 noon-9 p.m. 3 ; Sats. 8 7. Agricultural work. April-Sept. : Either 6-8 a.m. or 5-8 p.m. Oct.-March : Either 7-8 a.m. or 5-7 p.m. April- Sept. 3 Oct.- March : 2 Either 6 a.m.-12 noon or 2-9 p.m. 7 In reading this anali/si^, the explanations mentioned on p. 71 should be borne in mind. 117 —General Employment.— Continued. CHILDREN. WHOLLY EXEMPTED CHILDREN. M.VXIMUM Weekly Hotjes. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) (all children). Minimum Intervals, in Hours. (9) In School Term. (10) In Holi- days. (11) Limits. (16) Maxi- mum Hoiu^. (17) Other Provisions. (18) \ ' - - — - Prohibited. — No other work on sa or following day. Sats. IJ at noon and 5-6 p.m. Sats. un- broken i hr. - — 8 a.m. -8 p.m. Till 9 p.m. on one day if shop closed at 2 p.m. on another. 6 a.m. -9 p.m. Sats. 6 a.m. -4 p.m. 6-9 p.m. Thurs. prohibited. Sats. 12 uoon-9 p.m. 12 101; Sats. 7i 3 Sats. 2i Sats. unbroken i hr. Prohibited. — Notice to be kept c stantly affixed in shop day on which employm extended to 9 p.m. Not to be employed same day in any ot occupation. Applies to boys only ii8 England and Wales. County Boroughs Date of SCHOOL School Days. Other Days. Name of District. Confirma- tion OF BVE-LAWS. Form of Employment. Mini- mum AGE. Limits. Maxi- mum Hours. Limits. ISIaxi- mum Hours. 1) (2) (3) (4) (5) (6) (7) (8) Wallasey Pop. 1911 : 78,504. Dec, 1912, and Mar., 1913. Prohibitions : 1. In connection with sale or delivery of intoxicating liquors, except on premises where such liquors are sold exclusively in sealed vessels. 14 — - - 2. In billiard or bagatelle marking. 14 — — — — 3. In selling programmes or other articles in any theatre or music-hall. 14 — " " 4. In shifting scenery in any theatre or music-hall. 11 — — — — 5. In kitchen of any hotel, cook-shop, eating-house, etc. 14 — — — — 6. Lathering or similar oc- cupation in barber's shop. 14 — — — — Regulations : 1. General. 11 — — 2. In connection with any shop except as provided below. 8a.m.-8p.m.,and not during interval between school hours till 9 p.m. on one day in week if shop closed at 2 p.m. on another day. 5 8 a m.-8 p.m. Till 9 p.m. on one day in week if shop closed at 2 p.m. on another day. 12 3. Selling or delivering milk. — 6.30-8.15 a.m. 4.30-6.30 p.m. 31 During School Holidays : 6.30 a.m.-9 p.m. 5*; Sats. 7* 4. Selling or delivering newspapers. — 6.45-8.15 a.m. 5-7.15 p.m. 3i During School Holidays : 6.30 a.m.-9 p.m. 5*; Sats.t 7* 5. Carrying parcels or goods : 5-8 p.m. 3 Sats. in School Term : Either 8-2 p.m. or 2-9 p.m. In School Holidays : 6.30 a.m. -9 p.m. 5*; Sats. 7* 6. Industrial work at home. — 5-8 p.m. 3 During School Holidays : 6 30 a.m. -9 p.m. Do.t 7. Agricultural or garden- ing work. April-Sept. : 7-8.15 a.m., 4.30- 6 p.m. Oct. -March : 7.30-8.15 a.m. April- Sept. : 2i Oct.- March J 8 a.m. -5 p.m. Sats. J not after 4 p.m. 7i; Sats. 9 8. In place of public en- tertainment under licence. In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 119 —General Employment.— Continued. CHILDREX. ilinimuin Intervals, in Hours. (9) Maximum Weekly Hoitrs In School Term. (10) In Holi- days. (11) WHOLLY EXEMPTED CHILDREN. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) SosDAV Employment (all children). Limits. (16) Maxi- mum Hours. (17) Other Provisions. (18) li (except on Sats) a.m. -8 p.m. TiU 9 p.m. on one day in week if shop closed at 2 p.m. on another day 7 a.m. -8 p.m. Sats. 7 a.m.— t p.m. 8i Sats. Sats". 7 a.m.-l p.m. Prohibited. Not to be employed same day in any ot occupation. Not to be employed same or following day any other occupation. t Apparently this regulation only applies to Saturdays in the School Holidays. There would appear to be no regulatioi on other Saturdays. t It is not clear what the limits of employment on Saturdays are intended to be. England and Wales. County Boroughs Date of SCHOOL School Days. Other Days. Confirma- tion OF Bye-laws. Form of Employment. Mini- mum Age. District. Limits. Maxi- mum Hours. Maxi- Llroita. mum iHours. (1) (2) ;Si (4) (5) (6) (7) ! (■^) West Ham Pop. 1911 : 289,030. .Tune, 1912. Prohibitions : 1. Sale or delivery of in- toxicants, unless sold only in sealed vessels. 14 - - — - . 2. Lathering or similar oc- cupation in barber's shop. 14 — — — — Regulations : 1. General. 11 6.30-8 a.m. 5-8.30 p.m. 3i* 6.30 a.m.-9 p.m. 8* 2, Industrial work at home. 5-8 p.m. 9 a.m. -12 noon. 6-8 p.m. 6 Wopoeeter Pop. 1911 ; 47,982. June, 1912. Prohibition : Sale or delivery of intoxi- catincj liquors except where exclusively sold in sealed vessels. 14 - — Regulations : 1. General. 11 6-8 a.m. 5-8.30 p.m. 31' 6 n.m.-9 pm. 8* 2. Lathering or similar oc- cupation in barber's shop. 12 — — — — 3. Industrial work at home. 6-8 p.m. 3 9 a.m.-12 noon. 5-8 p.m. 6 In reading this anolysis, the explanations mentioned on p. 71 should be borne in mind. —General Employment— Continued. CHILDREN. ! WHOLLY EXEMPTED CHILDREN. Sunday Employment (all children). Maximum Weekly Houks. Limits. (12) Maxi- mum Hours (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Minimum Intervals, in Hours. (9) In School Term. (10) In Holi- days. (11) Maxl- Limits. mum Hours. 16) (17) Other Provisions. (18) — 20 30 — — 7 a.m.-l p.m. Prohibited. 3* - - 20 30 — — — 7-10 a.m. 3 - 122 England and Wales* Mon-County Date of SCHOOL School Days. Other Days. CONFIRMA- TIOX OF Bye-laws. Form of Employment. Mini- mum Age. Name of District. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Banbury Pop. 1911 • 13,458. July, 1907. Prohibitions : 1. Lathering or .similar oc- cupation in barber's shop. 14 2. In sale of intoxicating liquor in licensed premises or registered club. 14 — — — Regulations : 1. Milk delivery or sale. - 6.30-8 a.m. 5-7 p.m. 3i — 2. Delivery and sale of newspapers. — Either 7-9 a.m. or 5-8 p.m. 3 — — 3. Carrying and delivering parcels. — 5-8 p.m. 3 Sats. : Either 8 a.m.- 1 p.m. or 2 p.m.- 9 p.m. Sats. 7 4. In or in connection with sliop. 8 a.m.-8 p.m. and not in interval be- tween school hours. 5 8 a.m. -8 p.m. On one day in week till 9 p.m. if shop closed at 2 p.m. on another day. 12 5. Industrial work at home. — 5-7 p.m. 2 — — 6 In place of public en- tertainment under licence. — - — — — 7. Agriculture. Prohibited. 6 Sats. in School Term: 8a.m.-l p.m. or 2 p.m. -6 p.m. In Holidays : 8 a.m.-l p.m. 2 p.m.-6 p.m. 9 Bexhill .. Pop 1911 : 15,330. May, 1909. Regulations : 1. In connection with sale of intoxicating liquor on li- censed premises. Exempt from school. — - — - 2. Lathering. 12 — - — — 3. General. 4* Bromley Pop 1911 : 33,640. March, 1910. Regulation : General. - 6-8.30 a.m., 12 noon-1.30 p.m., and after school hours ad lib. 7 - In reading this analysis, the explanations mentioned on p. 71 shoidd be borne in mind. 123 Boroughs — General Employment* HILDREX. WHOLLY EXEMPTED CHILDREN. Sunday Employment (all children). Maximum Weekly HouES. Limits. Maxi- mum Hours. Minimum Intervals, in Hours. Maxi- mum Weekly Horns. Minimum [iitervals, in Hours. In School Term. In Holi- days. Limits. Maxi- mum Hours. Other Provisions (9) (10) (11) 12) (13) (U) (15) (16) (17) (18) ~ - — 8 a.m. -8 p.m. On one day of the week till 9 p.m. if shop closed at 2 p.m. on another day. - - — Notice to be constantly affixed in shop of day on which employment ex- tended till 9 p.m. 6 a.m. -8 p.m. Sats. 6 a.m. -4 p.m. 9' ; Sats. 4i; Sats. 2i " Prohibited. No child employed in in- dustrial work at home to be employed on same day in other occupation. — — — — — — — — Not to be employed on same or following day In other occupation. - - — - - - - — - 124 England and Wales. Non-County Boroughs Name of district. (1) Date of coxfirma- TION OF Bye-laws. (2) Form of Employment. (3) Mini- mum AGE. (4) SCHOOI School Days. Limits. (5) Maxi- mum Hours. (6) Other Days. Limits. (7) Maxi- mum iHours ! (8) Cambridge Pop. 1911 : 40,027. July, 1910. Prohibitiojis : 1. Lathering. 2. Sale or delivery of in- toxicating liquors, except where sold only in sealed vessels. 14 — — - 3. Billiard or bagatelle marking. — — — _ 4. Kitchen of any hotel, eating-house, etc. — — — — — Regulations : 1. General. 11 2. In or in connection with shops (except as below). 11 7 a.m. -8. 15 p.m. ; not in interval between school hours. 3* 7 a.m. -8.15 p.m. and till 9 p. m. on one day if shop closed at 2 p.m. on another day. Sat. 5 Other holi- days 8 3. Sale or delivery of milk. 11 7-8 a.m. 4.30-6 p.m. 2i 7 a.m.-8.15 p.m. — 4. Carrying parcels. 11 7.45-8.30 a.m. 5.15-8.15 p.m. Sats. : Either 8.15 a.m.-2p.m. or2p.m. -8.15 p.m. No limit on other days. 61 5. Industrial work at home. 11 5.1,5-8.15 p.m. 3 7 a.m. -8. 15 p.m. Either Thurs. or Sat. till 2 p.m. ©nly. 8i; Sats. 6* 6. Domestic work for wages. 11 7-8.45 a.m. 4.15-8.15 pm. 3* Sats. : 7 a.m.-8.15 p.m. No limit on other days. 5* 7. In places of entertain- ment under licence. Carlisle . . Pop. 1911 : 46,420. Mar., 1905. Regulations : 1. General. 2. Industrial work at home. 11 5-8 p.m. 3 3. In connection with shop (except as below). 8 a.m.-8 p.m. 8 a.m. -9 p.m. one day if shop closes at 2 p.m. on another day No work in inter- vals between school hom'3. 5 8 a.m. -8 p.m. 8 a.m. -9 p.m. on one day if shop closed on another day at 2 p.m. 12 i 4. Any outdoor employ- ment, including sale or de- livery of milk or newspapers. i 6.30-8 a.m. 5-8 p.m. 4i 6.38-8 a.m. 5-8 p.m. 4i In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 125 1 —General Employment.— Cow/Zwi/^c/. JCHILDREN. WHOLLY EXEMPTED CHILDREN. SuND.w Employment (all chiUlren). Maximum Weekly Hours. Limits. Maxi- mum Hours. Minimum Intervals, in Hours. Maxi- mum Weekly Hours. Minimum Intervals, In Hours. In In School ; Holi- Term. i days. Limits. Maxi- mum Hours. Other Provisions. (9 (10) (11) (12) (13) (14) (15) (16) (17) (18) _ 7 a.m. -8. 15 p.m. and till 9 p.m. on one day if shop closed at 2 p.m. on another day. 8* Prohibited. — Notice of day on whic employment extended t 9 p.m. to be constantl affixed in shop. - — — — — — — 7-10 a.m. 3 — - — — — — — — — — — 5 ; Sate. 2 Not over 5 hrs. with- out i hr. interval. — — 7 a.m. -8. 15 p.m. Thurs. or Sat. : 7 a.m. -2 p.m. - 5 ; Sats. 2. Not over 5 hrs. without interval of h hr. Prohibited. — ■ " ~ " " 2 hrs. (for school children only). Not to be employed o same or following day i other occupation. — 6 a.m.-9 p.m. Satfl. 6 a.m.-2 p.m. 8 (meals and absence from work). Sats. 2J ~ " 8 a.m.-8 p.m. 8 a.m. -9 p.m. on one day if shop closed on another day at 2 p.m. 12 Notice to be kept coe stantly affixed in shop c day on which employmeE extended to 9 p.m. — — — — — — — — — — ' 126 IZ^Uglc lUU dl iu waici. 1 NU11-V> UUllUy DUIUL Igilt Date of SCHOOI School Days Other Days. Confirma- tion OF Bye-laws. Form of Employment. MlNI- MUJI AOE. Name of District. Limits. Maxi- mum Hours. Limits Maxi- mum Hours (1) (2) (3) (4) (5) (6) (7) (8) Chatham Pop. 1911 : 42,250. June, 1905. Prohibition : Sale of intoxicating liquors on liceased premises. 14 - - - — Regulations : 1. Sale or delivery of milk. — 6-3 a.m. 4-6 p.m. 4 G-8 a.m. 4-6 p.m. 4 2. Sale or delivery of newspapers. — 7.30-8.30 a.m. 6-8 p.m. 4 7.30-S.30 a.m. 5-8 p.m. 4 3. Carrying parcels. 6-8 p.m. 2 6-8 p.m. 2 : Sat8. 8 a.m.-8 p.m. Sats. 12 Cheltenham .. Sept. 1905. General. Pop. 1911 : 48,942. Chestepfield .. Pop. 1911- 37,406. Oct. 1912. Regulations : 1. General. 11 Children imder 13 : 6.30-8.15 a.m. 4.45-8.30 p.m. Fridays : 6.30-8.15 a.m. 4-8.30 p.m. 4* Children under 13 : 6.30 a.m.-8.30 p.m. Sat.s.6.30a.m.-9p.m. 8* ; Sats. 10* 2. Lathering. 12 — — — — Colne Pop. 1911 : 61,222. Sept., 1909. Prohibition . Sale or delivery of intoxi- cants, except where sold ex- clusively in sealed vessels. 14 - - — Regulations : 1. General. - 6-8.30 a.m. 5-9 p.m. 3J 6 a.m. -9 p.m. 8 2. Lathering. 12 — — — — Crewe Pop. 1911 : 44,960. ;Feb., 1907. Regulatiotis : 1. In connection with any shop, stall or warehouse, or in delivering or carrying milk, newspapers, parcels and other articles. — 7-9 a.m. 5-3 p.m. 5 - Sate. I2*a 2. As lather-boy or in simi- lar occupation in barber's shop. 13 — — — — 3. Industrial work at home — 6-8 p.m. 2 - Sats. 5* 4. lu place of public en- |tertainmenfc under licence. — 1 1 — — — In reading this analysis, the expla7iations mentioned on p. 71 shoidd be borne in mind. 127 —General Employment.— Continued. HILDREN. \YHOLLY EXEMPT1*:D CHILDREN. Sunday Employment (all children). m.ocimttm Weekly Hours. Maxi- mum Limits. Hours. (12) (13) Minimum Intervals, in Hours. (U) Maxi- mum Weekly Hours. (15) Minimum [ntervals, in Hours. (9) In School Term. (10) In Holi- days. (11) Limits. (16) Maxi- mum Hours. (17) Other Provisions. (13) - — — — — III 1 — — — — - — - — — — - — — Children aged under 12 not to be employed while religious instruction is being given in the school at- tended by them. - — — — — — — Prohibited. No regulation of hours of children aged 13. - — — — — — — — - — - 1 1 6 a.m -8 p.m. 1 a* ; SatB. d* 1 — — — 1 1 Not to be employed or same or following day ii any other occupation. a Includin g meal -times. ' 128 Engl and a nd Wales. Non-County Boroughs scnooi Date of SCHOOL Day s. Other days. Confirma- tion OF Bye-laws. Form of EirpiOYMEXT. MlNI- MTJ5I Age. Name of District. Limits. Maxi- mum Hours. Limits. Jlaxi- mum Hours ■ (1) (2) (3) (4) (5) (6) (7) (8) 1 Darlington Pop. 1911 : 65,631. Sept., 1905. ProMhition : Lathering. Regulations : 1. In connection with a shop [except as below]. 14 8 a.m. -8 p.m., and not in interval be- tween school hours. Till 9 p.m. on one day if shop closes on another day at 2 p.m. 6 8 a.m.-8 p.m. Till 9 p.m. on one day if shop closes on another day at 2 p.m. 12 2. Selling or delivering millf. — 6-8 a.m. 4-6 p.m. 4 6-S a.m. 4-6 p.m. 4 3. Selling or delivering newspapers. — 7-8.30 a.m. 5-8 p.m 4J 7-8.30 a.m. 6-8 p.m. ii 4. Carrj'ing parcels (boys). — 5-8 p.m. 3 5-8 p.m. Sats. : Either 8 a.m.- 2 p.m. or 2-9 p.m. 3 ; Sats. 7 5. Industrial work at home. Boys 10 Girls 12 5-8 p.m. 3 5-8 p.m. 3 6. In places of public en- tertainment under licence. — — — - - Doncastei* Pop. 1911 : 30,516. Dec, 1904. Regulations : 1 (i.) In connection with shops, stalls, warehouses. (ii.) In delivering or carrying milk, newspapers or other articles. - 7-8.30 a.m. 5-8 p.m. 4J — 12*. includ- ing meal hours. 2. Lathering, etc. 13 — - — — 3. Industrial work at home. — 6-8 p.m. 2 — Sats. 5* 4. In public entertain- ments. — — — — - Dover Pop. 1911 • 43,645. Mar., 1905. Prohibition : Lathering. Regulations : 1. In connection with shops [except as below]. 14 8 a.m. -8 p.m. 8 a.m.-9 p.m. on one day if on another day shop closes at 2 p.m. No work during interval between school hours 6 8 a.m. -8 p.m. 8 a.m.-9 p.m. on one day if on another day shop closes at 2 p.m. 12 2. Sale or delivery of milk. — 6-8 a.m. 4-6 p.m. 4 6-8 a.m. 4-6 p.m. 4 3. Sale or delivery of news- papers. — 7-8.30 a.m. 5-8 p.m. 4i — Sats. 5* 4. Carrying parcels. 5-8 p. 10, 3 5-8 p.m. Sats : Either 8 a.m.- 2, p.m , or 2 p.m.- 9 p.m. 3 ; Sati. 5. Industrial work at home. — 6-8 p.m. 3 5-8 p.m. 3; Sats. 6* 6. Agricultiure. 7-9 a m. 4-5.30 p.m. April-Sept. : S-9 a.m.. Oct.-March. 3i or 1 Holidays . 8 a.m. -5 p.m. Sats. not after 4 p.m. 7. Public entertainments. — — — — — ; In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 129 —General Employment.— Continued. CHILDREN. WHOLLY EXEMPTED CHILDREN. Maximum Weekly Hours Limits. (12) Maxi- mum Hours (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) (all children). Minimum Intervals, in Hours. (9) In School Term. (10) In Holi- days. (11) Lmits. (16) Maxi- mum Hours. (17) Other Provisions. (18) — 1 i _ 1 8 a.m. -8 p.m. Till 9 p.m. on one day if shop closes on another day at 2 p.m. 6 a.m.-9 p.m. Sats. 6 a.m.-4 p.m. 12 8i; Sats. 7i 4| ; Sats. 25 — Prohibited. — Notice of day on which employment extended to 9 p.m. to be kept con- stantly affixed in shop. Not to be employed on same day in any other oc- cupation. Not to be employed on same or following day in any other employment. 1 - — - 6 a.m.-8 p.m. 8*; Sats. 6* — — — No other work on same or lollowmg day. lifor meals in holidays. - — 8 a.m. -8 p.m 8 a.m. -9 p.m. on one day if on another day shop closes at 2 p m. 7 a.m.-8 p.m. Sats. 7 a.m. -4 p.m. 12 4J; Sats. 2i 1 - Prohibited. — Notice to be kept con- stantly affixed of day on which employment ex- tended to 9 p.m. No other work on sama day. No other work on same or followins day. I30 England and Wales. Non-County Boroughs Name of District. (1) Date of confirma- TION OF Bye-laws. (2) Form of Employment. (3) JIINl- MTTM AGE. (4) SCHOOL School Days. Limits. (5) Maxi- mum Hours. (6) Other Days. Limits. (7) Maxi- mum Hours. (8) Ealing .. Pop. 1911 : 61.222. Sept., 1909. Prohibition : Sale of intoxicants, except where sold only in sealed vessels. 14 — — — - Regulations : 1. General. 11 6-8.30 a.m. 5-9 p.m. 3i* 6 a.m. -9 p.m. 8* 2. Lathering or similar oc- cupation in barber's or hair- dresser's shop. 12 " " East Ham Pop. 1911 : 133,487. 1911. Regulation!: : 1. General. 2. In connection with shop (except as otherT\ise pro- vided). 11 8 a.m. -8 p.m., and not in interval be- tween school hours ; till 9 p.m. on one day if shop closes at ■2. p.m. on another day. 5 8 a.m.-8 p.m. Till 9 p.m. on one day if shop closes at 2 p.m. on another day. 12 3. Selling or delivering milk or newspapers. — 6-8.15 a.m. 4.45-7.30 p.m. a.m. -7 p.m. 8* 4. Carrying parcels in con- nection with any shop. — 4.45-7.30 p.m. 2f 6 a.m. -7 p.m. 8» 5. Industrial work at home. 11 — — — — 6. (i.) Lathering or similar occupation in barber's shop. (ii.) In connection with sale of intoxicating liquor on premises, with on-licence. 13 7. In places of public en- tertainment imder licence. Gillingham Pop. 1911 : 52,252. March, 1910. Prohibition : Sale of intoxicating liquors, except where sold only in sealed vessels. 14 — - - — Regulations : 1. Sale or delivery of milk. - 7-8 a.m. 5-6.30 p.m. 2i 7-8 a.m. 5-6.30 p.m. 2i 2. Sale or delivery of news- papers. — 7-8 a.m. 5-8 p.m. 4 7-8 a.m. 6-8 p.m. 4 3. Carrying parcels. — 6-8 p.m. 2 Sats. 8 a.m. -8 p.m. 12 Guildford Pop. 1911 : 23,820. Dec, 1907 Prohibition : Sale of intoxicants, excep' where sold only in sealed vessels. 14 - - — - Regulation : General. 10 6.15-8.30 a.m. During one hour be- tween 12 noon- 2 p.m. 5-8 p.m. 3i* 6.15 a.m.-8 p.m. 13i Jn reading this analysis, the explanaiions mentioned on p. 71 shoidd be borne in viind. 131 -General Employment. -Continued. CHILDREN. Minimum Intervals, in Hours. (9) Maximum Weekly Hours. In In School Holi- Term. days. (10) (11) WHOLLY EXEMPTED CHILDREN. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Sunday Employment (all children). Limits. (16) Maxi- mum Hours. (17) Other Provisions, (18) - — " ; — - 40 40 6 a.m. -8 p.m. Till 9 p.m. ou one day if shop closes at 2 p.m. on another day. 6 a.m.-8 p.m. Sats. 6 a.m.-2 p.m. 4i Sats. 2 — Prohibited. Notice to be kept con stantly affixed in shop o day on which employment extended to 9 pm Not to be employed on same or following day in other occupation. ~ — — — — - — — — — 6.15 a.m.-8 p.m. Sats. : 6.15 a.m. -9 p.m. m — — 6.15-10 a.m. 3i — 132 England and Wales. Non-County Boroughs Date of SCHOOL SCHOOL Days. Other Days. Name of District. CONFIEMA- TION OF Bye LAWS. FOEJt OF EJIPtOY.MENT. MINI- MTTM Age. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Hornsey Pop. 1011 . 84,592. Dec, 1904. Prohibitions : 1. In connection with sale of intoxicating liquors in beer- houses, or on or about licen- sed premises. 14 — — - — 2. Billiard-marliing. 14 — — — — 3. Lathering or similar oc- cupation in barber's shop. 14 — — — — 4. Step-cleaning. 14 — — - - Regulations : 1. Domestic employment other than step-cleaning. 11 7-8 a.m. 5-9 p.m. 4* 7-8 a.m. 5-9 p.m. 4; Sats. 10* 2. (i.) In connection with any shop. (ii.) In connection with any stable. (iii.) In connection with any premises licensed for public entertainment. (iv.) In delivering goods, (except as provided below). 11 5-9 p.m. 4* 5-9 p.m. Sats. : No limit. 4; Sats. 10* 3. Sale and delivery of milk, bread and newspapers. 11 Boys only : 6.30-8 a.m. 5-9 p.m. 4* 6.30-S a.m. 5-9 p.m. Sats. : No limits. 4; Sats. 10* 4. In connection with any latmdry, or in needlework for wages. 12 2* 2* ; Sats. 4* Hove Pop. 1911 : 42,173. March, 1905. Prohibitions : 1. Lathering or similar oc- cupation in barber's shop. 14 — — — 2. In connection with sale of intoxicating liquor in any licensed public-house. 14 ~ ' ' 3. In or about any pre- mises licensed for public en- tertainment. 14 ~ Reqidations : 1. General (except as be- low). 10 7-8 a.m. 5-8 p.m. 4* — — 2. Sale or delivery of milk. 10 6-8 a.m. 4.30-6.30 p.m. 4 — — 3. Sale or delivery of news- papers. 10 7.15-8.45 a.m. 5.45-8.15 p.m. 4 — — 4. Carrj-ing parcels. 10 5-8 p.m. 3 Either 8 a.m.-2p.m. or 2-9 p.m. 6 or 7 5. In any laundry to which Factory and Workshop Act, 1901, does not apply. 12 — ' 6. Industrial work at home. 10 — — — — 7. In places of public en- tertainment under a licence. — — — — — -^ In reuding this analysis, the explanations mentioned W! p. 71 should be borne in mind. 133 — General Employment. — Continued. CHILDREN. WHOLLY EXETJPTED CHILDREN. Sunday Ejiployment (all children). Maximum Weekly Hours Limits. (12) Maxi- mum Hours (13) Minimum Intervals, in Hours. (U) Minimum Intervals, in Hours. (9) In School Term. (10) In Holi- days. (11) Jlaxi- mum Weekly Hours. (15) Limits 1 (16) Maxi- mum Hours. (17) Other Provisionb (18) — 25 25 25 25 25 25 - Prohibited. 2t 2t — - — — 1 1 ' 1 1 1 1 1 1 1 1 — — Prohibited. 1 1 1 1 1 1 1 111 Not to be employed 5ame or following day my other occupation. t School children only. 134 England and Wales. Non-County Boroughs, Date of con'fikma- TIOX OF Bye-laws. Form of Employment. MiN-i- MUM AGE. SCHOOL School Day s. Other Days. Name of District. Llmita. Maxi- mum Hours. Limits. Maxi- mum Hours. ;i) (2) (&) (4) (5) (6) (7) (8) Keighley Pop. 1911 : 43,487. March, 1912. Prohibitions : 1. Sale or delivery of in- toxicants, unless sold only in sealed vessels. 14 — — — - 2. Sale of programmes, etc., in theatres and music- halls. 14 — — " 3. Sorting rags or refuse. 14 — — — — Regulations : 1. General (except as be- low). 11 6-8.30 a.m. 5-8 p.m. 5i 6 a.m. -8 p.m. Under 12, 6*; under 14, 8* 2. Agriculture. -^ — — None. None. Lowestoft Pop. 1911 : 33,777. Dec, 190S. Prohibition : Sale or delivery of intoxi- cants, unless sold in sealed vessels. 14 — — — — Regvlations : 1. General. 11 7-8 a.m. 5.30-8 p.m. Sh — Dur- ing School Term, 6* 2. Carrying parcels (boys). — 5-8 p.m. 3 5-8 p.m. Sats. : Either 8 a.m.- 2 p.m. or 2-9 p.m. 3; Sats. 6» 3. Industrial work at home. — 5-8 p.m. 3 9 a.m.-12 noon. 6-8 p.m. 6 4. Public entertainments. " Macclesfield . . Pop. 1911 : 34,797. Sept., 1909. Regulations : 1. In connection witli shops (except as provided below). 8 a.m. -8 p.m. 8 a.m.-9 p.m. on one day if on another day shop closes at 2 p.m. No work during interval be- tween school hours. 5 8 a.m. -8 p.m. 8 a.m.-9 p.m. on one day if shop closes on another day at 2 p.m. 12 2. Sale or delivery of milk. — 7-8.30 a.m. 4.30-7 p.m. 4 — -- 3. Sale or deliverj' of news- papers. — 6.30-8 a.m. 5.30-8 p.m. Fri. 4.30-8 p.m. 4; Fri. 5 — — 4. Lathering or similar oc- cupation in barber's shop. 13 5.30-8.30 p.m. Weds. 8.30 a.m.- 1 p.m. 3; Weds, li 5.30-8.30 p.m. Weds. 8.30 a.m.- 1 p.m. Sats. 9 a.m.-l p.m. ; 5.30-9 p.m. 3; Weds. H: Sats. 7i 5. Carrying parcels. — 5-8.30 p.m. H 5-8.30 p.m. Sats. 10 a.m. -9 p.m. 3i; Sats. 11 6. Industrial work at home. " 5-8 p.m. 3 5-8 p.m. 3 i In reading this analysis, the explanations mentioned on p. 71 shmdd be borne in mind. — General Employment. — Continued. CHILDRKN. WHOLLY EXEMPTED CHILDREN. Sunday Employment (all children). Maximum Weekly Hours Limits. (12) Maxi- mum Hours (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) lliuimum luti-rvals, in Hours. (9) In School Term. (10) In Holi- days. (11) Limits. (16) Maxi- mum Hours. (17) Other Provlsions. (18) — 24 36 6 a.m. -8 p.m. None. 14 — — — — - — 21 _ — Prohibited. — No other work on sam day. Sats. 1 for dinuer, 1 for tea. - 8 a.m.-8 p.m. 8 a.m.-9 p.m. on one day if on another day shop closes at 2 p.m. 5.30-8.30 p.m. Weds. 8.30 a.m.-l p.m. Sats. 9 a.m.-l p.m. and 5.30-9 p.m. 6 a.m.-9 p.m. Sats. 6 a.m. -4 p.m. 12 3 ; Weds. 4i; Sats. Vi lOi; Sats. n 4i; Sats. 2^ — Prohibited. — Notice to be kept coi stantly affixed of day o which employment ei tended to 9 p.m. Not to be engaged I any other occupation. 1 136 England and Wales. Non-County Boroughs Date of SCHOOL School Days. Other Days. Confirma- tion OF Bye-laws. FoEM OF Employment. Mini- mum Age. Name of DISTKICT. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Margate. . Pop. 1911 : 27,085. April, 1911. Prohibitions : 1. Lathering. 2. Sale of intoxicants on licensed premises, or m or about premises licensed for public entertainment. 14 14 — — — - Regulations : (General 10 7-8 a.m. 5-8 p. m. 4 — S» Neath Pop. 1911 : 17,586 1912 (? con- firmed) Regulations : 1. General. — — 5* — 5*; Sats. 7* 2. In shop (except as other- wise provided). 8 a.m. -8 p.m., and not during interval between school hours ; 8 a.m.-9 p.m. on one day if shop closes at 2 p.m. on another day. 5* 8 a.m. -8 p.m. 8 a.m. -9 p.m. on one day if shop closes at 2 p.m. on another day. 5*; Sats. 7 3. Selling and delivering milk. — 7-8.30 a.m. 5-7 p.m. 3i 7-8.30 a.m. 5-7 p.m. — 4. Selling and delivering newspapers. 7-8.30 a.m. 5.30-9 p.m. 5 7-8.30 a.m. 5.30-9 p.m. Sata. 7.30-9 a.m. ; 3.30-9 p.m. 5*; Sats. 7* 5. Carrj'ing parcels. — 5-S p.m. 3 5-8 p.m. Sats. : Either 8 a.m.- 2 p.ra. or 2-9 p.m. — 6. Lathering or similar occupation in barber's shop. 13 — — — 7. In place of public en- tertainment. ' — — — Nelson Pop. 1911 : 39,479. Sept., 1905. Prohibition : As messenger, tout or agent for any bookmaker in making of bets, or in collection, in distribution of money circu- lar, written or printed docu- ment, not being a newspaper, relating to any betting tran- action. 14 - - - Regulations : 1. In connection with any shop (except as below). " 8 a.m.-8 p.m. riU 9 p.m. on one day in week if shop closed at 2 p.m. on another day ; not in Interval between school hours. 5 8 a.m.-8 p.m. Till 9 p.m. on one day if shop closed at 2 p.m. on another day. 12 2. Sale or delivery of milk. — 0-9 a.m. 6-8 p.m. 6 6-9 a.m. 5-8 p.m. Sats. : No limits. d 3. Sale or delivery of news- papers. — 7-9 a.m. 5-8 p.m. 5 7-9 a.m. ; 5-8 p.m. Sats. : 7-9.30 a.m. ; 2-4 p.m. ; 5-9 p.m. Sats. 8i 4. Industrial work at home. — Full Timers : 5-8 p.m. 3 5-8 p.m. Sats. : No limits. 1 3; Sats. 3* In reading this analysis, the explanations mentioned on p. 71 shov.ld be borne in mind. ^37 — General Employment.— Continued. CHILDREN. WHOLLY EXEMPTED CHILDREN. Maximum Weekly Houks. Limits. Maxi- mum Hours. Minimum Intervals, in Hours. Maxi- mum Weekly Hours. (all children). 1 Minimum Intervals, in Hours. In School Terra. In Holi- days. Limits. Maxi- mum Hours. Other Peovisions. (9) (10) (11) (12) (13) (14) (16) (16) (17) (18) - 21 — — — — Children under 11 not be employed on school day Not over 5 hrs. with- out i hr. for meal. - — — — — — — - — — 8 a.m. -8 p.m. 8 a.m. -9 p.m. on one day if shop closes at 2 p.m. on another day. Nor- mally 12 — - - Notice to be kept co stantly aflBxed of day c which employment e tended to 9 p.m. — — — — Not to be employed other occupation on san or following day. I - 8 a.m. -8 p.m. Till 9 p.m. ou one day if shop closed at 2 p.m. on another day. 12 - - - Notice to be kept coi stantly affixed of day o which employment e tended to 9 p.m. — — — (J a.m. -9 p.m. Sata. 6 a.m. -4 p.m. lOJ Sats. 7* Sata. 2J - Prohibited. : — 138 England and Wales. Non-County Borough Date of SCHOOl School Day 3. Other Days. Confirma- tion OF Bye-laws. Form of Employment. Mini- mum Age. Name of District. Limits. Maxi- mum Hours. Limits. Maxi mum Hours (1) (2) (3) (4) (5) (6) (7, (8) Newbury Pop. 1911 : 12,107. Oct., 1912. Prohibitions : 1. Sale or delivery of in- toxicants, unless sold only in sealed vessels. 14 — — — — 2. Lathering or similar oc- cupation in barber's shop. 14 — — — — Regulations : 1. General. 11 7-S a.m. 5.30-8 p.m. 3i* 7 a.m. -8 p.m. 7* 2. Delivery of milk. — _ 3. Industrial work at home. 5.30-8 p.m. n 9 a.m.-12 noon. 5.30-8 p.m. 5i Petepbopough Pop. 1911 : 33,574. Feb., 1913. Prohibitions : 1. Heaving, carting or de- livering coke or coal. 2. Lathering or similar oc- cupation in barber's shop. 14 14 — — — 3. Sale of intoxicants on licensed premises or in regis- tered clubs. 14 — — — 4. Billiard or bagatelle marking. 14 — — — — 5. Sale of programmes in theatres, music-halls, or cine- matograph shows. 14 — — — 6. Shitting scenery in the- atres, music-halls, or cine- matograph shows. 14 — — ' — 7. In kitchen of hotel, cook- shop, eating-house, or re- freshment room. 14 — — — — Regulations : 1. General. 11 — — — — ^ 2. In connection with shop (except as below). 8 a.m. -8 p.m. 8 a.m. -9 p.m. on one day if on another shop closed at 2 p.m. No work during in- terval between school hours. 5 8 a.m. -8 p.m. 3 a.m. -9 p.m. on one day if on another day shop closed at 2 p.m. 12 3. Milking cows ; sale cr delivery of milk. — 7-8 a.m. 5.30-7.30 p.m. 3 6.45 a.m.-8 p.m. 3ats. : Either 8 a.m.- 2 p.m. or 2-8.15 p.m. e* 4. Sale or delivery of news- papers. — 6.30-8.30 a.m. 5.15-8 p.m. 3i S.45 a.m. -8 p.m. 3ats. : Either 8 a.m.- 2 p.m. or 2-8.15 p.m. 6* 5. Carrying parcels. — 5-7.30 p.m. 2i S.45 a.m.-S p.m. 3ats. : Either 8 a.m.- 2 p.m. or 2-8.16 p.m. — 6. Nursing, unless work is ' of a light and casual char- acter and of short dujation." 12 In reading this analysis, the explanations mentioned on j). 71 should be borne in mind. 139 General Employment.— Continued. CHILDREN. itiiiinium Intervals, in Hours. (9) MAXIMTTil Weekly Hours. In School Term. (10) WHOLLY EXEMPTED CHILDREN. In Holi- days. (11) — — Not over 4 ITS. without nterval of § hr. 20 — — 30 Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Sunday Employment (all children). Limits. (16) Maxi- mum Hours. (17) Othek Provisions. (18) Prohibited (except as below). 7-9 a.m. No other work on same day. 3; Sat». 2 Prohibited. Allowed. Prohibited. (Continued. 140 England and Wales. Mon-County Boroughs i SCHOOL Date of School Days. Other Days. COXFIRMA- TION OF Bye-laws. FORM OF EMPLOYxMENT. MU.H Age. , District. Limits. Maxi- mum Hours. Limits. Max- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Peterborough (continued) 7. Pea-pickin(z and other industrial work at home. 12 5-7.30 p.m. n 6.45-8 p.m. Sata. : Either a.a.m- 2 p.m. or 2-8.15 p.m. 6* 8. In places of public en- tertainments under licence. — - - - Reigate .. Pop. 1911 : 28,502. Dec, 1908. Prohibitions : 1. Lathering or similar oc- cupation in barber's shop. 2. In connection with sale of intoxicating liquor on pre- mises with on-licence. 14 14 - — — -1 1 Regulations : 1. (i.) In connection with any shop or in the sale or delivery of goods, except as provided below. (ii.) In connection with premises licensed for public entertainment. (iii.) In or about any stable. 11 5-8 p.m. 3 Sats. 6.30 a.m.- 8 p.m. Sats. 8* 2. Sale and delivery of milk and bread. 11 Boys 6.30-8.15 a.m. Boys and Girls : 5-8 p.m. Boys 3i' ; Girls 3 Sata. : 6.30 a.m.-8 p.m. Do. 3. Sale and delivery of newspapers. 11 Boys 6.15-8.15 a.m. Boys and Girls : 5-8 p.m. Do. Ditto. Do. 4. Domestic work for wages. 11 6.30-8.15 a.m. 5-8 p.m. 3J* Ditto. Do. 5. In industrial work at home. — — — — — St. Albans Pop. 1911 18,133. April, 1913. Prohibition : Lathering or similar OC' cupation in barber's shop. Regulations : 1. General. 2. In connection with any shop (except as otherwise provided). 3. Carrying parcels. 4. Selling or delivering newsipapers. 5. Selling or delivering milk. 11 7 a.m. -8 p.m. Not during interval between school hours. Till 9 p.m. on one day if shop closed at 2 p.m. another. 5-3 p.m. 6-8 a.m. ; 5-8 p.m. Local weekly news- papers on day of publication also 12.30-1.30 p.m. 6-8 a.m. 4-6 p.m. Either 8 a.m.-4 p.m or 2-8 p.m. Till 9 p.m. on one day if shop closed at 2 p.m on another. Sats. : Either 8 a.m.- p.m. or 2-9 p.m. Other school holi- days : Either 8 a.m.- 4 p.m. or 2-8 p.m. Jn reading this analysis, the explaiiatioiu mentioned on p. 71 should be borne in mind- 141 — General Employment. — Continued. CHILDREN. WHOLLY EXEMPTED CHILDREN. Maximum Weekly Hours Limits. (12) Maxi- mum Hours. (13) (all children). Minimum Intervals, in Hours. (9) In School Term. (10) In Holi- days. (11) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Limits. (16) Maxi- mum Hours. (17) Other Provisions. 18 i ; Sats. 2i iot over 5 ITS. with- ut interval of i lir. — — 7 a.m.-7 p.m. Sats. 7 a.m.-2 p.m. - 3V ; Sats. 2,i. Not over 5 hrs. without ihr. interval. - Prohibited. — No other work on same day. Thursday may be substituted for Saturday if notice exliibited conspicu- ously. Not to be employed on same or following day in other occupation. - 25 25 — — — Prohibited. 2 2 2 2 Ill 1 1 1 1 iir. for leals i n ach 6 lirs. — — 7 a.m.-8 p.m. Till 9 p.m. on one day if shop closed at 2 p.m. on another day. 11 1 hr. for meals in each 5 hrs. Prohibited. Notice to be kept con- stantly affixed of day oa which employment ex- tended to 9 p.m. 142 England and Wales. "^on-County Boroughs Date or SCHOOL School Days. Other Days. Confirma- tion OF Bte-laws. FORM OF Employment. Mini- mum Age. 1 Name of District. 1 Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) 1 (6) (7) (8) i Southend Pop. 1911 : 62,713. Ifov., 1906. Prohibitions : 1. Lathering or similar oc- cupation in barber's shop. 2. In connection with sale of intoxicating liquor in pub- lic-houses. 14 - — _ — 3. As errand-boy, waiter, or in sale of programmes, con- fectionery or refreshments in or about any premises licen- sed for public entertainment. 4. In solicitation for letting of apartments. — — — — — Regulations : 1. General (except as be- low). 10 — 4* — 2. In industrial work at home. 10 - 4* — — 3. Sale or delivery of milk. 10 6-8 a.m. 4.30-6.30 p.m. 4* — — 4. Sale or delivery of news- papers, handbills or goods except parcels, or in domes- tic work. 10 7-8.30 a.m. 5.30-8 p.m. 4^= ~ 5. Carrying parcels. 10 5.30-8 p.m. 2i Sats. : Either 8 a.m.- 2 p.m. or 2-8 p.m. Sats. 6 6. In laundry to which provisions of Factory and Workshop Act do not apply. 12 ~ " ' Todmopden Pop. 1911 : 25,404. .June, 1905. Regulations : 1. General. 2. In connection with any shop (except as otherwise provided). 11 11 8 a.m.-8 p.m., and not in interval be- tween school hours. Till 9 p.m. on one day in week if shop closed at 2 p.m. on another day. 5 8 a.m.-8 p.m. TiU 9 p.m. on one day in week if shop closed at 2 p.m. on another day. 12 : 3. Selling or delivering milk. 11 7-9 a.m. 5-7 p.m. 4 7-9 a.m. 5-7 p.m. 4 3 4. Selling or delivery of newspapers. n Either 7-9 a.m. or 5-8 p.m. 3 Either 7-9 a.m. or 5-8 p.m. 5. Carrj'ing parcels. 11 5-8 p m. 3 5-8 p.m. Sats. : Either 8 a.m.- 2 p.m. or 2-9 p.m. 3; Sats. 7 6. Lathering or similar oc- cupation in barber's shop. 12 Either (i.) Mon. and Thurs. 6-9 p.m., or (ii.) Wed. and Fri. 5-9 p.m. 3 or 4 Either (i) Mon. and Thurs. 6-9 p.m. ; Sat. : Either 8 a.m.- 3 p.m. or 2-9 p.m. ; or (ii.) Wed. and Fri. 5-9 p.m. ; Sats. ; Either 8 a.m. -3 p.m. or 2-9 p.m. 3 or 4; Sats. 6 7. Industrial work at home. 11 5-8 p.m. 3 5-8 p.m. 3 8. In places of public en- tertainment under licence. — — — — — Jn reading this analysis, the explanations mentioned oi v- 71 should be borne in mind. 143 -General EmploymQnt.— Continued. JHILDREN. Maximtjm Weekly Hours. Minimum Intervals, iu Hours. (9) In School Term. ao) In Holi- days. (11) WHOLLY EXEMPTED CHILDREN. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Sunday Employment (all children). Limits. (16) Maxi- mum Hours. (17) Other Provisions (18) Prohibited. Sats. 1 8 a.m. -8 p.m. Till 9 p.m. on one day in week if shop closed at 2 p.m. on another day. Either (i.) Mon. and Thnrs. &-9 p.m. ; Sats. either 8 a.m.- 3 p.m. or 2-9 p.m. ; or (ii.) Weds, and Frl. 5-9 p.m. ; Sats. either 8 a.m. -3 p.m. or 2-9 p.m. 6 a.m.-9 p.m. Sats. 6 a.m. -4 p.m. 12 3 or 4; Sats. 6 lOi; Sats. 7i Sats. 1 4i; Sats. 2 J Prohibited. Notice to be kept con- stantly afllxed of day on which employment ex- tended to 9 p.m. Intervals for meals and days on which child em- ployed in shop to be speci- fied in notice affixed in the shop. Not to be employed in other occupation on same day. Not to be employed on ^ame or following day in other occupations. 144 England and Wales. Non-County Boroughs Date of SCHOOL School Da\ s. Other Days. Confirma- MINI- MTTM Name of tion OF Form of Employment. District. Bye-laws. Age. Maxi- Maxi Limits. mum Hours. Limits. mum Hours (1) (2) (3) (4) (5) (6) (7) (8) Torquay May, 1905. Prohibition : j Lathering or Bimilar oc- 14 — — — 1 Pop. 1911 : cupation in barber's shop. 1 38,771. Regulations : 1 1 . In connection with shop — 8 a.m. -8 p.m., and 4i 8 a.m.-8 p.m. 12 (except as otherwise pro- not within i hr. be- Till 9 p.m. on one vided). fore commencement of, nor during inter- val between, school hours. Till 9 p.m. on one day in week if shop closed at 2 p.m. on another day. day in week if shop closed at 2 p.m. on another day. 2. Carrying, selling or de- 11 7-8.30 a.m. 3 7-.S.30 a.m. 3 livering milk. 4.30-6 p.m. 4.30-6 p.m. 3. Selling or delivering 7-8.30 a.m. 4i 7-8.30 a.m. 4i newspapers. 5-8 p.m. 5-8 p.m. 4. Carrying parcels. — 5-8 p.m. 3 5-8 p.m. Sat«. : Either 8 a.m.- 1 p.m. or 2-8 p.m. 3; Sats. 6 5. Industrial work at home. — 5-8 p.m. 3 5-8 p.m. 3 6. In places of public en- tertainment under licence. 7. Agricultural work. April-Sept. : 6.30-8 a.m. 4.30-5.30 p.m. Oct. -March : 8-9 a.m. 2i 8 a.m.-6 p.m. n In reading this analysis, the explanations mentioned on p. 71 shmdd be borne in mind. 145 -General Employment.— Continued. CHILDREN. AUuiiuuin Intervals, in Hours. (9) Af-tXIMTTM Weekly Houks. In School Term. (10) In Holi- days. (11) WHOLLY EXEIIPTED CHILDREN. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Sunday Employment (all children). Limits. (16) Maxi- mum Hours. (17) Other Provisions. (18) n 8 a.m.-S p.m. Till 9 p.m. on one day in week it sliop closed at 2 p.m. another day. 7 a.m. -8 p.m. Sats. 7 a.m.-4 p.m. 8.V; Sats. 4J; Sats. 2i Prohibited. No other work on sami day. Not to be employed oi same or following day li other occupations. 146 England and Wales. Urban Date of SCHOOL- School Days OTHER Days. Name of District. Confirma- tion OF Bye-laws. Form of Employment. Mini- mum Age. Limits. Maxi- mum Hours. Limits. Jlaxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Abepdare Pop. 1911 : 50,830. Nov. , 1912. Regulations : 1. General. 2. I.atliering or similar oc- cupation in barber's shop. 10 11 7-8.15 a.m., 5-8 p.m. 4i Either 7 a.m.-2 p.m. or 2-9 p.m. Either 9 a.m.-3 p.m. or 3-9 p.m. 7 6 Acton Pop. 1911 : 57,497. Tune, 1908. Prohibition : Sale or delivery of intoxi- cating liquors, except on pre- mises where exclusively sold in closed vessels. 14 — - — — Regulations : 1. General. 11 6-8 a.m., 6-8 p.m. 3i* 6 a.m.-8 p.m. 7* 2. (i.) Delivery of milk ; (ii.) Delivery of news- papers ; (iii.) Domestic service. Barry July, 1910. General. 10 6-8.15 a.m., 5-8 p.m. 3i 6 a.m. -9 p.m. 7* Pop. 1911 : 33,763. Beckenham Pop. 1911 : 31,692. January, 1910. Prohibition : Sale or delivery of intoxi- cants, unless sold only in sealed vessels. 14 — — - — Regulations : 1. General. 11 0-8 a.m., 5-8.30 p.m. 3i* 6 a.m.-9 p.m. 8* 2. Lathering or similar oc- cupation in barber's shop. 12 — — — — 3. Industrial work at home. "" 5-8 p.m. 3 9 a.m. -12 noon, 5-8 p.m. 6 Chiswick Pop. 1911 : 38,697. March, 1908. Prohibition : Sale or delivery of intoxi- cants, unless sold only in sealed vessels. 14 — — - — Regulations : 1. (ieneral. 11 6-8 a.m., 5-8.30 p.m. 3J* 6 a.m.-8.30 p.m. 8* 2. Lathering or similar oc- cupation in barber's shop. 12 — " — 3. Industrial work at home. 5-8 p.m. 3 9 a.m.-12 p.m., 5-8 p.m. 6 Jn reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 147 Districts — General Employment* CHILDREN. WHOLLY EXEMPTED CHILDREN. StTND.VY Employment (111 children). Maximum Weekly Hotms. Limits. Maxi- mum Hours. Mnimum Intervals, in Hours. Maxi- mum Weekly Hours. Minimum Intervals, in Hours. In School Term. In Holi- days. Limits. Maxi- mum Hours. Other Provisions (9 (10) (11) (12) (13) 1 (14) (15) (16) (17) (18) Not over over 5 hrs. without in- terval of i hour for meals. — — — — Not over 5 hours without interval of J hour for meals. — Prohibited (except as be- low). — — 7-10 a.m. 3 - ' - 6 a.m -9 p.m. 8* Sats., 10* " — Till 12 noon. 3* — — 20 30 — ~ — — 7 a.m.-l p.m. 3* — — - — — — Prohibited. - — Not more than 5 hrs. without in- terval of J hour. 25 35 — — _ — 7 a.m.- 12 noon. 3* — — — — — — — Prohibited for school children. - — 148 England and Wales. Urban Districts Date of S{ )HOOL Days. School Days. Other Name of District. CONFIRMA TION OF BYE-LAWS FORif OF Employment. SIisi- jniM Age. Limits. Maxi- mum Hours. Limits. ifaxi- mum Hours. 1) (2) (3) (4) (5) (6) (7) (8) nfield ■■ Pop. 1911 : 56,338. November, 1907. Prohibition : In connection with sale or delivers' of intoxicants, ex- cept wliere exclusively sold in sealed vessels. 14 — - — — Regulations : 1. General. 11 6-8 a.m., 5-8.30 p.m H* 6 a.m. -9 p.m. 8* 2. Lathering or similar oc- cupation in barber's shop. 12 — — — - 3. Industrial work at home. 11 5-8 p.m. 3 9 a.m.-12 noon, 5-8 p.m. 6 Pith Pop. 1911 : 27,750. June, 1905. Prohibition : Lathering or similar oc- cupation in barber's shop. Regulations : 1. Sale or delivery of milk. 14 6-8 a.m., 4.30-6.30 p.m. 4 6-8 a.m., 4.30-6.30 p.m. 4 2. Sale or delivery of news- papers. 6-8 a.m., 5-8 p.m. 5 6-8 a.m., 5-8 p.m. 5 3. In connection with shops, except as otherwise provided. 7.30 a.m.-S p.m. ; not during intervals between school hrs. ; 7.30 a.m. -9 p.m. on one day if on another day shop closes at 2 p.m. 5* 7.30 a.m. -8 p.m. ; 7.30 a.m. -9 p.m. on one day if on another day shop closes at 2 p.m. llj 4. Industrial work at home. — — — — - 5. Agricultural work. 6-8 a.m., 5-7 p.m. 4 Sats. during school term 6-8 a.m., 5-7 p.m. 4 nchley Pop. 1911 : 39,419. May, 1906. Regulations : 1. Domestic work for wages. 2. Milk deliverj- or sale. 11 7-8 a.m., 5-8 p.m. 6-8 a.m., 4.30-6.30 p.m. 4 4 6 a.m.-8.30 p.m. 6 a.m.-8.30 p.m. 8* 8* 3. Bread delivery or sale. — 7--8 a.m., 4.30-7.30 p.m. 4 6 a.m.-8.30 p.m. 8» 4. Newspaper delivery or sale. — 6-8 a.m., 6.30-8.30 p.m. 4 6 a.m.-8.30 p.m. 8* 5. Carrying or delivering parcels or in running errands. — 6-8 a.m., 5-8 p.m. 4 6-8 a.m., 5-8 p.m., except on Sats. 5. Sats., 6* 6. Industrial work at home. — — — — — 7. In or in connection with : (i.) shop ; (ii.) laundrj- ; (iii.) stable ; (iv.) licensed premises or sale of intoxicating liquors. 11 In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 149 — General Employment. — Continued. CHILDREN. WHOLLY EXEMPTED CHILDREN. Sunday Employment (all children). Maximum Weekly Hours. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Minimum Intervals, in Hours. (9) In School Terra. (10) In Holi- days. (11) Limits. (16) IVIaxi- mura Hours. (17) Other Provisions (18) 20* 30* — — — 7 a.m.-l p.m. Prohibited for school children. 3* - — — 7.30-8 p.m. ; 7-30- 9 p.m. on one day if on another day shop closes at 2 p.m. Ill - — Prohibited. — Notice to be const affixed of day on i employment is extend 9 p.m. — — — Prohibited. - ISO England and Wales. Urban Districts Date of SCHOOL School Days. Othee DAYS. COSFIRiU.- TIOX OF Bye-laws Form of Ejiploymext. MIT5I Age. Name of DISTEICT. Limits. Maxi- mum Hours. Limits. 1 Maxi- mum Hours (1) (2) (3) (4) (5) (6) (7) (8) 1 >Bpopt and vepstoke Pop. 1911 : 33,300. December 1912. Prohibition:; : 1. Sale or deliverj' of in- toxicants except where sold only in sealed vessels. 2. In any capacity in hair- dresser's shop. 14 14 - - - - Regulations : 1. General (except as be- low). 11 — Bi* — — 2. Sale or delivery of milk. - 6.30-8 a.m., 4.30-6 p.m. 3 — - 3. Sale or delivery of news- papers. — 7.45-8.45 a.m., 5-8 p.m. 4 — — 4. Carrj'ing parcels. " 5-8 p.m. 3 Sats. 8 a.m. -9 p.m. 8* ndon .. Pop. 1911 : 38,800. July, 1910. Prohibition : Sale or delivery of intoxi- cants, unless sold only in sealed vessels. 14 — — — — Regulations : 1. General. - 6-8 a.m., 5-8.30 p.m. 31* 6 a.m.-9 p.m. 8* 2. Lathering or similar oc- cupation in barber's shop. 12 — — — — 3. Industrial work at home. 5-8 p.m. 3 9 a.m.-12 p.m., 5-8 p.m. 6 >rd Pop. 1911 : 78,188. June, 1911. Prohibition : Sale or deliverj- of intoxi- cants, ui\les.s sold only in sealed vessels. 14 — — — — Regulations : 1. General (except casual or temporary employment of child by parent or guardian). 12 6-8 a.m., 5-8 p.m. 3i* 6 a.m. -8 p.m. 8* 2. Industrial work at home. 5-8 p.m. 3 9 a.m.-12 p.m., 5-S p.m. 6 y to n . . Pop. 1911 : 124,735. Febraary, 1913. Prohibition : Sale or delivery of intoxi- cants, unless sold only in sealed vessels. 14 — — — - Regulations : 1. General. 11 6-8 a.m., 5-8.30 p.m. 3J» 6 a.m. -9 p.m. 8* 2. Lathering or similar oc- cupation in barber's shop. 12 — — — — 3. Industrial work at home. 5-8 p.m. 3 9 a.m.-12 noon, 5-8 p.m. 6 In reading this analysis, the explanations mentioned on p. 71 shoidd he home in mind. 151 — General Employment. — Continued. CHILDREX. WHOLLY EXEMPTED CHILDREN. SiraD.w Employment (all children). 1 Maximpsi Weekly HoiTRS. Limits. (12) Maxi- mum Hours (13) Minimum Intervals, in Hours. (U) Maxi- mum Weekly Hours. (15) Minimum In Intervals, School in Hours. Term. (9) (10) In Holi- days. (11) Limits. 16) Maxi- mum Hours. (17) Other Proyisions. (18) — — — — - — — — — — 20 30 — — — 7 a.m.-l p.m. Prohibited. 3* : — 20 30 - — 7-10 a.m. Prohibited for s h 1 •'hildren. 3 — — 20 30 ; - ; 7 a.m.-l p.m. Prohibited for school children. 3* — IS2 England and Wales. Urban Districts Date of SCHOOL School Days. Other Days. Confirma- tion OF Bye-laws. Form of Employment. Mini- mum Age. Name of DISTKICT. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) *enge Pop. 1911 : 22,330. May, 1910. Prohibition : Sale or delivery of intoxi- cants, unless sold in sealed vessels. 14 — — — - Regulations : 1. General. 11 6-8 a.m., 5-8.30 p.m. 3i* 6 a.m.-9 p.m. 8* 2. Lathering or similar oc- cupation in barber's shop. 12 — — — — 3. Industrial work at home. 5-8 p.m. 3 9 a.m. -12 noon, 5-8 p.m. 6 'ontypridd Pop. 1911 : 43,211. July, 1907. Regulations : 1. Selling or delivering : i. Milk; ii. Newspapers. — 7-8 a.m., 5-8 p.m. 4 Sats. in School Term : Either 7 a.m. -2 p.m., or 2-9 p.m. Sats. in School Term, 7 2. Lathering or similar oc- cupations in barber's shop. 11 5-8 p.m. 3 Sats. in School Term : Either 9 a.m. -3 p.m., or 3-9 p.m. Sats. in School Term : 6 3. Carrying or delivering parcels. 5-8 p.m. 3 Sats. in School Term : Either 7 a.m. -2 p.m. or 2-9 p.m. Sats. in School Term : 7 Ihondda Pop. 1911 : 152,781. June, 1907. Regulations : 1. Lathering or similar oc- cupation in barber's shop. 11 Mon., 4-8 p.m. ; Tues., 5-8 p.m. ; Wed. and Fri., 6-9 p.m. ; Thurs. pro- hibited. 2 or 3 Sats. : Either 9 a.m.-4 p.m. or 2-9 p.m. ; other days, same as col. 5. 2 or 3*; Sats. 7 2. Sale or delivery of milk. 7-8.30 a.m., 4.30-8 p.m. 5 Sats. in School Term, same as col. 5. Other days no regu- lations. 3. Sale or delivery of news- papers. 11 7-8.30 a.m., 5-8 p.m. a Ditto. — 4. Carrying parcels for grocers, butchers, printers, irapers. 5. Carrying parcels for other iinds of employers. 11 7-8.30 a.m., 5-8 p.m. 7-8.30 a.m., 5-8 p.m. 4.i 4i Sats. in School Term : Either 8 a.m. -4 p.m. or 2-9 p.m. 3ther days no regu- tions. Ditto. 6. Domestic work for wages. — — — — — ! 7. All other employment. 1 ~ 1 " Jn reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 153 -General Employment. — Continued. MILDREN. WHOLLY EXEMPTED CHILDREN. Sunday Employment (all children). M.-VXIMUM Weekly Hours. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Minimum IntorvHls, in Hours. (9) In Scliool Term. (10) In Holi- days. (11) Limits. (16) Maxi- mum Hours . (17) Other Provisions. (18) ~ 20 30 — - - 7 a.m.-l p.m. Prohibited for school children. 3* — - — — — — — - — — Sats. : Either 9 a.m.-4 p.m. or 2-9 p.m. Other days same as col. 5. - Prohibited. During School lerm 7-8.30 a.m., 4.30-8 p.m. Other S u u- days no regu- lations. Prohibited. Prohibited. Prohibited. Allowed. Prohibited. - - 134 England and Wales. Urban District!! Date of SCHOOL School Days Other Day?. Name of District. CONFIRM.4- TION OF BYE-LAWS. Form of Employment. MDfl- snni Age. Limits. Maxi- mum Hours. Limits. Maxi- mum Hours. (1) (2> 'Ri (4) (5) (6) (7) (^) Tottenham Pop. 1911 : 137,418. January, 1909. Prohibition : Sale or delivery of intoxi- cants, unless sold only in sealed vessels. 14 — — — — Regulations : 1. General. — 6-8.30 a.m., 5-9 p.m. 3i* 6 a.m.-9 p.m. 8* 2. Latliering or similar oc- cupation in barber's sliop. 12 Twickenham . Pop. 1911 : 29,367. Februarj', 1911. Prohibition : Sale or delivery of intoxi- cants, unless sold only in sealed vessels. 14 - — Regulations : 1. General. 11 6-8 a.m., 5-8.30 p.m. 31* 6 a.m.-8.30 p.m. 8» 2. Latliering or similar oc- cupation in barber's shop. 12 - - - 3. Industrial work at home. 5-8 p.m. 3 9 a.m.-12 noon, 6-8 p.m. 6 Walthamstow Pop. 1911 : 124,580. June, 1912. Prohibitions : 1. Sale or delivery of intoxi- cants, unless sold only in sealed vessels. 14 — — — — 2. Lathering or similar oc- cupation in barber's shop. 14 — — — — Regulations : 1. General. - 6.30-S a.m., 5-8.30 p.m. 3i* 6.30 a.m.-9 p.m. 8* 2. Industrial work. 5-8 p.m. 3 9 a.m.-12 noon, 5-8 p.m. 6 Wood Green . ■ Pop. 1911 : 40,369. June, 1908. Prohibition : In connection with sale or delivery of intoxicating liqu- ors, except on premises where exclusively sold in closed ves- sels. 14 - — — - Regulations : 1. General. 11 6-8 a.m., 5-3.30 p.m. H' 6 a.m.-8.30 p.m. 6* 2. Industrial work at home. 11 5-8 p.m. 3 9 a.m. -12 noon, 3-8 p.m. 6 In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 155 J^General Employment. — Continued. pSILDRliX. WHOLLY EXEMPTED CHILDREN. Sunday Ejipr.OYMENT (all children). JUxnfUM Weekly liouRS Limits. Maxi- mum Hours. Minimum Intervals, in Hours. Maxi- mum Weekly Hours. 'Minimum llntervals, 4n Hours. In School Term. In Holi- days. Limits. ;\Iaxl- mum Hours. Other Provisions. (9) (10) (11) (12) (13) (14) (15) (16) (17) (18) Not over hrs. with- at interval E i hr. for leals. 25 35 — — — — 7 a.m.-12 noon. 3* - — — — — — — Prohibited for school children. 1 20 30 — — - 7a.m. -1p.m. 3* - *■"■ — — — — — Prohibited for school children. — — Not over hrs. with- it interval ' i lir. for .eals. 20 30 — — — — 7 a.m.-l p.m. 3* - Prohibited. 156 o coiia na» Dur| gno cnooi Doa ,ra D.VTE OF sc iUC School Days Other D.vt; CONFIRM.\- TION OF Bye-iaws. FOKM OF Employment. Mini- mum AGE. Name op District. Limits. Maxi- mum Hours. Limits niiu (1) (2) (3) (4) (-1) (6) (7) (8^ Aberdeen Pop. 1911 : le^.sgi. November, 1907. General. 12 — - — — 1. Boys 12-13. ii. Girls 12-13. 1st Apr.-lst Oct. : 6.30-9 a.m., 4-9 p.m. 1st Oct.-lst Apr. : 6.30-9 a.m., 4-7 p.m. 1st Apr.-lst Oct. : 4.30-8 p.m. 1st Oct.-lst Apr. : 4.30-7 p.m. 3i*a 2* 1st Apr.-lst Oct. : 6.30 a.m.-9 p.m. Ist Oct.-lst Apr. : 6.30 a.m.-7 p.m. 8* 8* Ayr Pop. i9n- 32,9&6. August, 1904. General. 10 1st Apr.-30th Sept.: 6-8.30 a.m., 4-9 p.m. 1st Oct.-31st Mar. : 4-7 p.m. - — — Children 10-11. Si'a 7* ChUdren 12-13. " 4*6 " 9* Brechin.. Pop. 1911 : 8,439. Sept., 1910. General. — - — — \ Boys. Girls. 12 12i Ist Apr.-lst Oct. : 6-9 a.m., 4-9 p.m. Ist Oct.-lst Apr. : 6-9 a.m., 4-7 p.m. 3* - 0* Dumfries Pop. 1911 : 13,698 Januaiy, 1907. General. 10 1st Apr.-lst Oct. : 6.30-9 a.m., 4-9 p.m. 1st Oct.-lst Apr. : 6.30-9 a.m., 4-7 p.m. 4*6 6* Jn reading this analysis, the explanations mentioned in p. 71 should be borne in mind. 157 —General Employment. IILDREX. WHOLLY EXEMPTED CHILDREN. 1 M.'lXIMtJM Weekly Hornis Limits. 12) Maxi- mum Hours (13) Minimum Intervals, in Hours. (U) Maxi- mum Weekly Hours. (15) (all children). [inimum itervals, 1 Hours. (9) 1 In 1 In School Holi- Term. days. (10) (11) Limits. j (16) Maxi- mum HOUTB. (17) Other Provisions. (18) — - — 8* 8* — — — — No employment allowed which prevents regular and punctual attendance at school. Employment prohibited during absence from school owing to illness or iofectioua disease. - — — 9* — — — No employment allowed which interferes with re- gular and punctual attend- ance at school or continua- tion classes. Employment prohibited when prevented from school attendance by illness or infectious disease. - — 8* — — — - No employment while prevented from attendance at school by illness or in- fectious disea-se. Children 12-13 exempted from attendance at a day school on condition of their attendmg evening continua- tion classes, shall not be employed at any time or in any manner which inter- feres with regular and punctual attendance at such classes. fot over rs. with- inter- of i hr. — — — i — — No employment allowed which interferes with regu- lar and punctual attend- ance at school. No employment allowed whUe prevented from at- «ndance at school by dlness or infectious disease. a 1} before noon, 2 after nooa. before noon, 2 after noou. 158 Scotland. Burgh School Boarc Date of SCflOC School Days. Other Day; Name of Confirma- tion OF Bye-laws. Form of Employment. Mini- mum Age. District. Maxi- Limits. 1 mum Hours. Ma? Limits. mui Houi (1) (2) (3) (4) (5) (6) (7) : (8) Dundee.. Aug., 1910. 1. General. 10 Pod. 1911 : 165,004. Boys 10-12. 1st Apr.-lst Oct. : 6-8.30 a.m. ; 4-9 p.m. Ist Oct.-lst Apr. : 6-8.30 a.m. ; 4-7 p.m. 4* or 3* Ist Apr.-lst Oct. : 6 a.m.-9 p.m. 1st Oct.-lst Apr. : 6 a.m. -9 p.m. 6* School children, 12-14. 1st Apr.-lst Oct. : 6-8.30 a.m. ; 4-9 p.m. 1st Oct.-lst Apr. : 6-8.30 a.m. ; 4-7 p.m. 4* or 3* 1st Apr.-lst Oct. : 6 a.m. -9 p.m. 1st Oct.-lst Apr. : 6 a.m.-9 p.m. S» Children 12-14 exempt from school attend- — — — - ance. 2. Delivering milk. 10 - - - Edinburgh Pop. 1911 : 320,318. August, 1905. General. 10 1st Apr.-lst Oct. : 6-8.30 a.m., 4-9 p.m. Ist Oct.-lst Apr. : 4-7 p.m. — — — Children 10-11. 3* 6* Children 12-13. — 4* — 8* Glasgow.. Pop. 1911 : 784,496. July, 1904. General. 10 - — - Boys 10-12. 1st Apr.-lst Oct. : 6-9 a.m., 4-9 p.m. Ist Oct.-lst Apr. : 6-9 a.m., 4-7 p.m. 3i*6 — i 6* Boys 12-14. Ist Apr.-lst Oct. : 6-9 a.m., 4-9 p.m. ist Oct.-lst Apr. : 6-9 a.m., 4-7 p.m. 4'c — 8* Girls 10-14. 1st Apr.-lst Oct. : 4-9 p.m. 1st Oct.-lst Apr. : 4-7 p.m. 2* 6* In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 159 -General Employment. — Continued. CHILDREX. WHOLLY EXEMPTED CHILDREN. M.VXIMUM Weekly Hotirs. Limits. (12) Maxi- mum Hours. (13) Minimum Interval?, in Hours. (14) Maxi- mum Weekly Hours. (15) (all children). Minimum Intervals, in Hours. (0) In School Term. (10) Tu Holi- days. (11) Limits. (16) Maxi- mum Hours. (17) Other Provisions. (IS) Not over 3 hrs. with- Dut inter%-al of 1 hr. Not over 1 hrs. with- out inter^-al of 1 hr. 6 a.m.-9 p.m. On days on which continuation classes are held, 6 a.m.- 5 p.m. 8* Not over 4 hrs. without interval of 1 lir. — Prohibited. Prohibited. Prohibited. Not after 9 a.m. 2* No child to be employed without consent of parent or guardian. Employment prohibited wlien child is prevented from attending school by illness or infectious disease. 8* No employment allowed during absence from schoo! owing to illness or infectious disease at home. No employment of ex- empted children aged 12- 14 which interferes with regular and punctual at- tendance at evening con- tinuation classes. Not over 3 hrs. with- out Inter- nal of i hr. or meals. Not over I hrs. with- )ut inter- iral of 1 hr. or meals. Not over 5 hrs. with- jut inter- nal of i hr. or meals. - 9* — - No employment allowed which prevents regular and punctual attendance at school. Employment prohibited during absence from school owing to illness or infectious disease at home. a " Any contravention of this bye-law shall involve, in addition to prosecution under the Act, the instant withdrawal of the Certiflcate of Exemption." Opening or closing of classes to be advertised in local papers. b IJ before noon, 2 after noon. c 2 before noon, 2 after noon. i6o ^ Scotland. Burgh School Board: Date of 1 SCHOOI School Days. Other Days. Confirma- tion OF Mini- mum DlSTIUCT. Form of Employment. Bye-laws. Age. Maxi- Maxi- Limits. mum Hours. Limits. mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Greenock — General. 10 6.30-8.45 a.m. 4-7 p.m. 51 Children 10-11 : not after 7 p.m. — Pop. 1911 : Children 12-13 : 70,282. 1st Apr.-lst Oct., not after 9 p.m. ; 1st Oct.-lst Apr., not after 7 p.m. Kilmarnock August, 1905. General. 10 — — — — Pop. 1911 : Children 10-11. &-8.30 a.m.. 4* 34,728. 4-9 p ma Children 12-14. 1st Oct.-lst Apr. : 6-8.30 a.m., 4-7 p.m. 1st Apr. -1st Oct. : 6-8.30 a.m., 4-9 p.m. 5* Kirkcaldy and Sept. Geueral. 10 1st Apr. -1st Oct. : 5 Under Dysart 1911. 7-8.30 a.m., 5-8.30 p.m. 12, 7*, Over Pop. 1911 : Ist Oct.-lst Apr. : 3i 12, 9* 43,717. 7-8.30 a.m., 5-7 p.m. Kirkintilloch June, 1909. General. 10 1st Apr.-lst Oct. : 6.30-9 a.m.. 7i — — Pop. 1911 : 4-9 p.m. 11,932. 1st Oct.-lst Apr. : 6.30-9 a.m. 4-7 p.m. 5i Leith Dec, General. 10 1st Apr.-lst Oct. : 3i*& Ist Apr.-lst Oct. : Under 1909. 6-8.30 a.m., 6 a.m.-9 p.m. 12, 6*, Pop. 1911 : 4.30-9 p.m. 1st Oct.-lst Apr. : Over 80,488. 1st Oct.-lst Apr. : 6.30-8.30 a.m., 4.30-7 p.m. 6.30 a.m.-7 p.m. 12, 8* In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. I6i — General Employment. — Continued. f'HILDRF.y, WHOLLV EXEMPTED CHILDREJf. Minimum Intervals, in Hours. (0) Maximum Wekkly Hours. In School Term. (10) In Holi- days. (11) Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Sttnday Employment (all children). Limits. (16) Maxi- mum Hours. (17) Other Provisions. (18) 7-9.45 a.m. 4r-5 p.m. The Board consider It desirable that parents and guardians make applica- tion to tlie Burgh School Board for a working cer- tificate for child to bo em- ployed. No employment allowed which prevents regular and punctual attendance at school. Employment prohibited during absence from school owing to illness or infectious disease No child exempted bj the School Board from at- tendance at a day schoo' (on condition that he or shi; attends continuation classes till 16 years old) shall b« employed so as to prevent regular and punctual at- tendance at continuatioi] Classes. No emploj'ment allowed which prevents regular and punctual attendance at school. Employment prohibited during absence from school owing to illness or infectious disease at home. Not over J hrs. with )ut inter- v&\ of 1 hr lor meals. Boys, 9* Girls, Employment prohibited during absence from school owing to illness or infectious disease at home. No employment allowed which prevents regular and punctual attendance at school. Exempted children, 12- 14, not allowed to work at any time or in any mannei which interferes with regu- lar and punctual attend- ance at evening continua- tion classes stipulated by the Board in granting ex- emption. Hours of em- ployment to be approved by Board when granting exemption. a Sic. [Tlie Board have perhaps inadvertently regulated the employment of children aged over 10 more strictly than that of children aged under 10.] 6 IJ before noon, 2 after noon. 162 Scotland. Burgh School Boards 1 Form or Emplotment. (3) MINI- MTIM AGE. (4) SCHOO;. Date or School Days. Other Days. Name op District. (1) TION OF Bye-laws. (2) Limits. (5) Maxi- mum Hours. (6) Limits. (7) Maxi- mum Hours. (8) Paisley . . Pop. 1911 : 84,455. August, 1906. General. 10 1st Apr. -1st Oct. : 6.30-9 a.m., 4-9 p.m. Ist Oct.-lst Apr. : 6.30-9 a.m., 4-7 p.m. 4i*a 1st Apr.-lst Oct. : 6.30-9 a.m., 4-9 p.m. Ist Oct.-lst Apr. : 6.30-9 a.m., 4^7 p.m. 4i» Sats. 6* Perth Pod. 1911 : 33,807. July, 1904. General. Children 10-12. Children 12-14. 10 7-8.40 a.m., 4-7 p.m. 1st Oct.-lst Apr. : 6-8.40 a.m., 4-7 p.m. 1st Apr.-lst Oct. : 6-8.40 a.m., 4-8 p.m. 4* 5* 7-8.40 a.m., 4-7 p.m. Ist Oct.-lst Apr. : 6-8.40 a.m., 4-7 p.m. 1st Apr.-lst Oct. : 6-8.40 a.m., 4-8 p.m. 4* Renfrew.. Pop. 1911 : 7,464. Sept., 1912. General. 10 Ist Apr.-lst Oct. : 6.30-8 a.m., 4-8 p.m. 1st Oct.-lst Apr. : 6.30-8 a.m., 4-7 p.m. Z*b Except Sats. 1st S*ib Apr.-lst Oct., 6.30- Sats. 8 a.m., 4-8 p.m. ; Ist 6* Oct.-lst Apr., 6.30- 8 a.m., 4-7 p.m. Sats., not after 7 p.m. from 1st Oct.- lst Apr. ; not after 9 p.m. from 1st Apr.- lst Oct. Stirling.. Pop. 1911 : 21,461. July, 1904. General. 10 1st Apr.-lst Oct. : 6-9 a.m., 4-9 p.m. 1st Oct.-lst Apr. : 6-9 a.m., 4-7 p.m. Under 12 3i*6 Over 12, 4»c Under 12, 3i*b Sats. 6* Over 12, i*c Sats. 8* iH reading this analysis, the explanations mentioned on p- 71 should be borne in mind. ^6$ -General Employment. — Continued. CHILDREN. WHOLLY EXEMPTED CHILDREN. Sunday Employment (all children). llAxnini Weekly Hours Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hours. (14) Maxi- mum Weekly Hours. (15) Minimum Intervals, in Hours. (9) In School Terra. (10) In Holi- days. (11) Limits. (16) Maxi- mum Hours. (17) Other Provisions. (18) 1st Apr.-lst Oct. : Not after 9 p.m. Ist Oct.-lst Apr. : Not after 7 p.m. 10» Sats. 6* No employment allowec which prevents regular anc pvmctual attendance a school. Employment prohibitec during absence from schoo owing to illness or infection disease at home. - — — 9* — — — — — Ist Oct.-lst Apr. : Not after 7 p.m. 1st Apr.-lst Oct. : Not after 9 p.m. 8* Sats., 6* Employment prohibite during absence from schoc owing to illness or infectiou disease at home. No employment allowe which prevents regular an punctual attendance a school. 9* J No employment allowec which prevents regular an( punctual attendance a school. Employment prohibitec during absence from schoo owing to illness or infectiou disease at home. a 2i before noon, 2 after noon. 6 li before noon; 2 after noon. c 2 before noon; 2 after noon. 1 64 1 Scotland* Parish School Date of SCHOOL School Days Other Days. Confirma- tion OF Bye-laws. Form of Employment. Mini- mum Age. Name of District. Limits. Maxi- mum Hours. Limits. Maxi- mimi Hours. (1) (2) (3) (4) (5) (6) (7) (8) Ardrossan Pop. 1911 : 11,720. Sept., 1904. General. 10 1st Apr.-lst Oct. : 6-9 a.m., 4-9 p.m. 1st Oct.— 1st Apr. : 6-9 a.m., 4-7 p.m. 3i*a 1st Apr.-lst Oct. : 6 a.m. -9 p.m. 1st Oct.~lst Apr : 6 a.m. -7 p.m. 7* Blantype Pop. 1911 : 16,821. July, 1904. General. 10 1st Apr.-lst Oct. : 6-9 a.m., 4-9 p.m. Ist Oct. -1st Apr. : 6-9 a.m., 4-7 p.m. Under 12 Over 12, 4*6 — Under 12, 3i*a; Sat.6*: Over 12, 4*6 Sats. 8* Cathcart April. 1905. General. 10 — Pop. 1911: 15,205. Boys 10-12. 1st Apr.-lst Oct. : 6-9 a.m., 4-8 p.m. 1st Oct.-lst Apr. : 6-9 a.m., 4-7 p.m. ii*a — 6* Boya 12-14. Ist Apr.-lst Oct. : 6-9 a.m., 4-9 p.m. 1st Oct. - 1st Apr. : 6-9 a.m., 4-7 p.m. 4*fe 8* Girls 10-14. Ist Apr.-lst Oct. : 4-8 p.m. 1st Oct.-lst Apr. : 4-7 p.m. 2* 6* CpiefT February, 1905. General. 10 1st Apr.-lst Oct. : 6.30-8 a.m., 5-8 p.m. — 6.30 a m.-8.30 p.m. — Pop. 1911 : 1st Oct.-lst Apr. : 6,089. 6.30-8 a.m., .5-7 p.m. Ferry-Popt- February. General. 10 on-Craig 1903. Children 10-12. 7-8.40 a.m. 4* — — Pop. 1911 : 4.30-7 p.m. 3,400. Children 12-14. 1st Apr.-lst Oct. : 6-8.40 a.m. 4.30-8 p.m. 1st Oct.-lst Apr. : 6-S.40 a.m. 4.30-7 p.m. 5* Gourock.. General. 10 — — — Pop. 1911 : 8,700. Children 10-12. 6.30-8.15 a.m. 4.30-7 p.m. 4| ~ 8* Children 12-14. 1st Oct.-lst Apr. : 6-8.45 a.m. 4.30-7 p.m. 1st Apr.-lst Oct. : 6-8.45 a.m. 4.30-7 p.m. H 8* In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 165 Boards — General Employment* CHILDREN. WHOLLY EXEMPTED CHILDREN. \ SrND.iY Employment (all children). j Maxlmum JWeekly Hours. Limits. (12) Maxi- mum Hours. (13) Minimum Inter^'als, in Hours. (14) Maxi- mum Weekly Hours. (15) Minimum In Intervals, School in Hours. Term. (9) ao) In Holi- days. (11) Limits. (10) Maxi- mum Hours- (17) Other PROvisiosSi (18) — — — 1st Apr. -1st Oct. : 6 a.m.-9 p.m. 1st Oct.-lst Apr. : 6 a.m. -7 p.m. 9* — — — — No employment allow which prevents regular a punctual attendance school. Employment pi hibited during absence frc school owing to Illness infectious disease at hon — — — — 9* ~ — — No employment allow which prevents regular a punctual attendance scLool. Employment p hibited during absence fn school owing to illness infectious disease at hon Not over 3 hours without lu- ters-al of i hour. Not over 3 hours without in- terval of } hour. J*ot over 3 hours without in- terval of i hour for meak. - 9* — — — — No employment allov^ which prevents regular a punctual attendance school. Employment p hibited during absence fr school owing to illness infectious disease at hoi — 6.30a.m.-8.30p.m. - — - - — — - - — 9* — — — — — _ — - - — — 7-9.45 a.m. 4-5 p.m. - It is desirable tlat working certificate be plied for for the child. a II before nooa, 2 after noon. b 2 before noon, 2 after noon. 166 Scotland. Parish School Boards — Date of SCHOOL School Days. Other Days. Confirma- tion OF MlNI- Mim Name of Form of Employment. District. Bye-laws. Age. Maxi- Maxi- Limits. mum Hours. Limits. mum Hours. CD (2) (R) (4) (5) (6) (7) (8) Govan . . Sept., 1904. General. 10 Ist Apr.-lst Oct. : 6-9 a.m., 4-9 p.m. 4*6 — 8* Pop. 1911 ; Ist Oct. -Ist Apr. : 158,848. . 6-9 a.m., 4-7 p.m. Kilmacolin March, General. 10 Ist Apr.-lst Oct. : 3h*a 8* 1911. 7 a.m. -9 p.m. Pop. 1911 : 1st Oct.-lst Apr. : 6,242. 7 a.m. -7 p.m. Old KilpatPick October, 1912. General. 11 — — — 8*, includ- Pop. 1911 : ing 44,911. meal- times. Boys aged 11. 1st Apr.-lst Oct. : 3i*a . 6* 7-9 a.m., 4-8 p.m. 1 1st Oct.-lst Apr. : 7-9 a.m., 4-7 p.m. Boys aged 12-13. 1st Apr.-lst Oct. : 4*6 8* 6-9 a.m., 4-9 p.m. 1st Oct.-lst Apr. : 6-9 a.m., 4-7 p.m. Girls. 1st Apr.-lst Oct. : 4-9 p.m. 1st Oct.-lst Apr. : 1-7 p.m. 2* 6* Old Monkland.. General. 10 1st Apr.-30th Sept. : 6.30-9 a.m., 4-9 p.m. i\*c 1st Apr.-30th Sept. : till 9 p.m. 6* Pop. 1911 : 1st Oct.-Slst Mar. : 1st Oct.-3lBt Mar. : 61,026. 6.30-9 a.m., 4-7 p.m. till 7 p.m. Peebles . . January, General. 10 Ist Apr.-lst Oct. : Under Under 1905. 6-9 a.m., 4-9 p.m. 12, 3i*a; 12, 6*; Pop. 1911 : 1st Oct.-lst Apr. : Over 12, Over 6,112. 6-9 a.m., 4-7 p.m. 4*6 12, 8* In reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 167 General Employment. — Continued. CHILDREN. WHOLLY EXEMPTED CHILDREN. Sunday Employment (all children). Maximum Weekly hours. Limits. (12) Maxi- mum Hours. (13) Minimum Intervals, in Hoiirs. (14) Maxi- mum Weekly Hours. (15) Minimum Intervals, in Hours. (9) In School Term. (10) In Holi- days. (11) Lmlts. (16) Maxi- mum Hours. (17) Other Provisioss. (18) 1 9* Consent of parent guardian required befo child is employed. Parents or guardians children desiring emplo ment shall make applic tion to the School Boa for a working certificate. No employment allow which prevents regular a punctual attendance school. Employment prohibit during absence from schc owing to illness or Inf tious disease. Not over 4 lirs. with- out interval of .> hr. for meals. — — — — — — — — Not over 3 hr. with- out interval of i hr. Not over 4 hrs. with- out interval of 1 hr. Not over 3 hrs. with- out interval of i hr. — Girls not before 9 a.m. — — — — — No employment whl prevents regular and pur tual attendance at scho Employment prohibit during absence from echo owing to illness or inf ectio disease. — — 9* — — — No employment allow which prevents regular ai punctual attendance school. Employment prohibit* during absence from scho owing to illness or inf ectio disease at home. 1 1 — — — 9* — — — No employment allowe which prevents regular ai punctual attendance school. Employment prohibitt during absence from scho owing to illness or inf ectioi disease. a 1> before noon, 2 after noon. 6 2 before noon, 2 after noon. c 2i before noon, 2 after noon. 1 68 Scotland. Parish School Boards— Date of SCHOOL School Days. Other Days. Confirma- tion OF Mini- mum Name of roEM OF Employment. District. Bye-laws. Age. Maxi- Maxi- Limits. mum Hours. Limits. mum Hours. (1) (2) (3) (4) (5) (6) (7) (8) Rutherglen January, 1912. General. 10 1st Apr.-lst Oct. : 6-9 a.m., 4-9 p.m. 4*a — Sats., 8» Pop. 1911 : Ist Oct.-lst Apr. : includ- 28,343. 6-9 a.m., 4^7 p.m. ing meal- times. Ill reading this analysis, the explanations mentioned on p. 71 should be borne in mind. 1 69 General Employment. — Continued. DHILDEEN. WHOLLY EXEMPTED CHILDREN. Sunday Employment (aU children). Maximum Weekly Houks. Maxi- Minimum Maxi- Other Provisions. Minimum In In mum Intervals, mum Maxi- Intervals, School Holi- Limits. Hours. in Hoiurs. Weekly Llmits. mum in Hours. Term. days. Hours. Hours. (9) (10) (11) (12) (13) (14) (15) (16) (17) (18) — - 10* — - — — No child to be employee without consent of paren or guardian. No employment allowei which prevents regular anc punctual attendance a school. Employment prohlbltei during absence from schoo owing to illness or iufectiou disease. 2 before noon, 2 after noon. Tabular Analyses of Street Trading Bye -laws* INTRODUCTOPY NOTE. The following provisions, which appear in the majority of the Street Trading Bye-laws, are not indicated in the analysis : Children and young persons must obtain a Hcence or badge to trade in streets ; physical or mental deficiency, or non-consent of parents or guardians, is a ground for refusal of hcence. Badges (often different kinds for school-children and those exempt from attendance at school) are issued to licensed traders on payment of a deposit (3d. to is.), and must be worn conspicuously while holders are employed in trading. Licences are renewable annually, and may be revoked for offences against bye-laws, including failui'e to notify change of address within a week or fortnight. Licensed traders are, as a rule, forbidden to enter premises licensed for the sale of intoxicating liquor for consumption on the spot, or for public entertainments. If no mention is made of regulations bearing on these points it is to be assumed that they are identical with the provisions specified above. If the bye-laws diverge in any way from these provisions, special mention is made of the fact in the analysis. The Employment of Children Act, 1903 [Sections 3 (i) and (2)] fixes 6 a.m. to 9 p.m. as the statutory limits for all employment, including street trading, and also estabUshes eleven as a minimum age for street trading. The Prevention of Cruelty to Children Act, 1904 [Section 2 (6)] fixes 6 a.m. to 9 p.m. as the limits within which girls aged under sixteen and boys aged under fourteen, may engage in street trading. These statutory limitations are in force everywhere, except in places where the bye-laws have varied the hours. They are included in the analysis, when the bye-laws omit to make provision for the regulation of hours. 1/2 London* Date of Confirmation. (2) MINIMUM AGE. | j Name of District. (1) Boys. (3) GIRLS. ! Cm With Parent or Without Parent On Days when Atteudin Guardian. or Guardian. SchooL (4) (5) 1 (6) 1 London, City of London, Copnty of (exclusive of City) Dec, 1906. Amended March, 1912. Oct., 1906. Amended June, 1911. 14 14 16 16 16 16 England and Wales* Name of District. (1) Date of Confirmation. (2) MINIMUM AGE. Girls. Cmi Boys. (3) 'With Parent or I Guardian. (4) Without Parent On Days when Atteudin} or Guardian. ( SchooL (5) (6) Cheshire . . East Suffolk Glottcestekshire Hampshire (Urban Districts of Eastleigh, BiSHOPSTOKE, and Itchen.) Hertfordshire Middlesex Wiltshire Yorkshire (West Biding) Aug., 1911. (No special S treet Trading B i Dec, 1904. 11 Dec, 1912. 11 ye-laws. See ^General Employ 11 16 {No special Street Trading B ye-laivs. See [General Employ Dec, 1907. 12* 12* (JVo special Street Trading Bye-laivs. See Sept., 1912. 11 11 General Employ Boys : 6 a.m.-7 p.m. Girls : 6 a.m.-S p.m. ment Tables, p. 77.) 6 a.m. -8 p.m. Not during hours of re' ligious instruction for thoa under 12. 6.30 a.m.-9 p.m. Not in school hours unlesi exempt from attendance. ment Tables, p. 78.) 1 7-8.30 a.m. ; 5-8 p.m. If employed at stall o: barrow under direction o adult, 7-8.30 a.m., 5- 9 p.m. ment Tables, p. 78.) 7-8 a.m. ; 5-8 p.m. Half-timers' hours all fal between 7 a.m. and 8 p.m 12 is only mentioned as the miuinmm age in the margin, and not in tlie text of the Bye-lav.s. 173 Street Trading* HOUKS. Other Days. (7) YoTJXG Persons. (8) Sunday Employment. (9) Remarks. (10) — 6 a.m.-O p.m. 6 a.m. -9 p.m. Boys under 16 not to trade in streets unless exempt from school attendance. No provision for annual renewal of licence or for deposit on badge. Boys under 16 not to trade in streets unless exempt from school attendance. No provision for annual renewal of licence or for deposit on badge. [bounties— Street Trading* HOURS. SxjNDAY Employment. REN". Other Days. Young Persons. Remarks. (7) (8) (9) (10) Boj'8 : 6 a.m.-7 p.m. Girls : 6 a.m. -8 p.m. Girls : 6 a.m.-8 p.m. — No licence system ; no provision pro- hibiting entry of licensed premises by street traders. nder 12 : 6 a.m.-8 p.m. ver 12 : 6 a.m.-9 p.m. Boys no regulations. Girls 6 a.m.-9 p.m. — No licence system; only those under 14 forbidden to enter licensed premises. 6.S0 a.m.-9 p.m. Boys no regulations. Girls 6.30 a.m.-9 p.m. Prohibited, except house- to-house sale of newspapers. No provision for annual renewal of licence ; no deposit required on badge ; licence system for boys ouly. 7 a.m. -8 p.m. E employed at stall or arrow under direction of dult, 7 a.m. -9 p.m. ; but Ot more than 8 hours in one day. 6 a.m. -9 p.m. — No licence system. 7 a.m. -8 p.m. 6 a.m. -9 p.m. Prohibited. Badges for boys only. 174 England and Wales* County Name of District. (1) MINIMUM AGE. Date of Confirmation. (2) Boys. (3) Girls. Ch: With Parent or Guardian. (4) Withiout ParentjOn Days when Attendii or Guardian. School. (5) (6) barssley . . Babrow-is-Furness Bath Birkenhead Birmingham Blackburn . . Blackpool . . Bolton BOOTLB Boxjbnemouth Bradford . . Brighton . . Bristol BiniNLET July, 1910. Nov., 1907. ! I July, 1905. I ! Oct., 1909. I Oct., 1908. Oct., 1904. May, 1906. June, 1909. Feb., 1905. Feb., 1912. Dec, 1910. Feb., 1905. Nov., 1908. July, 1904. 11 12 12 12 11 12t 12 11 12 12 14 12 11 (with parent, not guardian) 12 16 16 12 16 16 14 16 11 16 16 Ist Oct.-31st March: 6.45 a.m.-7.30 p.m. 1st April-SOth Sept. : 6.45 a.m.-8.30 p.m. Not in school hours unlef jully exempt from attenc ance. 1st Oct.-Slst March : 6 a.m.-8 p.m. 1st April-SOth Sept. : I 6 a.m. -9 p.m. Not in school hours. 1st Oct.-Slst March : 6 a.m. -8 p.m. 1st April-SOth Sept. : 6 a.m. -9 p.m. Not in school hours. 6-8 a.m. ; 5.15-8 p.m. 6 a.m. -9 p.m. Not in school hours. 1st Oct.-Slst March: 6 am. -8 p.m. 1st April-SOth Sept. : 6 a.m.-9 p.m. Not in school hours. 1st Oct.-Slst March : 6 a.m. -8 p.m . 1st April-SOth Sept. : 6 a.m.-9 p.m. Not in school hours. 1st Oct.-Slst March: 6 a.m.-8 p.m. 1st April-SOth Sept. : 6 a.m. -9 p.m. Not in school hours. 1st Oct.-Slst March: 6 a.m. -8 p.m. 1st April-SOth Sept. : 6 a.m.-9 p.m. Not in school hours. 7-8 a.m. ; 5-8 p.m. If employed at street sta barrow in charge < adult, 5-9 p.m. Not more than 3J hours day. 6 a.m.-8 p.m. Not in school hours. 6 a.m. -9 p.m. 7-S a.m.t ; 5-8 p.m. ist Oct.-Slst March : 6 a.m.-8 p.m. 1st April-SOth Sept. : 6 a.m.-9 p.m. Not in school hours. * Instructions to licensees would seem to indicate that prohibition is for young persons also, t Boys over 11 may sell papers between 6 and 8.15 a.m. throughout year, wliile engaged in delivering newspapers at houses of regular customers. 175 (f^Boroughs — Street Trading* HOURS. Other rtays (7) Young Persons. (8) Sunday Employment. (9) Remarks. (10) 1st Oct.-Slst March : 6.45 a.in.-7.30 p.m. 1st April-30th Sept. : 6.45 a.m. -8. 30 p.m. 1st Oct.-31st March : 6 a.m. -8 p.m. 1st April-30th Sept. 6 a.m. -9 p.m. 1st Oct.-Slst March : 6 a.m. -8 p.m. 1st April-30th Sept. 6 a.m. -9 p.m. 6 a.m.-S p.m. 6 a.m. -9 p.m. 1st Oct-31st March : 6 a.m. -8 p.m. 1st April-30th Sept. : 6 a.m. -9 p.m. 1st Oct.-Slst March: 6 am. -8 p.m. 1st April-30th Sept.: 6 a.m.-9 p.m. 1st Oct.-31st March : 6 a.m. -8 p.m. Ist April-30th Sept. : 6 a.m. -9 p.m. 1st Oct.-Slst March : | 6 a.m.-8 p.m. i 1st April-30th Sept. : 6 a.m. -9 p.m. 7 a.m. -8 p.m. If employed at street stall or barrow in charge of adult, 7 a.m. -9 p.m. Not more than 6 hours a day. 6 a.m. -8 p.m. 6 a.m.-9 p.m. School Children : 6 a.m. -8 p.m. Not more than 8 hours day. Exempted Children : 1st Oct.-3l8t March : 7 a.m.t-8 p.m. Ist April-SOth Sept. : 6 a.m. -9 p.m. Ist Oct.-Slst March : 6 a.m. -8 p.m. Ist April-SOth Sept : 6 a.m.-9 p.m. Boys ; no limits. Girls : 1st Oct. -3 1st March ; 6.45 a.m. -7. 30 p.m. 1st April-SOth Sept. ; 6.45 a.m.-8.30 p.m. 1st Oct.-Slst March : 6 a.m. -8 p.m. Ist Aprd-SOth Sept. 6 a.m. -9 p m. 1st Oct.-Slst March : 6 a.m. -8 p.m. 1st April-SOth Sept. : 6 a.m. -9 p.m. Boys not after 9 p.m. Girls 6 a.m. -9 p.m. Boys not after 9 p m. Girls 6 a.m-9 p.m. Ist Oct.-Slst March : 6 a.m. -8 p.m. 1st April-SOth Sept. : 6 a.m.-9 p.m. 1st Oct.-31st March: 6 am. -8 p.m. 1st April-SOth Sept. : 6 a.m. -9 p.m. 1st Oct.-Slst March 6 a.m. -8 p.m. 1st April-SOth Sept. 6 a.m. -9 p.m. 1st Oct.-Slst March ; 6 a.m. -8 p.m. 1st April-SOth Sept. ; 6 a.m. -9 p.m. 6 a.m-9 p.m. 6 a.m.-8 p.m. 6 a.m. -9 p.m. 1st Oct.-Slst March ; 7 a.m.t-8 p.m. 1st April-SOth Sept. ; 6 a.m. -9 p.m. 1st Oct.-Slst March ; 6 a.m.-8 p.m. 1st April-SOth Sept. : 6 a.m.-9 p.m. Prohibited. Prohibited. Prohibited. Prohibited for children under 14.* Prohibited. Prohibited. Prohibited for children under 14. No deposit on badge. Traders must be properly clothed. Boys under 13 and girls under 16 not allowed to trade within 50 yards of entrances to railway stations and places of public entertainment. Licensed traders nmst be allowed at least 20 minutes for meal between 12 noon and 1.30 p.m. No deposit on badge. Girls not allowed to trade (except for sale of newspapers) in or near railway stations, or in certain streets. Traders must be properly clothed. No deposit on badge. No deposit on badge. Deposit may be required. Girls may not trade without parent or guardian at railway stations or in certain streets. Prohibited for children Traders must be allowed at least 20 under 14, except for sale minutes for meal between 12 noon and of milk by children over 12. 1.30 p.m. Girls may not trade in or at entrance to railway stations or docks, places of public entertainment or public halls or resorts. Prohibited. Prohibited. Prohibited. Allowed up to 10.30 a.m Badges for boys only ; no deposit. Traders must be properly clothed. Quarterly school attendance certificates required for unexempted traders. No deposit on badge. No provision pro- hibiting entry of licensed premises by young persons. No charge for badge, unless lost or wilfully defaced. 176 England and Wales. County Boroughs Name of District. (1) MINIMUM AGE. Date of Confirmation. (2) Boys. (3) GlKLS Chii With Parent or Guardian. (4) Without Parent On Days when Attending or Guardian. School. (5) (6) BtTRY Cardiff Chester Coventry . . Croydon Devokport . . DBWSBtTEY . Dudley Eastbourne Exeter Halifax Hastings . . huddersfield IPSWIOH kingston-upon-hull Leeds Leicester . . (Draft). Aug., J 907. Sept., 1908. Nov., 1907. Oct., 1907. Sept, 1906. June, 1912. Sept., 1904. Jan., 1906. April, 1908. Feb., 1912. Sept 1905. March, 1903 (under Corpor- ation Act of 1902). Oct., 1907 Sept., 1904. Amendments 1907 and 1909 June, 1912. April, 1905. 12 11 11 12 11 12 if alone ; 11 if with parent. 12 11 12 11 11 16 11 11 (with parent only) 12 11 12 12 12 12 12 11 16 16 16 16 16 11 15 16 16 16 11 12 16 1st Oct.-3l8t March ; 6 a.m.-8 p.m. 1st April-30th Sept. 6 a.m. -9 p.m. 6 a.m. -9 p.m. 7-8 a.m. ; 5.30-8 p.m. 6 a.m. -9 p.m. Not in school hours. 129 97 Acton June, 1908. 57,497 336 ? Barry July, 1910. 33,763 — 103 47 40 Beckenham Jan., 19 10. 31.692 — 7 14 12 Bilston . Jan., 191 1. 25,681 — ? ? ? Chiswick . . j\lar, 1908. 38.697 — ? 36 98 EbbAv Vale June, 1908. 30,541 — ? ? ? Enfield Nov., 1907. 56,338 ? 344 ? ? Erith June, 1905. 27,750 lOI 62 62 54 Gosport and Dec, 1912. 33.300 — — — Alverstoke Hendon July, 19 10. 38,806 (No Lie ensing S ystem.) Ilford June, 1911. 78,188 — — 342 30oe Leyton Feb., 1913. 124,735 — 660 398 716 Penge May, 1910. 22,330 — ? 13 13 Pontypridd July, 1907. 43.211 89 74 142 103 Rhondda . . June, 1907. 152,781 91 250 ? ? Stretford . . Feb., 1908. 42,496 123 ? 114 80C Tottenham Jan., 1909. 137.418 (No Lie ensing S ystem.) Twickenham Feb., 191 1. 29.367 (No Lie ensing S stem.) Walthamstow June, 1912. 124,580 — — %7d 87 Wood Green June, 1908. 49.369 (No Lie ensing S ystem.) (a) 1907-8. (6) 1908-9 (c) Year ended 31st May, 1913. W) From Aug., 1912. (e) Estimated. 221 5. TABLE showing the Number of Persons proceeded against under the Employment of Children Act, and kindred Acts, in each police district of the United Kingdom.* (Compiled from the Annual Judicial Statistics for England and Wales, Scotland and Ireland.) ENGLAND AND WALES. Police Districts. 1904. 1905. 1906. 1907. 1908. 1909. 1910. 1911. Bedfordshire I 4 Bedford (B.) 2 3 I Luton (B.) — — I I Berkshire Reading (C.B.) . . — — — — 3 I I Windsor (B.) — — Bucks . . I 2 5 I 8 10 2 Chepping Wycombe (B.) — — — — 4 — — Cambridge — — — Cambridge (B.) . . 3 I Isle of Ely Cheshire — — — 20 35 36 35 24 Birkenhead (C.B.) 40 8 74 "3 70 84 161 66 Chester (C.B.) . . — 5 2 Congleton (B.) . . — Hyde (B.) 2 — I — — 8 3 2 Macclesfield (B.) . . I I I Stalybridge (B.) .. — — — — I — — — Stockport (C.B.) 14 12 21 18 18 12 6 9 Cornwall Penzance (B.) I Truro (City) Scilly Isles — — — — — — — — Cumberland c, ^ 3 Carlisle — — I 39 7 8 3 9 Derbyshire I — — — Chesterfield (B.) . . — — 4 Derby (C.B.) — — — — — 6 13 Glossop (B.) — — — — — — — Devonshire — I I I I 7 __ — Barnstaple (B.) . . — — — — — 2 — Devonport (C.B.) — — — — — 4 — — Exeter (C.B.) 4 — — — — 6 4 3 Plymouth (C.B.) — — — — — I Tiverton (B.) — — — — — — — — Dorset . . I I 4 3 Weymouth & RIelcombe Regis (B.) — — — — — 2 — — Durham 5 9 5 9 Durham (City) . . Gateshead (C.B.). . Hartlepool (C.B.) — — — — — 2 — — South Shields (C.B.) .. — — — 2 8 14 14 — Sunderland (C.B. ) I 5 I 2 9 II 9 II Essex ; — County (outside Metropoli- tan P.D.) I I — — 2 — 2 I Colchester (B.) . . — — — — — I I — * It should be noted that the Police Districts do not always correspond with the areas of the responsible local authorities under the Employment of Children Act. Police District. 1904. 1905. 1906. 1907. 1908. 1909. 1910. 191 1. Gloucestershire 2 3 I 17 I 3 Bristol (C.B.) — 20 24 36 18 63 104 104 Herefordshire . . — . — . — — Hereford (City) . . 7 Hertfordshire (outside M.P.D.) — — — I I — St. Albans (City) . . — — — 2 2 — — Huntingdonshire — — — I I I I I Kent (outside M.P.D.) I 2 4 — — — 6 5 Canterbury (C.B.) — — — — I I Dover (B.) — I — — — — — — Folkestone (B.) . . — 2 2 I I 3 I Gravesend (B.) . . — — — Maidstone (B.) . . — — — — — I Margate (B.) I Ramsgate (B.) . . Rochester (City) . . — — 6 — Tunbridge Wells (B.) . . I 2 3 2 I 2 Lancaster 10 I 6 I I 8 6 17 Accrington (B.) . . 2 I Ashton-under-Lyne (B.) 4 4 6 12 3 10 3 4 Bacup (B.) I — — 2 Barrow-in-Furness (C.B.) — — 5 10 10 13 Blackburn (C.B.) — 12 7 8 I 2 I Blackpool (C.B.) . . 6 2 8 5 26 21 24 45 Bolton (C.B.) 4 13 14 20 10 13 9 6 Bootle (C.B.) 7 13 2 8 2 II 26 2 Burnlev (C.B.) . . 2 I 8 I 9 2 5 Clitheroe (B.) — — — — Lancaster (B.) — 2 — — — Liverpool (C.B.) . . 71 62 39 79 40 94 169 138 Manchester (C.B.) I — 6 10 2 2 — Oldham (C.B.) . . 8 4 I 9 2 2 — 1 Preston (C.B.) . . — 3 — 4 I 4 Rochdale (C.B.) . . — — — — I 3 3 St. Helens (C.B.) . . — — — 41 12 6 6 7 Salford (C.B.) . . 4 3 2 I 12 4 I Southport (B.) . . 8 2 — — 8 8 Warrington (C.B. ) — — — 2 — — — Wigan (C.B.) — — — — — 15 30 15 Leicestershire . . — — — Leicester (C.B.) . . — 38 27 15 16 35 8 6 Lincolnshire : — Parts of Holland . . — Boston (B.) — — — Parts of Kesteven — I I I — Grantham (B.) . . — — — Parts of Lindsey . . — — 3 — 3 — Grimsby (C.B.) . . — 7 — 5 3 13 3 — Lincoln (C.B.) . . 4 10 2 8 2 I — Louth (B.) — — — Metropolitan P.D. 138 128 113 95 150 372 243 235 London, City of I 8 — 5 Monmouthshire — — — 16 5 7 Newport (C.B.) . . — — — 9 6 28 26 Norfolk 13 — 2 King's L>Tin (B.) — — — — — — — Norwich (C.B.) . . — — — 6 5 5 8 Gt. Yarmouth (C.B.) — — 3 — 16 14 — Northampton . . — — — — I — — Northampton (C.B.) I — — — — 24 16 2 Soke of Peterborough . . — — — — — — — Police District. 223 1904. 1905. 1906. 1907. 1909. 1910. 1911. Peterborough (City) Northumberland Berwick-on-Tweed (B.) Newcastle-on-Tyne (C.B.) Tynemouth (C.B.) Tyne River Police Nottingham Newark (B.) Nottingham (C.B.) Oxford Banbury (B.) Oxford (C.B.) Rutland Salop Shrewsbury (B.) . . Somerset Bath (C.B.) Bridgwater (B.) . . Southampton . . Portsmouth (C.B.) Southampton (C.B.) Winchester (City) Isle of Wight (Cty.) Ryde (B.).. Stafford . . Hanley (C.B.) . . Newcastle-under-Lyme (B.) Stoke-on-Trent (C.B.) Walsall (C.B.) . . Wolverham.pton (C.B.) Suffolk (East) . . Ipswich (C.B.) Suffolk (West).. Surrey (outside M.P.D.) Cxuildford (B.) . Reigate (B.) Sussex (East) . . Brighton (C.B.) . Eastbourne (B.) . Hastings (C.B.) . Hove (B.). . Sussex (West) . . Warwick Birmingham (C.B.) Coventry (C.B.) . Leamington (B.) Westmorland Kendal (B.) Wiltshire Salisbury (City) . Worcester Kidderminster (B.) Worcester (C.B.) York (East Riding) Beverley (B.) Hull (C.B.) York (North Riding) . Middlesbrough (C.B.) Scarborough (B.) York (C.B.) York (West Riding) 3 10 7 9 23 15 5 6 29 4 I 9 I 15 I 27 2 19 16 10 12 I I 17 23 4 II 19 58 I 57 43 3 I 4 5 I 18 5 4 5 15 5 I 5 2 no I 36 59 5 19 I 2 13 2 44 I 51 224 Police District. 1904. ( 1905. : 1906. ' 1907. 1909. I9I0. I9II Barnsley (B.) Bradford (CB.) . . Dewsbury (B.) Doncaster (B.) Halifax (CB.) . . Huddersfield (CB.) Leeds (CB.) Rotherham (CB.) Sheffield (CB.) .. Wakefield (City) . . ENGLAND (total) Anglesey Brecon . . Cardigan Carmarthen Carmarthen (B.) Carnarvon Denbigh Flint Glamorgan Cardiff (CB.) tMerth>T: Tydfil (CB.) Neath (B) . . Swansea (CB.) Merioneth jNi'ontgomery Radnor . . Pembroke WALES (total) Aberdeen (City) Ayr Kirkintilloch Kirkcaldy Glasgow (City) Coatbridge Perth (City) Greenock . . Paisley Sutherland SCOTLAND (total) 17 — 4 13 17 — I 4 417 466 I 530 WALES. 690 I 39 46 25 207 929 I 163 1514 II j 218 ii593 (f From 30th September, ic SCOTLAND. 38 142 1308 — I I I I I 2 91 94 2 7 245 3 257 2 I 10 166 8 190 2 I I IS 133 I 3 I 157 6 20 189 10 225 — 4 7 I S 4 I _5 — — 2 8 II 2 I 19 I 2 3 I 11 23 — 80 2 — 4 I 19 3 2 6 87 2 168 171 (In the remaining 204 Scottish Police Districts no prosecutions have been undertaken under the Employment of Children Act, etc., in any of the years included in the Table.) IRELAND.* Antrim . . Belfast (City) Londonderry^ . . Londonderry (City) Tyrone . . Galway (W.R.) * No figures available before 1908 ; prior to that date included with Offences under Labour Laws" in the Judicial Statistics. — — — 47 5 117 2 2 293 I Other 225 Police District. 1904. 1905. 1906. 1907. 1908. 1909. 1910. 1911. Dublin (M.P.D.) Kildare . . Kilkenny Kerry . . Tipperary (S.R.) Waterfofd (City) IRELAND (total) — — — — 82 129 2 2 130 I 3 I 299 136 I 548 (In the remaining 28 Irish Police Districts no prosecutions have been undertaken under the Employment of Children Act, etc., in any of the years included in the Table.) 226 6. DETAILED REPORTS on the Administration of the Employment of Children Act and Kindred Acts by certain Local Authorities. L LONDON. I. CHILD LABOUR IN LONDON. It was found in 1898 that some 31,000 children were employed out of school hours in London, returns being obtained with regard to about 680,000 out of the three-quarters of a million school children. About 3,000 of the 31,000 were aged under 10, and nearly 4,000 were aged 10 years ; 6,900 were employed from 21 to 30 hours, 3,300 from 31 to 40 hours, and 1,250 over 40 hours. 15,000 of the children were employed in connection with shops, and 10,000 in domestic work or other work in or in connection ■with dwelling houses. Less than 3,000 were reported as being engaged in street trading. No comprehensive statistics of child employment have been obtained in London since this date. But there is little doubt that the figure of 31,000 is smaller than the total number of wage-earning school children, even now when street trading and lathering have been prohibited for children in attendance at school. It should be noted that while only 3,000 children were reported as being engaged in street trading in 1898, some 10,000 schoolboys (including 2,500 milk-boys) were licensed as street traders during each of the years in the period July, 1908, to March, 191 1 ; while the number of cases of boys found trading without badges varied from 5,400 to 3,000 annually. Between 3,000 and 5,000 infringements of the general employment bye-laws are dealt with each year. Since 1898, when the figure 31,000 was obtained, the normal school-leaving age has been raised from 13 to 14 ; and this again will have produced an increase of the number of employed school children. In 1905, Mr. Chester Jones, when conducting an inquiry into the draft bye- laws of the London County Council, accepted 55,000 as a rough estimate of the total number of employed school children. Assuming that this estimate is correct, it is possible +hat the efforts of the London County Council to enforce the law have reduced the number of child workers to something like 40,000. But no certain claim of even approximate accuracy can be made for any of these figures. II. THE ADOPTION OF BYE-LAWS. The adoption of bye-laws under the Employment of Children Act was considered by the London County Council in 1904. The bye-laws, as adopted, were published in February, 1905. It was proposed to make 11 the minimum age for employment, and 3^ hours the maximum amount of employment allowed for school children, the limits of employment being between 7 and 8.30 a.m. and 5 and 7 p.m. It was further proposed to prohibit entirely the employment of children in barbers' shops, and the regular employment of children aged under 12 in home-work. \^T^en the bye-laws were published, in accordance with the statutory requirements, objections were made by newsagents, milk-sellers and barbers. Mr. Chester Jones, a stipendiary magistrate, was appointed by the Home Secretary to hold a formal inquiry. When the proceedings actually took place very few of the objectors appeared to give evidence in opposition to the bye-laws. But Mr. Chester Jones considered that he must make allowances for the absence of the objectors. " Having regard," he reported, " to the fact that the lack of opposition may have been due to some cause of which I am not aware, such as the want of funds or lack of organisation, and having regard to the well-kno%vn apathy of the people in London with respect to local matters, I have decided not to allow the abstention of the employers to weigh with me in the conclusions at which I have arrived." Accordingly he recommended that while the daily maximum of 3I hours should be left unchanged, the limits of employment should be altered to the periods between 6 and 8.30 a.m. and 5 and 8 p.m., that 12 (instead of 14) should be the minimum age for employment in a barber's shop, and that the proposed minimum age for regular employment in home-work should not be sanctioned. All these suggestions for revision were insisted on by the Home Office. Mr. Chester Jones further objected to the proposed prohibition of street trading by girls, unless they were in the company of their parents. This point was not pressed by the Home Office. In 1909, after the Education Committee had had a full year's experience of the administration of the bye-laws, the question of amending them in the light of the experience which had been gained was taken in hand. The alterations purposed were as follows : — 227 (i) It was proposed to fix 6.30 a.m., instead of 6 a.m., as the earliest hour for general employment ; (2) It was proposed to prohibit altogether the employment of children as lather-boys ; (3) The exception to the prohibition of street trading by girls under 16 accompanied by their parents was removed. (It had been found that the protection supposed to be given to street-trading girls by the presence of a parent or guardian was largely illusory) ; (4) The minimum age for street trading by boys was raised from 11 to 14 ; (5) Boys not exempt from school were prohibited from street trading. (The object of this proposal was to prevent boys aged 14-15 in attendance at special schools from trading in the streets) ; (6) Certain provisions were proposed with the object of giving the Council more effective control over the licensed boy street traders. The most important of these was the introduction of power to revoke licences in the case of offences by street traders. Unlike most local authorities, London had not dealt with this point in its original bye-laws. The new bye-laws were adopted by the Council in January, 19 10. Objections were again raised by the milk-sellers, newspaper agents, grocers and hairdressers, and the Home Secretary again ordered a formal inquiry into the objections, appointing Mr. S. O. Buckmaster to hold it. The inquiry took place in October, 1910. Mr. Buckmaster took the view that all the proposed alterations were justified. The bye-laws were therefore re-adopted, with a few verbal alterations, in March, 191 1, and were confirmed by the Home Secretary in June. It may be noted that the bye-laws contain no provisions for regulating the general employment of children exempted from school attendance. In view of the fact that in the whole of London only about 600 or 700 children aged under 14 obtain exemptions in each year, the problem of the regulation of the labour of these children is not a relatively important one. III. THE ADMINISTRATION OF THE BYE-LAWS. General Methods of Inspection. The bye-laws which came into force in 1906 had been prepared by the Public Control Committee, and their administration was placed in the hands of this Committee. Efforts were made by its officers to enforce the provisions of the Act and the bye-laws with regard to general employment between the years 1904 and 1909. The Council had originally contemplated that the street trading bye-laws would be enforced by the police. This arrangement was, however, never carried out. At a later stage the Council came to the conclusion that the School Attendance Department was best qualified to carry out the work of enforcing every portion of the bye-laws. In November, 1907, therefore, the responsibility for both the street trading and the general employment bye-laws was transferred to the Education Committee. Owng to a rearrangement of the methods of keeping the attendance registers and other changes in departmental organisation, it was found possible to save a sufficient amount of the time of the school attendance officers to carry out the new work without the appointment of additional staff. But the task of inspection was not left to the casual observation of the officers. There are 368 of these officers in the whole of London, under the immediate control of 12 divisional offices. The divisional superintendents in each of the 12 divisions are responsible for arranging that an adequate amount of inspection is undertaken by the school attendance staff. Between 20 and 30 officers are generally engaged in the work each afternoon and evening. During school hours there are always a few officers engaged on " street work " — i.e., looking out for children of school age in the streets. These are naturally able to deal with cases of the employment of children which they discover. Special arrangements are frequently made for early morning and Sunday inspections, and occasionally a considerable number of officers are employed in a special district where there is reason to believe that a considerable amount of illegal employment is taking place. Special payments are made to attendance officers for their extra duties in the early morning or evening, in so far as it is not possible to compensate them by reducing their hours of work at other times of the week. It is thought that infringements of the general employment bye-laws are generally detected by officers who are patrolling the street more easily than by officers systematically inspecting shops, since a large proportion of the children employed in connection with shops are engaged in running errands in the streets during the greater part of their hours of employment. Thus it will be noted that inspection is undertaken simultaneously for the street trading and general employment sections of the bye-laws. 228 The teachers have been supplied with copies of the bye-laws, and are periodically reminded* of their duty to forward cases of infringement to the divisional superintendents. They have been furnished with special forms for this purpose. The number of cases of children employed at illegal hours supplied by the teachers has diminished recently, but this is believed to be due to the decrease in the actual number of infringements of the bye-laws. No attempt is made, as in Liverpool, to question all the older school children with regard to their employment at the time of the medical inspections ; but special investigations into the physical effects of the employment of children have been made from time to time, and instructions are given to the school doctor to inquire closely into cases where employment appears to be having injurious effect. An examination! of a large number of schoolboys in 1906 showed the following results : — Hours Worked Weekly. Actual No. of Boys. Fatigue Signs. Anaemia. Severe Nerve Signs. Deform- ities. Severe Heart Signs. All schoolboys of district v/orkers and non-workers 3700 — 25 24 8 8 Working 20 hours or less 163 50 34 28 15 II Working 20 to 30 hours . . 86 81 ■ 47 44 21 15 Working over 30 hours . . 95 83 45 50 22 21 An examination of 150 employed schoolboys (including 17 employed in barbers' shops) was also undertaken a year or two later by Dr. Argles ; 31 of all these boys were described as medically unfit ; 10 out of the 31 were barbers' boys. This evidence had considerable influence in inducing the Home Office to sanction the prohibition of the employment of children at lathering in the revised bye-laws of 191 i-t When the bye-laws first came into operation nearly a quarter of a million leaflets explaining their contents were distributed among parents, employers and street traders. Issue of Street Trading Badges. Street- trading badges are issued at each of the 12 divisional offices. They are all granted for the period ending 31st December next following. Before the badge is issued the consent of the parent or guardian is obtained through the signature of a form. As far as possible the parents are required to attend at the divisional offices in order to signify their consent. No charge is made for the badge. It should be noted that boys who sell milk from door to door (as opposed to delivering to regular customers) are regarded as street traders, and required to take out badges. The system of licensing was never adopted for girls. Co-operation with Juvenile Labour Exchanges. It has recently been arranged that the names and addresses of all the licensed street traders shall be forwarded to the London Juvenile Advisory Committee, in order that the local Advisory Committees connected with the London Labour Exchanges may lose no opportunity of obtaining permanent work for them. The London County Council has also recently informed the London Juvenile Advisory Committee that they are prepared to arrange with their divisional superintendents to refer all applicants for street-trading badges to the nearest Labour Exchange for advice respecting employment. Treatment of Offences against the Bye-laws. A systematic procedure has been worked out for dealing with infringements. At first two warning notices were served upon offenders before prosecutions were undertaken. If a third offence was detected, the Divisional Superintendent issued a summons after obtaining the sanction of two members of the Education Committee (a course similar to that which is adopted in the case of summonses for failure to cause children to attend at school). The number of warning notices has now been reduced to one. In very serious cases of contravention summonses are sometimes issued even when the warning notices have not been previously served. A * See notices in the L.C.C. Gazette, 20th July, 1908, 10th May, 1909, 4th November, 1912, 11th November, 1912. ,, ^. , ^„ t See Report of Education Committee submitting Report of School Medical Officer for the year ending 3l8t March, 1906, pp. 21-4. , ^u mj . *. mn X Report by Mr. Buckmaster on L.C.C. Bye-laws under the Employment of Children Act, 1911, pp. 6-6. 229 record is kept of all cases of infringements detected, and of summonses issued, and there is a very complete set of printed forms for the purpose of issuing warning notices for every type of offence against the bye-la,ws to employers, parents and children. IV. DIFFICULTIES OF ADMINISTRATION. (i.) Home-work. It has not been possible to do much in the way of enforcing the regulations with regard to " industrial work at home." The fact that the officers of the County Council possess no right of entry (apart from the cumbersome procedure of obtaining a special order from a Justice of the Peace) is stated to be a hindrance to the enforcement of the law. A further difficulty arises from the fact that the local authorities for enforcing the out-work regulations under the Factory Act are the Borough Councils. The officers of the County Council do not possess any right of access to the lists of out- workers forwarded to the Borough Councils by the occupier of factories. (ii.) Concurrent Employment in Street Trading and General Employment. Under the bye-laws of 1906 there was nothing to prevent a boy from being employed during the full 3^ hours allowed in one day, and then engaging in street trading. The necessity for altering the provisions of the bye-laws to deal with this point was obviated by the complete prohibition of street trading by schoolboys introduced by the bye-laws of 191 1. (iii.) Difficulty of Local Government Areas. Difficulties have arisen in connection with street trading in London by children who belong to districts co-terminous with the county area, and also in connection with the control of London children who engage in street trading in these districts. It was decided at an early stage that badges should not be issued to children residing outside the county area. Similar difficulties arise in connection with the area of the city, which is outside the jurisdiction of the Council's officers for the purpose of the Employment of Children Act. (iv.) Proof of Age of Children in Prosecutions. Difficulty has been experienced in proving the age of children in respect of whom legal proceedings are taken. It has often been necessary not only to obtain a copy of the child's birth certificate, but also to call, wherever possible, the mother as a witness to the certificate. (v.) Evidence of Time of Employment. In many cases the defendants have disputed in Court the time at which children were stated to be employed. It has been necessary to arrange, in order to avoid this difficulty, that the officers shall, to a large extent, work in pairs in order that corroborative evidence may be obtained. (vi.) Prosecution of Parents of Street Traders. The old difficulty of dealing with the parent of street traders, owing to the difficulty of proving that they were able to exercise control over their cluldren, has again appeared in connection v.'ith the administration of the street-trading regulations. V. STATISTICS WITH REGARD TO THE ENFORCEMENT OF BYE-LAWS. The following table shows the number of infringements dealt with : — 1904-5 1905-6 1906-7 1907-8* 1908-9 1909-10 1910-11 1911-12 General Em- ployment . . Street Trading 134 293 3346 5177 9263 4624 6478 5 194 3867 Total .. 134 293 3346 ? 14440 1 1 102 8652 9061 In 1910-11 the ages of the children who infringed the bye-laws were as follows : — Age. Street Trading General Employment. Total. Under 8 12 ^^i 45 8 22 107 129 9 87 247 334 10 134 448 582 II 715 533 1248 12 1310 894 2204 13 1 36 1 1093 2724 14 875 4 879 15 505 2 507 Total 5291 3361 8652 * Period dui-ing which the work of enforcing tlie bye-laws was transferred from the Public Control De partmeut to the Education Department. Statistics do not appear to be available from either Department. 230 The nature of the offences was as follows : — General Employment. Employed when aged under ii.. .. .. .. ., 814 Employed at illegal hours in home work . . . . . , 3 Employed contrary to limits of hours : — On school days . . . . . . . . . . . . . . 1803 On holidays . . . . . . . . . . . . . . 308 On Sundays . . . . . . . . . . . . . . 408 Employed illegally in sale of intoxicating liquors . . . . z Employed under age in barber's shop . . . . . . . . 18 Employed in lifting excessive weights . . . . . . . . 4 Employed in a dangerous manner . . . . . . . . i Total . . . . . . . . . . 3361 Street Trading. Children employed under 11 Girls employed under 16 without parents Children employed contrary to limits of hours : — On school days On holidays Young persons employed contrary to limits of hours . . Entering licensed premises for sale Importuning.. Boys not wearing badge . . Injuring or disposing of badge Total Grand total The prosecutions in respect of both street-trading and general employment offences are shown in the following table : — Year. Summonses. Convictions. 1904-5 7 7 1905-6 18 18 1906-7 69 65 1907-8 — — 1908-9 28s 254 1909-10 269 241 1910-11 232 214 1911-12 226 201 In 1910-11 fines were imposed ranging from is. to £5 in 189 of the convictions. The number of badges issued to street traders are shown in the following table. Figures are not available as to the number of badges held by boys at any one time. Number of Boys to whom Badges were Issued. Year. Under 14. Aged 14-15 inclusive. Total. Estimated Number of Girls engaged in Street Trading. 1908-9 1909-10 1910-11 1911-12 10,479 9.832 11,647 10,046* 3.394 3.351 3.794 4.529 13.873 13.183 15.441 14.575 922 927 1,049 * Before August, 1911, when the new tye-law prohibiting the employment of cliildren in street trading t-ame into force. 231 VI. EMPLOYMENT IN PUBLIC ENTERTAINMENTS. The inspection of places of public entertainment, in order to ascertain that the conditions attached to licences granted by the magistrates are adhered to, was, before 191 3, carried out by the officers of the Council acting under the Public Control Committee. In the portion of the annual reports of the Council dealing with the work of this committee it is stated that — " The conditions usually attached to the licences in London are as follows : — {a) certificate of birth to be produced at the request of the inspector ; (b) an interval of at least one hour for rest and refreshment to be allowed between rehearsals and performances which occur on the same day ; (c) child to leave place of entertainment not later than the time specified in the licence, which is usually 10 p.m. or earlier ; (d) matron to be provided to have care of child ; (e) dressing-room to be provided, and child to be protected from cold behind the scenes to the satisfaction of the inspector ; (/) employment of child to be discontinued if the inspector satisfies the magistrate that it is injurious to the child's health ; and (g) copy of licence to be exhibited in the dressing-room of the child, and another sent to the Council within 48 hours after the granting of the licence." The following table gives an indication of the work of the Public Control Com- mittee in enforcing the law : — Year. No. of licences granted. No. of places of enter- tainment for which licences granted. No. of visits paid by inspectors. 1906-7 1907-8 1908-9 1909-10 257 246 272 322 80 73 81 81 279 265 286 354 The figures for subsequent years have not been published. In the report for 1908-9 it is stated that several infringements of the conditions of the licence were noticed by the inspectors. In three cases prosecutions were undertaken, and the offenders fined. The administration of the law is complicated by the fact that notice of intention to apply for a licence is sent to the police, not to the London County Council. Further, the School Attendance Department took steps to see that the licensed children attended school. In 191 2 the system of control was simplified by a transfer of the duties of inspec- tion to the school attendance officers. These officers now attend in court when the licences are applied for, inspect the theatres where the licensed children perform, and visit the homes of the children when this is considered necessary. Inquiries are sometimes made from other towns — if necessary by telegraph — with regard to the treatment of children who have been previously licensed elsewhere. Where the earnings of the child are considerable the magistrate is now asked to order that a certain proportion of them shall be put into the savings bank for him or her. Action has also been taken occasionally with regard to the lodgings of children employed away from home. The education authority used formerly to lend school furniture in order to enable special schools for the theatre children to be more easily arranged. This policy has, however, been abandoned during recent years, since there is a strong tendency to dis- courage the employment of children in theatres altogether.* There have been discussions in the Education Committee in the last two or tlu^ee years on the subject of children who perform both at matinees and in the evenings, attending school in the interval at a voluntary school which holds special sessions for theatre children. It has not, however, been possible as yet to prevent the employment of children in two performances on the same day. VII. THE ADOPTION AND ENFORCEMENT OF BYE-LAWS IN THE CITY. The powers of a local authority under the Employment of Children Act in the area of the City Corporation are exercised by that body, and not by the London County Council. In December, 1906, bye-laws were adopted by the City Corporation identical with those which had been sanctioned by the Home Secretary for the area within the London County Council's jurisdiction. In November, 191 1, the City Corporation revised Cf. report of a discussion in the School Government Chronicle, 24th December, 1910. 232 its bye-laws so as to make them identical with the revised bye-laws of the County Council. The revisions received the sanction of the Home Secretary in March, 191 2. The administration of both the general employment and street-trading portions of the bye-laws is in the hands of an officer of the Corporation, who also undertakes inspection under the Shops Act, Petroleum Acts, Explosives Act and in connection with the licensing of employment agencies. No mention is made in his annual report of inspec- tions undertaken in connection with the general employment section of the bye-laws. 1566 street trading badges were issued between May, 1907, and December, 1912. 1254 badges were still unreturned at the end of 191 2, but the inspector reports that " many boys give up street trading and omit to return their badges." It does not appear that there is much systematic supervision over the street traders. In 191 2 108 boys were found trading without badges and cautioned, while 18 boys with badges were found infringing the bye-laws. The fact that the City is a separate area for the purpose of the Employment of Children Act is an obvious anomaly which adds to the difficulty of securing a uniformly efficient enforcement of the bye-laws throughout London. AUTHORITIES. Annual Reports of the Council for years 1904-5 to 1911-12. 1898. London School Board. Report on Children Working for Wages. 1900. London County Council. Report of the Chief Officer of the Public Control Depart- ment as to the Limitation and Regulation of the Employment of School Children out of School Hours. 1906. Report of the Education Committee of the London County Council submitting the Report of the Medical Officer (Education) for the year ended 31st March, 1906. Home Office. Report on the Bye-laws made by the London County Council under the Employment of Children Act, 1903, by Chester Jones. 191 1. Home Office. Report on the Bye-laws made by the London County Council under the Employment of Children Act, 1903, by S. O. Buckmaster. 191 3. Report of the County Purposes Committee of the City Corporation, containing Annual Reports of Officers and Statistics for 191 2. 11. NORFOLK. The adoption of Bye-laws under the Employment of Children Act. During the first two years after the Employment of Children Act came into force no action seems to have been taken in connection with it in the county of Norfolk. In 1906, however, several prosecutions were undertaken by the police in the Marshland district in connection with the employment of children before 6 a.m. at fruit-picking. During the fruit season in July a great deal of work is carried out by women and children in this district. The available local labour is not sufficient, and a considerable number of Londoners come to assist in the work. As a result of the action of the police, the repre- sentative of the Terrington division on the County Council brought forward a motion in the Council in November, 1906, " That a bye-law be made to vary the hours during which children may be employed to 4 in the morning until 9 in the evening for fruit- picking during holidays." The motion was referred to a Committee on the Employment of Children Act, of which the Earl of Kimberley was the chairman. This Committee, finding that the application was at the instance of fruit-growers in the Marshland district, appointed three of their number to hold a local inquiry at Terrington St. Clements. The local inquiry was held on 20th February, 1907. It was found that one of the growers employed between 400 and 500 hands in the picking season, and that children worked very often with their mothers. Some of the growers did not allow children under 10 or 12 to be on the grounds, but as a whole they were " anxious to have the assistance of as many children as possible, in order not to have to employ so many ' East-enders,' whose presence is not a benefit to the neighbourhood, and whose personal habits of cleanli- ness leave much to be desired." " After the prosecutions had stopped this early employment it was said that the children still had to get up practically at the same time as their parents and wait about until 6 o'clock before they could help. The children are said to be eager for the employment, no doubt taking toll of the fruit, but when they 233 afterwards go to school they are apt to fall asleep over their lessons. Therefore, in the parish of Terrington St. Clement's the school managers have divided the holidays, allotting the first fortnight in July for the fruit-picking, then school for three weeks, and the balance of holidays at harvest-time. It was stated by the schoolmaster, and may readily be understood, that this division of the holidays was not conducive to educational efficiency, and that in the three weeks' intermediate school-time the attendance was irregular."* The Committee of Inquiry intimated to the persons interested that they could not recommend any extension of the morning hours unless the evening hours were curtailed. The meeting came generally to the conclusion that from 5 in the morning till 5 in the afternoon would suit the local needs better than the hours of 6 to 9 allowed by the Act. (According to a report of a later inqviiry by the County IMedical Officer of Health, " railway exigencies involved an almost automatic cessation of fruit-picking by 5 p.m.") At the same time, it became clear to the Committee of Inquiry that " if the bye-law were confined to fruit-picking only, and the children worked the allotted number of hours at that, there would be nothing to prevent their being further employed on the same day for other trades." The Employment of Children Act Committee therefore recommended to the County Council on 13th April, 1907: (i) " That a bye-law be made varying the hours of child labour so as to be from 5 in the morning until 5 in the evening during such time as the schools may be closed for holidays or otherwise and the attendance of the child not required thereat." (2) " That such bye-law be limited to the Petty Sessional Divisions of Free- bridge, INIarshland and Clackclose, but not limited to any special industry." These recommendations formed the basis of the proposed bye-laws, but it was not until three years later that the bye-laws were actually adopted by the Council and confirmed by the Home Secretary. Meanwhile a correspondence v^'ith the Home Office ensued. In 1909 the County Medical Officer of Health was instructed to visit the Marsh- land district during the picking season and report to the Employment of Children Act Committee on the bye-laws question from the medical point of view. He reported on 23rd August, 1909, that the proposed bye-laws were reasonable, but suggested (i) that below the age of 10 employment should be illegal before 6 a.m. or after 8 p.m. ; (2) that there should be a limitation of the weights to be carried by children to 6 lbs. The first suggestion was partially embodied in the bye-laws in their final form, inasmuch as the variation from the normal hours fixed by the Act was only allowed for children aged over 10. A maximum period of employment of eight hours per day was also fixed for all children, such maximum being applicable only on days when the employment was between 5 a.m. and 5 p.m., instead of 6 a.m. and 9 p.m. With these additions the special bye-laws for the Clackclose and Marshland Petty Sessional Divisions were adopted by the Council on 26th Marsh, 19 10, and were shortly afterwards confirmed by the Home Secretary. The introduction of the sugar-beet growing into Norfolk may possibly cause an increased demand for child labour, since the cultivation of tliis crop involves a great deal of work which is regarded as being light and particularly suitable for boys. In view of the declarations of those interested in the promotion of tiiis industry on this subject, it is felt by local observers, who desire to see a high standard of child labour regulation upheld, that it ^^'ill be necessary to watch carefully the employment of chidren in this direction. Agricultural Gangs Act and the Protection of Migratory Agricultural Labour. In the historical portion of this Report allusion has already been made to the operation of this Act in the North-West part of Norfolk, which is physically and economically a part of the Fen district {vide supra, pp. 9-1 1). In 1894, the year in which the licensing of gangmasters and gangmistresses v/as transferred by the Local Government Act from the magistrates to the District Councils, there were in the county of Norfolk 21 licensed gang-masters and 14 gang-mistresses. The system of gang employment had for some time been steadily declining in Norfolk, but it is not extinct even at the present moment, and it is alleged that some of its abuses have not been unknown in comparatively recent years.* The main problem, however, at the present day in connection with migratory agricultural labour in Norfolk is not the evils of the gang system, but the sanitary and moral environment of the hundreds of women and children who come from London, and also from the small towns in and near the Fen district to help in the fruit- picking. In 1908 the Rural District Council of Marshland, with the approval of the Local * Keport of Employment of Children Act Committee, in the proceedings of the Xorfolk County Council 13th April, 1907, p. 15. 234 Government Board, adopted bye-laws for " securing the decent lodging and accommoda- tion of persons employed in hop-picking or in the picking of fruit and vegetables in the Rural District of Marshland." But the sanitary conditions of the seasonal fruit pickers has continued to be notoriously bad. On 12th October, 191 1, the late Sir George White made a speech at Terrington in which he drew attention to these evils. The speech made considerable impression, and was followed by a number of articles and notices on the subject in the Eastern Daily Press. Sir George Wlaite stated that at least the spirit of the Agricultural Gangs Act, 1867, had been broken, called for an inquiry into the whole subject, and demanded that the County Council should take action. It was, however, pointed out by the Clerk to the County Council that the Agricultural Gangs Act only applies to persons who hire labourers with a view to their being employed on land not in their own occupa- tions. When the farmer employs his own labour direct the Act, therefore, does not apply. Although the County Council has no jurisdiction under the Agricultural Gangs Act, the Clerk obtained a return at the time of the discussion in question from the District Councils as to the number of gang-masters licensed by them. The return was as follows : — District. No. of Gang-Masters' Licences. Freebridge Lynn (R.D.) .. .. .. .. 5 Swaffliam (U.D.) .. .. .. .. .. i Mitford and Lannditch (R.D.) .. .. .. i Wayland (R.D.) . . . . . . . . . . 2 No return was received from the Marshland Rural District Council, though there are doubtless licensed gang-masters within its area. Administration of Child Labour Laws. The Employment of Children Act is wholly administered by the police. In the i*iterval between the prosecutions of 1906 referred to above and the passing of the special bye-laws for the Marshland and Clackclose Divisions, no action appears to have been taken to enforce the statutory limitations on the employment of children under the 1903 Act. In 191 1 there were two prosecutions under the Act, in both of which a conviction was secured. In the latter part of 191 2 the employer and the parent of a boy in Dereham were prosecuted for allowing him to sell papers in view of the fact that he was aged under II. The case was proved, and the offenders were warned by the magistrates. In the list of committees of the County Council there is still an Employment ot Children Act Committee, which is said to meet when specially summoned ; but since the passing of the bye-laws no action appears to have been taken by the Committee. As has been mentioned above, the licensing of gang-masters and mistresses under the Agricultural Gangs Act is in the hands of the District Councils. An official of the Norfolk Constabulary stated that he believed that the police had undertaken one or two prosecutions under the Act in the last two or three years. No separate record would, however, be kept of such prosecutions, and they would not be included unaer the heading from which the return of prosecutions contained in pp. 221 etseq. of this Report is compiled. A uthorities. Warner, H. L. Article on Agricultural Gangs in Palgrave's Dictionary of Political Economy (2nd Edition, Vol. II., 1906). Report ot Employment of Children Act Committee in Proceedings of Norfolk County Council, 13th April, 1907, pp. 15-16 Report of the Medical Officer of Health to the Employment of Children x\ct Committee of the Norfolk County Council, 23rd August, 1909 (separately printed). Annual Report of the County Medical Officer of Health, 19 10, p. 88. Eastern Daily Press, 13th October, 191 1; 14th October, 1911 ; i6th October, 191 1' 19th October, 191 1; 27th October, 191 1. * See leading article in Eastern Daily Press, 14th October, 1911. 235 III. ENGLISH MUNICIPALITIES AND URBAN DISTRICTS. BATH. In December, 1903, the Council requested the Watch Committee to take into consideration the provisions of the Employment of Children Act. A Sub-committee of the Watch Committee was appointed to do this. Particulars with regard to the employ- ment of school children were obtained from the head teachers of the elementary schools. The draft bye-laws were submitted to the Home Office, and certain verbal alterations were suggested. The bye-laws were finally adopted by the Council in March, 1905, and the confirmation of the Home Secretary was received in July, 1905. The bye-laws deal with both street trading and general employment. The Watch Committee have always been responsible for the enforcement of both the street trading and the general employment bye-laws. A Sub-committee of six members was appointed in 1905 to deal with the work. Parents and children have to appear before the officer in charge of the issue of street trading licences. In no case is the application of the child considered unless the direct permission of the parent is obtained. Licences are renewed each year at the Guild- hall on the same day. This enables the Sub-committee to have an opportunity of meeting the boys. WTienever a boy is charged with any offence his licence is suspended, and he and his parents are summoned before the Committee. In a few cases boys have been removed from the care of parents unfit to have control of them, as the result of being brought before the magistrates for offences against the bye-laws. No girls are licensed at present. The number of licensed street traders was 168 in 1910, 157 in 191 1 and 183 in IQ12. The increase in the last year was due to the extension of the city boundaries. BIRMINGHAM. Regulation of Street Trading. The Birmingham School Board had their attention drawn to the question of street trading by children in 1878. In 1883 Birmingham obtained a clause in a Local Act to regulate it. Neither this clause nor the street-trading provision of the Prevention of Cruelty to Children Act seem to have had much practical effect in the city. The evidence given by the Birmingham witnesses before the Inter-departmental Committee on the Employment of School Children in 1901 disclosed conditions, which seem to have been as bad as those in any town. Some 900 out of 60,000 children in attendance at Board Schools were knowm to be engaged in street trading.. Possibly half as many more attending Voluntary Schools also engaged in this occupation. In six months no fewer than 147 boy street traders aged under 14 were prosecuted by the police ; 49 of the cases were for felony, 32 for gambling, 7 for begging, 24 for sleeping out, 17 for not being under proper guardianship, 2 for trespass on the railway, 8 for wilful damage, and 8 for shouting. In the same period there were 273 prosecutions of boys aged over 14 and under 16. The Birmingham Corporation appears to have been deterred from seeking to obtain powers similar to those conferred upon the Liverpool Corporation by the Act of 1898, owing to the rebuff which the Police and Sanitary Regulations Committee of the House of Commons gave to the Manchester Corporation on its first application for such powers in 1899. As soon as the Employment of Children Act was passed, the Corporation proceeded to make bye-laws under it. The bye-laws came into operation at the beginning of 1905. In 1908 they were revised. Among the changes was a new provision to prevent girls aged from 14 to 16 from trading when unaccompanied by a parent or guardian. The administration of the bye-laws has always been in the hands of the Watch Committee. Five police officers are set aside for work in connection with children, including (i) street trading, (2) probation work, (3) in connection with industrial schools and reformatories. The issue of licences is wholly in the hands of the ofiicer in charge of the work. The Sub-committee of the Watch Committee which supervises it does not deal with the individual applicants. Since 1907 the presence of the parent of the applicant has been insisted on. Particulars are entered on a form, which is sent to the Education Offices for verification. The child's home is then visited by a police officer from the police station of the district in which it is situated, and finally the child is sent for to fetch the licence. 236 The number of licences issued is shown by the following table :— Granted. Licensed at End of Year Year. Applica- tions. Refused. Total. Boys. Girls. Boys. Girls. 1 90s 3454 394 2796 264 2208 231 2439 1906 1378 107 1182 89 2178 212 2390 1907 1281 125 1064 92 1773 182 1955 1908 1346 86 1183 77 1770 127 1897 1909 809 39 724 46 1313 69 1382 1910 769 26 706 37 1276 64 1340 1911 1443 60 1340 43 1627 53 1680 1912 1328 77 1220 31 1648 50 1698 The increase in the number of licences in 191 1 is due to the incorporation of new districts in the city area. The bye-law which came into operation in 1908, prohibiting girls aged from 14 to 16 from trading in the streets unless accompanied by a parent, has had the effect of completely removing girls of this age from street trading. Several applications have been made by parents for licences, biit they have been persuaded not to take them out. Of 1,522 children who held licences on a certain date in 191 1, 155 were the children of widows. The work of enforcing the bye-laws in the streets is mainly carried out by the ordinary constables on duty, and not by the special children's officers. But from time to time " raids " are made in special districts where street trading is prevalent, and in these cases the special children's officers were employed as well as ordinary police con- stables. The Judicial Sub-committee of the Watch Committee holds special sittings for dealing with offences against the regulations. The following is a list of the offences dealt with in 191 1 and 191 2 : — Entering licensed houses Trading after 9 p.m. Trading without licence . . Not wearing badge when trading Disorderly conduct Employing child not licensed . . Shouting for purpose of sale Gambling Trading during school hovirs . . I9II. 1912 20 26 17 21 29 21 60 81 13 12 6 6 10 16 — 4 — 3 17s 190 In connection with these offences 16 badges were suspended in 191 1 and 41 in 1912. The number of prosecutions in connection with the bye-laws is shown in the following table : — 1911. 17 12 2 1912. 40 29 Children summoned Dismissed with caution Fined Placed on probation . . . . . . 3 . . . . 3 Adults summoned . . . . . . 20 . . . . 38 Dismissed with caution .. .. 10 .. .. 18 Dismissed on payment of costs . . 2 . . . . i Fined .. .. .. .. .. 8 .. .. 16 Cases adjourned . . . . . . — . . . . 3 Some difficulty has been experienced in enforcing the bye-laws in connection with boys who engage in street trading on property belonging to the railway companies. The city police have no authority here. A considerable number of lads make a living by waiting about the stations in order to carry bags, etc. A special study of these boys has been made by Mr. Norman Chamberlain, which shows clearly the demoralising nature of the work. Special efforts are made to induce boys who have been engaged in street trading when at school to take up regular work on leaving. There is close co-operation between the Children's Department of the Police and the Juvenile Department of the Labour 237 Exchange in this connection. During 191 1 employment was found for 99 ex-street traders through the Labour Exchange, and in 19 12 the number so assisted was also considerable. Further, a certain number of boys and girls are sent to work on farms in Carmarthenshire"; 19 girls and 7 boj'S were assisted in this way in 191 1. Of 20 boys and 20 girls who had been sent to farms in 19 10 and 191 1, 16 girls and 12 boys remained in their situations at the end of 191 1. There is a considerable organisation of boys' clubs in Birmingham, conducted by the Birmingham Street Children's Union, primarily in the interest of the street trading children. The condition of the Birmingham street traders has undoubtedly been greatly improved since 1901 by the licensing system and by other measures undertaken on their behalf. The number has been greatly diminished, and almost every possible step is taken to counteract the bad effects of the occupation. But this success has not lessened the demand of all those who are most closely in touch with the problem for the complete abolition of street trading by children. It may be noted that street trading by both boys and girls aged over 14 is regarded in Birmingham as constituting an even more serious problem than street trading by school children. This is reflected in the provisions of the existing bye-laws, and in the recommendations of the Committee appointed by the Bishop of Birmingham, which demanded the complete prohibition of street trading by boys aged between 14 and 18. Regulation of General Employment. In 1 90 1 the Inter-departmental Committee on the Employment of School Children ascertained that out of 60,000 children in attendance at the Board Schools of Birmingham 4,:; 5 7 were engaged in wage-earning employment. Over 2,000 of these were employed in running errands for shopkeepers ; 107 were returned as employed in carding hooks and eyes (mostly in home work) ; 2,800 of the employed children worked less than 20 hours a week ; 1,037 from 20 to 30 hours ; 587 from 30 to 40 hours ; 123 from 40 to 50 hours ; and 28 50 hours or over. No action was, however, taken to deal with the problem after the passing of the Employment of Children Act. In 1907 out of eight schools con- taining 3,323 children, 570 were found to be engaged in wage-earning work (including street traders). In 19 12 another systematic investigation v/as undertaken. It was found that 9,131 children were employed, including 6,157 boys and 2,974 girls. These figures represent 9.3 per cent, of the total number of children on the roll of the upper departments of the schools — 12.5 in t'ae case of the boys and 6 in the case of the girls. 5,748 of these wage-earning children were employed in running errands, and 1,825 as domestic helps; 1,115 of them were employed from 20 to 25 hours in the week, 1,030 from 25 to 30, 1,056 from 30 to 35, 665 from 35 to 40, and 492 over 40 hours. 1,085 were employed on Saturdays only. Early in 19 13 it was arranged that the enforcement of the general employment provisions of the Employment of Children Act should be transferred to the Education Committee from the Watch Committee, which had taken no steps to carry out the law. The adoption of bye-laws will jrobably take place at an early date. Regulation of Employment in Public Entertainments. This is wholly in the hands of the police, but is dealt with by a different department from that which deals with street trading and other matters affecting children. List of Authorities. Inter-departmental Committee on the Employment of School Children, 1902, Minutes of Evidence, Qq. 10191-10632. Departmental Committee on the Employment of Children Act, 1910, 2^Iinutes of Evidence, Qq. 6712-7529. Annual Reports of the School Medical Officer, 191 1, 1912. Annual Reports of the Chief Constable, 1905-1912. Report of the Committee appointed by the Bishop of Birmingham to Inquire into Street Trading by Children, 191 1. Birmingham Street Children's Union Magazine, 191 1-2. Chamberlain, Norman. The Station Lounger, in "Problems of Boy Life " ; ed. J. H. Whitehouse, 191 1. BIRKENHEAD. GENERAL SKETCH OF ACTION UNDER CHILD LABOUR LAWS. In December, 1905, a rough skeleton draft of bye-laws under the Employment of Children Act was drawn up by the Secretary for Education. In the course of the following year this draft was elaborated and approved by the Education Committee and Council and was submitted to the Home Secretary. A correspondence ensued between the Home 238 Office and the local authority. In a letter dated 21st February, 1906, the Home Office objected to the proposal in the draft bye-laws to fix 12 as the minimum age for the employment of girls. The local authority accordingly lowered this to 11, which had been the age fixed for boys. Owing to the somewhat dilatory procedure of the local authority, it was not until the following year (1907) that the draft bye-laws were published in accord- ance with the Order of 1903. Objections were raised by hairdressers, milksellers, and other classes of small traders. A change in the proposed hours of employment was made in order to meet the wishes of the milksellers. The hairdressers objected in a letter dated 2 1 St February, 1908, to the fixing of 13 as the minimum age for employment of lather- boys, but the local authority remained firm on this point. The revised bye-laws finally received the corporate seal of the borough on 4th August, 1909, and were confirmed by the Home Secretary on nth October, 1909. Early in 1908, an inquiry was conducted into the amount of wage-earning by school children through the schools. The results of the inquiry are summarised in the following tables : — Ages of Children Employed. 7 9-10 . . Over 10 Total Occupations. Occupation. Boys. Girls. Total. Street Trading 64 5 69 Newspapers 157 3 160 Lather Boys . . 59 — 59 Domestic — 176 176 Caddies 107 — 107 Shops, Errands and Miscellaneous 971 114 1085 Total 1258 298 1556 Hours Employed. Under 10 250 157 407 ID and under 15 364 45 409 IS ,, 20 18s 26 211 20 ,, 25 •^71 14 187 25 and over 275 28 303 II 28 39 Total 1258 298 i:-v 1556 239 ADMINISTRATION OF CHILD LABOUR LAWS. The administration of Child Labour Laws in Birkenhead is in the hands of the police. But ahliough the children's officer is in the Chief Constable's department, he is in close touch with the Secretary for Education, and always ready to take steps in the interest of the children desired by the Education Department. {A ) General Employment. The law with regard to the protection of children in general employment is administered by the police. The officers on duty in the streets look out for cases of the employment of children after the legal hours, and a special children's officer also takes steps to see that the regulations in the bye-laws are observed. The following table shows the action taken to secure the enforcement of the bye-laws during 191 1 : — Statistics of Prosecutions under Employment of Children Act, for iqii.* Persons dealt with on Summons . . . . . . . . 66f Charge Withdrawn or Dismissed . . . . . . . . 5 Charge proved and Order made without Conviction . . . . 13 Convictions . . . . . . . . . . . . 48 The number of separate informations was 42. During 191 2 the local teachers have recently made representations through one of their organisations with regard to infringements of the bye-laws. It has not been considered desirable to let it become known to the children in the schools that questions with regard to their occupation out of school hours might be asked with a view to the prosecution of their employers or parents, and therefore copies of the bye-laws have not, as was suggested, been posted in the schools. But with regard to the illegal employment of children, complaints made by the teachers to the Secretary for Education are handed on to the Chief Constable to be investigated and dealt with. In the early months of 191 3 the local Advisory Council of Workers with Boys took into consideration the question of the employment of children. A deputation was sent to the W^atch Committee to make representations on the subject. In consequence of this action, a large number of prosecutions have been undertaken recently. One ingenious employer has discovered that, according to a possible interpretation of the bye-laws, by employing a boy partly at street trading and partly at general employ- ment he can make use of the boy for the following hours : — • 6-7 a.m. at street trading ; 7-8.15 a.m., delivering; 5.15-8 p.m., partly street trading and partly delivering. This represents a total employment of si hours daily. There is a limit of employ- ment of 3^ hours daily for general employment, but a child liable to attend school full time may carry on street trading on school days at any time between 6 and 8 a.m. and 5.15 and 8 p.m. (cf. tabular analysis of Bye-laws, supra, pp. 84-5). (B) Street Trading. The issue of licences is in the hands of a police officer, who devotes all his time to work in connection with children. The detection of infringements of the street- trading regulations is mainly left to the ordinary police officers on duty in the streets, though the special children's officer sometimes goes out to supervise the child traders. The procedure in connection with the issue of licences is as follows. The children apply at a police office ; the children's officer takes particulars, and then visits the child's home in order to ascertain whether the father or mother is willing that the child should engage in street trading. If the parent is willing, he or she must sign a statement to that effect. It is found that naany children apply for licences unknown to their parents, and the consent of the parent is often refused. The children's officer next obtains particulars with regard to the school attendance of the child from the Education Authority. If these are satisfactory the name of the child is submitted at the next meeting of the Watch Committee along with those of all other children who have applied for street-trading licences since the previous meeting. After the formal approval of the Watch Committee has been given the licence is issued. The licences do not have to be renewed annually. Once a licence is issued it is valid till the child reaches the age of 16, provided that it is not taken away for any reason. A deposit of 6d. is charged for the badge, and this serves to induce the children to give up the licences when they are no longer required. During the year 191 1, 120 boys were licensed for street trading, and the total number so licensed on 31st December was 218. No licences have ever been issued to girls. The bye-laws forbid them to engage in street trading under the age of 16, unless they are " accompanying and assisting a parent or * Including the prosecutions of ciiiltlren for street trading also tabulat'jd below, t 56 males : 10 females. 240 guardian." A number of girls applied for licences soon after the bye-laws came into force, but did not take them out when they discovered the conditions attached to their issue. About 40 out of the 218 licences are taken out by boys, who are mainly engaged in deliver- ing papers, in order that they may have liberty to sell a few copies in the course of their rounds. A number of the licences are held by boys who are exempt from school and have employment other than street trading, but sell papers on Saturday afternoons and at other times when they are not regularly employed. Many of the fathers of these and other street-trading boys are said to be respectable workmen in constant work. Each year several boys have their licences suspended for a month or two on account of infringements of the regulations. In the case of prosecutions under the street trading regulations, the boy himself is always charged, but the parent is also summoned on the same information, so that under §99 of the Children Act the magistrate can, if he finds negligence, order the parent to pay the fine. The following are the statistics of the prosecutions of boys in the Juvenile Court for offences under the Employment of Children Act during 191 1 : — Number proceeded against . . . . . . , . 7 Charge withdrawn or dismissed . . . . . . 2 Charge proved, without conviction . . . . . . 5 Convictions . . . . . . . . . . o (C) Children in Theatres, Etc. The applications for licences for children who are to be employed in places of entertainment are made in the police court before the ordinary police court cases are taken. The children are left outside, and only brought in if the magistrate v/ants to see them. The inspection of theatres, both with reference to child labour laws and in connection with other police regulations, is made by a police officer who combines this duty with that of hackney carriage inspection. This arrangement was made because it was found that the hours of the hackney carriage inspector enabled him to be charged with all the duties* connected with theatre inspection more conveniently than any other officer. A uthorities. Annual Reports of the Chief Constable. BOOTLE, (i) General Sketch of Steps Taken under the Employment of Children Act. Bye-laws were adopted by the Bootle Council under the Street Trading Section of the Act in October, 1904. Since then two inquiries have been made with regard to the amount of child employment of all kinds through the schools. The late Medical Officer oi Health, who left the borough in 1908, also endeavoured to get action taken with regard to the general employment section of the Act. But the members of the local authority have been unwilling tc make general em,ployment bye-laws. The administration of every section cf the law of child employment is in the hands of the police (as is also that of the Shops Act and the Factory Acts, so far as they concern local authorities). (2) Administration of the General Employment Section. This is enforced by the ordinary police officers. There has been a certain amount of inspection of shops with regard to the employment of boys after 9 p.m. (3) Administration of the Street Trading Section. The children apply to the police office for licences, generally unaccompanied by a parent. Before the licence is granted the consent of the parent is obtained. A number of licences are refused for various reasons. Only one girl has ever been licensed since 1905. She obtained a licence in order to sell firewood. All the licences expire on 31st December. During the present year 131 children have been licensed, 51 of whom were exempt from school and 81 non-exempt. In 17 cases during 191 2 the deposit of 6d. required by the bye-laws has been excused. There is a voluntary fund for clothing children (including street traders) with the assistance of the police. The enforcement of the regulations with regard to street trading is left in the hands of the ordinary police officers. The Chief Constable is keenly interested in the adminis- tration of the Act, and a serious effort is certainly made to enforce the law. During the present year two licences have been withdrawn from boys, one owing to irregular attendance at a day industrial school, and the other because the boy sold in prohibited hours after being warned. Prosecutions take place from time to time, but no permanent separate record is kept of these. Considerable difficulty is found in enforcing the street- trading regulations in the district near Rimrose Bridge, which is on the borders of the area of the Seaforth Urban District Council. This authority has no bye-laws, and many 241 unlicensed boys sell papers near the two suburban stations in the locality, and escape from the Bootle police across the borough boundary. There is also a certain amount of trouble with unlicensed traders owing to the custom of " sticking out," viz., the handing of papers by older boys to younger boys to sell. BRADFORD. Regulation of Street Trading. A street-trading clause was obtained in a Local Act in 1900. Bye-laws made under this Act came into operation in November, 1901. In 19 10 bye-laws were made under the Emplo^Tnent of Children Act. The administration of these, as of the former bye-laws, was placed in the hands of the Watch Committee and police. At the end of 19 12 the Council transferred the administration to the Education Committee. Considerable improv'ements were soon made in the methods adopted. The parents of children applying for licences were required to attend. It was arranged that the applicants should be examined by the School Medical Officer, in order that he might ascertain Vv'hether they were fitted to engage in street trading. A close supervision over the whole of the administra- tion is exercised by the Sub-committee of the Education Committee dealing with the matter. A police sergeant attached to the Education Committee's staff, who is also engaged in dealing with summonses in connection with school attendance cases, spends at least two evenings a week in patrolling the streets in order to secure the observance of the law. In the course of the year 19 12 (during the greater part of which the bye-laws were being administered by the police) there were no revocations or suspensions of licences. Four street-trading children (but no employers or parents) were prosecuted. The Education Committee were not long in proposing amendments to the bye-laws themselves, with a view to raising the standard of regulation. The chief proposals of the new draft bye-laws are shown by the following table : — New Draft Bye-laws. Old Bye-laws. Slinimum Age for Boys Minimum Age for Girls Hours for School Children. 16 unless with parent or guardian 6-8.15 a.m. ; 5-8 p.m. Not over 3 hours in one day. II II 6 a.m. -8 p.m. Arrangements are made for clothing necessitous street-trading children in con- nection with a voluntary agency (the Cinderella Club). The Corporation possesses power under the Local Act of 1900 to aid such work from the rates, but only a few pounds have been expended by it in this way during the last few years. Regulation of General Employment. This has always been in the hands of the Sanitary Department, under the Health Committee. As soon as the Act of 1903 was passed the inspector who was engaged in enforcing the Shops Acts and the sanitary provisions of the Factory and Workshop Act took steps to secure the observance of the statutory provisions of the Employment of Children Act. In October, 1906, general employment bye-laws were confirmed, which provided for a somewhat higher standard of regulation than was usual in other towns. (See provisions in analysis of General Employment Bye-laws, pp. 88-9.) There are now one inspector and one inspector's assistant engaged in enforcing the sanitary provisions of the Factory Act in workshops, the Shops Act, Rag Flock Act and Employment of Children Act. A register is kept of all places subject to inspection under these Acts. Particulars are entered of the number of children employed in places subject to the Employment of Children Act, and a record is kept of all visits. Some 5,000 visits a year are paid to places under the Shops and Employment of Children Acts. The following table shows the number of offences against the Employment of Children Act and bye-laws made thereunder detected each year : — Q 242 1907 .. .. .. .. 724 i9o8 .. .. .. .. 375 1909 .. .. .. .. 277 1910 .. .. .. .. 439 1911 .. .. .. .. 315 1912 . . . . . . . . 118 In 191 1 302 of the offences were against the bye-laws and 13 against the Act itself. During 191 2 eight persons were prosecuted in 12 separate cases. All were con- victed and fined. In June, 191 3, four cases were taken against a single firm in which the maximum penalty of £2 was inflicted. A larger penalty might have been inflicted but for the fact that the offence could not technically be treated as a second offence (though it actually was such) because the firm in question had become a limited company since it was first prosecuted. Action has been taken in connection with the employment of children to carry excessive weights in several cases. Wlien the inspector finds errand boys carrying exces- sively heavy parcels, he has the parcels weighed either at the Town Hall or at some con- venient place, and obtains an opinion from the Medical Officer of Health or School Medical Officer as to the fitness of the child for the work. In one case, when a small boy was found carrying meat weighing 40 lbs. for a butcher, action was taken in this way. A warning to the employer in accordance with the opinion expressed by one of the medical officers has always proved sufficient to produce a change in the treatment of the child. The authority of a medical officer's certificate under Section 3 (6) of the Act has also been used to prevent the employment of a feeble-minded school child as a van boy. (Considerable numbers of school children are employed as van boys during the winter months in Bradford, owing to the great demand for boy labour at high wages in the mills.) Use has been made of Section 3 (3) of the Employment of Children Act to prevent the employment of children, who are working half-time in the mills, as barbers' boys in the afternoon and evening. Although the system of half-time employment in factories continues unabated, the Education Committee have succeeded in reducing the employment of children outside factories on the half-time system within small limits. Regulation of Employment in Public Entertainments. The greater part of the work in this connection is carried out by the inspectors who administer the general employment bye-laws. The police make inquiries as to the treatment of children in the last town at which they have been licensed, as soon as notice is given of the intention to apply for a licence in Bradford. Meanwhile, the inspector under the Employment of Children Act is informed. He always visits the residence of children who are licensed, and, in the case of local pantomime children, also the school which they attend. It is found that about half of the travelling children attend private schools. In these cases the inspector roughly tests the degree of education of the child, since the attendance of a child at a series of schools for a week is apt to lead to its receiving very little effective instruction. Sometimes it is arranged that the children shall be examined by the School Medical Officer. Cases have occurred in which children suffering from ringworm or chorea were prevented from being employed in theatres owang to such examination. The licences always contain the latest hour at which the emploj'^ment of this condition is observed, and particular attention is also paid by him on these occasions to the question of dressing-room accommodation. On one occasion some years ago a case was found in which the employment of the child appeared to infringe the Dangerous Performances Acts. Warning was given to the authorities in the town in which the child would next be employed. In 191 1 129 children were licensed for employment in public entertainments. In 1912 the number was loi, of whom 43 were local pantomime children. Four prosecutions were undertaken in 191 1 against persons who employed children in theatres withou a licence. In each case a conviction was secured. BRISTOL, History of Child Labour Regulations. On 28th June, 1883, the Bristol City Council requested the Watch Committee to consider and report "as to the best means of preventing the hawking of matches and other things by very young children from early to late hours," and at a meeting of the Council held on i6th October, 1883, the Watch Committee submitted draft bye-laws to be made under the Municipal Corporations Act, 1882, providing — (i) " That no child under eight years shall sell or offer for sale any article Avhat- soever in the public places of the city " ; 243 (2) " That no child under thirteen years shall sell or offer for sale any article in the streets or public places of the city during the following times : (a) between 9 p.m. and sunrise from ist April to 30th September ; (b) between 8 p.m. and sunrise from ist October to 31st March"; and the penalty for any offence against such bye-laws was not exceeding los. These bye-laws were adopted by the Council and put into force after being con- firmed by the Secretary of State. They were, however, rendered void by the decision of the High Court in 1887 with regard to the similar bye-laws made by Newcastle-on-Tyne. Upon the passing of the Prevention of Cruelty to Children Act, 1889, the Council at their n^eeting on loth December, 1889, made a bye-law extending the hours mentioned in Section 3 (b) of that Act to 9 p.m. and 7 a.m. from ist April to 30th September in each year, and to 8 p.m. and 7 a.m. from ist October until 31st March following. In reply to an inquiry by the London County Council it was stated early in 1900 that the police " did not pay much regard to the bye-laws." In March, 1901, Mr. H. Coward, Headmaster of Anglesea Place School, organised an inquiry through the head teachers of a number of schools into wage-earning by school children. The general results obtained were as follows : — Number. Average Attendance. Number of Children Working for Wages Boys' Departments . . Girls' Departments Mixed Departments . . 29 24 13 8226 5134 4504 1057 158 (Boys 130 1 Girls 47 Total . . 66 17,864 1.393 In Mr. Coward's own school detailed particulars were obtained. Out ©f 210 boys on the register 53 were employed. Ages and Hours of Boys at Anglesea Place School, Bristol, Employed in 1901. Age. Number. Hours. 2 — 10. II — 20. 21 — 30. 31—40. ? 8 2 — 9 4 4 — — — — 10 7 3 4 — — — II 12 5 3 3 — I 12 12 — 7 3 I I 13 16 2 6 6 — 2 Total 53 16 20 12 I 4 Wages varied from a few pence to " 4s. with tea." The total money earnings amounted to £4 iis. lod., and in 19 cases meals were provided. Thus, the total value of the earnings averaged probably about 2s. a week. Mr. Coward described the parents of the children in his school as " well-to-do working-class." In other schools several cases were discovered of boys working over 40 hours a week. The usual bad effects of excessive employment were observed. No practical steps were taken to deal with the facts discovered in this inquiry for some years. The question of making bye-laws under the Employment of Children Act, 1903, v.as considered by a Joint Sub-committee of the Watch and Education Com mittees early in 1904. On 26th February, 1907, the Watch and Education Committees submitted draft bye-laws for the approval of the Council, which were adopted, with the exception of the bye-law prohibiting the employment of children under the age of c leven, the Council, upon an amendment proposed by the Chairman of the Education Committee, sub stituting twelve years of age for eleven as the minimum age for street trading. The bye-laws were then submitted to the Secretary of State. He stated that he was prepared to allow them with some alterations, of which the following was the most 244 important : The insertion of a provision enabling boys engaged in street trading at the time the bye-laws came into operation, and who were over the age of eleven, to continue to engage in street trading in spite of the bye-law above mentioned. WTien the bye-laws were published in the prescribed manner, objections were made by associations of newsagents and milk vendors, by a number of hairdressers, by the proprietors of the six daily and three weekly newspapers published in Bristol, and by eight separate individuals. The Home Secretary appointed Mr. Samuel Pope to hold a formal inquiry on the proposed bye-laws. The chief proposals for the alteration of the draft bye-laws made by Mr. Pope in his report were as follows: (i) Extension of the maximum weekly hours of employment for school children from 20 to 24 ; (2) extension of the maximum daily employment from 3^ to 4 hours ; (3) extension of the hours up to which children might be employed in milk delivery in the morning from 8.15 to 8.30 o'clock ; (4) exclusion from the street- trading regulations of children engaged in the " occasional sale " of newspapers, while delivering to regular customers of newsagents. The first and second amendments were not insisted on by the Home Secretary. The tliird and fourth were, however, incorporated in the bye-laws as finally adopted by the Council in October, 1908. Administration of the Regulations. After the bye-laws were confirmed the Watch Committee, to whom their enforcement was entrusted by the Council, appointed a " Children Sub-committee " to deal wth the employment of children in the streets, in public entertainments and elsewhere. A special inspector devoted all his time to work in enforcing the law under the directions of the Sub-committee. In October, 191 2, a second inspector was appointed by the Council to devote all his time to the work. The thoroughness of the work of the Sub-committee and inspectors in enforcing child labour regulations is best illustrated by its annual report, a copy of which is given below. The bye-laws have certainly effected a great reduction in the number of street traders. It was stated in the first annual report of the Sub-committee that before the hye-laws came into operation 2,000 children and young persons aged under sixteen were trading in the streets. The exclusion of girls from street trading is a notable feature of child labour regulation in Bristol. Particular attention is also given to the careful supervision of children emploj'ed in theatres. Two prosecutions were successfully undertaken during the early part of 191 3 in connection with the employment of children in theatres, but in general such a course is found to be unnecessary. APPENDIX I. The Annual Report of the Children Sub-committee. To the Lord Mayor and Members of the Watch Committee. Your Sub-committee beg to present herewith their fourth annual report upon the administration of the Employment of Children Act, 1903, and the bye-laws made by the Council thereunder for the year ended 31st March, last. The number of children and young persons to whom licences to engage in street trading in the city have been granted during the past year is 262, and during that period eight licences were revoked, and 294 licences were returned on account of the holders find- ing regular employment, etc. The total number of street-trading licences at present in force is 337, all of which are held by boys. The following statement will show the number of licences which were issued, returned, revoked and in force at the end of the past three 3'ears during which the bye-laws have been in operation, viz. : — 245 Licences. Young Persons between 14 and 16 Years of Age. Children between 12 and 14 Years of Age. Total. Boys. Girls. Boys. Girls. 1909-10. Issued Returned . . Revoked . . On Register, 31st March, J1910 283 123 160 2 852 396 20 436 — 1137 521 20 596 1910-11. Issued Returned . . Revoked . . On Register, 31st Jlarch, 191 1 30 124 66 — 225 244 10 407 — 255 368 10 473 1911-12. Issued Returned . . Revoked . . On Register, 31st March, 191 2 27 66 27 I I 257 312 3 349 — 285 378 3 377 1912-13. Issued Returned . . Revoked . . On Register, 31st March, 19 13 19 21 25 I 243 272 8 312 — 262 294 8 337 Of the 272 boys between the ages of twelve and fourten years who returned their licences during the past year, only 1 3 boys applied for licences to enable them to continue to trade in the streets, and such boys are now engaged in the sale of articles other than newspapers, such as the hawking of coal, coke, fruit, vegetables and fish. So far as can be ascertained by Inspector Ottley the remainder of such boys have ceased to trade in the streets. With regard to young persons between fourteen and sixteen years of age, the Committee will observe that only 2 5 are now licensed to trade in the streets, and only one of such boys is engaged in selling newspapers. Your Sub-committee have pleasure in pointing out that the number of children, and especially young persons between the ages of lourteen and sixteen, to whom street trading licences have been granted during the past four years has steadily decreased, and also that whereas the number of licences issued to street traders during the first year after the bye-laws were put into force was 1,137, only 337 boys held licences on 31st March last. Your Sub-committee are pleased to find that during the past year, as in former years, a large number of boys have returned their licences and badges to take up regular employment, which was obtained upon the recommendation of Inspector Ottley, who frequently receives applications from employers for suitable boys. In necessitous cases clothing, etc., has been supplied to the boys and paid for out of private subscriptions. The number of infringements of the Employment of Children Act, and the bye-laws made thereunder, which have been investigated and reported to your Sub-committee by the inspector during the past year, as compared with the years 1909-10, 1910-11 and 191 1-12, viz. ; — 1909-10 1910-11 1911-12 1912-13 By employers .. .. .. 88 . . 105 .. 159 .. 197 ,, parents . . . . . . . . — . . 37 . • 143 • • 201 ,, street traders .. .. .. 279 .. 276 .. 297 .. 431 Totals 367 418 599 829 246 The foregoing cases were dealt with as follows, viz :- Warned Prosecuted . . Street traders' licences suspended „ ,, ,, revoked . . Totals With reference to the cases of infringement of the bye-laws in which proceedings were taken before the Justices, in 43 cases proceedings were taken against employers, in 58 cases against parents, and in 72 cases against street traders, and such proceedings resulted as follows, viz. : — 1909-10 271 . 45 • 31 • 20 1910-11 • 320 . 88 . 1911-12 • 503 ■ • 93 • 1912-13 . 648 • 173 10 . 3 • 8 367 418 599 829 Fined and ordered to pay Costs. Bound over for 1 2 Months. Bound over for 6 Months. Reprimanded by Magistrates. Sent to Industrial School. Summons W'ithdrawn. 71 II 29 54 II Children Performing at Places of Public Entertainment. Your Sub-committee beg to report that during the past year the Justices granted licences under Section 3 of the Prevention of Cruelty to Children Act, 1904, to 11 boys and 39 girls between the ages of ten and fourteen years, to take part in entertainments in places of public entertainment, and that Inspector Ottley has visited the premises where such were employed on 85 occasions so as to ensure that the conditions of such licences were complied with, and that each child left such premises at the specified time. In 1911-12 the number of children licensed was 112 and the number of visits made by the inspector was 128. Places of Detention. Your Sub-committee beg to report that during the year ended 31st March last 120 boys and 15 girls between the ages of six and sixteen years have been detained on remand or after conviction at the various places of detention provided by the Council under Section 108 of the Children Act, 1908. The average age of the boys was twelve-and-a-half years, and of the girls fourteen years. One girl was sent to the place of detention for Roman Catholic girls (Arno's Court Reformatory) on remand for eight days. The periods during which such children and young persons were detained at the places averaged : boys, 5|- days ; girls, nine days. The various places of detention have from time to time during the year been visited by the visitors appointed for the purpose by the Watch Committee, and they have found that such places are well regulated and kept in very good order, and that the children under detention are well treated in every way and profit by their period of detention at such places. The instruction of the children and young persons whilst under detention in elementary subjects, and their employment in a suitable occupation, was satisfactorily undertaken by the respective superintendents. APPENDIX II. A uthorities. London County Council. Report of the Chief Officer of the Public Control Department as to the limitation and regulation of the employment of School Children out of School Hours, 1900. (Contains particulars of action taken in Bristol.) Inter-departmental Committee on the Employment of School Children — Evidence, 1902, Appendix No. 32. Reports of the Children Sub-committee of the Watch Committee, 1909-13. 247 DEWSBURY. General Sketch of Action under Child Labour Laws. No action appears to have been taken by the local authority in Dewsbury either with regard to making bye-laws under the Employment of Children Act or with regard to the enforcement of the statutory provisions for regulating general employment until the end of 191 1. The necessary stimulus in this town was supplied by the Advisory Committee for Juvenile Employment, which had been established in 1910 in connection with the local Labour Exchange by the Board of Trade in consultation with the local Education Authority. This Committee adopted a method of getting into touch with school children unlike those followed by any of the other Juvenile Advisory Committees which had been previously established. Arrangements were made whereby the secretary, Miss R. Hartop, should visit each of the twenty-three elementary schools in the borough three times a year in order to interview personally all the children who were about to leave school. Through coming into touch with the school children in this way jMiss Hartop was brought into contact with a considerable number of cases of the employment of school children after 9 p.m., both in general employment and in street trading. In Dewsbury the great majority of children leave school for full time employment soon after attaining the age of thirteen, and it was also found that many boys under fourteen employed full time as errand-boys, etc., worked long after 9 p.m., especially on Friday and Saturday nights. At a meeting of the Juvenile Advisory Committee in September, 191 1, the question of child employment in the locality was discussed, and two resolutions were passed : (i) that the ascertained cases of illegal employment should be reported to the TowTi Clerk, who should be requested to see that the law was enforced in these and similar cases ; (2) that the Dewsbury Corporation should be requested to consider the adoption of bye-laws under the Employment of Children Act, 1903. As a result of these representations the Town Council instructed the Town Clerk and the Secretary to the Education Committee to draft bye-laws. The Chief Constable also took steps to enforce the nine o'clock rule. A police officer was told off to visit all the suspected cases of illegal employment, and to inspect shops with a view to discovering further cases. A considerable number of employers of children were warned. The bye-laws were passed by the Council in February, 19 12, and were submitted to the Home Secretary for his approval. The Home Secretary then required that they should be exhibited throughout the borough in the usual manner, in accordance with the order of 1903. This resulted in objections being made by the local Hairdressers' Association, some of whose members had already been found to be amongst the offenders in regard to the illegal employment of boys after 9 p.m. Before consenting to confirm the bye-laws the Home Office referred the objections made by the Hairdressers' Association to the Council, and also asked for information with regard to the nature and extent of the employment of children in the borough. The Council refused to weaken its proposed regulations to meet the objections of the barbers. (These regulations were considerably less stringent than those actually in force in many other towns ; no special minimum age for lather-boys was proposed above the general minimum age for employment which was fixed at eleven.) As the result of the request of the Home Office for information, an inquiry was organised through the schools by the Secretary to the Juvenile Advisory Committee and the Secretary to the Education Committee, and statistics with regard to the employment of children exempt from school were also compiled. The results of the inquiry are summarised in the following tables : — First occupation of the 701 children who left the elementary schools* and entered employment during the year May, 191 1, to April, 19 12. (^) Subject to the Protection of the Factory and Workshop and Mines Acts, together with building trade workers. Boys. Girls. Textiles .. .. .. .. .. 108 .. 215 Dress .. .. .. .. .. 11 .. 58 Paper prints, etc. .. .. .. 13 .. 15 Food . . . . . . . . . . 2 . . 14 Metals and Machinery . . . . . . 21 . . — Mines . . . . . . . . . . 36 . . — Building . . . . . . . . 19 . . — Total . . 210 302 * The great majority of these children were aged under 14, 248 (J5) Unprotected by Factory and Workshop and Mines Act. Telegraph boys Errand-boys, etc. Clerical Miscellaneous Domestic . . Total Boys. Girls 6 — 85 — 21 4 29 17 — 27 141 48 AGES AND HOURS OF SCHOOL CHILDREN EMPLOYED. Ttl. Em- General Hours Employed per Week ployed. Employment. Street Trading. up to — Boys. Girls. Boys. Girls. 10. 11-20. 21-30. Over 30. 13 31 17 6 7 I 14 II 6 — 12 185 106 50 21 6 98 63 23 I II 115 67 28 19 I 60 46 7 2 10 57 28 21 8 — 36 16 1 5 9 23 5 14 4 — 19 4 — 8 21 7 8 4 2 16 5 — 7 5 — 4 I — 5 — — 437 230 131 64 10 248 145 41 3 It will be noted that there are few cases of very excessive hours. It is possible that these are less common in the smaller towns such as Dewsbury. The children employed represent 5.3 per cent, of all the children on the school roll or 7.6 of those in the senior departments. Of the girls 104 were engaged in domestic work, including a good many " steppers " — ^little girls who clean neighbours' steps for a few pence ; 94 boys were engaged in the delivery or sale of food, 84 in the sale or delivery of other goods, and 33 were lather-boys. The bye-laws finally received the confirmation of the Home Secretary on 25th June, 1912. Administration of Bye-laws. Tliis is in the hands of the police. The street-trading licences all expire on 31st December. An arrangement has been made whereby the Secretary of the Juvenile Advisory Committee -will be supplied with the names of all licensed street traders, and \vi\\ exercise especial care to see that they enter regular employment when they leave school. This arrangement is excellent, but is perhaps not of as great importance in Dewsbury as it would be in some other places since the relatively small amount of street selling and the constant demand for juvenile labour at high v\'ages in the textile mills prevent the rise of a class of whole time juvenile street traders. EXETER. During 1900 an inquiry was made into wage-earning by school children at the request of the Committee on Wage-earning Children. Returns were obtained from 10 schools having an average attendance of over 3,500, and 215 children were found to be employed. In January 1904, in consequeiice of circulars from the Home Secretary, and also from the Committee on Wage-earning Children calling attention to the passing of the Employment of Children Act, 1903, bye-laws were moved for in the Council. During the same year another inquiry was made into the amount and character of wage-earning by school children. The bye-laws did not actually come into force until April 1908, the draft bye-laws having been previously returned for modification by the Home Of&ce. The administration of the bye-laws was placed wholly in the hands of the police. Before street-trading licences are issued inquiry is made from the Education Authority, and also, through a police officer, in the child's home, as to whether the parent consents to the employment of the child in street trading. Licences are renewable annually. The number of licences held at the end of each year has been as follows : — 249 December, 1909 1910 19^1 1912 118 107 85 52 In 191 2, an inquiry was made by the Superintendent Attendance Officer into wage- earning by school children, and also into the effects of the bye-laws. The following tables show the results of the inquiry as compared with that conducted in 1904 : — Boys. Milk Boys. Errand Boys. Boot Boys. Newspaper Barbers' Boys. Boys. Street Hawkers. Total. 1904 I9I2 * 82 320 172 17 18 40 30 6 7 384 308 Dec. 76 Girls. Erranc 1 Girls. Domestic Work. Totai. 1904 1912 8 75 114 83 114 Inc. 31 Average Number of Hours Work. Boys. Girls. 1904 19 •• 15 1912 14 •• 94 The average number of hours per week worked by different classes of boys in 1 91 2 was as follows : — Lather-boys . . . . . . . . . . . . i9i Errand-boys Newspaper-boys Milk-boys . . Boot-boys 19 154 "4 104 There are a few cases of 30 hours work per week among lather and errand-boys. The following extracts from the report of the Superintendent Attendance Officer throw an interesting light on the working of the bye-laws : — " I am at a loss to account for the increase in barbers' boys, unless it is that those who were previously classed as street traders take up lathering as the next best and most profitable occupation. It is, however, an illegal employment for schoolboys under 1 3 years of age, and should receive attention from the Watch Committee, as under the existing law it is a matter for the Police, and not the Education Committee. " There are tliree pleasing features in the present return, as compared with the one eight years ago. First, there is no boy employed systematically in carrying heavy loads. Secondly, the hours of employment out of school hours for boys and girls have been materially lessened. Thirdly, there are no tradesmen of any repute employing boys out of school time, excepting dairymen, by whom such employment is general. " Four boys manage to serve two masters, in addition to the school master. One works in the dual capacity of deliverer of milk and latherer, whilst the others run errands after the milk rounds are done. Included with enand boys. 2SO " The one cause for regret in regard to the question of child labour out of school hours in Exeter is that we have 140 boys and 86 girls working between the hours of 12 noon and 2 p.m. Seeing this is prohibited by law, it is a matter which should receive attention. " After making inquiries into several individual cases, I am convinced that many of the parents who utilise the services of their own children are greater sinners than the average employer. Take, for instance, a child living in Newtown has to take her father's dinner to St. David's Station between school hours, and often his breakfast and tea. Another, residing in St. Thomas, takes her father's meals to Queen Street Station, besides doing sundry jobs at home. Such occupa- tion out of scliool hours is common with cabmen and others in charge of horses. The head teacher, in making a comment upon the first case, says : ' The constant walks to St. David's Station make the girl weary and listless. She is often very wet and very late both morning and afternoon.' " It seems probable that the bye-laws have had some effect, but that there is room for considerable improvement in their administration. It appears that the School Attendance Department is now taking a more active part in the enforcement of the bye-laws. In June 191 3, a prosecution was successfully undertaken against a butcher for employing a boy between school hours, and for more than seven hours on Saturday, on the evidence of school attendance officers.*' Authorities. Inter-departmental Committee on the Employment of School Cliildren, 1902. Minutes of Evidence. P. 377. Appendix to Report of School Attendance Sub-committee Meeting held on 13th July, 1912. Reports of Chief Constable. HULL. As the result of a resolution passed by a Sub-committee of the Watch Committee in December, 1903, the Secretary of Education made inquiries into the employment of school children. The subject was also considered by the Sanitary Committee in 1904. Street- trading bye-laws were adopted and came into force in 1904. The general employ- ment bye-laws were modified at the instance of the Home Secretary, and did not come into force until August, 1906. In accordance with the suggestion of the Home Office circular on the Emplojinent of Children Act of 1903 the administration of the street-trading bye-laws was placed in the hands of the police. Parents are not required to attend when application is made for a licence. Wlien the parent does not come the child has to bring a birth certificate. At a meeting of the Watch Committee on 12th March, 191 3, complaint was made that badges were issued too freely. A Sub-committee was appointed to consider the question of the amendment of the bye-laws. The number of licensed traders in the early part of 191 3 was 962. The inspector under the Shops Act (under the supervision of the Sanitary Com- mittee) was made responsible for the general employment bye-laws, as was suggested in the Home Office circular of 1903 on the administration of the Act. KETTERING. A few months after the Employment of Children Act, 1903, became law the Clerk to the Kettering Urban District Council drew up draft bye-laws dealing with both general employment and street trading. It was proposed inter alia that twelve should be the minimum age of employment ; that on week-daj^s other than Saturday employment should be prohibited except between 7 and 8.30 a.m. and 5 and 8 p.m. ; that children who were exempt from school should normally have a maximum working day of eight hours, and that street trading should be prohibited for girls under sixteen. These draft bye-laws were passed by the Council and submitted to the Home Secretarjj^ for his approval. The Clerk to the Urban District Council thereupon received from the Home Office a letter of several pages containing a large number of objections to the bye-laws. He brought this to the notice of the Council on several occasions, but the members had gained the impression that the Home Office was not favourably disposed to the enactment of bye-laws at all, and were not willing to enter into a discussion of the large number of points raised in the letter. After several attempts to get the matter dealt with, the Town Clerk let it rest, and no action has since been taken in the district under the Employment of Children Act. •See Western Times, 14th June, 1913. 251 LEEDS. (i) The Adoption of Bye-laws. The Leeds School Board conducted a more complete inqviiry into wage-earning by school children than any other local authority in the course of the proceedings which led to the report of the Inter-departmental Committee in 1902. The substance of their report (published in 1902) is reproduced in the Minutes of Evidence of the Inter-depart- mental Committee, pp. 375-6. Returns were received from 48 schools with an average attendance of 24,700. 1,025 children were returned as employed, 326 of whom were engaged in street trading. This report was not, however, followed up by any action on the part of the new Education Authority established by the Education Act of 1902, and Leeds has been the last of the large cities of England and Scotland to take action under the Employment of Children Act. In June, 1910, another inquiry into the extent and nature of wage-earning by school children was undertaken by the officials of the Education Authority. For the sake of comparison the results of the two inquiries are here summarised side by side, although they are not comparable in all their details. The 1902 inquiry was, of course, much less complete. Year. Number of Schools. Average Attendance. Number of Children Reported as Employed. 1902 1910 48 113 24,700 70,000 1025 ,„ ^ ^1 Boys 2963 ^■'^■^1 Girls 1380 Employments. 1902. 1910. Street Trading .. 326 Newspapers 1043 (includin, Matches . . 13 ( .. Firewood 104 ( Greengroceries . . .. Ill ( ,. Toys 5 Ice Cream 5 (includin Milk 61 Milk 214 ( Errands .. 186 Errands . . . . 1611 ( For or in Shops .. 189 Lather Boys 91 Lather Boys . . 225 Domestic Work .. 8s Domestic Work 670 (includin Caddying 32 Carrying Parcels 16 (includin Miscellaneous .. 87 Miscellaneous . . 294 ( 1025 4343 (includin 36 girls) 3 .. ) 28 „ ) II „ ) I girl) 29 girls) 583 .. ) I girl) 56 girls) 380 girls) (It should be noted that the number of street traders included in the 19 10 report was 1,281 (including 79 girls), as against 326 in the partial inquiry of 1902.) Hours Worked per Week. 1902. 277 under 10 Hours. 252 10-15 Hours. 179 15-20 130 20-25 77 25-30 74 30-35 17 3S-40 4 40-45 45-50 1 50-55 I 55-60 1910. 1524 under 6 Hours. 1007 6-12 Hours. 924 12-18 511 18-24 237 24-30 103 30-36 27 36-40 10 40-50 In 1 9 10 it was found that the great majority of the boys engaged in selling news- papers in the centre of the city sold 2^2j dozens of papers in a day, and earned from 2s. 6d. to 3s. weekly, the average time worked being 15-18 hours per week. The worst cases of general employment in 19 10 appear to have been found amongst the lather-boys. The report states : "In addition to working two hours each evening on three nights of the week, they are required to work four hours on the Friday, and from 8 or 9 a.m. to 1 1 p.m. or even later on the Saturday, in an atmosphere and amid surroundings which cannot be regarded as beneficial to the workers. It may be pointed out that such children are illegally employed after 9 in the evening." In 1 9 10 draft bye-laws were adopted by the Education Committee. The portion relating to general employment had been drawn up by the Education Committee ; that relating to street trading was drawn up by the Watch Committee and Education Com- mittee jointly. In due course the draft bye-laws were submitted to the Council, and on 15th April, 191 1, were sent to the Home Office for provisional approval. A corres- pondence then ensued between the Home Office and the Council in which the former pointed out that the minimum age for general employment fixed in the bye-laws (viz., twelve) was one year higher than in most other to-wns which had adopted bye-laws relating to general employment. Lord Henry Bentinck, in the course of a speech on the Home Office vote in the House of Commons, drew attention to the action of the Home Office in suggesting that the standard proposed by the local authority should be lowered, and the City Council refused to accept the implied recommendation of the Home Office. But the nearness of the annual municipal elections caused a further delay on the part of the local authority in finally approving the bye-laws, and they were not passed by the Council till 6th December, 191 1. On 6th January, 191 2, they were submitted to the Home Office. Some efforts had been made by the police during 1910-11 to repress the illegal street trading of children under eleven and of children aged eleven to fourteen after 9 p.m. But the illegal employment of children after 9 p.m., particularly as errand boys for shops and as lather-boys, continued absolutely unchecked. Such employ- ment attracted the attention of the Advisory Committee for Juvenile Employment, which had been established in 19 10 in connection with the local Labour Exchange by the Board of Trade, acting in conjunction with the Education Committee. The Juvenile Advisory Committee collected several cases of illegal employment, and the Chairman ^\TOte to the Town Clerk, pointing out that nothing was beincj done to enforce the law. It appeared that for 17 years the City Council had employed a Shops Inspector (acting under the Watch Committee) who had no other duties except to inspect shops for the purpose of enforcing the Shop Hours Act. This inspector had, however, never received instructions with regard to the 9 o'clock rule under the Employment of Children Act, and had never attempted to enforce it. As the result of the action of the Juvenile Advisory Committee the Shop Hours Act Inspector was instructed to take steps to enforce the 9 o'clock rule. In the course of two or three weeks scores of employers were warned by him on account of infringements of the rule. Early in March, 1912, he discovered a case of employment of a lather-boy after 9 p.m. by a barber who had been warned in the previous week. On i8th ^larch this employer was prosecuted by a Police Superintendent. The case was the first which had ever been taken under the Employment of Children Act in Leeds. Fortunately the magistrate on the Bench happened to be the late Chairman of the School Board. The employer was fined IDS., including costs. The case was well reported in the press, and undoubtedly had an effect in checking illegal employment. But unfortunately, owing to the illness and subsequent death of the Shop Hours Inspector, the effective inspection of shops with a view to the enforcement of the law was not continued. IMeanwhile the Home Office had required, in accordance with the Order of November, 1903, that the draft bye-laws should be placarded throughout the town, and that copies of them should be served on all persons who might be affected by them. Further corres- pondence ensued between the Home Office and the Council on this subject, and it was not until hundreds of copies of the draft bye-laws had been handed by school attendance officers to boys in the street that the Home Office were satisfied that the principle of individual liberty had been sufficiently safeguarded. Naturally these measures had succeeded in stimulating some of the latent opposition to the bye-laws to appeal to the Home Secretary against certain clauses. But the Home Office refrained from ordering that the wearisome procedure of an inquiry, such as had taken place in London in 1905 and 1910 and at Halifax only a few months previously, should be undergone once more. The bye-laws received the confirmation of the Home Secretary on loth June, 19 12, just ten years after the inquiry of the Leeds School Board, and two years after the inquiry of the Education Committee. 253 It was decided that the bye-laws should be administered by the Education Com- mittee, the cost being equally divided between the estimates of that Committee and of the Watch Committee. The arrangements for enforcing the bye-laws were not com- pleted for some weeks, and the actual work of the inspectors and other officials in this direction commenced on ist September, 191 2. Since the bye-laws have been enforced there have been a number of objections by traders to the complete prohibition of Sunday employment. The Education Com- mittee was persuaded to recommend that the bye-laws should be amended so as to allow a limited amount of Sunday employment, but the proposal was rejected by the Council.* 2) Administration of General Employment Provisions of the Bye-laws. The administration of the bye-laws in so far as they relate to general employment is wholly in the hands of the School Attendance Department, and is directed by the Superintendent of the School Attendance Officers, uncler the general instructions of the Director of Education. Two school attendance officers have been set apart to devote their whole time to the work of inspection under both parts of the Act and bye-laws. In addition, four other attendance officers devote not less than about five hours a week to the enforcement of the Act. A complete card index of all employers of child labour outside the Factory and Workshop Act is being gradually compiled. Every visit is recorded in this card index, and notes are also made of the number of children employed, infringements discovered, etc. Between ist September and 31st December, 1912, 366 infringements of the bye-lav.'s were detected. The class of employers offending, and the nature of the offences, is shown in the following table : — Employers Offending Against THE General Employment Bye-laws. Hairdressers . . no Dairymen 60 Butchers .. 58 Grocers 45 Greengrocers . . 27 Newsagents . . 19 General 47 366 Nature of Offences. Children under 12 . . 91 Illegal hours on week- days . . . . 215 Employed on Sunday . . 44 Employed over 9I hours in one day . . . . 16 366 One firm of carriers has been cautioned for employing children in moving heavy packages. It is reported that " in nearly all cases the employers, as soon as attention was drawn to the regulations, complied with the requirements of the bye-laws." The practice has been adopted of asking employers who have offended against the bye-laws, after being warned, to meet the School Attendance Sub-committee. Two employers were prosecuted. One was fined 40s. and costs, and was also ordered to pay costs in connection with two other summonses. The other was fined los. and costs. During the present year the system of inspection has been maintained at the same level. In one of the cases, which was taken before the magistrates, a decision was given which would liave a serious effect upon the administration of the bye-laws if it were followed in all similar cases. A milk-seller, who was being prosecuted for employing a boy after 8.15 a.m. in the morning, pleaded that he had given the boy time to finish his delivery before 8.15 a.m., and that the boy had not finished at the proper time owing to his own fault. The magistrate accepted this defence. If a similar decision is given in future it is intended to ask the magistrate to state a case for an appeal. It may be noted that the Leeds bye-laws do not contain any provision dealing with the sale of intoxicants by children. It has been found that there are a considerable number of boys employed in grocer's shops which possess an off-licence and sell beer in open vessels. While carrying on their inspection of barber's shops the school attendance officers have discovered cases of boys aged over fourleen who, after being employed for a full working-day in factories, are engaged in the evening as lather-boys. This practice is forbidden by the Shops Act, Section 2 (a). The information relating to these cases has been passed on to the Weights and Measures Inspectors, who, in Leeds, are now also the inspectors under the Shops Act. * Since the above was written an attempt has been made in the City Council (October, 1913) to secure an extension of the limit up to which boys may be employed in delivering milk in the morning from 8.15 to 8.30, and to allow the employment of children in delivering milk on Sundays between 9 and 10.30 a.m. The question has been referred by the Council to the Education Committee. 254 (3) Administration of the Street-trading Provisions of the Bye-laws. The control of street trading is also carried out entirely in the School Attendance Department, by the special school attendance officers referred to above. Applications for licences are made by the children at the Education Offices. The attendance of the parent is also required, unless there are special reasons for not insisting upon it, such as illness. In these exceptional cases a school attendance officer visits the child's home. In accordance with the provision of the bye-laws a deposit of 6d. is required. Boys employed by milk-sellers who sell milk from door to door are regarded as street traders. Some 40 of the licensed boys are engaged in this occupation. Children who are taken round by organ-grinders are also required to take out licences. The manager of one of the evening papers published in the city agreed not to give out papers for sale to unlicensed boys. Wlien it was found that unlicensed boys were selling copies of the other evening paper, an inspector was sent to watch the office where papers were given out. The practice appears to have now ceased. A record is kept of the occupations of the parents of all licensed children, and the figures relating to the licences issued during the period September — December, 191 2, have been published. It appears that only 86 out of the 776 boys and girls who obtained licences were the children of widows. (The proportion is thus nearly the same as that which was found to exist in Birmingham.) It has been noticed that although there is a large Jewish population in Leeds only one Jewish boy has been licensed for street trading. The great majority of the licensed boys who are exempt from school are engaged in regular occupations during the day, and sell papers in the evening. The number of those who are engaged solely in street trading does not exceed 20. A considerable number of licensed schoolboys who left school and obtained full-time employment during the period September-December, 19 12, gave up their licences ; 45, however, retained them. The number of licences issued is shown by the following table : — Issued Septem- ber-December, 1912. In Force, 31st December, 1912. In Force, June, 1913. School Children Exempt from School 431 345 363 289 368 318 Total 776 652 686 Only two licences have been issued to girls. If these figures are compared with those obtained during the inquiry of 19 10, it would seem that there has been a consider- able reduction in the number of child street traders — particularly in the case of girls. The offences discovered during September-December, 1912, are shown in the following table :— Trading during prohibited hours .. .. .. .. .. 91 Not wearing badge or carrying licence . . . . . . . . . . 20 Trading without having obtained licence . . . . . . . . 23 Other offences . . . . . . . . . . . . . . . . 23 157 One licence was revoked, and one employer of a licensed child was prosecuted. The office of the Juvenile Department of the Labour Exchange is situated opposite the Education Offices, and there is close co-operation between the officials of the two departments. Street traders who are exempt from school are often sent to the Juvenile Labour Exchange, in order that employment may be found for them. By arrangement with the Education Department, all school children are interviewed at the Juvenile Labour Exchange when they apply for exemption certificates. The School Attendance Department has made arrangements for finding clothing for necessitous children engaged in street trading ; but no cases have yet arisen in which it has been found necessary to take action in this direction. (4) Administration of Regulations relating to Children Employed in Public Entertainments. This is mainly in the hands of the police. WTien children are brought from other towns inquiry is generally made as to their treatment from the local authority in the area of which a licence was last issued. Children are allowed to perform at matinees. There is not at present any systematic inspection of the theatres with a view to ascertaining 255 whether the conditions of the licences are strictly observed. The School Attendance Department is notified of the licensing of theatre children. Its officers do not visit the theatre unless the child fails to attend school. List of Aulliorities. Report of the Leeds School Board on the Employment of School Children, 1902. (Substance of this reprinted in Minutes of Evidence of Departmental Committee, pp. 375-6.) Leeds Education Committee, School Attendance Sub Committee. Report on Children attending school full time and working out of school hours. Report of Leeds Education Committee for year 1911-12. Leeds Education Committee, School Attendance Sub-Committee. Report on the work of the School Attendance Section for the twelve months ended 31st December, 1912. APPENDIX. Details of Cases of Street Traders dealt with, September 1912 — April 1913. Trader 2224 — 15 years old. [Exempt from school.) Found six times infringing the conditions of his licence and was warned, together with his parent, by the Committee. In January charged with larceny by finding a lady's hand-bag containing ;^20 in gold, ana 5 five-pound notes, i gold-topped smelling bottle, I gold ring, i small hand-mirror, and 7 keys. The notes were not traced, the bag was destroyed and, together with the other articles, thrown into the beck. The keys and bag were subsequently recovered by the police. The money he distributed, £2 to his father, ;£3 to his mother, the rest went a few shillings to this trader and a few to another, and on the whole he had quite a high time. The Stipendiary sent him to a place of detention for a month. Previously he had been charged with gaming and begging. Licence cancelled. Trader 223, 13 years. [Not exempt from, school.) Twice warned for breach of conditions of his licence. In February, during the Sunday night, in company with another youth, broke into a boot shop and cleared the cash drawer of ;^8 15s. They went tripping to Bradford, gave money to relatives, bought watches and each a new suit of clothes, and when practically all the money had gone turned up at home. The trader was bound over in 40s. for twelve months, and the youth over 16 years sent to the Sessions. Licence cancelled. Trader 2254, 14 years. (Exempt from school, ex-Edgar Street Day Industrial School.) October, charged with gaming ; bound over in 40s. to be of good behaviour for twelve months, and placed under supervision. November, work found for him by Superintendent of Attendance Officers, through the Juvenile Employment Exchange, as parcels van-boy — threw it up and on the streets again. Work found again through the Juvenile Employment Bureau at los. per week, School of Art ; worked three days. On the streets again. April, charged with stealing a bicycle, and sent to a reformatory till 19 years of age. Parent admitted absolutely beyond control since leaving school. This boy has been into teens of situations, but would not stop at any of them. Trader 242, 12 years. [Not exempt from school.) November, charged, with a number of other boys, with stealing drugs from a dray. Bound over in 40s., Probation of Offenders Act. This theft undoubtedly was committed because the opportunity presented itself under the cover of darkness and fog while the boy was trading with newspapers on the boundary of the City. Licence surrendered. Parent concerned about boy getting into bad company. Mother told the Court : " He's getting into all sorts of mischief selling papers." Trader 68, 12 years. [Not exempt from school.) February, charged with stealing a live rabbit, together with another boy who had been before the Court three times previously for felony. Bound over in 40s., and placed under supervision for twelve months. Licence cancelled. 256 Traders 274 and 160, 13 and 12 years respectively. (Not exempt from school.) September, charged with gaming. Warned, and discharged under Probation of Offenders Act. Trader 2019, 14 years. {Exempt from school.) April, charged with gaming. Warned, and discharged on payment of part costs. Trader 2195, 14 years. {Exempt from school.) January, for using obscene language, pleaded guilty ; fined 2s. 6d., or three days, in the place of detention. LIVERPOOL, I.— THE REGULATION OF STREET TRADING. Origin of the Regulation of Street Trading. The evils of street trading by children are even to-day perhaps more obvious to a visitor in Liverpool than in any other English town. They ai^e the natural concomitant of the enormous mass of casual labour connected with the port.* The attention of the public authorities was drawn to the question a generation ago. In 1884 the City Council took advantage of a clause in the Municipal Corporations Act of 1882 to issue regulations prohibiting children a^ed under nine from trading in the streets at all, and children aged under thirteen from trading after 9 p.m. in the summer and 7 p.m. in the winter. These regulations were rendered invalid by the decision of the High Court in 1887 with regard to similar regulations made by the Newcastle-on-Tyne Corporation. In 1893 the Corporation made bye-laws under the Prevention of Cruelty to Children Act, 1889, thereby extending the period during which street trading by children under fourteen was prohibited to the hours between 8 p.m. and 7 a.m. But neither of these early regula tions seem to have had much practical effect. Between 1892 and 1897 there was con- siderable agitation on the subject in several quarters. In 1892 a Catholic philanthropic pssociation started a home for newsboys. In the second years of its existence 1.026 boys used the home, but the Committee found that it was impossible to combat the evil influences of the street upon these boys by means of a voluntary agencj'. In 1894 they wrote : " The more we have to do with street trading, the more baneful we find it. Would that it could be abolished in the case of children. If it cannot be abolished, would that our City Fathers could restrict it by requiring a licence." In 1895 the Committee again appealed to the Council to regulate street trading by children. In the same year they closed the home, " feeling that they were not doing one bit of good to the boys."f Subsequent attempts in Liverpool to reclaim street traders, by persuading them to submit voluntarily in homes to a discipline intended to counteract the vicious influences of their employment, appear to have come to an end after a few years. Meanwhile another philanthropic undertaking had been driven by the logic of facts to call for legislative action to deal with the problem. The spectacle of child desti- tution on the streets led a number of public-spirited persons, foremost amongst whom was Alderman Watts, to form the Police-aided Clothing Association in 1895.^ The Watch Committee agreed to allow the police to bring reports on cases of destitute children (both street traders and others) to the notice of the Committee of the Association. The homes were then visited again by a member of the Association, and clothing was provided for the children, if such a course seemed desirable on the consideration of the reports both of the police and of the voluntary worker. 10,500 cases of children improperly clothed were discovered in five years. The Association found it necessary in some cases to secure prosecutions by the Chief Constable, or by the two societies for the Prevention of Cruelty to Children, of parents who were obviously neglecting their children. But many cliildren refused to be clothed " because it would interfere with their trade " as street-sellers. It was clear that some additional measure was necessary to cope with these difficulties. The case for such a measure was strengthened by the reports of the Medical Officer of Health for Liverpool (Dr. Hope) for 1895, and of the Chief Inspector of Reformatories for 1896. Dr. Hope drew attention to the large amount of begging by ill-clothed children in the streets. The Chief Inspector of Reformatories laid stress upon the difficulties of reformatory work in Liverpool owing to the home and general influence of a large propor- tion of the boys who were sent to these institutions. • See, for instance, 1901 Committee — Evidence, Qq. 5931-2. t Cf. 1901 Committee— Evidence, Q. 7199. X Cf. 1901 Committee — Evidence, Qq. 6003 seq. In the official report of the Evidence from the Departmental Committee on the Employment of Children Act, 1910 (Q. 7962), the statement is attributed to Mr. Dunning, the Chief Constable of Liverpool, that the Police-aided Clothing Association was started in 1905. This is probably a misprint. 257 In 1897 the Liverpool Watch Committee appointed a Sub-committee to consider the question of children trading in the streets. The Sub-committee in their report recommended (i) the establishment of a system of licensing all boys under fourteen and girls under sixteen years of age engaged in street trading; (2) the provision of suitable homes by the Corporation for licensed children in cases in which this seemed desirable. The report was adopted by the Watch Committee on i8th October, 1897, and by the City Council on 27th October. The Liverpool Corporation Act, 1898. The detailed recommendations of the Watch Committee were included by the Council on 12th January, 1898, in the draft Bill which the Corporation were promoting in the ensuing session of Parliament. The Bill was considered by the House of Commons Select Committee on Police and Sanitary Regulations during the first half of 1898. On the ground that the conditions prevailing in Liverpool with regard to street trading appeared to be exceptional, the Home Office did not oppose the proposals in general. But it only accepted the principle of licensing street traders on the understanding that the Liverpool authorities in no way intended to use it to restrict the number of children trading in the streets. In order to ensure that the activity of the Liverpool authorities was con- fined to regulating and did not extend to restricting street trading (other than by the general limitation of age), the Home Office and the Select Committee insisted (i) that any regula- tions made under the Act should be subject to the approval of the Home Secretary ; {2) that the Liverpool Corporation should satisfy " a Secretary of State," before the regulations came into force, that suitable lodgings were available for as many of the licensed children as might appear necessary to him. Other noteworthy points in Section 31 of the Liverpool Corporation Act, 1898, as finally passed, were as follows. The Corporation was empowered to fix a pecuniary penalty not exceeding ten shillings for a breach or non-observance of its regulations. Any constable was empowered to take into custody without warrant any child found trading in the streets without a licence, or in contravention of the conditions of his licence, and to convey him to a " place of safety," where he might be detained until dealt with by the court. The magistrate was empowered to commit offenders against the regulations " to the custody of a fit person " or to an industrial school. The Corporation could contribute to the expenses of maintenance of a child dealt with in either of these ways, besides being empowered to provide lodgings for any licensed children. Power was given to the Corporation to appoint inspectors to see that the provisions of the regulations were carried out and for inspecting the conditions of any licensed children provided for by the Corporation. A child was defined as a boy aged under fourteen or a girl aged under sixteen. The Regulations of 1899. In the original draft regulations made by the Corporation under the Act it was provided that : — The Corporation may, if it thinks fit, make it a condition of a licence that the child shall reside in lodgings approved by the Corporation. Arrangements were made with the managers of two existing Catholic and Protestant Homes to provide lodgings for 150 children at a charge of 4d. per head per night and 2d. for breakfast. A grant of £2$ was made to each of the Homes by the Watch Com- mittee, and a further grant of £2i, to the Protestant Home in respect of structural alterations carried out to meet the requirements of the Home Secretary. It was intended that the child should be free to choose among the approved lodgings. But the Catholic members of the Council moved an amendment that a child required as a condition of his licence to reside in approved lodgings should be sent only to lodgings " under the control of a person who is of the same religious belief as the child." This was defeated by 58 votes to 25, since the majority of the Council was unwilling that the Corporation should be responsible for an inquiry into the religious belief of the children. But strong representa- tions were made to the ?Iome Secretary on the question from Catholic quarters.* In view of the Catholic opposition it was eventually decided to abandon the proposal to make residence in approved lodgings a condition of a licence. But the Corporation were still under the obligation to satisfy the Secretary of State, in accordance with their own Act, that they had made arrangements to provide a sufficient number of lodgings for street traders. Such lodgings might be occupied voluntarily by licensed street traders, or it would be within the competence of a magistrate to order licensees who had offended against the regulations to reside in them. The remaining regulations were approved • Cf. 1902 Committee— Evidence Qq. 5602, 7152. 258 by the Home Secretary in May, 1899. Eleven was fixed as the minimum age for street trading. All boys aged under fourteen and girls aged under sixteen trading in the streets were required to obtain licences. Any child of the proper age was to have the right to obtain a licence provided that he was physically and mentally fit to trade, and that the person having charge of him consented (unless such person was not a fit person to have charge of him) ; 9 o'clock was fixed as the latest hour at which any licensed trader should be in the street for the purpose of trading. From ist October to 31st March no girl and no boy who was not exempt from school were to trade after 7 p.m. Every licensed child trading in the streets was to be " decently and sufficiently clothed," and all licensed traders were forbidden to sell in public-houses. Badges were to be worn by licensees, and a deposit of 6d. was to be charged for the badge. Children not exempt from school were to produce attendance certificates quarterly. Licences were to be renewed annuallj-. Enforcement of the 1899 Regulations. The general control of the new system of regulating street trading was placed in the hands of a Sub-committee of the Watch Committee, which met fortnightly to interview applicants for licences. The question of the appointment of special inspectors outside the police force (in accordance with Sub-section 9 of Section 31 of the Act) was consiaered, liut it was decided to leave the management of the licensing mainly in the hands of a police sergeant, with two assistants who devoted their whole time to the work. The procedure in issuing licences was as follows : The application was taken on a form* by one of the special officers ; reference was then made to the officials of the School Board in order to verify the statement of his age, which the child had given ; the home of the child was also visited in order to ascertain v/hether the parent consented to the child receiving a licence to trade in the streets. If all the facts ascertained by these inquiries were in order, the applicant was summoned to the fortnightly meeting of the Street Trading Sub-committee (on a Saturday morning) to receive his licence. The badges, which were required to be worn, took the form of belts. A distinction was made, in the form of the badges, between school children and children exempt from school. In addition, an effort was made to induce children who were over the maximum age for licensing, prescribed in the Act, to submit voluntarily to a system of licensing. The enforcement of the regu- lations in the streets was placed mainly in the hands of the ordinary police constables, bi't the special officers also patrolled the streets from time to time to deal with this side of the work. The School Board provided a quarterly statement of the school attendance of licence-holders. The ordinary steps taken to deal with offenders against the regulations in the first years after their adoption were as follows. Children found trading without licences were arrested and taken to the Shelter of the National So iety for the Prevention of Cruelty to Children. On the following morning they were brought before the magistrate and as a general rule were remanded for seven days to enable inquiries to be made. Children aged under eleven spent these seven days in the Shelter of the National Society for the Prevention of Cruelty to Children, while children aged over eleven were housed in the workhouse. During the first eighteen months in which the regulations were in operation, out of 265 children arrested for trading without licences, 38 were committed to industrial schools and 227 were discharged (in most cases after having been remanded). Thus most of the 227 children who had been discharged had, in effect, been punished by a few days' detention. In some cases they were already under committal to day industrial schools, and in other cases their parents were proceeded against for neglect (in allowing them to trade in the streets) under the Prevention of Cruelty to Children Act, 1894. Licensed children who offended against the bye-laws were not generally arrested, but were brought before the Street Trading Sub-committee of the Watch Committee. In the great majority of cases they were merely cautioned by this Sub-committee. In about ten per cent, of the reported cases the licences were revoked, and in about 20 per cent. of the cases they were temporarily suspended. Effect of the Regulations. There seems to be very little doubt that the introduction of the regulations had a beneficial effect upon the lives of the child street traders of Liverpool in many ways. Considerable numbers of children aged under eleven were prevented from trading in the streets. It was stated that the system adopted in licensing children also prevented a number of children aged over eleven, who might have traded, from doing so, since the parents in many cases did not want to have inquiries made at their houses by the police. f The system of co-operation with the School Board further had the effect of improving the school attendance both of the licensed street traders themselves, and also of the class * See Apprendix I., p. 263. t 1901 Committee— Evidence, Qq. 5892, 7088. 259 of children imder eleven who had been previously in the habit of absenting themselves from school in order to sell or beg on the streets. Difficulties of Administration. But several weaknesses appeared in the system of regulation, having their root mainly in the limitations of the powers conferred on the Corporation by the Act of 1898. In spite of all the efforts of the police a considerable amount of illegal street trading by unlicensed children continued. Some difficulty arose from uncertainty as to the inter- pretation of the definition of " street trading." The Town Clerk held that it covered the emplo^^ment of children who hawked goods (such as firewood) from door to door. But the stipendiary magistrate appeared to take the other view — at any rate he dismissed three cases which were brought before him in connection with the employment of children in this way. Another difficulty related to the age limits which had been fixed by the Act. It soon became clear that it was as necessary to have some method of control over boy street traders aged over fourteen as over those aged under fourteen. The system of " voluntary licences " had, as might be expected, not met with much success. Mr. Chilton Thomas, the honorary manager of the Catholic Homes with which the Corporation liad made arrangements for the reception of boys, told the Inter-departmental Committee in 1901 that the only satisfactory system would be one under which all persons, adults or juveniles, trading in the streets had to have a licence of some description analogous to the hawker's licence. He recommended that the maximum age for the children's street trading licence should be the same as the minimum age for the ordinary street hawking licence, viz., seventeen. With regard to girls trading in the streets it became clear that it was necessary to depart from the principle that every new applicant of the proper age should have a right to a licence, and to confer upon the Sub-committee a full discretionary power in the licensing of girls. Many persons who had had considerable experience in the matter thought that all street trading by girls should be abolished. But thei'e was one difficulty connected with the control of either boys or girls aged over fourteen. If they offended seriously against the regulations the only satisfactory method by which the magistrate could deal with them was to commit them to an industrial school. But the industrial schools did not then receive any children aged over fourteen, and it was considered doubtful whether it would be desirable to allow the rough street trader of fifteen to share the company of younger children. Further, the whole cost of children in industrial schools had to be borne by the School Board, since there was no Government grant to industrial schools in respect of children admitted under the Liverpool Corporation Act, 1898. The School Board was therefore inclined to show some reluctance with regard to the admission of even younger children to industrial schools.* Since the regulation of street trading Liverpool had arisen in 1898, more from the desire to provide for the children engaged in it than from any clear conception of the necessity of restricting it, it is only natural to find that the problems connected with the proper housing and clothing of the street traders still assumed a prominent place in the minds of Liverpool administrators in 1901. Mr. Chilton Thomas and other witnesses before the Inter-departmental Committee gave evidence with regard to the street traders and other juveniles residing in the common lodging-houses of the city.f The arrangements of the Corporation with the Homes conducted by Wesleyan and Catholic organisations had proved a failure. The licensed street traders would not voluntarily submit to the discipline of these institutions, and it had been thought more desirable to send children who had been actually sentenced for an offence by the magistrate to industrial schools rather than the Homes. Thus, only twelve licensed children used the Homes up to March, 1 90 1. The Corporation authorities therefore decided to renew their attempt to secure power to compel licensed children to reside in approved institutions, when such a course seemed desirable. An agreement was arrived at with the Catholics on the question of the determination of the religious belief of the children, in accordance with which, in the event of any dispute, the religious belief was to be determined by the stipendiary magis- trate. The Police-aided Clothing Association had found itself unable, by means of charitable gifts of clothing, to deal with the problem of properly clothing the street-trading children, who in very many cases deliberately appeared ragged. Alderman Watts therefore provided £i,o to enable the Street Trading Sub-committee of the Watch Committee to experiment in dealing directly with the problem. Up to March, 1901 , 54 boys were supplied with uniforms for which they were required to repay the cost by instalments. But the Sub-committee did not meet with a great deal of success in securing repayment. * Cf. Memorandum by Mr. Chilton Thomas, 1902 Committee — Evidence, p. 433. t 1902 Committee— Evidence, Qq. 5811, 6829, 7196. 26o On loth December, 1900, the Watch Committee desired the Street Trading Sub- committee to report on the results of their work, and make any suggestions with regard to its improvement. The Sub-committee, on 22nd March, 1901, recommended that the powers of the Corporation should be increased so as to enable it to take the following steps : — (i) To require street traders to reside in approved lodgings as a condition of licence ; (2) To provide clothing for licensed children ; to endeavour to recover the cost of the same from the children ; to require that such clothing should be worn b}^ the children when actually engaged in trading, and kept in proper condition ; and (with a view to the more effective supervision of the clothing) to require that badges should be delivered up each night at a police station, when such a course seemed desirable. (3) To license boys up to sixteen. {4) To exercise completely its discretion as to the licensing of girls. The Liverpool Corporation Act, 1902. In this Act (Section 50) all the proposed additional powers were secured, with the exception of the discretionary powers with regard to the licensing of girls. The other chief points, in which the provisions of Section 31 of the Act of 1898 were altered, were as follows: — (i) The Corporation were not themselves empowered to provide lodgings, as distinguished from contributing towards the support of children in approved lodgings ; (2) it was specifically mentioned that the conditions which the Corporation might prescribe for the granting of licences might include conditions as to the age and sex of children to whom licences might be granted ; but the Home Office, following the precedent adopted in the Halifax, Manchester and ether Local Acts passed since 1898, required the insertion of a proviso that regulations should " not impose any restriction on the grant of licences on the grounds of poverty or the previous bad character either of the child or of its parents and guardians " ; (3) the magistrate was given power (which he had not previously pos- sessed*) to fine both licensed and unlicensed children offending against the regulations. The Regulations of 1902. Regulations were made by the Corporation under the new Act in December, 1902, and were confirmed by the Home Secretary in the following month. Most of the altera- tions from the old regulations, which they contained, corresponded to the differences between the Acts of 1898 and 1902. Other changes were (i) an alteration of the hour up to v/hich licensed children might trade in winter from 7 to 8 p.m., and (2) a new provision that " no licensed child shall while trading be assisted by any unlicensed child." Later Problems of Administration. The methods of carrying out the street-trading regulations have not altered greatly since 1899. In 1905 the police officers specially devoted to children's work were two sub-inspectors, two sergeants and six constables. These officers were engaged in work connected with reformatory and industrial schools, including the collection of contributions from parents, special inquiries with regard to children, the control of street-trading children and the collection of contributions towards the cost of clothing them. Altogether some 270 visits were paid to the homes of children each week in connection with street-trading work. The practice of frequently arresting children found trading without a licence was abandoned after 1904. As a general rule such children are simply summoned to appear before the Street Trading Sub-committee, and cautioned. In a few cases in each year the parents of children trading without a licence have been summoned under the Prevention of Cruelty to Children Act, 1894. The number of cases in which this last method of pro- cedure is adopted might be larger, if it were not for the fact that it is very difficult to prove that the parents have actually consented to the children engaging in street trading. Licensed children who offend against the regulations are dealt with solely by being brought before the Street Trading Sub-committee and being cautioned, or having their licences either suspended or revoked. The Corporation have made very little use of the power obtained in 1902 to require licensed street traders to reside in suitable lodgings. Canon Pinnington stated, in his evidence before the Departmental Committee in 1910, that the Sub-section of the Act of 1902 with regard to the provision of lodgings was a dead letter. On the other hand, * Cf. 1902 Committee — Kvidence, Q. 7117. The Corporation could, apparently, have conferred his"power on the magistrate by its regulations under the 1898 Act, but did not do so. 26l considerable use has been made of the power to provide clothing, as is shown by the table below (p. 264). Ever since the Watch Committee commenced its activities in this direction, the Police-aided Clothing Association has confined its activities to dealing with ill-clothed children other than street traders. The Watch Committee has been able on the whole to overcome the difficulties connected with securing the repayment of the cost of the clothing provided. The power to require the badge to be delivered up each night (originally proposed with the object of securing a closer supervision of the children provided with clothing) is not actually made use of. The Committee continues to insist strongly upon regular school attendance on the part of licensed street traders. The average attendance of these children in 191 1 was 93 per cent. As early as 1901 witnesses before the Inter-departmental Committee had spoken of the bad physical effects of the irregiilar life of the street traders.* The physical deterio- ration of some of the Liverpool street traders was also brought to the notice of the Depart- mental Committee on the Employment of Children Act in igog-f But no steps have as yet been taken to institute any special medical inspection of children engaged in street trading. The Exclusion of Girls from Street Trading, 191 1. The Home Office has prevented the Liverpool Corporation from obtaining discre- tionary powers in regard to the licensing of girls in 1902. But experience made it more and more obvious that no system of licensing could counteract the disadvantages of street trading by girls. In December, 191 1, the City Council therefore passed a resolution that no further licences should be granted to girls. General Survey of the Development and Results of Regulation. The origin and development of the regulations of street trading by children in Liverpool is typical of many English social experiments. State action was called in not as the result of any predisposition to make use of it for the purpose of dealing with a social problem, but because philanthropists who endeavoured to meet the elementary physical needs of the child street traders found themselves entirely unable to produce any appreciable results on the main issues of the problem. WTien other English towns, in imitation of Liverpool, began to takes measures to deal with street trading by means of a system of licensing, the idea of provision for the street traders, as distinct from the regulation of their employment, sank in most cases into the background. But in Liverpool the charitable and philanthropic origin of the scheme of regulation effected its development remarkably in two ways. In the first place, as has been shown above, the discussions during the early years in which the regulations were in force centred mainly round the ways and means of providing housing and clothing for the street traders. Secondly, the tendency in Liverpool towards a definite policy of restricting the numbers of juvenile street traders by raising the age limit has been relatively weak, t Liverpool is now behind several towns in the age limit for street trading by boys, although it fortunately decided a year ago to stop all street trading by girls under sixteen. The latter step might have been taken earlier if it had not been for the academic objections of the Home Office to allowing local authorities to possess discretionary powers in regard to the issue of licences under any circumstances. It is clear that in spite of all the efforts of the Watch Committee there is still a considerable amount of trading by unlicensed children in Liverpool. One witness before the Departmental Committee in 1909 discovered a number of cases by discreet inquiries in a few Catholic schools.** Another found eight boys under sixteen without badges at a single visit to a newspaper distributing office. *■]■ It is noticeable that the number of licensed street traders is considerably smaller in Liverpool than in ^Manchester or Birming- ham, although it seems likely that the amount of street trading is probably greater than in either of the latter towns. Begging by children is still not uncommon in the streets of Liverpool, often under a guise of trading.* J It cannot be denied that the pressure of the circumstances which go to produce, or at least intensify, street trading is stronger in Liverpool than in perhaps any other English city. * 1902 Committee— Qq. 5797, 6055. t 1910 Committee— Qq. 7576, 7694. i Though some of the pliilanthropists themselves strongly advocated restriction nearly twenty years ago. ** 1910 Committee — Q. 7663. The Chief Constable alluded to this statement in his report for 1909 (p. 37). He stated that he did not think that there was " any great amount of unlicensed trading." But 110 evidence was brought forward to show that the statements of the two witnesses here referred to did not convey a correct representation of the facts. *t 1910 Committee— Q. 7755. *j C/. letter on "Child Begging" by the Chairman of the Children's Institutions Committee of the Liverpool Council of Voluntary Aid, in the Liverpool Post and Mercury," 19th June, 1911. 262 II. THE REGULATION OF GENERAL EMPLOYMENT. In 1900, Mr. Thomas Burke, formerly a teacher and a member of the City Council, drew attention to the large extent and bad effects of the employment of school children in Liverpool, both in street trading and in other employments. An inquiry was made into the question by the School Board in all the Board Schools of the city. It appeared that of the 32,762 children on the rolls, 2,312 were ascertained to be engaged in wage-earning employment ; 1,726 of these were engaged in errands, and 174 in connection with shops in other ways ; 470 of the whole number were employed for over 30 hours a week. The weekly earnings of all these children, including the value of meals, amounted to about ;£200. A partial inquiry in some of the voluntary schools showed similar results. Evidence was given on this subject before the Inter-Departmental Committee in 1901. After the passing of the Employment of Children Act the Medical Officer of Health drew the attention of his Committee to its provisions. In 1906 the shop hours inspectors began to enforce the statutory provisions of the Act. The Council did not adopt bye-laws until June, 1908, the confirmation of the Home Secretary being received three months later. The administration of these bye-laws was placed wholly in the hands of the Health Department. It is supervised by the Chief Sanitary Inspector, and carried out in close conjunction with the administration of the Shops Acts. Up to 191 2 three inspectors divided their time about equally between the inspection of workshops and the inspection of shops. In addition, about four times a year six sanitary inspectors engaged in other work were called in to assist in special visits at night in connection with the Employment of Children Act. In 1912, tliree additional inspectors were appointed to work wholly under the Shops and Employment of Children Acts. When visits are made to shops by these inspectors, the enforcement of both the Shops and the Employment of Children Acts is dealt with. A record is kept of each visit in specially printed notebooks. Copies of the bye-laws have been supplied more than once to all the occupiers of shops in the city. The table given in Appendix V. shows the work done by the Sanitary Department in enforcing the Employment of Children Act since 1906. The school doctors, when examining the older children, make a practice of questioning them as to whether they are employed out of school hours. In 1910 it was found that 943, or 21.7 per cent, of the boys due to leave school were employed out of school hours ; 408, or 9.4 per cent., were working during hours prohibited by the bye- laws ; 9 girls were alf found to be illegally employed. Three hundred and seventy- four of these 417 cases of illegal employment were referred to the Sanitary Department for investigation. In 64 cases, cautions were issued ; and in 46 prosecutions were under- taken, being over one-third of all the prosecutions of the year for offences under the Employment of Children Act. In 1911, 1,015 boys (22.6 per cent, of the "leavers" examined) were found to be employed, 419 (or 9.3 per cent.) of them illegally; 22 girls were also found to be employed illegally. These discoveries resulted in 76 cautions and 28 prosecutions. In giving evidence before the Departmental Committee on the Employment of Children Act in 1909, Dr. E. \V. Hope, the Medical Officer of Health for Liverpool, made several suggestions as to alterations in the Act, which the experience of the inspectors in Liverpool had shown to be desirable. The chief of these were ( i ) power to compel shop- keepers to exhibit a notice showing the hours during which children might be employed in accordance with the bye-laws ; (2) power to interrogate employers and children as to the hours of employment of the latter (analogous to the powers of interrogation possessed by factory inspectors) ; (3) increased power with regard to the complete prohibition of employment in the case of children found to be unfit by the school doctors ; (4) power to compel employers to keep a register of children employed, and to send a copy to the Health Department (just as employers of out-workers forward lists of their emploj'^ees in ac- cordance with the Factory Act). III. REGULATION OF EMPLOYMENT IN PUBLIC ENTERTAINilENTS. This duty is wholly in the hands of the police. It is not carried out by the Depart- ment which deals with street trading, but by the ordinary district superintendents of the police. There does not appear to be any special inspection of the theatres with a view to controlling the employment of children. In 1 90 1 the clerk to the Liverpool School Board made the following statement to the Inter-Departmental Committee; "We did make a sort of concordat with the theatre people that they should not keep their children out after nine o'clock, but I am afraid the concordat has rather dropped into abeyance."* * 1901 Committee— Q. 6623. 263 APPENDIX I. CITY OF LIVERPOOL. Children Trading in Streets. Application for Licence. Central Police Office 191... applies for a Licence for Street Trading states that is years of age, and attends School, that parent are is residing at is ft in. in height , has hair eyes, and looks than stated age clothing is in condition. (Name) (Rank) Submitted to the Director of Education. FRANCIS CALDWELL, Head Constable. Date Per The Head Constable would be obliged if the Director of Education would kindly furnish him with the information indicated below with reference to this child : — Name Age School Exempt, or non-exempt, from School attendance Father's Name Father's Address Remarks Date Director of Education. Report of P.C Child's Name ,, Home Address Apparent Age Character Clothing Father's Name Address Character ,, Occupation Average Earnings Mother's Name Address Character Occupation Average Earnings Home, number and ages of family resident. Earnings of ditto Home, condition of Remarks Clothing, state of family as regards P.C P.S Submitted, Date Superintendent. Name of Child. No. OF Belt 264 APPENDIX II. STATISTICS OF NUMBERS OF LICENSED CHILDREN; BREACHES OF REGULATIONS BY THEM, Etc. Total Applica- ? How Dealt With. Year. tions Dealt With. Xumber Granted Total holding Licences, 31st Dec. 111 Licence Tem- porary Caution- School oiC? c %»t Re- Suspen- ed, Chil- dren. Exempt .0 t, s Poo rt ^ voked. sion, etc. etc. June ,1899 800 165 192 773 413 647 61 126 460 Dec. , 1900 1901 314 21 68 267 466 473 29 144 300 1902 346 30 94 282 381 331 36 90 205 1903 721 179 376 514 669 450 16 178 256 Boys. Girls. 1904 591 144 150 585 617 115 388 32 118 238 1905 378 104 124 358 589 121 408 13 121 270 1906 36 s 93 104 354 553 no 385 18 96 271 1907 330 67 75 322 540 93 301 12 97 252 1908 351 88 96 343 ^65 103 389 18 127 244 1909 317 107 95 329 534 83 398 31 131 236 1910 303 108 98 313 523 74 403 43 143 217 1911 330 n 74 333 532 68 345 23 lOI 221 1912 279 48 68 259 505 1 32 303 17 "3 173 APPENDIX III. PROCEEDINGS AGAINST UNLICENSED CHILDREN. 1 ^ Proc«edia -c allowing Unlicensed Children to No. Arrested • tUlm Trade. and brought before fi OJ Year. tioned. moned. ^3-S c ■c! a s-s Magistrates. i1^ f^ P3 5 ^^ Sum- moned. Fined. Bound Over. Dis- missed. 1901 106 16 — — — — — — — 1902 98 — — 19 — — — — — — — — 1903 88 — — 9 — — — — — — — — 1904 65 No. found trading. 18 1905 190 159 19 3 — I 13 12 18 II 2 5 1906 l6x 127 21 7 — 6 8 13 7 2 2 3 1907 253 201 16 3 — 7 6 36 6 4 I I 1908 262 187 35 13 — 11 11 40 5 1 4 1909 161 io5 32 — 1 5 25 23 9 I 8 1910 218 165 33 I I 2 29 20 3 I 2 1911 157 "3 31 4 — 2 25 13 9 I 8 1912 235 165 35 3 ~ ~ 32 35 4 3 I APPENDIX IV. LICENSED CHILDREN SUPPLIED WITH CLOTHING BY WATCH COM^HTTEE. Number Supplied Repaid by Year. with Clothing. Cost of Clothing. Parent or Children. i s. d. i s. d. 1903 44 15 9 4 18 II 1904 168 47 6 18 15 3 1905 269 76 6 59 12 6 1906 301 90 5 6 72 III 1907 273 72 8 67 13 3 1908 291 81 4 6 62 10 9 1909 288 79 5 6 62 18 1910 290 72 I 73 16 3 1911 312 75 16 73 18 3 1912 324 80 2 73 8 3 26s W o t— t o >< CQ H O w Pi o £ ^ '^ «^ WW O O u i-H 1 " r^ i o\ ^ N Ov 0\ ^O >-< 00 "T" CO N O On 1 '-' 1 I '-' fo N ro On rh 1 M 1 1 '-' O "^ ^< N fO 8^ ON III 1 o Cii M M N i-it~xO "^ 1 -^voo o^ 0\000 1 >-i TTrofro O o ►- '-' fO 00 t-H l-H 0\ 0\ ■^ <^ O -^oo ro N MMvoo 1 'O NO Nro N '-' O 1 ^ ■* >-< ro ro o 0\ "->0O\t^M On oOtJ- Ni-iM u-l Tj-CO ooi:; oo f» NOO i-i roooONn ro ro 10 OS ON i-H t-^ On i-o t1- ON 1 ON CO O w fo 1 ro 1 ro M N 1 ON N 00 O 0\ 1 1 1 1 1 1 1 1 1 1 "-1 ON o III 1 1 1 11 II CO NO N o III 1 1 1 II II ^ Before 7 a.m. or after 8.15 a.m. Before 12.30 p.m. or after 1.15 p.m. . . Before 5 p.m. (or after 5.30 p.m. to barbers' shops) After 8 p.m. (or 8.30 p.m. to barbers' .shops) Thursdays (to barbers' shops) . . Saturdays before 10 a.m. (to barbers' shops) Saturdays, re maximum hours (each shop usually visited four times) . . Saturdays after 9 p.m. . . Sunday — After 9 a.m. Before 3 p.m. or after 4 p.m. "3 H ri CO «-• CO •- On t^ "-" •^ 00 ■-rt ^ ►-, fot^ !^ On ON t^ t^ ^~+? d OnNO ro •-* M On On 1— 1 ro 00 "~fj ON « HH '^ ^ Tf HH 00 ro SC! r^ro :? On HH .-* HH ro N "H? iNs rOOO " ON 10 ■<:^ "-■ -+ 00 ■-rt \6 1 1 1 On 1 1 1 • • -d • • • c • a ■ji CD . C . '/I ■ W C ;n tn .2 S « z; c w S — . g •r' 3 t3 lli^ hhO-< 266 APPENDIX VI. LIST OF PRINCIPAL PUBLICATIONS DEALING WITH THE EMPLOYMENT OF CHILDREN IN LIVERPOOL. 1899. Dowdall, Chaloner. The Liverpool Bye-laws regulating Street Trading by Chil- dren. In Economic Review, October 1899. iQOO. Burke, Thomas. The Street Trading Children of Liverpool. In Contemporary Review, November 1900. 1902. Inter-departmental Committee on Employment of School Children. Evidence, Qq- 5549-7421 ; also Appendices 36-42. Dowdall, Chaloner. The Operation of the Liverpool Bye-laws Regulating Street Trading by Children. In Economic Revieiv, July 1902. 1905. City of Liverpool. Report by Sub-Committee of the Watch Committee upon Street Trading by Children, November 1905. 1909. Women and Child Wage-earners in England (Bulletin No. 80 of American Bureau of Labour, pp. 29-36). 1910. Departmental Committee on Employment of Children Act. Qq. 7530-8839. 1 899-1 91 2. Reports of the Police Establishment. 1 904-1 9 1 2. Reports of Medical Officer of Health. MANCHESTER. The Regulation of Street Trading till the Bye-laws of 1902. Both the Manchester City Council and the Manchester School Board took the question of the restriction of street trading into consideration as early as 1878. In 1882, Manchester secured the introduction of a clause into a Local Act to deal with the problem.* In 1899, the Corporation applied for powers to licence street traders, similar to those which had been granted to Liverpool in the previous year. The Home Office made no objection to the proposal, but the House of Commons Police and Sanitary Regulations Committee refused to sanction the clause on the grounds that the Liverpool scheme was experimental and that no special evidence had been brought forward as to the need for similar measures in Manchester. The Manchester School Board thereupon made the utmost possible use of its powers under the Act of 1882. In 1901, 2,358 children aged five to fifteen were found trading in the streets by its school attendance officers. In 306 cases, parents were summoned before the magistrates, in 235 cases fines of from is. to £1 IS., with costs, were imposed ; and in three cases parents were sent to prison without the option of a fine. But the School Board came to the conclusion that nothing short of a system of licensing by the police would meet the needs of the case, and requested the Watch Committee to obtain the necessary powers. These were secured in the Manchester Corporation Act of 1901, which conferred upon the Corporation power to require both boy and girl street traders up to the age of sixteen to take out licences, and also power to provide lodgings and clotliing for such children. Regulations under this Act were made by the Corporation, and approved by the Home Secretary early in 1902. The Watch Committee endeavoured unsuccessfully to obtain complete discretionary powers for the licensing of girls. Twelve was fixed as the minimum age for street trading. A deposit of 6d. was required on the issue of the licences, which were made renewable annually. Eight p.m. in the summer and 9 p.m. in the winter were made the latest hours for street trading. All licence holders were required to be decently and sufficiently clothed. The Administration of the Bye-laws. Six special police officers are set aside in Manchester for work in connection with children. Their time is mainly devoted to this work, though their department also has some other minor duties, such as the control of licences for explosives. The inspector in charge of the department controls the issue of street-trading licences and badges. Parents are required to attend when their children apply for a licence. A temporary permit is issued as soon as the application is made. Meanwhile, the particulars given by the parent are entered on a form and taken to the Education Office for verification. If the family is not well known, a school attendance officer visits the home. When the form is returned from the Education Department, the child is summoned to obtain the licence on the following Saturday morning. The actual enforcement of the regulations is partly undertaken by the special officers referred to above and partly by the ordinary constables on duty in the streets. Each quarter a return is made by the Education Department with regard to the school attendance of all licensed street traders. When the licensed school children leave school every effort is made to induce them to take up regular work. Boys are now frequently * Cf. supra, p. 17. 267 referred to the Juvenile Department of the Labour Exchange. The great majority of licensed children who are exempt from school are in regular work. The 20 or 30 who are engaged exclusively in street trading are largely physically defective. The Corporation has not made use of its power to contribute to the clothing of children out of the rates, since the work is undertaken by the Police-aided Clothing Association. The number of street traders clothed by this Association is diminishing. In 191 1, 41 children were recom- mended to it, of whom 35 were clothed. These cases are visited by a volunteer working in connection with the Association. The total number of licences issued remains fairly constant from year to year, approximating to the figure 1,200 or 1,300. The following table shows the particulars with regard to the licences issued in the years 191 1 and 1912 : — Total No. of Applications. No. Refused on account „ / , of Age. etc. Granted. No. holding Licences, 30th Sept. I9II Not exempt from School Exempt Total . . 1786 63 1723 603 — ! 603 985 342 2389 63 2326 ^1^7 I9I2 Not exempt from School Exempt Total . . 1727 525 71 I 1656 524 983 260 2252 72 2180 1243 The Manchester Police have always avoided, as far as possible, a policy of prose- cuting offenders against the regulations. These are brought before the Sub-Committee of the Watch Committee and cautioned. It is found possible to secure effective observance of the regulations with a very small number of prosecutions. The following table shows the steps taken to enforce them in 191 1 and 1912 : — 1911. 191; 231 221 182 ID 6 148 27 153 147 378 153 372 Licensed children reported for breach of regulations . . Licensed children cautioned before Sub- Committee of Watch Committee . . Licences revoked Licences temporarily suspended LTnlicensed children found trading Unlicensed children cautioned by Watch Committee . . Parents cautioned for permitting In 191 1 one child was prosecuted for trading without a licence and discharged. One parent was prosecuted for permitting this offence and fined. Four unlicensed, children were prosecuted in 19 12 and four parents. One of the parents was fined, and the other cases were discharged. The Regulation of the Employment of Children tn Public Entertainments. As soon as the enforcement of these regulations was transferred from the Factory Inspectors to the local authorities by the Employment of Children Act, active steps were taken to carry out the work in Manchester. The system adopted is as follows : As soon as notice is received (in accordance with the statutory requirements) of intention to apply for a licence under Section 3 of the Prevention of Cruelty to Children Act, 1904, a detailed form of application* is sent to the applicant. The applicant is also informed that when the application is made the child must be brought to the court, together with the parent or guardian and the responsible manager of the theatre at which the performance will take place. When this form of application is returned inquiry is made from the local authority in the area of which the child was last licensed, if the child has been previously licensed, as to the treatment of the child. The children are taken to the children's court, when the applications for licences are made. The inspector in charge of the children's department of the police attends, together with a school attendance * See p. 263. 268 officer, who informs the parent as to the school which can be attended by the child. Licences are very rarely refused. They always contain provisions as to the latest hour at which the child may take part in a performance. Under no circumstances is the employment of children in matinees allowed. A charge of five shillings is made for the licence, which is understood to be higher than the rate fixed by magistrates in other towns. Difficulty is sometimes experienced in proving the age of children who are alleged to have been born abroad. A visit is always paid to theatres during weeks in which licensed children perform by one of the officers of the children's department. The managers of the theatres are anxious to assist the police in securing the observance of the law. Difficulty is experienced only with the direct employers of children on tour, who make use of them for various " turns " in music halls. Occasionally, the Children's Dangerous Performances Acts have been found useful, as a means of inducing the managers of theatres to modify items of programmes which involve danger to children. The following table shows the action taken in connection with the employment of children in public entertainments during the years 191 1 and 191 2 : — 1911. 1912. Number of applications for licences received . . .... . . . . 262 . . 257 Number refused . . . . . . . . i . . 2 Number granted . . . . . . . . 261 . . 255 Number of visits to premises licensed for public entertainments . . . . loio . . 903 Number of persons cautioned . . . . 2 Number of persons proceeded against . . 3 Convicted . . . . . . . . i Discharged . . . . . . . . 2 Regulation of General Employment. No action whatever has been taken to enforce the law in connection with general employment in Manchester. The failure of the Corporation to take action in this direction is in striking contrast with the efficiency of its administration of the street -trading and public entertainment regulations. The administration of the whole of the Employment of Children Act is referred to the Watch Committee by resolution of the Corporation, but the General Employment section of the Act is ignored. APPENDIX. Forms Used in Connection with the Licensing of Children for Employment in Public Entertainments in Manchester. (I) Chief Constable's Office (Detective Department), Town Hall, Manchester. 19 Dear Sir, Re I am in receipt of your letter of the and, in reply thereto, have to inform you that it will be necessary for you to attend the City Police Courts, Bloom Street, Manchester, at 10 a.m. on the The Justices of this City will require the attendance of the Manager of the Theatre, or of some responsible person on his behalf; also of the child and the parent or guardian — all of whom must be present at Court when the application is made. You will, therefore, be required to take the necessary steps to secure their attendance at Court. On arrival at the Courts, please inquire for Inspector Dorricott, who is the Officer- in-charge of the Licensing of Children for Stage Performances. Enclosed herewith is form of application for licence, which carefully and accurately complete, and return to this office as soon as possible. Yours truly. Chief Constable. N.B. — Birth Certificate to be attached to the Form of Application when completed. 269 (2) Employment of Children Act, 1903, and Prevention of Cruelty to Children Act, 1904. Application for Licence to Perfovm at a Place Licensed for Public Entertainments. To attend Court Child to be employed at Theatre from to between p.m. and p.m. nightly. Full Name of Child Address on above Date Date of and Age last Birthday (by certificate) In what manner is the Child educated ? Standard or degree of education attained ? Consent of Parent or Guardian Has the Child been previously Licensed ? If so, where ? and for what period ? Stage Name of the Child Nature of the Performance (must be stated in full, or the application for a Licence may be opposed ) Period for which the Child will be on the Stage Name and relationship of person responsible for care, etc., of Child whilst at place of Performance Name of Parent or Guardian Address Occupation By whom, and where employed ? General Remarks. Note. — Unless an Exemption Certificate has been granted for this Child it must attend School during the period for which it may be Licensed. If not so exempt, the Child cannot perform during School Hours. (Elementary Education Act, 1876.) Signature of Applicant for Licence '^Signature of the Licensee of the Theatre, Manchester. * May be signed at Court. (3)" Chief Constable's Office, Manchester. 19 Dear Sir, I have been notified that it is the intention of to apply for a Licence on the to enable the following Child to appear at a place of public entertainment in this City Would you kindly have inquiries made respecting the education of the Child the nature of their performance, and whether a Licence has been granted within your jurisdiction, and were the conditions of such carried out to your satisfaction. Yours truly. Chief Constable. * Addressed to Chief Constable of the district iu which the child was last employed. 270 NORWICH. General Sketch of Action under Child Labour Laws. The proposal for bye-laws under the Employment of Children Act in Norwich originally came from the Education Department. The draft bye-laws which were passed by the Council on 17th July, 1906, dealt vnih. both street trading and general employment. Objections were made by one of the local newspapers, and as a result of this the Home Office refused to sanction a clause prohibiting street trading by young persons aged 14-15 after 9 p.m. and before 7.30 a.m. Consequently the hours of such street traders were left entirely unregulated in the bye-laws as finally confirmed by the Home Office on 26th March, 1907. The administration of both sections of the bye-laws is in the hands of the police. There has been considerable criticism of their work in this direction recently by local social workers interested in problems of boy life. The details of their criticism are given below. There does not appear to have been any complete and systematic inquiry into the amount of wage-earning by school children in Norwich. According to a return which is recorded in the papers of the Education Department for January, 191 1, " about 300 " boys in the schools were employed as errand-boys at that time, in addition to children employed in other wage-earning occupations. Administration of General Employment Regulations. The whole administration of child labour laws in the city is in the hands of one police inspector with two assistants. These three officers are allocated to the work of local taxation, licences, weights and measures inspection, hackney carriage inspection, the closing on half-holidays (but not the internal inspection) of shops and the control of child employment. The ordinary police constables are also supposed to assist in the work. The effective inspection of premises where children are employed does not appear to be very extensive, though a few prosecutions have been made. Cases of illegal employ- ment are not infrequently forwarded to the Chief Constable by the Education Department, and some of the prosecutions have been due to this. It is common knowledge in the city that there is a great deal of employment of children outside the hours allowed by the bye-laws. In consequence of the dissatisfaction felt at the existing administration of the bye-laws, an inquiry was organised during the latter part of 191 2 by a Special Committee of the Liberal-Christian League, on which Mr. W. H. Jewson acted as Secretary. A number of volunteers went into the streets early in the morning between 6.30 and 7.30 a.m. and took down particulars from boys of school age who were found to be employed. Inquiries were also made in a single school, but the greater part of the infringements in the following table, which summarises the results of the inquiry, were directly observed : — SUMMARY OF INFRINGEMENTS OF BYE-LAWS IN THE CASES OF 34 BOYS IN NORWICH. Age. Employed before 7.30 a.m. Employed after 8 a.m. Employed on Sunday. Employed under Legal Age. Employed over 6 hrs. in one day. Total. 13 II 2 3 — I 17 12 12 — I — — 13 II 4 — 2 6 — 12 10 3 — — ^ — 6 30 2 6 9 I 48 Nature of Employment of above 34 Boys. Milk rounds Paper rounds Miscellaneous errands Selling Herrings . . IS ID I 34 271 Detailed particulars with regard to all these cases were forwarded on 19th November, 1912, to the Watch Committee. The police find some difficulty in dealing with the cases of boys employed on milk rounds owing to the fact that sometimes the milk dealer pays a man so much for working a round and leaves hini to engage and pay his o\\ti boy if he wishes to have one. When a boy sells milk to casual buyers from a large can the police consider the employment to come under the head of street trading and act accordingly. The School JNIedical Officer has during the present year for the first time questioned all children whom he has examined with regard to their employment out of school hours, and has kept a record of the hours and nature of their employment. These particulars will be published in his next annual report. A considerable number of cases of milk-boys and others have been found who were employed outside the hours legally allowed according to the bye-laws. No further action was taken with regard to these cases because there was some uncertainty in the Public Health Department as to whether the confidential character of school medical inspection does not prevent the school doctor from divulging even to the police information with regard to illegal employment obtained in the course of his inspection. (This uncertainty has now been removed by a circular of the Board of Education). A detailed study of 184 boys, aged 13, employed out of school hours, made by Dr. Allen, assistant school medical officer, showed that they were more defective physicall}^ than 659 bo^-s who were not employed. The number of prosecutions shown for Norwich above, p. 222, all relate to offences under the general employment section of the bye-laws. In November, 191 2, a case was heard in the Norwich Police Court against a milkman for employing a boy, aged II, on Sunday (i.e., infringing two sections of the bye-laws). The man had already been prosecuted and fined for an offence under the bye-laws. He was fined 2s. 6d. on promising not to offend against the bye-laws again. Administration of Street-trading Regulations. This is also in the hands of the police inspector who deals with the general employ- ment regulations. The procedure with regard to the issue of licences is as follows : \Mien a boy applies at the police office a form is filled up with particulars relating to his age, schooling, etc., and is signed by the boy himself. If the parent is not also present, the boy is given the form to take home in order that the parent may sign a declaration con- tained in it to the effect that he or she consents to the issue of a licence to the boy. Before the licence is issued the form is sent to the Education Department to be checked. No charge or deposit is made on the issue of the badge, of which the colour varies according as to whether the boy is under or over fourteen years of age. Some difficulty is found by the police in recovering the badges which have been issued, although all licences expire on 31st IMarch. Licences are not issued to boys from the special school for mentally defectives unless they bring a letter from the headmaster to the police. No licences have been issued to girls. The number of licences issued to boys in Norwich is large in view of the fact that no licences are issued to boys under thirteen. On this subject also there has been con- siderable agitation by persons interested in boy labour problems. The number of licences issued in Norwich has been unfavourably contrasted with the number issued in Leicester, which, with twee the population of Norwich, issues fewer licences. It has been pointed out that no less than considerably over 25 per cent, of the boys aged thirteen who are attending the elementary schools of the city obtain street- trading licences in the course of the year, as is shown by the following table compiled from the official local reports : — ISSUE OF STREET TRADING LICENCES IN NORWICH. Year. Licences to Boys aged 13. Licences to Young Persons 14-15 (inclusive). Total Licensed. Boys in Elemen- tary Schools aged 13. 1908 154 52 206 874 1909 230 73 303 834 1910 237 74 311 853 1911 219 59 278 — 272 It is, however, stated by the police that the number of licences issued during a year is considerably greater than the number which are actually out at any one time. In no case has there been a prosecution under the street-trading section of the bye-laws, nor have any licences been suspended. In some cases where boys have offended against the regulations their parents have been sent for by the Chief Constable and have been admonished by him personally. The School Medical Officer recently found a case of a consumptive boy attending the open-air school who engaged in street trading. His father would not consent to stop the boy from engaging in this occupation, which the School Medical Officer considered physically harmful under the circumstances. The Chief Constable stated that he had no power under the Act and bye-laws to withdraw a licence once issued, and the School Medical Officer was unable to issue a certificate under Section 3 (6) of the Act of 1903, owing to the fact that the boy was not employed but worked independently. The case seems to show a technical defect in the law. Administration of Law with regard to Children Employed in Theatres, etc. This is also wholly in the hands of the police. General Remarks. The administration of child labour laws in Norwich is not in a very satisfactory position, though it is gratifying to note that efforts are being made by persons interested in the question to improve rnatters. There would appear to be no doubt that the cause of the large number of street-trading licences is the method of their issue and especially (i) the method of obtaining parental consent, (2) the fact that no deposit is charged for the badge. Authorities. Annual Reports of the Chief Constable, 1908-1911. W. H. Jewson. Juvenile Employment in Norwich. Letter in Eastern Daily Press, 28th December, 1910. W. H. Jewson. The Handicap of the Working Class Boy. Address reported in Norwich Mercury, 2nd March, 191 2. MS. Letter from Committee of the Norwich Branch of the Liberal Christian League to the Watch Committee, dated 19th November, 191 2. WTien Boys and Girls may Work in Norwich. Simple Summary of Bye-laws, published by Norwich Branch of Liberal Christian League. NOTTINGHAM. The Adoption of Bye-laws. Nottingham framed bye-laws for regulating the hours of child street traders before 1889 ; and the Corporation took action successfully to induce Parliament to give local authorities bye-law-making powers under the Prevention of Cruelty to Children Act, 1889. In 1 90 1, the Corporation and the School Board appointed a joint committee to consider the question of wage-earning by school children. This committee resolved that street trading ought to be prohibited for boys under fourteen and girls under sixteen ; that all employment of children aged below eleven should be prohibited ; and that employ- ment out of school hours should only be allowed for children aged over eleven after a certificate had been obtained from " an educational authority." But for six years after the passing of the Employment of Children Act, 1903, nothing was done either to enforce the statutory restrictions on employment contained in the Act, or to make bye-laws. Efforts were then made by Mr. O. W. Hind and Mr. R. Swain to induce the Council to take action. An inquiry undertaken by Mr. Hind in five elementary schools showed that out of 2,921 boys no fewer than 971 were employed, 222 in street trading and 749 in other ways. An inquiry, which was made by the School Attendance Sub-committee throughout the city, showed that over 3,000 boys and girls were employed. Out of 2,475 children, whose hours of employment were definitely ascertained : 586 were employed over 20 hours a week ; 160 over 30 hours ; and 29 over 40 hours. The forms of employment were much the same as in other towns. It was, however, noticeable that 60 boys were employed in coal yards, while 61 girls were engaged in lace work. (These numbers are almost certainly too small, since the return of occupations was not completed.) One of H.M. Inspectors of Factories, giving evidence before the Home Work Committee, had stated that six was a common age for children to begin such work, and that children were often employed before morning and afternoon school, as well as before and after school hours. The School Attendance Committee found that 311 school children were engaged in street trading ; but Mr. Hind estimated, after further inquiries, that the total number of boys selling papers in the streets of Nottingham was about 1,200. i 273 Mr. Hind was able to show in his evidence before the Inter-departmental Committee that a large amount of illegal employment existed, with which the Watch Committee absolutely refused to deal. For instance, no fewer than 71 out of the 311 school children, who were found by the School Attendance Sub-committee to be engaged in street trading, were aged under eleven. Mr. Hind found 89 cases of children being employed between 9 p.m. and 6 a.m., including some street traders. He told the Inter-departmental Com- mittee in 1910 that " the hours were not observed at all in Nottingham." The Education Committee drew up bye-laws relating to both street trading and general employment. But owing to the hostility of the Watch Committee, the general employment bye-laws were dropped. In the street trading bye-laws twelve was proposed as the minimum age. When the bye-laws were sent to the Home Office for confirmation, the Home Office inquired why twelve, rather than eleven, was fixed. The Corporation were, however, induced to stand firm on this point. The bye-laws were finally sanctioned in July 19 10, and brought into operation at the beginning of the following year. The agitation for the enactment of general employment bye-laws continued. These werefinally sanctioned in December, 1912, and came into Operation in February 191 3. It is noteworthy that the bye-laws contained a clause prohibiting children from carrying weights of more than 2olb. This was adopted owing to observations of the results following on the carrying of heavy weights by children in the shape of flat-foot and hip disease. With the exception of a provision in the Rotherham bye-laws limiting the weights which may be carried by errand-boys aged under twelve to i61b, this is the first bye-law dealing with weight carrying. Administration of the Bye-laws. The police have charge of the administration of both the street -trading and general employment bye-laws. Children desiring a street-trading licence have to apply to the police sergeant having charge of the Department for a licence and badge. The issue of licences is not closely supervised by the Watch Committee, and the system of administration does not appear to be so carefully worked out as in Manchester, Birmingham, Leicester, and London. The number of licensed street traders aged under sixteen at two recent dates was as follows : — 26th Feb., 1912. 26th Feb., 1913. Exempt from school . . . . 100 . . 80 Not exempt . . . . . . . . 297 . . 289 Total 397 • • 3^9 In a considerable number of cases clothing is provided by the Nottingham Chil- dren's Clothing Association. Arrangements are now made by which the names of all street traders exempt from school attendance are supplied to the Advisory Committee for Juvenile Employ- ment. Efforts are made to see that these children take up regular work. In July 1912, a special inquiry was made by the Advisory Committee into the conditions of the exempted licensed street traders. The total number was 86. It was found that only 10 out of 53 boys who were visited were engaged solely in street trading. The remaining 43 boys had obtained other occupations, but all except eight of these engaged in street-selling after their ordinary working hours. About the middle of 1912 (before the general employment bye-laws were confirmed) the Watch Committee began tc enforce the 9 o'clock rule in connection with general employment. In the latter part of the year over a hundred prosecutions were undertaken in order to secure its observance. In a number of cases the parents of children were prosecuted for conducing to the offence, in addition to the employers, who were the actual offenders. There is reason to believe that the provisions of the Act and bye-laws, in so far as they affect home-work, are still a dead letter. Relief to the children employed in this way comes indirectly through the improvement in the economic condition of their parents, which, it is hoped, will be brought about to an increasing extent by the Trade Boards Act. The Education Committee ascertained through an inquiry made towards the end of 1913 that 1,871 boys and 1,062 girls were employed out of school hours ; of these, 1,133 were employed illegally, including 361 aged under 11. Authorities. Inter-departmental Committee on the Employment of School Children. Minutes of Evidence. 1902. Pp. 275-6. Departmental Committee on the Employment of Children Act. Minutes of Evidence. 1910. Qq. 9313-9502. Also Appendix XVII. When Boys and Girls May Work in Nottingham. Pamphlet published by Mr. O. W. Hind, Wakeyne Street Lads' Club, Sneinton, Nottingham. MS. Report of Advisory Committee for Juvenile Employment on Nottingham Street Traders exempt from School Attendance. 274 OXFORD. i) General Sketch of Steps taken under the Employment of Children Act. Bye-laws were adopted by the Corporation of Oxford under the Street Trading Section of the Act in 1907, and confirmed by the Secretary of State on loth January, 1908. The statutory age of eleven is adopted as the minimum in the bye-laws, but the statutory limitation of hours is modified to the extent of prohibiting street trading after 8 in the evening between ist October and 31st March. This year a representative depu- tation of members of the University and citizens waited on the Corporation to urge the raising of the commencing age to fourteen in the case of boys and sixteen in the case of girls. The matter is still under consideration. There are no bye-laws regulating the general employment of children. But the Education Committee exercises very strict supervision in the matter of granting labour certificates. Although there is a bye-law permitting the issue of half-time labour certificates to children between twelve and fourteen, if beneficially employed, no such certificates are granted. In the case of whole time labour certificates every child must first be examined by the School Medical Inspector, and the grant of the certificate depends on the doctor pronouncing the child to be fit for the particular employment for which a certificate is asked. A considerable amount of general child employment exists in Oxford. The following is a complete report on employment of school children made in 1 907, taken from the report of the Diocesan Social Service Committee, published in 1908 : — COMPLETE REPORT (MADE IN 1907) ON EMPLOYMENT OF SCHOOL CHILDREN IN OXFORD. No. in 1904. 9 15 32 67 102 BOYS. (Approximate numbt^r of boys at school, 2,500.) Age. No. in 1907. 8 years . . . . . . . . . . i 9 ,. 20 10 42 II 60 12 "3 13 .. S9 14 9 Total number : 1907 . . . . 334 1904 Forms of employment : — 1907 Housework . . . . . . . . . . 60 Errands . . . . . . . . . . 155 Milk carriers . . . . . . . . . . 35 Newspapers . . ..... . . . . 51 Sundry 33 70 6 299 1904 68 114 ii 48 36 Number of hours employed during the five school days : — 1907 Not exceeding 6 . . . . . . . . 99 140 65 21 9 Over 6, not exceeding 12 ,, 12, ,, ,, 18 „ 18, ,, ,, 24 . 24, „ „ 30 ,. 30, „ „ 40 ,,40 GIRLS. (Approximate number of girls at school, 2,500.) Age. No. in 1907. 8 years . . . . . . . . . . 24 9 .. 36 10 ,, . . . . . . . . . . 46 11 „ . . . . . . . . . . 62 12 „ 44 13 „ 27 14 ,. I 1904 86 102 52 33 21 No. in 1904. 3 4 II 14 16 Total number : 1907 240 1904 60 275 Forms of employment : — 1907. 1904. Minding baby and housework . . . , 79 . . . . 36 Errands .. .. .. .. .. 123 .. .. 23 Various . . . . . . . . . . 39 . . . . i Number of hours employed during the five school days : — 1907. 1904. Not exceeding 6 . . . . . . . . 144 . . . . 20 Over 6, but not exceeding 12 12 ,, ,, 18 18 ,, ,, 24 24 „ „ 30 56 . . . . 30 26 . . . . 7 13 .. .. 2 I . . . . 2 This report showed that out of some 5,000 boys and girls attending the elementary school no less than 334 boys and 240 girls were engaged in work for wages. This employ- ment begins at a very early age, and in many cases amounts to many hours of work in the day, 65 boys and 26 girls working between 12 and 18 hours a week, 21 boys and 13 girls between 18 and 24 hours, and 9 boys and i girl between 24 and 30 hours during the five school days, for it must be remembered that the report only deals with the five school days, and the same children are probably sent to work on Saturdays and perhaps also in some cases on Sunday. {2) History of the Bye-laws. A recommendation from the Education Committee to the Council that bye-laws be adopted was made in 1905, but such bye-laws were not actually made until December, 1907. The Education Committee recommended at the instance of their School Attendance Sub-committee. Preliminary inquiries were made through the head teachers of the schools, but the results were not embodied in a formal report.* The bye-laws were not sanctioned by the Home Office in the form in which they were originally submitted. The Home Office required some modification of the original draft, the provisions as to prohibited hours being considered too stringent. (3) Administration of the Bye-laws (Street Trading). This is in the hands of the police. The consent of the parent or guardian in writing is required before a licence is granted (see Appendix I.). Licences are refused for various reasons, and in every case efforts are made to discourage child and parent from adopting this form of employment for the boy. No licences are issued to girls. Owing to a steady discouragement on the part of the authorities the number of street- trading children has in three years been reduced from 23 to 10. All the 10 boys licensed are engaged in news- paper selling. Licences are withdrawn in cases of infringement of the bye-laws, theft, gambling, etc. Returns of the school attendance of licensed street traders are obtained from the Education Department. In general, the whole body of police are responsible for enforcing the bye-laws, each in his own sphere of duty. But should any systematic attempt at infringement be reported from a special district a special officer is detailed to watch that district. The Chief Constable is keenly interested in the administration of the bye-laws and warmly supports the proposal to assimilate the minimum age for street trading to that prescribed by the London bye-laws (fourteen for boys and sixteen for girls). WALLASEY. (i) General Sketch of Steps taken under the Employment of Children Act. In 1 90 1 the Chairman of the School Board for the district of Poulton-cum-Seacombe (now included in the borough of Wallasey) informed the Inter-departmental Committee on the Employment of School Children that about 21 percent, of the children attending school, aged between eight and fourteen, were engaged in errand work or street trading. But no action appears to have been taken in Wallasey under the Employment of Children Act before the appointment of the present Medical Officer of Health, Dr. Barlow, in 1908. Within a few months of his appointment Dr. Barlow, under the instructions of the Health Committee, took steps to secure the enforcement of the nine o'clock rule. In January, 191 1, Dr. Barlow reported to his Committee on the general powers of the local authority Bnder the Act and received instructions to draft bye-laws. In the following month a special Sub-committee of the Health Committee was appointed to confer with other ♦The foregoing report on the Employment of School Children, issued by the Diocesan Social Service Committee, was the result of inquiries carried out independently of the City Council. 276 departments of the Corporation on the bye-laws question. There was some discussion as to the part which the Watch Committee and Education Committee should play in the administration of the Act, but finally a Joint Sub-committee of the Health and Education Committees was appointed to proceed with the bye-laws. An inquiry made through the schools in February, 191 1, gave the following results with regard to child employment : — Boys. Girls. Total. Employment on own account (street trading) or by parents . . . . . . . . . . 201 . . 66 . . 267 Employed by persons other than parents . . 526 . . 64 . . 590 Total . . 727 130 857 The draft bye-laws were submitted to the Home Office and some alterations sug- gested by the Under-Secretary were accepted. In April, 1912, the bye-laws were published as required in the Statutory Order of 1903. Objections were made by certain classes of employers to the Home Office, and these are still* being considered by the local authority. Meanwhile, the statutory provision with regard to the nine o'clock rule continues to be enforced by the Health Committee. 2) The Administration of the General Employment Section. The inspection under the section of the Act relating to general employment is carried out by a sanitary inspector, who is also engaged in enforcing the Factory Act in men's workshops and the Shops Act in shops. The following statistics, contained in the reports of the Medical Officer of Health, show the activity of this official under the Employment of Children Act. 1910 1911 Visits paid 52 79 Contraventions . . . . . . . . 23 . . 54 Warnings . . . . . . . . . . 23 . . 54 ^ Informations . . . . . . 5 . . — Convictions . . . . . . . . . . 5 . . — Fines and costs . . . . . . . . ;^2 : 9 : 6 Up to the middle of November in 191 2 there were three prosecutions, all in con- nection with the nine o'clock rule. In one case the employer was fined ten shillings. Another employer (a butcher) was prosecuted twice but let off by the magistrates with a warning on both occasions. The prosecutions are taken by the Town Clerk's Depart- ment, not by the officials of the Public Health Department who know the facts of the case first-hand — a somewhat unusual arrangement. There seems reason to believe that the statement of the practical issues of the cases in court loses in force owing to this method of procedure. The magistrates are not very friendly, and do not display an intelligent appreciation of the objects of the law for the protection of child workers. The School Medical Officer has played no part in the administration of the Act. (3) The Administration of the Street-trading Section. As the result of representations made by the School Board for Poulton-cum- Seacombe before 1901, many children street traders in this district who had taken to sleeping out and vagrancy were dealt with by the police. This is said to have caused a diminution in the amount of street trading. No steps appear to have been taken up to the present for dealing with street trading under the Employment of Children Act beyond the preparation of the bye-laws. General Remarks. The practical steps taken in the administration of the Act appear to be due mainly to the energy of the Medical Officer of Health. Information with regard to the objections to the draft bye-laws is not at present available. Probably the stringent clause with regard to lather-boys has, as elsewhere, roused the opposition of the hairdressers. The proposal to fix fourteen as the minimum age for street trading and to abolish street trading by girls altogether, and other provisions of the draft bye-laws, show a laudable desire on the part of the authority to adopt a high standard. A uthorities. Inter-departmental Committee on the Employment of School Children, 1902. Evidence, Qq- 730S-7362. Reports of the Medical Officer of Health (contain statistics of inspection). * This report was written at the end of 1912. The bye-laws have since been confirmed. 277 7. NOTE on the Administration of the Law relating to the Employment of Children in Public Entertainments in Scotland. Since the administration of regulations affecting the employment of children in theatres, etc., is, in Scotland, in the hands of the School Boards, a few facts with regard to the procedure adopted may be of special interest to members and officials of English local education authorities. The Edinburgh School Board recently issued a/ set of forms and notices relating to the administration of the law (reprinted below). It will be noted that the Board have decided to refuse absolutely to license local children for employment in theatres. They confine the issue of licences to children who are attached to travelling companies. The Glasgow Board only issues licences to local children when they intend to follow the stage as a profession. The practice of licensing local children for pantomimes was given up some years ago. In both Edinburgh and Glasgow the licences are issued by the Clerk to the Board. It is stated that in Glasgow the child's birth certificate is always seen. In Edinburgh this precaution is also taken in all cases of doubt as to whether the child is aged over ten. The forms issued by the Edinburgh Board do not oblige applicants for licences to state where the cliildren were last employed under a licence, and it dees not appear that inquiries are made from other towns, as at Manchester, with regard to the treatment of licensed children. At Glasgow it is stated that such inquiries are not generally made. One hundred and sixteen licences were issued in Glasgow in the year 19 12- 13 ; only six of these were in respect of Glasgow children. In Edinburgh about one licence is issued a week, and a few more at Christmas. Children are said to be occasionally employed at matinees and evening performances on the same day at Edinburgh. In both cities children are required to attend school regularly, unless they are privately taught. In Glasgow, as in Edinburgh, the inspection of the theatres where children are employed is carried cut by school attendance officers. No prosecutions have been known in Edin- burgh, and in Glasgow only one is remembered. It may be noted that the provisions of the Education (Scotland) Act, 1901, forbid- ding the employment of children after 9 p.m. in summer and 7 p.m. in winter would appear to prevent the School Boards from licensing children to be employed after these hours. (This view is expressed in Graham's "Scottish Education Acts," 1902, p. 158.) But the Glasgow and Edinburgh School Boards have been advised that they have power to license school children for theatre employment outside these hours. It would seem that, since the School Boards are responsible for enforcing the observance of the law and of the conditions of the licences issued, it is anomalous that applicants for licences should be compelled in Scotland (as in England) to give previous notice to the Chiei Constable (not the School Board), and to send a copy of the licence to him. (A). EDINBURGH SCHOOL BOARD. Employment of Children in Places of Public Entertainment. The School Board desire to draw the attention of Proprietors and Lessees of Places for Public Entertainments to the terms of the Prevention of Cruelty to Children Act, 1904, dealing with the employment of children under fourteen years of age. It will be observed that under the provisions of Sections 2 and 3 of the Prevention of Cruelty to Children Act, 1904 (quoted on other side), no child under ten years of age can be employed in Places licensed for Public Entertainments ; but a child over ten years of age may, under a licence granted by School Board, be employed [or trained for employment] in such premises for such time and during such hours of the day and subject to such restrictions and conditions as the Board may think fit. Notice is hereby given that after this date the provisions of the above-mentioned Act will be strictly enforced by the School Board. Applications for licences will only be entertained with regard to children who are attached to travelling companies. Notice is also given that the Board, under the provisions of Section 3 (2) of the Prevention of Cruelty to Children Act, 1904, have appointed John Mallinson, J. P., Super intendent of the Attendance Department, and Robert M. Stewart and Alexander Yule, Attendance Officers, as their inspectors, whose duty will be to see that the terms of any licence granted by the Board are duly observed. 278 All applications for a licence must be made to me on one of the accompanying forms, and notice of the intention to make such an application must be given in wTiting to the Chief Constable of the City Police, Parliament Square, Edinburgh, at least seven days previous to the application. J. W. PECK. Clerk to the Board. School Board Offices, Castle Terrace, Edinburgh. 2<,th May, 19 12. (B). EDINBURGH SCHOOL BOARD. Employment of Children in Places of Public Entertainment. APPLICATION FOR LICENCE. Edinburgh 191 I, , ]Manager of hereby apply, in terms of Section 3 of the Prevention of Cruelty to Children Act, 1904, for a Licence to employ the undermentioned Children in from 191 to 191 inclusive, to take part in the performance of [or, to be trained for taking part in the performance of] I hereby undertake that if the Licence is granted the following conditions will be observed : — (a) That the children are certified fit for the purpose, and will be employed only so long as they remain fit. (&) That provision is made to secure the health and kind treatment of the children to the satisfaction of the School Board, (c) That the children are receiving education to the satisfaction of the School Board. Name of Child. Date of Birth. I hereby certify that I have notified the Chief Constable of the City of Edinburgh Police on 191 of my intention to apply to the School Board for a Licence for the above-mentioned children. Manager. (C). EDINBURGH SCHOOL BOARD. Licence for Employment of Children in Places of Public Entertainment. The School Board of Edinburgh, under the powers conferred on them by Section T, of the Prevention of Cruelty to Children Act, 1904, hereby license the Manager of the to employ the undernamed children to take part in the performance of from 191 to 191 inclusive. Name of Child. Date of Birth. This Licence is granted subject to the following conditions, viz. : — (a) That the children, having been certified fit for the purpose, will be employed only so long as they remain fit. i^b) That provision is made to secure the health and kind treatment of the children to the satisfaction of the School Board, (c) That the children are receiving education to the satisfaction of the School Board. Clerk to the Board. Date NOTE. — A copy of this Licence is enclosed, which should at once be sent to the Chief Constable, Parliament Square, Edinburgh. 279 8. STATEMENT showing: action taken by Local Authorities in Prohibiting for Children (under fourteen) Specified Forms of Employment. The following nine Local Authorities have prohibited street trading by children : — London. — County and City. County Boroughs. — Reading, Wallasey, West Ham. Boroughs. — East Ham, Hornsey. Urban Districts. — Leyton, Walthamstow. The following 6i Local Authorities have prohibited the sale Of alCOhoi by Chfidren in one form or another : — (i.) The Prohibition of Sale of Alcohol, under any circumstances, except in sealed vessels. London. — County and City. Counties. — Middlesex, Yorks (W. Riding). County Boroughs — Birkenhead, Bournemouth, Bristol, Chester, Croydon, Dews- bury, Halifax, Reading, Wallasey, West Ham, Worcester. Boroughs. — Cambridge, Colne, Ealing, Gillingham, Guildford, Keighley, Lowestoft , Newbury, Urban Districts. — Acton, Beckenham, Chiswick, Enfield, Gosport and Alverstoke, Hendon, Ilford, Leyton, Penge, Tottenham, Twickenham, Walthamstow, Wood Green, (ii. Prohibition of Sale of Alcohol in Licensed Premises or in registered Club. County Boroughs. — Barnsley, Barrow, Coventry, Leicester, Liverpool, North- ampton, Rotherham, Sheffield. Boroughs. — Banbury, Peterborough. (iii.) Prohibition of Sale of Alcohol on Licensed Premises only.* Counties. — Chester, Hants (certain Urban Districts), Wilts. County Boroughs. — Bolton, Brighton, Eastbourne, Norwich, Southampton. Boroughs. — Chatham, Hornsey, Hove, Margate, Reigate, Southend. The following 29 Local Authorities! have prohibited lathering by children : — London. — City and County. Counties. — Hants (certain Urban Districts) County Boroughs. — Bournemouth, Brighton, Croydon, Leicester, Northampton, Norwich, Nottingham, Reading, Rotherham, Southampton, Wallasey, West Ham. Boroughs. — Banbury, Cambridge, Darlington, Dover, Hornsey, Hove, Margate, Peterborough, Reigate, St Albans, Southend, Torquay. Urban Districts. — Erith, Gosport and Alverstoke. The following 20 Local Authorities have prohibited the selling of programmes^ by Children in places of public entertainment :— Counties. — Hants (certain districts), Yorks (W. Riding.) County Boroughs. — Bamsley, Barrow, Coventry, Dewsbury, Eastbourne, Leicester, Liverpool, Northampton, Nottingham, Rotherham, Sheffield, Southampton, Wallasey. Boroughs. — Hove, Keighley, Peterborough, Southend. • This provision slightly extends the prohibition of the presence of children (other than the publican's children) in the bar of licensed premises contained in the Children Act. t Halifax and Newcastle-on-Tyne have prohibited lathering by girls (only). t Many of the local authorities prohibit the sale of " programmes or other articles." Eastbourne prohibits the employment of children in any capacity in a place of public entertainment {i.e. without a liceace). Southend prohibitB the employment of children as waiters and errand-boys in such places. 28o The followang nine Local Authorities have prohibited the employment of children in shifting scenery in places of public entertainment : — County Boroughs. — Barrow, Coventry, Eastbourne, Leicester, Liverpool, North- ampton, Nottingham, Wallasey. Boroughs. — Peterborough. The following 13 Local Authorities have prohibited the employment of children in billiard or bagatelle marking : — County Boroughs. — Barrow, Chester, Coventry, Croydon, Hull, Leicester, Liver- pool, Northampton, Nottingham, Wallasey. Boroughs. — Cambridge, Hornsey, Peterborough. The following eight Local Authorities have prohibited the employment of children in the kitchen of any hotel, restaurant, etc. :— County Boroughs. — Barrow, Leicester, Liverpool, Northampton, Nottingham, Wallasey. Boroughs. — Cambridge, Peterborough. Hornsey and Croydon prohibit step-cleaning ; Chester, Keighley and Dewsbury, carrying or sorting refuse ; Keighley and Dewsbury, carrying or sorting rags ; Northampton and Peterborough, heaving or delivering coal or coke ; Hull, any employment in a club or place licensed for games ; Nelson, employment as messenger, etc., for a bookmaker ; and Southend, employment in solicitation for letting apartments. It is noteworthy that no Scottish or Irish Local Authority has prohibited any form of employment for children under fourteen. PART V. The Law Relating to the Employment of Children (outside Factories^ Work- shops^ and Mines) ♦ The Law Relating to the Employment of Children (outside Factories^ Workshops^ and Mines)* INTRODUCTORY NOTE. A. Restrictions on the Employment of Children. (i) Chimney Sweeping and Agricultural Gangs. The general Acts of 1840, 1864, and 1875 regulating the employment of children in the former occupation are still in force. In Scotland the licensing of chimney-sweepers is also regulated by Section 275 of the Burgh Police Act, 1892. f But these'?" Acts are of httle importance in view of the fact that the employment of children for sweeping chimnej^s has now been completely superseded by the use of mechanical appliances. The Agricultural Gangs Act became of less importance from the point of view of the employment of children when special provisions were made for the education of rural children by the Act of 1873 and subse- quent legislation. The hcensing of gang-masters and gang-mistresses still continues in the Fen districts. But the number of children employed in what are technically regarded as " public gangs " is small — probably not more than a few score.* The protection of the thousands of children engaged in agriculture really depends upon the Employment of Children Act the Education Acts and bye-,aws made under the Public Health Acts for regulating the housing conditions of seasonal fruit-pickers. (2) Public Entertainments. Children engaged in dangerous performances are specially protected by the Acts of 1879 ^^3. 1897, and by certain Sections of the Prevention of Cruelty to Children Act, 1904, and the Children Act, 1908. The employment of other children employed in public entertainments is regulated by Section 3 (a) of the Prevention of Cruelty to Children Act, 1904, which establishes a system of licensing children employed in theatres. In Scotland the provisions of this Section must be read in connection with Section 78 of the Education (Scotland) Act, 1878, as modified by Section 2 of the Education (Scotland) Act, 1901. These special Scottish Acts have the effect of limiting the period for which the children may be licensed to six week in the year. (3) Street Trading. Throughout the greater part of the country this is regulated by Sections 2 and 3 (2) of the Employment of Children Act, 1903, and Section 3 {b) of the Prevention of Cruelty to Children Act, 1904. But in several towns the provisions of special Local Acts still regulate the employment of children in street trading, the towns being Liverpool, Manchester, Hudders- field, York, Scarborough, Leamington and Edinburgh. In Swansea, Wigan and Middlesbrough the bye-laws now in force are made partly under Local Acts and partly under the Employment of Children Act. In Scotland the special provisions of the Education Acts of 1878 and 1901 alluded to above also.affect street trading. * See p. II. (4) "General Employment." This is regulated in England, Wales and Ireland solely by the Employment of Children Act, 1903,* with the exception of employment in public -houses, which is affected by the provision of the Children Act prohibiting children from entering the portions of licensed houses in which intoxicating liquor is sold. In Scotland, besides the employment of Children Act, 1903, the provisions of the Acts of 1878 and 1901 regulate all miscellaneous employment of school children B. Provisions for the Enforcement of the Restrictions. This is, generally speaking, in the hands of certain local authorities. But it should be noted that the local authorities to which the work is entrusted differ in England and Wales, Scotland and Ireland. In Scotland the problem is further comphcated by the sharing of the duties between two distinct elective authorities — the county councils or burghs on the one hand, and the School Board on the other. In England and Ireland (but not in Scotland) the licensing of theatre children is in the hands of the magistrates. The work of the various local authorities in executing child labom" legis- lation is supervised in certain respects in England and Wales by the Home Secretary, in Scotland by the Secretary for Scotland, and in Ireland by the Lord Lieutenant. The Home Secretary has issued a statutory order containing regulations as to the procedure to be adopted in making bye-laws. This order has the effect of law in England and Wales, and must be added to the provisions of the various Acts affecting child labour. * In addition, the Education Acts, and bye-laws made thereunder, of course, determine the age at which children shall leave school and be free to engage in employment during school hours. 285 1. EMPLOYMENT OF CHILDREN ACT, 1903. ARRANGEMENT OF SECTIONS. Sectio}i. 1. Power to make bye-laws for regulating the employment of children. 2. Power to make bye-laws for the regulating of street trading by person under sixteen. 3. General restrictions on employment of children. 4. General provisions as to bye-laws. 5. Offences and penalties. 6. Offences by agents or workmen and by parents. 7. Limitation of time. 8. Power of officer of local authority to enter place of employment. 9. Employment in factories. 10. Saving for industrial and other schools. 11. Incorporation and amendment of Section 3 of 57 and 58 Vict. c. 41. 12. Expenses of Act in England and Wales. 13. Definitions. 14. Application to Scotland. 15. Expenses of Act in Scotland. 16. Application to Ireland. 17. Commencement of Act. 18. Short title. An Act to make better provision for regulating the Employment of Children, i^fh August, 1903. (3 Edw. 7., ch 45.) 1. Any local authority may make bye-laws — (i.) prescribing for all children, or for boys and girls separately, and with respect to all occupations or to any specified occupation — (a) the age below which employment is illegal ; and (b) the hours between which employment is illegal ; and (c) the number of daily and weekly hours beyond which employment is illegal : (ii.) prohibiting absolutely or permitting, subject to conditions, the employ- ment of children in any specified occupation. 2. Any local authority may make bye-laws with respect to street trading by persons under the age of sixteen, and may by such bye-laws — (a) prohibit such street trading, except subject to such conditions as to age, sex, or otherwise, as may be specified in the bye-law, or subject to the holding of a licence to trade to be granted by the local authority ; (b) regulate the conditions on which such licences may be granted, suspended and revoked ; (c) determine the days and hours during which, and the places at which, such street trading may be carried on ; (d) require such street traders to wear badges ; (e) regulate generally the conduct of such street traders : Provided as follows : — (i) The grant of a licence or the right to trade shall not be made subject to any conditions having reference to the poverty or general bad character of the person applying for a licence or claiming to trade ; (2) The local authority, in making bye-laws under this Section, shall have special regard to the desirability of preventing the employment of girls under sixteen in streets or public places. 3. (i) A child shall not be employed between the hours of nine in the evening and six in the morning : Provided that any local authority may, by bye-law, vary these hours either generally or for any specified occupation. (2) A child under the age of eleven years shall not be employed in street trading. (3) No child who is employed half time under the Factory and Workshop Act, 1 901, shall be employed in any other occupation. (4) A child shall not be employed to lift, carry or move anything so heavy as to be likely to cause injury to the child. (5) A child shall not be employed in any occupation likely to be injurious to his life, limb, health or education, regard being had to his physical condition. (6) If the local authority send to the employer of any child a certificate signed by a registered medical practitioner that the lifting, carrying, or moving of any specified weight is likely to cause injury to the child, or that any specified occupation is likely to 286 be injurious to the life, limb, health or education of the child, the certificate shall be admissible as evidence in any subsequent proceedings against the employer in respect of the employment of the child. 4. (i) A bye-law made under this Act shall not have any effect until confirmed by the Secretary of State, and shall not be so confirmed until at least thirty days after the local authority have published it in such manner as the Secretary of State may by general or special order direct. (2) The Secretary of State shall, before confirming any bye-law, consider any objections to it which may be addressed to him by persons affected or likely to be afifected thereby. (3) The Secretary of State may, before confirming any bye-law, order that a local inquiry be held with respect to the bye-law or with respect to any objections thereto. The person holding any such inquiry shall receive such remuneration as the Secretary of State may determine, and that remuneration and the expenses of the local inquiry shall be paid by the local authority making the bye-law. (4) Bye-laws made under this Act may apply either to the whole of the area of the local authority, or to any specified part thereof. (5) Bye-laws made by a county council shall not be of any force or effect within any borough or urban district the council of which is constituted a local authority under this Act. (6) [Repealed.] 5. (i) If any person employs a child or other person under the age of sixteen in contravention of this Act, or of any bye-law under this Act, he shall be liable on summary conviction to a fine not exceeding forty shillings, or, in case of a second or subsequent offence, not exceeding five pounds. (2) If any parent or guardian of a child or other person under the age of sixteen has conduced to the commission of the alleged offence by wilful default, or by habitually neglecting to exercise due care, he shall be liable on summary conviction to the like fine. (3) If any person under the age of sixteen contravenes the provisions of any bvj-law as to street trading made under this Act, he shall be liable on summary conviction to a fine not exceeding twenty shillings, and in case of a second or subsequent offence, if a child, to be sent to an industrial school, and, if not a child, to a fine not exceeding five pounds. (4) In lieu of ordering a child to be sent under this Section to an industrial school, a court of summary jurisdiction may order the child to be taken out of the charge or control of the person who actually has the charge or control of the child, and to be committed to the charge and control of some fit person who is willing to undertake the same until such child reaches the age of sixteen years : And the provisions of Sections 7 and 8 of the Prevention of Cruelty to Children Act, 1894, shall, with the necessary modifications, apply to any order for the disposal of a child made under this Sub-section. 6. (i) Where the offence of taking a child into employment in contravention of this Act is in fact committed by an agent or workman of the employer, such agent or workman shall be liable to a penalty as if he were the employer. (2) Where a child is taken into employment in contravention of this Act on the production, by or with the privity of the parent, of a false or forged certificate, or on the false representation of his parent that the child is of an age at which such employment is not in contravention of this Act, that parent shall be liable to a penalty not exceeding forty shillings. (3) \Miere an employer is charged with any offence mider this Act he shall be entitled, upon information duly laid by him, to have any other person whom he charges as the actual offender brought before the court at the time appointed for hearing the charge, and if, after the commission of the offence has been proved, the court is satisfied that the employer had used due diligence to comply with the provisions of the Act, and that the other person had committed the offence in question without the employer's knowledge, consent, or connivance, the other person shall be summarily convicted of the offence, and the employer shall be exempt from any fine. {4) Wlien it is made to appear to the satisfaction of an inspector or other ofiScer charged with the enforcement of this Act, at the time of discovering the offence, that the employer had used all due diligence to enforce compliance with this Act, and also by what person the offence had been committed, and also that it had been committed with- out the knowledge, consent or connivance of the employer, and in contravention of his order, then the inspector or officer shall proceed against the person whom he believes to be the actual offender in the first instance without first proceeding against the employer. 287 • 7- With respect to summary proceedings for offences and fines under this Act, and any bye-laws made thereunder, the information shall be laid within three months after the commission of the offence. 8. If it appear to any justice of the peace, on the complaint of an officer of the local authority acting under this Act, that there is reasonable cause to believe that a child is employed in contravention of this Act in any place, whether a building or not, such justice may by order under his hand empower an officer of the local authority to enter such place at any reasonable time, within forty-eight hours from the date of the order, and examine such place and any person therein touching the employment of any child therein. Any person refusing admission to an officer authorised by an order under this section, or obstructing him in the discharge of his duty, shall for each offence be liable on summary conviction to a penalty not exceeding twenty pounds. 9. Bye-laws made under this Act shall not apply to any child above twelve employed in pursuance of the Factory and Workshop Act, 1901, or the Metalliferous Mines Regu)ation Act, 1872, or the Coal Mines Regulation Act, 1887, so far as regards that employment ; and in the application of Section 3 to children employed under those Acts, the inspectors appointed under those Acts shall be substituted for the local authority in respect of such employment. 10. Nothing in this Act or in any bye-law made thereunder shall apply to the exercise of manual labour by any child under order of detention in a certified industrial or reformatory school, or by any child while receiving instruction in manual labour in any school. 11. [Employment in public entertainments. Repealed.] 12. Any expenses incurred by a local authority in England and Wales in carrying into effect the provisions of this Act or any bye-law made thereunder shall be defrayed in the case of a county out of the county fund, and in the case of a borough out of the borough fund or borough rate, and in the case of any other urban district out of any rate or fund applicable for defraying expenses incurred in the execution of the Public Healtk Acts : Provided that a county council shall not raise any sum on account of their expenses under this Act within any borough or urban district the council of which is a local authority under this Act. ^ 13. In this Act — The expression " child " means a person under the age of fourteen years : The expression " guardian," used in reference to a child, includes any person who is liable to maintain or has the actual custody of the child : The expressions " employ " and " employment," used in reference to a child, include employment in any labour exercised by way of trade or for the purposes of gain, whether the gain be to the child or to any other person : The expression " local authority " means, in the case of the City of London, the mayor, aldermen and commons of that city in common council assembled, in the case of a municipal borough with a population according to the census of nineteen hundred and one of over ten thousand, the borough council, and in the case of any other urban district with a population according to the census of nineteen hundred and one of over twenty thousand, the district council, and elsewhere the county council : The expression " street trading " includes the hawking of newspapers, matches, flowers and other articles, playing, singing or performing for profit, shoe-blacking, and any other like occupation carried on in streets or public places. 14. In the application of this Act to Scotland — (i) The Secretary for Scotland shall be substituted for the Secretary of State : (2) " The sheriff or sheriff-substitute " shall be substituted for " a court of summary jurisdiction " : (3) Any fine or penalty under this Act shall be recoverable by imprison- ment in terms of the Summary Jurisdiction Acts : (4) The expression " local authority," in sections one and three of this Act, shall mean the school board ; and in section two of this Act shall mean, in the case of a royal, parliamentary, or police burgh having, within its boundary for police purposes, according to the census of nineteen hundred and one, a population of or exceeding seven thousand, and in the case of the burgh of Coatbridge, the town council, and elsewhere the county council, and for the purposes of section two every burgh other than those hereinbefore specified shall be held to form part of the county within which it is situated : Provided that in section eight of the Local Government (Scotland) Act, 1889, the expression " purposes hereinafter mentioned " shall be deemed to include the purposes of this Act : (5) Nothing in this Act shall affect the power of the school board to grant exemptions in certain employments as provided by sub-section three of section seven of the Education (Scotland) Act, 1878, and the expression " this Act " in the said section shall be deemed to include the Employment of Children Act, 1903 : (6) A bye-law shall not be made by a council imder this Act until the expiry of a period of one month after such bye-law as proposed to be made has been communicated to the clerk to each school board of a parish, burgh or district comprised or partly comprised within the area of such council for the purposes of this Act, and such council shall give due consideration to any observations received from any such school board within such period ; and (7) Nothing in this Act shall make it lawful for any child to be employed in contravention of section six of the Education (Scotland) Act, 1878, or section two of the Education (Scotland) Act, 1901 : (8) Section two hundred and seventy-six of the Burgh Police (Scotland) Act, 1892, is hereby repealed. 15. Any expenses incurred by a local authority in Scotland in carrying into effect the provisions of this Act or any bye-laws made thereunder shall be paid, where the local authority is a county council, out of the public health general assessment leviable within the county or a district of the county, provided that in any royal, parliamentary or police burgh having, according to the census of nineteen hundred and one, a population of less than seven thousand, a proportion of such expenses corresponding to the valuation of such burgh shall be paid to the county council out of the public health general assessment levi- able in such burgh, in compliance with a requisition to that effect to be sent to the town council of such burgh annually not later than the month of October in each year, and where the local authority is a town council, out of the public health general assessment, and shall be paid, where the local authority is a school board, out of the school rate. 16. In the application of this Act to Ireland — (i) The Lord-Lieutenant shall be substituted for the Secretary of State : (2) The expression " local authority " means, in the case of an urban district with a population according to the census of nineteen hundred and one of over live thousand, the district council, and elsewhere the county council : (3) Proceedings under this Act may be brought by or in the name of any officer of the local authority, or by an officer of a school attend- ance committee, or by a constable : (4) All expenses and costs to be incurred by a local authority in the execution of this Act shall be defrayed in the case of the council of a county borough or of a district council out of any rate or fund applic- able to the purposes of the Public Health (Ireland) Act, 1878, and in the case of a county council out of the county fund, and in such case the amount required therefor may be raised by means of the poor rate equally over so much of the county as does not comprise any urban district the council whereof is constituted a local authority under this Act. 17. This Act shall come into operation on the first day of January one thousand nine hundred and four. 18. This Act may be cited as the Employment of Children Act, 1903. 2. EMPLOYMENT OF CHILDREN ORDER. Order, dated nth November, 1903, made by the Secretary of State, under Section 4 of the Employment of Childrtn Act, 1903, directing Mode of Publication of Bye-laws. (Statutory Rules and Orders, 1903, No. 958.) In pursuance of Section 4 (i) of the Employment of Children Act, 1903, I hereby direct that the publication required by that section shall take place as follows : — I. Every bye-law .shall be advertised at least once in two newspapers circulating in the district or districts in which the bye-law is to apply. 289 2. A notice of every bye-law shall be posted up in streets and public places where it is hkely to be seen by persons affected, and in such manner that the same can be easily read. 3. In the case of any bye-law regulating or prohibiting the employment of children in a particular trade or occupation, a notice thereof shall also so far as practicable be distributed to all persons engaged in that trade or occupation ; provided that the non- receipt of a notice by any person shall not prevent the confirmation of the bye-law. 4. Every advertisement or notice as aforesaid shall state the full terms of the bye-law and shall also state that objections in writing to the bye-law may be made by any person affected to the Secretary of State and addressed to him at the Home Office, London. 3. PREVENTION OF CRUELTY TO CHILDREN ACT, 1904 (As amended by the Children Act, 1908). [Extract.] ARRANGEMENT OF SECTIONS. Section. 2. Restrictions on employment of children. 3. Licences for employment of children. 4. Power to take offenders into custody. 17. Presumption of age of child. 22. Provision as to bye-laws. 29. General definitions. 30. Application of Act to Scotland. 31. Application of Act to Ireland. 32. Expenses of local authority. An Act to amend thu Law relating to the Prevention of Cruelty to Children. 15th August, 1904. (4 Edw. 7, ch. 15.) Restrictions on Employment of Children. 2. If any person — (a) [Repealed.] (6) Causes or procures any child, being a boy under the age of fourteen years, or being a girl under the age of sixteen years, or, having the custody, charge or care of any such child, allows that child to be in any street, or in any premises licensed for the sale of any intoxicating liquor, other than premises licensed according to law for public entertainments, for the purpose of singing, playing or performing, or being exhibited for profit, or offering anything for sale, between nine p.m. and six a.m. ; or (c) Causes or procures any child under the age of eleven years, or, having the custody, charge or care of any such child, allows that child to be at any time in any street, or in any premises licensed for the sale of any intoxicating liquor, or in premises licensed according to law for public entertainments, or in any circus or other place of public amusement to which the public are admitted by payment, for the purpose of singing, playing or performing, or being exhibited for profit, or offering anything for sale ; or (d) Causes or procures any child under the age of sixteen years, or, having the custody, charge or care of any such child, allows that child to be in any place for the purpose of being trained as an acrobat, contortionist or circus performer, or of being trained for any exhibition or performance which in its nature is dangerous, tliat person shall, on summary conviction, be liable, at the discretion of the court, to a fine not exceeding twenty-five pounds, or alternatively, or in default of payment of such fine, or in addition thereto, to imprisonment, with or without hard labour, for any term not exceeding three months : Provided that — (i) This Section shall not apply in the case of any occasional sale or entertain- ment the net proceeds of which are wholly applied for the benefit of any school or to any charitable object, if such sale or entertainment is held elsewhere than in premises which are licensed for the sale of any intoxicating liquor but not licensed according to law for public entertainments, or if, in the case of a sale or entertainment held in any such premises as aforesaid, a special exemption from the provisions of this Section has been granted in writing under the hands of two justices of the peacej; and 290 (ii) Any local authority may, if they think it necessary or desirable so to do, from time to time by bye-law extend or restrict the hours mentioned in paragraph (b) of this Section, either on every day or on any specified day or days of the week, and either as to the whole of their district or as to any specified area therein ; and (iii) Paragraphs (c) and {d) of this section shall not apply in any case in respect of which a licence granted under this Act is in force, so far as that licence extends. 3. Licences for Employment of Children, (i) A petty sessional court, or in Scotland the School Board, may, notwithstanding anything in this Act, or in the Employment of Children Act, 1903, or any bye-law made thereunder, grant a licence for such time and during such hours of the day, and subject to such restrictions and conditions as the court or board think fit, for any child exceeding ten years of age — (a) to take part in any entertainment or series of entertainments to take place in premises licensed according to law for public entertainments, or in any circus or other place of public amusement as aforesaid ; or (b) to be trained as aforesaid ; or (c) for both purposes ; if satisfied of the fitness of the child for the purpose, and if it is shown to their satisfaction that proper provision has been made to secure the health and kind treatment of the children taking part in the entertainment, or series of entertainments, or being trained as aforesaid, and the court or board may, upon sufficient cause, vary, add to, or rescind any such licence. Any such licence shall be sufficient protection to all persons acting under or in accordance with the same. (2) It shall be the duty of inspectors and other officers charged with the execution of the Employment of Children Act, 1903, to see whether the restrictions and conditions of any licence under this Section are duly complied with, and any such inspector or oificer shall have the same power to enter, inspect and examine any place of public entertainment at which the employment of a child is for the time being licensed under this Section as an inspector appointed under the Factory and Workshop Act, 1901, has to enter, inspect and examine a factory or workshop under Section one hundred and nineteen of that Act, and that Section shall apply accordingly. (3) Where any person applies for a licence under this Section, he shall, at least seven days taefore making the application, give notice thereof to the chief officer of police for the district in which the licence is to take effect, and that officer may appear or instruct some person to appear before the authority hearing the application, and show cause why the licence should not be granted, and the authority to whom the application is made shall not grant the same unless they are satisfied that notice has been properly so given. (4) Where a licence is granted under this Section to any person, that person shall forthwith cause a copy thereof to be sent to the local authority for the district in which the licence is to take effect, and if he fails to cause such copy to be sent shall be liable on summary conviction to a fine not exceeding five pounds. (5) Nothing in this or in the last preceding Section shall affect the provisions of the Elementary Education Act, 1876, or the Education (Scotland) Act, 1878, as amended by any later enactment. Arrest of Offender and Provision for Safety of Children. 4. Power to take Offenders into Custody, (i) Any constable may take into custody, without warrant, any person — (a) who within view of such constable commits an offence under this Act where the name and residence of such person are unknown to such constable and cannot be ascertained by such constable ; or {b) [Repealed.] (2) Where a constable arrests any person without warrant in pursuance of this Section, the inspector or constable in charge of the station to which such person is conveyed shall, unless in his belief the release of such person on bail would tend to defeat the ends of justice, or to cause injury or danger to the child against whom the offence is alleged to have been committed, release the person arrested on his entering into such a recognizance, with or without sureties, as may in his judgment be required to secure the attendance of such person upon the hearing of the charge. 17. Presumption of Age of Child. Where a person is charged with an oftence under this Act or any offence under the Employment of Children Act, 1903, in respect of a child who is alleged in the charge or indictment to be under any specified age, and the child appears to the court to be under that age, such child shall for the purposes of this Act, and the Employment of Children Act. 1903, be deemed to be under that age, unless the contrary is proved. 291 Supplemental. 22. Provision as to Bye-laws. Every bye-law under this Act shall be made by the same authority and confirmed in the same way as bye-laws under the Employment of Children Act, 1903, or in Scotland as bye-laws under Section two of the said Act. 29. General Definitions. In this Act, unless the context otherwise requires — The expression " local authority " has the same meaning as in the Employment of Children Act, 1903. 30. Application of Act to Scotland. In the application of this Act to Scotland, unless the context otherwise requires — The expression " local authority " means the local authorit^'^ for the purposes of Section two of the Employment of Children Act, 1903, as defined in Sub-section four of Section fourteen of that Act, and the provisions of the said Sub-section shall apply accordingly. 31. Application of Act to Ireland. In the application of this Act to Ireland, unless the context otherwise requires— The expression " local authority " means any local authority as defined by the Employment of Children Act, 1903. 32. Expenses of Local Authority. Expenses incurred by a local authority under this Act shall be defrayed in like manner as expenses incurred under the Employment of Children Act, 1903. 4. CHILDREN ACT, 1908. [Extract.] ARRANGEMENT OF SECTIONS. Section. 19. Power to take offenders into custody. III. Juvenile Courts. 120. Exclusion of children from bars of licensed premises. Schedules. An Act to consolidate and amend the Law relating to the protection of Children and Young Persons, Reformatory and Industrial Schools, and Juvenile Offenders, and otherwise to amend the Law with respect to Children and Young Persons. 21st December, 1908. [8 Edw. 7, ch. 67.'\ 19. (i) Any constable may take into custody, without warrant, any person — (a) who within view of the constable commits an offence under this part of this Act, or any of the offences mentioned in the First Schedule to this Act, where the name and residence of such person are unknowm to the constable and cannot be ascertained by the constable ; or (b) who has committed, or who the constable has reason to believe has committed, an offence of cruelty or any of the offences mentioned in the First Schedule to this Act, if he has reasonable ground for believing that such person will abscond, or if the name and address of such person are unknown to and cannot be ascertained by the constable. (2) \Miere a constable arrests any person without warrant in pursuance of this section, the superintendent or inspector of police or an officer of police of equal or superior rank, or the officer in charge of the police station to which such person is brought, shall, unless in his belief the release of such person on bail would tend to defeat the ends of justice, or to cause injury or danger to the child or young person against whom the offence is alleged to have been committed, release the person arrested on his entering into such a recognizance, with or without sureties, as may in the judgment of the officer of police be required to secure the attendance of such person upon the hearing of the charge. III. (i) A court of summary jurisdiction when hearing charges against children or young persons, or when hearing applications for orders or licences relating to a child or young person at which the attendance of the child or young person is required, shall, unless the child or young person is charged jointly with any other person not being a child or young person, sit either in a different building or room from that in which the ordinary sittings of the court are held, or on different days or at different times from those at which the ordinary sittings are held, and a court of summary jurisdiction so sitting is in this Act referred to as a juvenile court. 120. (i) The holder of the licence of any licensed premises shall not allow a child to be at any time in the bar of the licensed premises, except during the hours of closing. 292 (2) If the holder of a licence acts in contravention of this Section, or if any person causes or procures, or attempts to cause or procure, any child to go to or to be in the bar of any licensed premises except during the hours of closing, he shall be liable, on summary conviction, to a fine not exceeding in respect of the first offence, forty shillings, and in respect of any subsequent offence, five pounds. (3) If a child is found in the bar of any licensed premises, except during the hours of closing", the holder of the licence shall be deemed to have committed an offence under this Section unless he shows that he has used due diligence to prevent the child being admitted to the bar or that the child was apparently a person over the age of fourteen. (4) Nothing in this Section shall apply in the case of any child of the licence- holder or in the case of a child who is resident but not employed in the licensed premises or who is in the bar of licensed premises solely for the purpose of passing through in order to obtain access to, or egress from, some other part of the premises, not being a bar, where there is no other convenient means of access to, or egress from, that part of the premises, or in the case of railway refreshment rooms or other premises constructed, fitted, and intended to be used in good faith for any purpose to w^hich the holding of a licence is merely auxiliary. (5) In this Section the bar of licensed premises means any open drinking bar or any part of the premises exclusively or mainly used for the sale and consumption of intoxicating liquor, and the expressions " licence " and " licensed premises " have the same meaning as in the Licensing Acts, 1828 to 1906. FIRST SCHEDULE. Any offence under the Dangerous Performances Acts, 1879 and 1897. Any other offence involving bodily injury to a child or young person. 5. CHILDREN'S DANGEROUS PERFORMANCES ACT, 1879. An Act to regulate the Employment of Children in places of public amusement in certain cases. 24th July, 1879. (42 and 43 Vict., ch. 24.) 1. This Act may be cited as the Children's Dangerous Performances Act, 1879. 2. [Repealed.] 3. From and after the commencement of this Act, any person who shall cause any child under the age of fourteen years to take part in any public exhibition or per- formance whereby, in the opinion of a court of summary jurisdiction, the life or limbs of such child shall be endangered, and the parent or guardian, or any person having the custody of such child, who shall aid or abet the same, shall severally be guilty of an offence against this Act, and shall on summary conviction be liable for each offence to a penalty not exceeding ten pounds. And where in the course of a public exhibition or performance, which in its nature is dangerous to the life or limb of a child under such age as aforesaid taking part therein, any accident causing actual bodily harm occurs to any such child, the employer of such child shall be liable to be indicted as having committed an assault ; and the court before whom such employer is convicted on indictment shall have the power of awarding com- pensation not exceeding twenty pounds, to be paid by such employer to the child, or to some person named by the court on behalf of the child, for the bodily harm so occasioned ; provided that no person shall be punished twice for the same offence. 4. Wlienever any person is charged with an offence against this Act in respect of a child who in the opinion of the court trying the case is apparently of the age alleged by the informant, it shall lie on the person charged to prove that the child is not of that age. 5. Every offence against this Act in respect of which the person committing it is liable as above mentioned to a penalty not exceeding ten pounds shall be prosecuted, and the penalty recovered with costs in a summary manner, as follows : — In England, in accordance with the provisions of the Act eleventh and twelfth Victoria, chapter forty-three, intituled " An Act to facilitate the performance of the duties of justices of the peace out of sessions within England and Wales with respect to summary convictions and orders," and of any Act or Acts amending the same ; and the court of summary jurisdiction when hearing and determining an informa- tion in respect of any offence under this Act shall be constituted either of two or more justices of the peace in petty sessions, sitting at a place appointed for the holding of petty sessions, or some magistrate or officer sitting alone or with others at some court or other 293 place appointed for the administration of justice for the time being empowered by law to do alone any act authorised to be done by more than one justice of the peace ; In Scotland, in accordance with the provisions of the Summary Procedure Act, 1864, and of any Act or Acts amending the same ; and In Ireland, within the police district of Dublin metropolis in accordance with the provisions of the Acts regulating the powers and duties of justices of the peace for such district, or of the police of such district, and elsewhere in Ireland in accordance with the pi-ovisions of the Petty Sessions (Ireland) Act, 185 1, and any Act amending or affecting the same. 6. DANGEROUS PERFORMANCES ACT, 1897. An Act to extend the Age under which the Employment of Young Persons in Dangerous Performances is prohibited. 6th August, 1897. (60 and 61 Vict., ch. 52.) 1. The Children's Dangerous Performances Act, 1879, shall apply in the case of any male young person under the age of sixteen years, and any female young person under the age of eighteen years, in like manner as it applies in the case of a child under the age of fourteen years. 2. (i) Except where an accident causing actual bodily harm occurs to any child or young person, no prosecution or other proceeding shall be instituted for an offence against the Children's Dangerous Performances Act, 1879, as amended by this Act, without the consent in writing of the chief officer of police of the police area in which the offence is committed. (2) For the purposes of this Section the expression " chief officer of police " — (a) with respect to any place in England other than the City of London, has the meaning assigned to it by the Police Act, 1890 ; (b) with respect to the City of London, means the Commissioners of City Police ; (c) with respect to Scotland, has the meaning assigned to it by the Police (Scotland) Act, 1890 ; (d) with respect to Ireland, means in the police district of Dublin metropolis either of the Commissioners of Police for that district, and elsewhere the district inspector of the Royal Irish Constabulary. 3. This Act may be cited as the Dangerous Performances Act, 1897, a^^d the Children's Dangerous Performances Act, 1879, and this Act may be cited together as the Dangerous Performances Acts, 1879 and 1897. 7. CHILDREN (EMPLOYMENT ABROAD) ACT, 1913. An Act to prohibit and restrict Children and Young Persons being taken out of the United Kingdom with a view to singing, playing, performing, or being exhibited, for profit. 15th August, 1913. (3 and 4 Geo 5, ch. 7.) 1. (i) If any person causes or procures any child or young person, or, having the custody, charge, or care of any child or young person, allows such child or young person, to go out of the United Kingdom for the purpose of singing, playing, performing, or being exhibited, for profit, that person shall, unless, in the case of a young person, such a licence as is hereinafter mentioned has been granted, be guilty of an offence against this Act. (2) A constable or any person authorised by a justice may take to a place of safety any child or young person in respect of whom there is reason to believe that an offence under this Section has been or is about to be committed, and the provisions of Section twenty of the Children Act, 1908, shall apply as if such an offence were an offence mentioned in the First Schedule to that Act. (3) This Section shall not apply in any case where it is proved that the child or young person was only temporarily resident in the United Kingdom. 2. (i) A police magistrate may grant a licence in such form as the Secretary ot State may prescribe, and subject to such restrictions and conditions as the police magis- trate thinks fit, for any young person to go out of the United Kingdom for the purpose of singing, playing, performing, or being exhibited for profit, but no such licence shall be granted unless the police magistrate is satisfied— (a) that the application for the licence is made by or with the consent of the parent or guardian of the young person ; {b) that the young person is going out of the United Kingdom in order to fulfil a particular engagement ; 294 (c) that the young person is fit for the purpose ; {d) that proper provision has been made to secure the health, kind treatment, and adequate supervision of the young person whilst abroad and his return to the United Kingdom at the expiration or revocation of the licence ; {e) that a copy of the contract of employment or other document, showing the terms and conditions of employment, drawn up in a language understood by the young person, has been furnished to the young person. (2) A licence under this Section shall not be granted for more than three months, but may be renewed by a police magistrate from time to time for a like period, but no such renewal shall be granted unless the police magistrate is satisfied by a report of a British consular officer or other trustworthy person that the conditions of the licence are being complied with, i 1 (3) Wliere a person applies for a licence or the renewal of a licence under this Section, he shall, at least seven days before making the application, give notice thereof to the chief officer of the police for the district in which the young person resides or resided, and that officer may make a report in writing on the case to the police magistrate, or may appear or instruct some person to appear before the police magistrate hearing the application and show cause why the licence should not be granted or renewed, and the police magistrate shall not grant or renew the licer.ce unless he is satisfied that notice has been properly so given. The notice given by the applicant shall be accompanied by a copy of the contract of employment or other document showing the terms and con- ditions of employment, which copy shall be sent by the chief officer of police to the police magistrate. (4) The police magistrate to whom application is made for the grant or renewal of a licence under this Section shall, unless he is satisfied that under the circum- stances it is unnecessary, require the applicant to give such security, either by entering into a recognisance with or without sureties or otherwise, as he may think fit for the observance of the restrictions and conditions contained in the licence, and the recognisance may be enforced in like manner as a recognisance for the doing of some matter or thing required to be done in a proceeding before a court of summary jurisdiction is enforceable. (5) In any proceeding for enforcing a recognisance under this Section, a report of any British consular officer, and any deposition made on oath before a British consular officer and authenticated by the signature of that officer respecting the observance or non- observance of any of the conditions or restrictions contained in a licence granted under this Act, shall, upon proof that the consular officer or deponent cannot be found in the United Kingdom, be admissible in evidence ; and it shall not be necessary to prove the signature or official character of the person appearing to have signed any such report or deposition. (6) Where a licence is granted under this Section, the police magistrate shall send to the Secretary of State for transmission to the proper consular officer such par- ticulars as the Secretary of State may by regulation prescribe, and every consular officer shall register the particulars so transmitted to him and perform such other duties in relation thereto as the Secretary of State may direct. (7) A licence granted under this Section may be revoked by the police magis- trate at any time if he is satisfied that any of the conditions on which the licence was granted are not being complied with. 3. (i) A person guilty of an offence against this Act shall, on summary conviction, be liable, at the discretion of the court, to a fine not exceeding one hundred pounds, or alternatively or in default of payment of such fine, or in addition thereto, to imprisonment with or without hard labour, for any term not exceeding three months : Provided that, where the offender, by means of any false pretence or false repre- sentation, procures the child or young person to go out of the United Kingdom for any such purpose as aforesaid, he shall be liable on conviction on indictment to imprisonment, with or without hard labour, for any term not exceeding two years. (2) \^^lere proceedings are taken against any person under this Act in respect of any child or young person, and it is proved that the defendant caused or procured or allowed the child or young person to go out of the United Kingdom, and that the child or young person has, out of the United Kingdom, been singing, playing, performing, or been exhibited, for profit, the defendant shall be presumed to have caused or procured or allowed such child or young person to go out of the United Kingdom for that purpose unless the contrary is proved : Provided that, where the contrary is proved, the court may order the defendant to take such steps as the court directs to secure the return of the child or young person to the United Kingdom, or to enter into a recognisance to make such provision as the court 295 may direct to secure the health, kind treatment, and adequate supervision of the child or young person whilst abroad, and his return to the United Kingdom at the expiration of such period as the court may think fit. (3) Proceedings in respect of an offence or for enforcing a recognisance under this Act may be instituted at any time within three months from the first discovery by the person taking the proceedings of the commission of the offence or (as the case may be) the non-observance of the restrictions and conditions contained in the licence. (4) The wife or husband of a person charged with an offence under this Act may be called as a witness either for the prosecution or defence and without the consent of the person charged. 4. For the purposes of this Act, the expression " police magistrate " means the chief magistrate of the metropolitan police courts or one of the other magistrates of the metropolitan police court in Bow Street, and the expression " chief officer of police " — (a) with respect to the city of London, means the Commissioner of the City Police ; (6) elsewhere in England has the same meaning as in the Police Act, 1890 ; (c) in Scotland has the same meaning as in the Police (Scotland) Act, 1890 ; (d) in the police district of Dublin metropolis, means either of the Com- missioners of Police for the said district ; (e) elsewhere in Ireland, means a district inspector of the Royal Irish Constabulary. 5. (i) This Act may be cited as the Children (Employment Abroad) Act, 1913, and shall be construed as one with the Children Act, 1908 ; and that Act, the Children Act (1908) Amendment Act, 1910, and this Act may be cited together as the Children Acts, 1908 to 1913. (2) This Act shall come into operation on the expiration of one month from the passing thereof. 8. ORDER UNDER THE CHILDREN (EMPLOYMENT ABROAD) ACT, 1913. Form of Licence and Regulation, dated 2jth August, 1913, made by the Secretary of State, under Section 2 of the Children {Employment Abroad) Act, 19 13 (3 and 4 Geo. 5, c. 7). iS.R. and O. 191 3, No. 885]. In pursuance of the powers conferred on me by Section 2 of the Children (Employ- ment Abroad) Act, 191 3 : — (i) I prescribe the annexed form of licence for use under that Section. (2) I make the following regulation : The particulars to be sent by a police magistrate to the Secretary of State for transmission to the proper consular officer where a licence is granted for a young persen to go out of the United Kingdom for the purpose of singing, playing, performing, or being exhibited, for profit, shall be as follows : — (a) The name and address of the young person ; {b) The date and place of birth, and, where known, the nationality of the young person ; (c) The name and address of the applicant for the licence ; (d) WTiere the father, mother, or guardian is not the applicant for the licence, the name and address of the father, mother, or guardian ; (e) Particulars of the engagement, with the place or places at which and the period or periods during which the young person is to sing, play, perform, or be exhibited ; (/) Copy of the contract of employment or other document showing the terms and conditions of employment. (g) Copy of the licence. FORM OF LICENCE. Children (Employment Abroad) Act, 19 13. 3 and 4 Geo. 5, cap. 7, sec. 2. Licence for a young person to go out of the United Kingdom for the purpose of singing, playing performing, or being exhibited, for profit. Whereas * being [or having the consent of J the parent [or guardian] off a young person of the age of years, born, so far as can be ascertained, on * Name of Applicant. •J- Name of young person. 296 has made application to me for a licence for the said young person to go out of the United Kingdom for the purpose of singing, playing, performing, or being exhibited, for profit : Ana whereas I am satisfied that the young person is going out of the United Kingdom in order to fulfil a particular engagement ; that the young person is fit for the purpose ; that proper provision has been made to secure the health, kind treatment, and adequate supervision of the young person whilst abroad and his [or her] return to the United Kingdom at the expiration or revocation of the licence ; and that a copy cf the contract of employment or other document, showing the terms and conditions of employment, drawn up in a language understood by the young person, has been lurnished to hun [or hei] : I do grant licence for the said * to go out of the United Kingdom for months for the purpcse of fulfilling the aforesaid engage- ment, subject to the restrictions and conditions set out below [f for the observance of which the aforesaid J is to give security by entering into a recog- nisance for the sum of pounds, with sureties, each in the sum of pounds]. /'Chief Magistrate of the Police Courts of ^^ ^ the Metropolis. 1 A Magistrate of the Metropolitan Police C Court at Bow Street. The conditions and restrictions referred to above are : — FORM OF RENEWAL OF LICENCE. Children (Employment Abroad) Act, 191 3. 3 and 4 Geo. 5, cap. 7, s. 2. Renewal of Licence for a young person to go out of the United Kingdom for the purpose of singing, playing, performing, or being exhibited, for profit. Whereas applic?tion has been made to me by J for the renewal of the licence granted on for * to go out of the United Kingdom for months for the purpose of singing, playing, performing, or being exhibited, for profit : And whereas I am satisfied by the report of tf that the conditions of the licence are being complied with : I hereby renew the said licence for a period of months from /'Chief Magistrate of the Metropolitan Police ** J Courts. 1 A Magistrate cf the Metropolitan Police C Court in Bow Street. FORM OF REVOCATION. Children (Employment Abroad) Act, 191 3. 3 and 4 Geo. 5, cap. 7, s. 2. Revocation of Licence for a young person to go out of the United Kingdom for the purpose of singing, playing, performing, or being exhibited, for profit. Whereas I am satisfied that the conditions of the licence granted on for * to go out of the United Kingdom for months for the purpcse of singing, playing, performing, or being exhibited, for profit, are not being complied with, I hereby revoke the said licence. Chief Magistrate of the Metropolitan :^:^ ) Police Courts. A Magistrate of the Metropolitan Police Court in Bow Street. * Name of young person. f Strike out if not necessary. X Name of applicant. ** Strike out inappropriate words. tf Name of British consular officer or other person reporting. \\ Date of expiry of existing licence. 297 9. EDUCATION (SCOTLAND) ACT, 1878 (As amended by the Act of 1901). [Extract.] i!:yARRANGEMENT OF SECTIONS. Section. l"' :^'^ 6. Restriction on casual employment of children. 7. Exception to prohibition of employment of children. 8. Penalty for employing a child in contravention of Act. 9. Definition of employment in case of parent. 10. Enforcement of Act by school board or by inspectors of factories, etc. 11. Certificates of birth for purposes of Acts. 12. Power of officer of school board to enter place of employment. 13. Exemption of employer on proof of guilt of some other person. An Act to further amend the provisions of the Law of Scotland on the subject of Education and for other purposes connected therewith. i6th August, 1878. (41 and 42 Vict., ch. 78.) 6. After the commencement of this Act no child under the age of ten years shall, save as hereinafter mentioned, be employed in any casual employment. Casual employment shall mean employment for purposes of gain in streets or other places in vending or exposing for sale any article whatsoever, and also employment of any other kind, outside the child's own home, not being employment the lawful period whereof is regulated by any Act of Parliament. 7. A person shall not be deemed to have taken any child into his employment contrary to the provisions of this Act if it is proved to the satisfaction of the sheriff either — (i) That during the employment there is not within three miles, measured according to the nearest road, from the residence of such child any inspected school open which the child can attend ; or (2) That such employment is during the school holidays, or during the hours during which the school is not open, not being hours during which casual employment is prohibited ; or (3) That the employment is exempted by the notice of the school board herein- after next mentioned ; that is to say, The school board may, if it thinks fit, issue a notice exempting from the pro- hibitions and restrictions of this Act the employment of children above the age of eight years, for the necessary operations of husbandry and the ingathering of crops or to give assistance in the fisheries for the period to be named in such notice : Provided that the period or periods so named by any such school board shall not exceed in the whole six weeks between the first day of January and the thirty-first day of December in any year. The school board shall cause a copy of every notice so issued to be affixed to the door of all churches and schools in the district. 8. Every person who takes a child into his employment in contravention of this Act shall be liable, on summary conviction, to a penalty not exceeding forty shillings. 9. A parent of a child who employs such child in any labour exercised by way of trade or for the purposes of gain, or who permits such child to be engaged in any such labour on its own behalf, shall be deemed for the purposes of this Act to take such child into his employment. 10. The provisions of this Act respecting the employment of children shall be enforced in the district of every school board by that board, provided that it shall be the duty of the inspectors and sub-inspectors acting under the Acts regulating factories, workshops and mines respectively, and not of the school board, to enforce the observance by the employers of children of the provisions of this Act respecting the employment of children in such factories, workshops and mines ; but it shall be the duty of the school board to assist the said inspectors and sub-inspectors in the performance of their duty by information and otherwise. 1 1 . Where the age of any child is required to be ascertained or proved for the purposes of this Act, any person, on presenting a written requisition in such form, and containing such particulars as may be from time to time prescribed by a Secretary of 298 State, and on payment of such fee, not exceeding one shilling,* as a Secretary of State from time to time fixes, shall be entitled to obtain an extract under the hand of the registrar, under the Act of the seventeenth and eighteentli years of Her present Majesty, chapter eighty, and any Acts amending the same, of the entry in the registry kept under those Acts. 12. If it appears to any sheriff, on the complaint of an officer of a school board acting under this Act, that there is reasonable cause to believe that a child is employed in contravention of this Act in any place, whether a building or not, such sheriff may by order under his hand empower an officer of the school board to enter such place at any reasonable time within forty-eight hours from the date of the order, and examine such place, and any person found therein touching the employment of any cliild therein. Any person refusing admission to an officer authorised by an order under this Section or obstructing him in the discharge of his duty, shall for each offence be liable on summary conviction before the sheriff to a penalty not exceeding twenty pounds. 13. "WTaere the offence of taking a child into employment in contravention of this Act is in fact committed by an agent or workman of the employer, such agent or workman shall be liable to a penalty as if he were the employer. Where a child is taken into employment in contravention of this Act on the pro- duction by, or with the privity of, the parent of a false or forged certificate, or on the false representation of his parent that the child is of an age at which such employment is not in contravention of this Act, that parent shall be liable to a penalty not exceeding forty shillings. Where an employer charged with taking a child into his employment in contravention of this Act proves that he has used due diligence to enforce the observance of this Act, and either that some agent or workman of his employed the child without his knowledge or consent, or that the child was employed either on the production of a forged or false certificate, and under the belief in good faith in the genuineness and truth of such certificate, or on the representation by his parent that the child was of an age at which his employment would not be in contravention of this Act, and under the belief in good faith in such repre- sentation, the employer shall be exempt from any penalty. Where an employer satisfies the school board, or other person about to institute a prosecution that he is exempt under this Section by reason of some agent, workman or parent being guilty, and gives all facilities in his power for proceeding against, and convicting such agent, workman or parent, such school board, or person, shall institute proceedings against such agent, workman or parent, and not against the employer. 10. EDUCATION (SCOTLAND) ACT, 1901. [Extract.] An Act to regulate the Employment and Attendance of Children at School in Scotland. 9th August, 1 90 1, (i Edw. 7, ch. 9.) 2. It shall not be lawful for any person to take into his employment any child (i) who is under the age of twelve years, or (2) who, being of the age of twelve years and not more than fourteen years, has not obtained exemption from the obligation to attend school from the school board of the district in the manner provided in the next following section ; nor shall any child (i) who is under the age of twelve years, or (2) who, being of the age of twelve years and not more than fourteen years, has not been exempted from the obligation to attend school in manner aforesaid, be employed in any casual employment, as defined by Section six of the Education (Scotland) Act, 1878, after nine o'clock at night, from the first day of April to the first day of October, and after seven o'clock at night from the first day of October to the ist day of April. Provided that nothing in this Section shall prevent any employer from employing any child who is lawfully employed by him or by any other person at the date of the commencement of this Act. 4. The Acts specified in the schedule to this Act are hereby repealed to the extent mentioned in the third column thereof. *The fee has been fixed at sixpence, by an Order of the Home Office dated 10th June, 1879. 293 SCHEDULE. Enactments Repealed. Session and Chapter. Short Title. Extent of Repeal. 41 & 42 Vict. c. 78 Education (Scotland) Act, 1878. Section five. Section six. In part, namely— From the words " and no child " to " to the first day of April " where those words last occur, and from " A school board may," to the end. Section seven. In part, namely — The word " hereinbefore " II. THE EMPLOYMENT OF CHILDREN BILL. (Introduced by the Government in the Session of 191 3.*) ARRANGEMENT OF CLAUSES. Clause. 1. Extension of certain provisions of principal Act to young persons. 2. Restrictions on street trading. 3. Power to grant licences to engage in street trading. 4. General provisions as to licences. 5. Power to require attendance at continuation classes. 6. Saving as to street trading for assistance of parent or guardian. 7. Exercise of powers of local authority by local education authority. 8. Application to Scotland. 9. Short title, construction, commencement, repeal and extent. Schedule. A Bill to Amend the Employment of Children Act, 1903, and fay other purposes connected therewith. (Bill 74, 19 13.) 1. The provisions of the Employment of CMldren Act, 1903 (hereinafter referred to as the principal Act), giving power to make bye-laws for the regulation of the employ- ment of children, and prohibiting the employment of children to lift, carry or move heavy weights, and in injurious occupations, shall extend to young persons, that is to say, persons over the age of fourteen and under the age of sixteen, as if in paragraphs (i) and (ii) of Section one, in Sub-sections (4), (5) and (6) of Section three, in Sub-sections (i) and (2) of Section six and in Sections eight, nine and ten of the principal Act, references to children included references to young persons. 2. (i) A boy under the age of seventeen or a girl under the age of eighteen shall not be employed in or carry on street trading : Provided that — (a) a boy over the age of fourteen, or a boy under the age of fourteen who, before the passing of this Act, was lawfully engaged in street trading, may be employed in or carry on street trading if he holds a licence granted in accordance with the pro- visions of this Act ; and (b) the foregoing provisions of this Sub-section shall not apply in the areas either of municipal boroughs or urban district councils having a population according to the returns of the last published census for the time being not exceeding ten thousand persons, or of rural district councils, but in such areas it shall not be lawful for a child under the age of eleven years to be employed in or carry on street trading. (2) If any person carries on trade in contravention of this Section he shall be liable on summary conviction to a fine not exceeding twenty shillings, and in the case of a second or subsequent offence to a fine not exceeding five pounds, but nothing in this provision shall affect the liability of an employer to proceedings under Section five of the principal Act as amended by this Act. * See the criticisms of the provisions of this Bill summarised above p. 25.) 300 (3) For the purposes of the principal Act and of this Act the expression " street trading " includes the hawking of newspapers, matches, flowers and other articles, playing, singing or performing for profit, shoe-blacking and any other like occupation carried on in streets or public places, but does not include the sale in a market or fair of agricultural or horticultural produce by a person in the employment of the producer, or the occasional sale of articles in streets and public places by a person who is at the time engaged in delivering from door to door articles of the same class to the customers of his employer. 3. (i) A local authority may grant to any boy over the age of fourteen and under the age of seventeen, or to any boy under the age of fourteen who before the passing of this Act was lawfully engaged in street trading, a licence to engage in street trading within the whole or any part of the area of that local authority, and may prescribe the conditions (including the wearing of a badge) on which such licences shall be granted. (2) A local authority may make arrangements with any committee constituted for the purposes of the Education (Choice of Employment) Act, 1910, or any committee appointed by the Board of Trade to give advice and assistance to juvenile applicants at labour exchanges, whereby the committee shall undertake all or any of the duties of a local authority under the preceding Sub-section. (3) If any person employs a boy to whom such a licence has been granted in contravention of the conditions on which the licence was granted, he shall be liable on summary conviction to a fine not exceeding forty shillings, or in case of a second or subse- quent offence not exceeding five pounds, and if any such boy contravenes such conditions, he shall be liable on summary conviction to a fine not exceeding twenty shillings, or in the case of a second or subsequent offence a fine not exceeding five pounds. 4. (i) No licence for street trading shall be granted to any boy for whom the licensing authority is able to secure other and more beneficial employment, being employ- ment suitable to his capacities and within a reasonable distance of his home, but where such employment is not available the licence shall not be refused except on special grounds stated in writing by the licensing authority. (2) No licence shall be refused on the grounds of poverty or general bad character of the applicant. 5. (i) The conditions of employment imposed by bye-laws made under Section one of the principal Act as amended by this Act, and the conditions on which a licence for street trading under this Act is granted, may, in the case of children and other persons who are no longer under an obligation to attend an elementary school, include a condition requiring such attendance at continuation classes as may be specified in the bye-law or licence. (2) For the purposes of this Section a continuation class means a class at which any course of instruction suitable to children or other persons who are no longer under an obligation to attend an elementary school is given. 6. Save as may be provided by bye-laws made under the principal Act as amended by this Act, it shall not be unlawful for a person over the age of fourteen to be employed to assist his parent or guardian in street trading, if the trading is carried on bona fide and not for improper purposes, and constitutes the principal means of support of the family : Provided that in any proceeding under the principal Act or this Act the onus of proving such facts as aforesaid shall rest with the defence. 7. All the powers of a local authority under the principal Act, the Prevention of Cruelty to Children Act, 1904, and this Act shall be exercised in England and Wales by the local education authority for the purposes of Part III. of the Education Act, 1902, as if they were powers under the Education Acts, 1870 to 191 1 ; and the provisions of those Acts shall apply accordingly : Provided that in the city of London such powers shall continue to be exercised by the mayor, aldermen and commons of that city in common council assembled, and their expenses shall be paid out of the general rate. 8. In the application of the principal Act and this Act to Scotland — (i) The expression "a court of summary jurisdiction" shall include any magistrate or magistrates, by whatever name called, officiating under the provisions of any general or local police Act ; (2) The expression " local authority " shall mean the school board. 9. (i) This Act may be cited as the Employment of Children Act, 191 3, and shall be construed as one with the principal Act, and that Act, the Prevention of Cruelty to Children Act, 1904, and this Act may be cited together as the Employment of Children Acts, 1903 to 191 3. (2) The principal Act is hereby repealed to the extent specified in the third column of the schedule to this Act. (3) This Act shall come into operation on the first day of January one thousand nine hundred and thirteen. 30I (4) This Act shall not extend to Ireland, but the principal Act shall continue to apply to Ireland as if this Act had not been passed. SCHEDULE. Session and Chapter. 3 Edw. 7, c. 45. Short Title. The Employment of Children Act, 1903 Extent of Repeal. Section two. Sub-section (2) of Section three. In Sub-sections (i) and (2) of Section five, the words " under the age of sixteen," and Sub-sections (3) and (4) of the same Section. In Section twelve. In Section thirteen the definition of local authority. Sub-section (2), Sub-section (4), and Sub- section (6) of Section fourteen. Section fifteen from " where the local authority is a county council," to " school board." 12. HOME OFFICE CIRCULAR TO LOCAL AUTHORITIES ON THE EMPLOYMENT OF CHILDREN ACT, 1903. CIRCULAR TO LOCAL AUTHORITIES.* Home Office, Whitehall. Sir, 14^^ November, 1903. I am directed by the Secretary of State to call the attention of the f County Council of to the provisions of the Employment of Children Act of last session, and the important powers which are conferred by the Act on the Council. A copy of the Act is enclosed. The general purpose of the Act (which was preceded by the inquiry and report of the Employment of School Children Committee, 1901) is to provide means for regulating the employment of children in those occupations in which it has hitherto been unregulated. One or two of the provisions of the Act (to be mentioned presently) apply to children employed in regulated occupations — that is to say, occupations which come under the Factory and Mines Acts ; but speaking generally, its provisions apply only to occupations outside those Acts, such as work in and about shops (chiefly errand running, delivery of parcels, milk, newspapers, etc.) ; home industries not under the Factory Act ; agricultural work ; and street trading. The inquiry of the Committee showed that " in England and Wales, a substantial number of children, amounting probably to 50,000, are being worked more than 20 hours a week in addition to 27^ hours at school, that a considerable proportion of this number are being worked 30, 40, and some even 50 hours a week, and that the effect of this work is in many cases detrimental to their health, their morals, and their education, besides being often so unremitting as to deprive them of all reasonable opportunity for recreation." At the same time it was pointed out by the Committee that no harm results from children doing a limited amount of work under healthy conditions, but that, on the contrary, limited and restricted work may be beneficial to them. With a view to safeguard the health and morals of children so employed, and to prevent their employment seriously interfering with their education. Parliament has in the present Act laid down certain general restrictions applicable to all employments of children, and has, further, conferred on local authorities wide powers of imposing by bye-laws additional restrictions either generally or for particular occupations. " Employ- ment " is defined in the Act so as to include ever^' kind of employment in any labour exercised by way of trade or for the purposes of gain, whether the gain be to the child or to any other person ; but it does not include merely gratuitous services rendered by children to their parents or relatives in cases in which neither the children nor those for whom the services are performed make any gain thereby. * This Circular is now out of print. t The circular letters issued to Town Councils and Urban District Councils were in the same terms. 302 I. — Statutory Restrictions. The general restrictions, applicable to all employment of children, which are imposed by the Act are contained in Section three. They prohibit — (i) The employment of any child {i.e., a person under the age of fourteen) between 9 p.m. and 6 a.m. (see below as to power of Council to vary these hours, p. 8) ; (2) The employment of any child under eleven in street trading ; (3) The employment of any factory or workshop half-timer in any other occupation ; {4) The employment of any child to lift, carry, or move heavy weights likely to cause injury to the child ; and (5) Generally the employment of any child in any occupation likely t^ be injurious to the child's life, health or education, regard being had to his physical condition. The duty of enforcing these statutory restrictions (with an exception to be men- tioned presently) is placed on the local authorities. For the special purpose of enforcing the prohibition as regards employment in dangerous or unhealthy occupations, or in lifting heavy weights, power is given to the Council to serve on an employer a medical certificate that the occupation or the lifting of any specified weight is injurious to the child, and such certificate becomes admissible as evidence in any proceedings against the employer. These general provisions are the only provisions in the Act which apply to occupa- tions regulated by the Factory and ]\Iines Acts, and in such occupations the power of enforcing them is to be exercised by the Government Inspector, and not by the local authority. It must be remembered, however, that numerous home industries and many laundries (including small laundries in which the only persons employed are members of the same family dwelling there and not more than two persons dwelling elsewhere) do not come under the Factory Act,* and in these the Council will be the authority to enforce the Act. II. — Bye-laws. The most important function of the Council under the Act will be to supplement tnese general restrictions by additional provisions for the regulation of the age, the hours of employment, and the conditions of the employment of children in their district. By Sections one and two of the Act, wide powers are given to the Council for this purpose, embracing the whole field of employment, always excepting those occupations which are already regulated by the Factory and Workshop Act, 1901, and the Mines Regulation Acts, 1872 and 1887. It is important to note that home industries and small laundries not under the Factory Act will fall within the scope of the Council's powers, and any employment of factory or mine children outside the factory, workshop, mine, etc., which is not covered b}^ the Factor}^ Act or Mines Acts. Bye-laws may be made to apply to the whole of the area of the Council or to any specified part thereof. Bye-laws Regulating Employment of Children (Section One). Section one ( i ) empowers the Council to prescribe for all children, or for boys and girls separately, and either for all occupations generally or for any specified occupation : — ( 1 ) The age below which employment shall be illegal ; (2) The hours of the day between which employment shall be illegal ; (3) The daily and weekly maximum number of hours beyond which employ- ment shall be illegal. Section one (2) gives a power, in the case of particular occupations, of prohibiting employment absolutely or permitting it subject to conditions. The question to what extent it will be desirable for your Council to regulate in the area under its jurisdiction the employment of children either in particular occupations or generally in all occupations will depend on the circumstances of the locality, and in the first instance is one for the consideration and determination of the Council. It \vill probably not be desirable in districts where there exists a variety of child occupations to attempt to impose one set of restrictions applicable to all. The restrictions for each occupation should be carefully considered with reference to the circumstances of the occupation, the hours at which it is carried on, the effects of the occupation on the health and character of the children, the extent to which it interferes with their education * This Section of the Act relating to laundries was repealed by the Faetory and Workshop Act of 1907i(7 Edw. vii., c. 39) which regulates employment in all laundries however small. 303 by making them unfit for work during school hours, etc., etc. A broad distinction may be drawn, for example, between indoor and outdoor employments. Employment in badly ventilated and insanitary homes on industrial work of a sedentary character, or in laundry work, is more harmful, and may properly be subjected to more stringent restrictions both as to age and hours than outdoor employment, such as that of messenger or newspaper boys which, if the hours are not excessive, is not found to be injurious to the health of the children employed in it ; or as employment in agricultural or garden work, which if moderate in amount and carried on under good conditions is eminently beneficial (see pp. II and IS of the Committee's Report). The power of absolutely prohibiting particular employments is designed to meet exceptional cases where the physical or moral surroundings, or the dangerous or unhealthy character of the occupation, are such as to involve serious risk to the health or morals of the children employed in it. It will be of the greatest importance for the successful administration of the Act that the restrictions imposed by the bye-laws made under it should, as far as possible, be of such a character that infringements will be capable of easy detection and punishment. It would seriously weaken the benefits and influence of the Act if restrictions were imposed which were so difficult to enforce as to render the bye-laws practically a dead letter. In regard to the limitation of hours, it should be borne in mind that fixed daily hours are easier to enforce than a daily maximum of hours, and both are easier to enforce than a weekly maximum. Experience under other Acts, especially the Factory Act, has shown that it is impossible for Inspectors charged with the enforcement of a weekly maximum of hours to count the hours during which the child or young person is at work, and that the child or young person cannot be relied on to give evidence on this point ; and it therefore becomes a matter of great difficulty to produce sufficient evidence to justify a conviction. It will, for this reason, be desirable that, as far as possible, the Council in any bye-laws for limiting the hours of employment which it may desire to make should fix definite hours of employment ; a weekly maximum should only be fixed by way of addition, or in special cases where it is found impossible to fix definite hours or a daily maximum. Lastly, the bye-laws must not distinguish between different classes of children, or make the right to labour depend on the poverty or social circumstances of the child or its parents. To do so would, as pointed out by the Committee, " cast on the local authority the duty of distinguishing poor children from those in better circumstances, and give rise to endless discontent. . . . All children should have liberty to work as much and in such ways as is good for them, and no more." With a view to assisting the Council in the drafting of bye-laws, the Secretary of State has prepared some forms of bye-laws, which are enclosed herewith. They have been drawn up so as to indicate the kind of restrictions which may be imposed, and the form which the bye-laws may take, without dealing with the question of the occupations to which they should apply ; although in some cases particular occupations are given in the forms by way merely of example. They are intended only for the assistance of the local authority, and are not recommended by the Secretary of State for adoption in any or every case. Bye-laws Regulating Street Trading [Section Two). Special powers of regulation are given by Section two in regard to street trading, which is defined in the Act to include the hawking of newspapers, matches, flowers, and other articles ; playing, singing, or performing for profit ; shoeblacking and any other like occupation carried on in streets or public places. It was found by the Committee that this work was carried on " by a worse class of children and under worse moral influences than any other," that it was specially detrimental to young girls, and that in large centres of population it required special treatment (see pp. i6 and 21 of their Report). The local authority is accordingly empowered to make bye-laws imposing conditions as to age, sex, etc., on the employment of persons under sixteen in street trading and if they think fit requiring all such persons trading in the streets to be licensed by them. They may also determine the places and times at which street trading may be carried on, e.g., restrict it to certain parts of their areas ; and may impose other conditions as to the wearing of badges and general conduct of the children. Two provisions of importance, to which the Secretary of State desires to draw the special attention of the Council, are attached by the statute to the exercise of these powers. The first is that the grant of a licence or the right to trade in the streets shall not be made subject to any conditions having reference to the poverty or general bad character of the person applying for a licence or claiming to trade. A child for example may not be refused a licence because his parents are dissolute or even criminal, nor because the child's own character is bad. It is precisely in such cases that a child has most difficulty 304 m getting other and better employment, and, if street trading be forbidden to him, he may be deprived of the only means of earning a living honestly, and driven to a course of crime. This statutory restriction will not however, the Secretary of State thinks, prevent the Council providing in its bye-laws for the suspension or revocation of a licence on the ground of bad conduct on the part of the licence-holder (see No. 12 of Forms of Bye-laws enclosed). Secondly, the local authority in making bye-laws are to have special regard to the desirability of preventing the employment of girls under sixteen in streets or public places. This is a question of great importance which will require careful inquiry and consideration by the Council in connection with any bye-laws they may propose to make. Street trading is of all occupations that which is the least suitable for young girls, and calls for more stringent regulations in their case than in that of boys. The clause will enable the Council to prevent altogether the employment of girls in places specially dangerous to their morals — e.g., in docks or crowded thoroughfares or the approaches to railway stations ; or, where they do not prohibit it altogether, to impose conditions under which they may trade. At the same time, in considering the question of prohibition, whether absolute or conditional, the Council should bear in mind that unless other employments will be open to the girls engaged in this occupation the effect of prohibition may be, by depriving them of their means of livelihood, to drive them to earning money by the very courses from which it is desired to protect them. These girls for the most part belong to the poorest and worst educated classes, are often unsuitable for domestic service and would not, in many cases, be able to obtain employment in factories or work- shops. Again, any restrictions proposed should be carefully limited to the particular mischief at which the Council may desire to aim. The universal prohibition of street employment of girls would have the effect of preventing a farmer's daughter going round with a cart selling milk or butter in a country town, or preventing children of costermongers assisting their parents in street selling under conditions which are no worse than the conditions under which they live at home. Street trading by young persons is already regulated in some large towns (Liverpool, Manchester, Bolton, Huddersfield, Halifax, Swansea, etc.) under powers similar to those in Section two, which have been obtained in local Acts ; and a set of draft bye-laws based on the bye-laws actually in force in those towns has been drawn up for the guidance of Councils who may have to deal with conditions similar to those of Liverpool, etc. In other places where street trading is carried on on a smaller scale and under less harmful conditions the restrictions imposed would naturally be fewer and simpler. Bye-laws Varying Hours of Employment under Section Three (i). Power is given to the Council to vary by bye-law the hours of employment fixed by Section three (i) of the Act, either generally for all occupations in the Council's district or for any specified occupation. Under this power, the Council may either shorten the period of employment fixed by the Act, or may alter the times at which employment may begin or end. For example, it may be found desirable in agricultural districts, where milking is done at an early hour by children, to vary the morning hour from six to five (see Report of Committee, p. 11). Where, however, an earlier hour is fixed in the morning for commencement of employment, it will be desirable as a general rule that a correspondingly earlier hour should be fixed for the termination of employment in the evening ; and similarly, when a later hour is fixed in the evening, a correspondingly later hour should be fixed in the morning. Two draft forms which bye-laws under this heading might take have been prepared and are enclosed. Bye-laws under Prevention of Cruelty to Children Act. Section four (6) provides that bye-laws under Section two of the Prevention of ■ Cruelty to Children Act, 1894,* which are at present made by the borough and district councils subject to the procedure of the Public Health Act, 1875, ^-^e for the future to be made by the same authority, and confirmed in the same way, as bye-laws under the present Act. Except, therefore, in the case of municipal boroughs with a population of over 10,000, and of other urban districts with a population of over 20,000, the Councils of which are authorities under the present Act, the County Council will be the authority for bye-laws under the Act of 1894. Section two of the Act of 1 894 makes it an offence to cause, procure, or allow any boy under fourteen or girl under sixteen to be in any street or licensed premises (other than premises licensed for public entertainments) between 9 p.m. or 6 a.m. for the purpose Now superseded by Section two of the Prevention of Cruelty to Children Act, 1904. 305 of singing, playing or performing for profit, or offering anything for sale, but power is given by bye-law to restrict or extend those hours either on every day or any specified day or days of the week, and either as to the whole of the district or as to any specified area therein. Confirmation of Bye-laws. All bye-laws made under the Act will require the confirmation of the Secretary of State before they can come into force, and may not be confirmed until at least thirty days after they have been published by the Council in such manner as the Secretary of State may direct. Before confirming any bye-law the Secretary of State is required to consider any objections from persons affected, and may, if he thinks it desirable, order a local inquiry to be held. The Secretary of State has made a general order as to the manner in which bye-laws are to be published before confirmation, and a copy is enclosed* for the information of the Council. It is most desirable, as in the case of other bye-laws submitted to the Secretary of State, that all bye-laws should be submitted to him in draft before being formally passed by the Council. This course enables the terms of a bye-law to be settled beforehand and avoids any necessity of withdrawing the bye-law after it has been finally adopted, and going through the whole procedure afresh in order to make small amendments. Employment of Children tn Public Entertainments. Another power under the Prevention of Cruelty to Children Act, 1894, which is transferred to the Council is that of enforcing the provisions of that Act in connection with the employnaent of children at theatres and public entertainments. Under Section tloree of that Act, as re-enacted and amended by this Act* (Section eleven), the restrictions which are imposed on the employment of children in places of public entertainment or amusement, and on the training of persons under sixteen as acrobats, etc., are not to apply in the case of those above the age of ten, if they are licensed by a petty sessional court — the court having power to attach such restrictions or conditions to the licence as it thinks fit. The duty of seeing that any such restrictions or conditions were duly complied with has hitherto rested with the Inspectors of Factories. Under Section eleven of the present Act it is now given to the Inspector or other officers of the local authority, who are entrusted with all the powers of entering, inspecting and examining any place of public entertainment which were conferred on the Factory Inspectors by the Act of 1894. To enable the Council's officers effectively to discharge this duty, the Secretary of State has given instructions to the Factory Inspectors to forward to the Council without delay the copy of any licence granted which is forwarded to them under the requirement in Section three (4) of the Act of 1894. Enforcement of Act and Bye-laws. It will be desirable that the Council, as the authority charged with the enforcement of the Act, and of any bye-laws made under it, should consider at an early date the arrangements to be made by them for that purpose. In regard to some matters, the best course will probably be to utilise the services of the police. This will especially be the case in regard to children engaged in street trading, whose occupation necessarily brings them directly under the notice of the police, and whose mode of carrying on their occupa- tion, so far as it may cause obstruction, annoyance, etc., has, in any case, to be dealt with by them. \Miere inspectors have been appointed to enforce the provisions of the Shop Hours Acts they will naturally be employed for the purpose of enforcing the pro- visions of this Act, and any bye-laws made by the Council, so far as they affect the employment of children in, or in connection with, shops. Generally, the new duties arising under the Act will be closely akin to those discharged by the school attendance officers appointed by the Council, and those officers will, from the nature of their duties, be able to render the greatest assistance to any inspector or officer appointed for the purpose of enforcing the Act and bye-laws, if they are not themselves entrusted with the duty. Provision is made by Section twelve of the Act for meeting the expenses which are incurred by the Council in carrying into effect the provisions of the Act, or any bye-laws made thereunder. / I am, Sir, Your obedient Servant, M. D. CHALMERS. * Section 11 of tlie Employment of Children Act, 1903, is now superseded by Section 3 of the Prevention of Cruelty to Children Act, 1904, which did not however make any change in the restrictions_on the employment of children in public entertainments. 3o6 II. SPECIMEN FORMS OF BYE-LAWS. NOTE. — The following Specimen Bye-laws cannot be adopted as a whole. They merely suggest convenient forms which any regulations the Council decide to adopt may take. It will be observed that, in some instances alternative forms are suggested. EMPLOYMENT OF CHILDREN ACT, 1903. I. — Bye-laws regulating employment of children. 1. No child under the age of [12] shall be employed in [ ]. 2. No boy under the age of [10] and no girl under the age of [12] shall be employed in [ ]. 3. No child who is liable to attend school full time shall be employed in the [selling or delivering of milk] except between the hours of 6 and 8 in the morning and 4 and 6 in the afternoon. 4. No child who is liable to attend school half or full time shall be employed in the [selling or delivering of newspapers except between the hours of 7.30 and 9 in the morning and 5 and 8 in the afternoon. 4A. No child who is liable to attend school full time shall be employed in the [selling or delivering of newspapers] except either betwen the hours of 7 and 9 in the morning or between the hours of 5 and 8 in the afternoon. 5. (i) No child who is liable to attend school full time shall be employed in [any industrial work at home] except between the hours of [5 and 8] in the afternoon. (2) No child who is liable to attend school half time shall be employed in [any industrial work at home] except between the hours of 8 in the morning and i in the afternoon if attending school in the afternoon ; or between the hours of I and 6 (on Saturdays 4) in the afternoon if attending school in the morning ; nor for more than five hours on Saturday. *(3) No child who is exempt from attendance at school shall be employed in [any industrial work at home] before the hour of [6] in the morning or after the hour of [9] in the evening (or on Saturday after the hour of 4 in the afternoon). Every child employed shall be allowed for meals and absence from work between the said hours not less (except on Saturaay) than [4^] hours and on Saturday not less than [2^] hours. (4) No child employed in [any industrial work at home] on any day shall be employed on the same day in any other occupation. (5) No child shall be employed on Sunday in [any industrial work at home]. Industrial work shall mean any work in which manual labour is exercised by way of trade or for purpose of gain in making, altering, repairing, om- menting, finishing, adapting for sale or cleaning any article. 6. No boy who is liable to attend school full time shall be employed [in carrying parcels] except between the hours of 5 and 8 in the afternoon on week days other than Saturday, and either between 8 in the morning and 2 in the afternoon, or between 2 and 9 in the afternoon, on Saturday. 7. No child shall be employed, except as otherwise provided, in or in connection with any shop before 8 in the morning or after 8 in the evening, nor in the case of a child attending school at any time during, or in the interval between, school hours ; provided that if on one day in the week the shop closes not later than 2 in the afternoon, employment may be continued on one other day (to be specified in a notice kept constantly affixed in the shop) to 9 in the evening. 8. No child shall be employed [as a lather boy or in a similar occupation in any barber'' s shop]. 9. No child employed in a place of public entertainment in pursuance of a licence under Section elev^en of the Act shall be employed on the same or following day in any other employment. 10. No child who is not wholly exempt from attendance at school shall be employed in any agricultural work during school term except between the hours [ ] in the months April to September, and except between the hours [ j in the months October to March ; or in the holidays except between the hours [ ]. • Ihe hours inserted in tliis form are tliose fl.xed by the Factory and Worfohop Act, 1901, for employment of young persons in domestic factories and workshops. In cases where the work ciirried on is not such as constitute the home a domestic factory ch: workshop, it will be possible further to restrict the hours. 307 II. — Bye-laws regulating street trading.* (a) General Regulations. 1. No cliild under the age of [f] shall be employed or engage in street trading. 2. No girl under the age of i6 shall be employed in or carry on street trading in or at the entrances to any railway station, nor in the following streets and public places : — [ ]. 3. No person under the age of 16 shall be employed in or carry on street trading after [8 in the evening between ist October and 31st March, or after 9 in the evening between ist April and 30th September]. 4. No person under the age of 16 engaged in street trading shall enter any premises licensed for public entertainment or for the sale of intoxicating liquor for consumption on the premises, for the purpose of trading or delivering goods. 5. [No child under 14 shall be employed or engage in street trading on Sunday.] 6. No child who is not exempt from school attendance shall be employed in or carry on street trading during school hours. (b) Regulations as to licences. 7. No person under 16 shall be employed or engage in street trading unless furnished with a licence from the Council. 8. A licence to engage in street trading shall not be refused by the Council to any person between the ages of [11] and 16 applying for it except on the ground that the applicant is by reason of physical or mental deficiency unfit to trade in the streets, or that he has not his parent's or guardian's consent to his being so employed. 9. Licences shall be granted for a period of one year only, and shall expire on [ ]. 10. Every licensed person while trading in the streets shall wear in the appointed way the badge prescribed by the Council. 1 1 . No charge shall be made by the Council for any licence or badge. 12. The Council may suspend or revoke any licence if the holder is convicted of any offence ; or commits any breach of these bye-laws ; or in any way defaces, lends or parts with his badge. III. — Bye-laws varying the hours of employment under Section Three (i). 1. The hours fixed by Section three (i) of the Employment of Children Act, 1903, J for the employment of children shall be varied as follows for children employed in [ " ] :— The hour before which a child may not be employed in the morning shall be [seven]. The hour after which a child may not be employed in the evening shall be [eight]. 2. The hours fixed by Section three (i) of the Employment of Children Act, 1903, for the employment of children shall be varied as follows for children employed in [ ] :~ The hour before which a child may not be employed in the morning shall be [five] ; and the hour after which a child may not be employed in the evening shall be [eight]. * In some tew cases bye-laws — made under Local Acts — have been approved which require street- trading children to be decently clad ; but approval has only been given when the Secretary of State has been satisfied that, through the agency of some charitable society, clothing can be supplied to really destitute children. t The age fixed must not be lower than 11 [see Section three (2) of the Act]. % In bye-laws applying to children singing, playing, performing for profit or selling in the streets, the words " and Section two (6) of the Prevention of Cruelty to Children Act, 1894," should be added. PART VI Bibliography of the Employ- ment of Children in the United Kingdom. Bibliography of the Employment of Children in the United Kingdom* INTRODUCTORY NOTE. In the list of works given below no attempt is made to deal mth the em- ployment of children in factories, workshops, and mines. A bibliography of factory legislation is contained in the History of Factory Legislation, by Miss B. L. Hutchins and Mrs. Spencer (2nd edition, 1911). References are given to the principal official publications, etc., which deal with the development of the protection of children through the Mines Acts, in the Second Report of the Royal Commission on Mines, 1909, pp. 2-11. The term " child " is here, as throughout this Report, used to mean a person under the age of 14 years. The bibUography, therefore, does not include works or reports dealing solely with the employment of " young persons," viz., boys and girls aged over 14. But in legislating for the protection of juveniles employed as chimney sweeps, acrobats, and street traders, Parlia- ment has not always observed the distinction between " children " and " young persons," which runs throughout the whole of Enghsh factory legislation. The works to which references are given in connection with these subjects frequently deal with both " children " and " young persons " without dis- tinction. The reports and publications of local authorities dealing incidentally with the regulation of child labour are very numerous. It would be impossible to catalogue them with any attempt at completeness. The only publications of local authorities mentioned in the bibhography are a few of the reports of the London County Council which are of special interest. References are given to the documents relating to the employment of children issued by a selected number of local authorities, at the end of some of the special local reports in Part V. of this Report. The large collection of municipal documents in the London School of Economics is now being indexed. One of the headings in the index is " Child Labour," and any investigator can already trace a considerable amount of information by consulting the papers indexed under this title. The Committee on Wage-earning Children possesses a considerable collection of newspaper cuttings and other papers dealing with the administration of child labour regulations by local authorities. These have all been classified under the names of the localities to which they relate. The British Section of the International Association for Laboui* Legislation possesses the only complete imofficial collection of bye-laws now in force made by local authorities under the Employment of Cliildren Act or under Local Acts, for regulating the employment of children. 312 The list of Acts of Parliament does not include the Local Acts, which contain clauses dealing with the regulation of child labour. References to these are given above on pp. i6 and 20-1. An attempt has been made to give some indication of the contents of the works included in the bibliography by the letters placed after each entry. C.B., indicates Climbing Boys (Chimney Sweepers) ; A.G., Agricultural Gangs ; P.E., Public Entertainments ; S.T., Street Trading ; and Gen., General Em- ployment {i.e., all employment other than the special forms of employment specified above, and other than employment under the Factory and Workshop and Mines Acts). The numbers given after the entries in the list of British Government Publications indicate the volumes of the series of official publica- tions as bound in the British Museum Collection, in which the works alluded to may be found. All works except those marked f are in the British Museum ; those marked * are in the British Library of Political Science (at the London School of Economics) ; those marked § are in the Library of the British Institute of Social Service. 313 I. Acts of Parliament and Orders. ^1788. 28 Geo. III., c. 48. An Act for the Better Regulation of Chimney Sweepers and their Apprentices. (Repealed 1871.) '1834. 4 and S Will. IV., c. 35. Chimney Sweepers Regulation Act. (Repealed 1874.) •1840. 3 and 4 Vict., c. 85. Chimney Sweepers and Chimneys Regulation Act. '1864. 27 and 28 Vict., c. 37. Chimney Sweepers Regulation Act. '1867. 30 and 31 Vict., c. 130. Agricultural Gangs Act. ^1873. 36 and n Vict., c. 67. Agricultural Children Act. (Repealed 1876.) •^1875. 38 and 39 Vict., c. 70. Chimney Sweepers Act. '1878. 41 and 42 Vict., c. 78. Education (Scotland) Act. Sections 5, 6. = 1879. 42 and 43 Vict., c. 34. Children's Dangerous Performances Act. ^1889. 52 and 53 Vict., c. 44. Prevention of Cruelty to, and Protection of. Children Act. Section 3. (Repealed 1894.) = 1892. 55 and 56 Vict., c. 55. Burgh Police (Scotland) Act. Section 276. (Repealed 1903-) ■1894. 56 and 57 Vict., c. 73. Local Government Act. Section 27. ' 57 and 58 Vict., c. 27. Prevention of Cruelty to Children (Amendment) Act, 1894. Section 6. (Repealed 1894.) ' 57 and 58 Vict., c. 41. Prevention of Cruelty to Children Act, 1894. Sections 2, 3. (Repealed 1904.) 57 and 58 Vict., c. 51. Chimney Sweepers Act. Section 2. 60 and 61 Vict., c. 52. Dangerous Performances Act. I Edw. 7, c. 9. Education (Scotland) Act, 1901. Sections 2, 3. 3 Edw. 7, c. 45. Employment of Children Act. Order dated nth November, 1903, made by the Secretary of State, under Section 4 of the Employment of Children Act, 1903, directing mode of Publication of Bye-Laws. (Statutory Rules and Orders, 1903, No. 958.) *I904. 4 Edw. 7, c. 15. Prevention of Cruelty to Children Act. Sections 2, 3. ♦1908. S Edw. 7, c. 67. Children Act. Sections 19, in, 120. *I9I3. 3 and 4 Geo. V., c. 7. Children (Employment Abroad) Act. Order under Section 2 of Children (Employment Abroad) Act. [S.R. and O. 1913, No. 8S5.] II. British Government Reports, etc. *i8i7. Report of (Commons) Select Committee appointed to examine the Petitions pre- sented to the House against the Employment of Boys in Sweeping Chimnevs. (400) VI. C.B. 1818. Evidence before the Lords Committee to whom was referred the Bill intituled "An Act for the Better Regulation of Chimney Sweepers and their Appren- tices, and for Preventing the Employment of Boys in Climbing Chimneys." C.B. *i8i9. Report of the Surveyor-General of the Board of Works, who was directed to ascertain, by experiment, how far it is safe and practicable to supersede the practice of Climbing Boys by the use of Machinery. (9) XVII. C.B. *i825. An account of the Number of Boys Apprenticed to Chimney Sweepers . at the several Police Offices within the Bills of Mortality during the last Twenty Years. (154) XX. C.B. ♦1830. Circular Letter addressed by the Home Secretary to different Public Offices in favour of the Society for Superseding Climbing Boys. (281) XXIX. C.B. 1834. Evidence before the Lords Committees appointed a Select Committee to inquire into the Expediency or Inexpediency of the Regulations contained in the Bill intituled " An Act for the Better Regulation of Chimney Sweepers and their Apprentices." C.B. [Also contains Index to Evidence taken in 18 18.] Minutes of Evidence taken before the Lords Committee to whom the Chimney Sweepers' Regulation Bill was committed. C.B. Treasury jMinute, dated 20th February, 1829, respecting the Use of Machinery for Sweeping Chimneys. C.B. * An Account of the Number of Boys Apprenticed to Chimney Sweepers under the provisions of the Act of 28 Geo. III., c. 40, at the several Police Offices within the Bills of Mortality, during the last Nine Years ; distinguishing . . the Age and the Evidence of such Age. (114) LI. C.B. 314 1840. *i843- 1853- *i863. *i866. *i867. 1868. 1869. 1870. 1876. *i877- 1882. 1887. *i888. 1890- Evidence before the Lords Committee on the Bill for the Regulation of Chimney Sweepers and Chimneys. C.B. Reports of Special Assistant Poor Law Commissioners on the Employment of Women and Children in Agriculture. [510] XLI. A.G. Evidence before the Select Committee of the House of Lords appointed to con- sider the Expediency or Inexpediency of the Regulations contained in the Chimney Sweepers' Regulation Act Amendment Bill. C.B. Children's Employment Commission. First Report. [3170] XVIII. C.B. Children's Employment Commission. Fifth Report. [3678] XXIV. C.B. Children's Emplo>Tnent Commission. Sixth Report. [3796] XVI. A.G. Royal Commission on Employment of Children, Young Persons, and Women in Agriculture. First Report. [4068] XVII. A.G. Royal Commission on Employment of Children, etc., in Agriculture. Report. [4202] XIII. A.G. Royal Commission on Employment of Children, etc., in Agriculture. Report. [C. 70] XIII. A.G. Royal Commission on Employment of Children, etc., in Agriculture. Report. [C. 221] XIII. A.G. Factory and Workshop Act Commission. Report and Evidence. C. Gen. C.B. S.T AG. Correspondence respecting the Introduction into and Employment in this Country of Itahan Children. [C. 1764] LXXXVII., LXXXVIII. P.E. Report of Select Committee on Police and Sanitary Regulations. (226) XII. S.T. [See also Reports of this Committtee for 1884 [(298) XV.], 1887 [(250) XL], 1889 [(321) XL]. Third Report. Evidence Qq. 50431-50752. Second Third Fourth 1443- Royal Commission on Education [C. 5158] XXX. P.E. Royal Commission on Education. no.] P.E. Royal Commission on Education [See p. 53.] P.E. 1904. Reports of Chief Inspector of Factories for Years i Final Report. [C. 5485] XXXV. [See p. Digest of Evidence. [C. 5329] XXXVII. J-1903. P.E. ( 1899 [C- 9281] XII. '"^"1 1900 [Cd. 27] XL *i899 - 1900 [Cd. 223] XL *i900 - 1901 [Cd. 668] X. *i90i - 1902 [Cd. 1 1 12, 1300] XII. *iao2 1^903 [Cd. i6io]XIL ^9" [1904 [Cd. 1816] X. *I903 - 1904 [Cd. 2139] X. Prevention of Cruelty to Children Act."} *i893- * ti894. *i899. ♦1902. -1890 [C. 6060] XX. 1 890-1 89 1 [C. 6330] XIX. *i89i-i892 [C. 6720] XX. *i892-i893 [C. 6978] XVII. *i893-i894 [C. 7368] XXI. *i894-i895 [C. 7745] XIX. *i895-i896 [C. 8067-8] XIX. * 1 896-1 897 [C. 8561] XVII. *i897-i898 [C. 8965] XIV. [See headings in each Report- Report of Departmental Committee appointed to inquire into the condition of School Attendance and Child Labour. (3ii)LXVIII. Gen. [Contains information about Half-Timers employed outside Factories and Workshops in certain Towns.] Royal Commission on Labour. The Agricultural Labourer. Vol. I., England. [C. 6894] XXXV. A.G. [See Index under " Gang System."] Circular from Home Office to Clerks of Justices of the Peace, dated i8th De- cember, 1894, with regard to the issue of Licences for the Employment of Children in Theatres. P.E. Return for England and Wales giving the Number of Children attending Elemen- tary Schools who are known to be \\^orking for Wages or Employed for Profit. (205, 23) LXXV. Gen., S.T. Inter-departmental Committee on the Employment of School Children. Report. [Cd. 849] XXV. Gen., S.T. Inter-departmental Committee on the Employment of School Children. Evi- dence. [Cd. 895] XXV. Gen., S.T., P.E., A.G. Inter-departmental Committee on the Employment of Children during School Age in the Large Centres of Population in Ireland. Report, with Evidence. [Cd. 1 144] XLIX. Gen., S.T. Special Reports on Educational Subjects, Vol. VIII. The Education, Earnings, and Social Conditions of Boys engaged in Street Trading in Manchester, by E. T. Campagnac and C E. B. Russell. [Cd. 835] XXVI. S.T. 3IS f 1903. Circular to Local Authorities froni the Home Office on the Adniinistration of the Employment of Children Act. *I904. Inter-departmental Committee on Physical Deterioration. Vol. II. Evidence. Qq. 12730-1. 12756-12761. [Cd. 2210] XXXII. S.T. *i9o6. Report on the Bye-laws made by the London County Council under the Em- ployment of Children Act, 1903. [Cd. 2809] XC. Gen., S.T. ♦1907. Return of Local Authorities which have made Bye-laws under the Employment of Children Act, 1903. (H.C. 249.) LXXII. Gcn., S.T. * Report from the Select Committee on Home Work. (290) VI. Gen. [See Index to the Evidence under " Children, Employment of."] *i9o8. Report from the Select Committee on Home Work. (246) VIII. Gen. [See Index to the Evidence under " Children, Employment of."] ♦1909. Inter-departmental Committee on Partial Exemption. Vol. I., Report ; Vol. II., Evidence. [Cd. 4791, 4887] XVII. Gen., S.T. * Royal Commission on the Poor Laws. Appendix, Vol. XX. Report on Boy Labour, by Mr. Cyril Jackson. [Cd. 4632] XLIV. S.T. ♦1910. Departmental Committee on the Employment of Children Act, 1903. Part I., Report ; Part II., Evidence. [Cd. 5229-30] XXVIII. Gen., S.T. ♦191 1. Report on the Bye-laws made on the 29th of January, 1910, by the London County Council, by S. O. Buckmaster. [Cd. 5497] LXIV. Gen., S.T. * Annual Report for 19 10 of the Chief Medical Officer of the Board of Education. [Cd. 5925] XVII. Gen., S.T. [See Addendum to Section IV. on the Employment of School Children.] ♦1912. Annual Report for 191 1 of the Chief Medical Officer of the Board of Education. [Cd. 6530] Gen. [See Section XIII. on Medical Inspection and Juvenile Employment.] Circular 813 of the Board of Education to local Education Authorities. *i9i3. Departmental Committee on Van and Warehouse Boys. Minutes of Evidence. Gen. [See Index under " Employment of Children Act."] * Report on the Bye-law made by the Devon County Council under the Employment of Children Act, 1903, and on the objections thereto, by Samuel Pope. [Cd. 6988.] Annual Report for 19 12 of the Chief Medical Officer of the Board of Education. [Cd. 7184.] Gen. S.T. in. Books, Pamphlets, Articles, Private Reports, etc. 1785. Hanway, Jonas. A Sentimental History of Chimney Sweepers in London and Westminster, showing the necessity of putting them under Regula tions to Prevent the Grossest Inhumanity to the Climbing Boys. C.B. 1792. Porter, David. Considerations on the Present State of Chimney Sweepers. C.B. 1798. Bernard, Sir Thomas. Extracts from an Account of a Chimney Sweeper's Boy, etc. In Reports of the Society for Bettering the Condition of the Poor, Vol. I. C.B. 1800. Durham, Bishop of. Extract from an Account of a Provision for Chimney Sweepers' Boys, at Kingston-upon-Thames. In Reports of the Society for Bettering the Condition of the Poor, Vol. 11. C.B. 18 16. A Short Account of the Proceedings of the Society for Superseding the Neces- sity of Climbing Boys. C.B. 18x8. Address from the Committee of the Society for Superseding the Necessity of Climbing Boys. C.B. *i8i9. Smith, Sydney. Chimney Sweepers, Edinburgh Review, October, 1819. C.B. [Reprinted in " Sydney Smith's Works," 1869, etc.] 1 82 1. Tenth Report of the Society for Superseding the Necessity of Climbing Boys. C.B. 11840. Bloom, J. H. History of Castle Acre. A.G. [This work is referred to in the Report of the Assistant Poor Law Comniissioners in 1843 on the Employment of Women and Children in Agriculture, as containing a description of the effects of the Gang System in Castle Acre, Norfolk.] *i86i. Mavhew, Henry. London Labour and the London Poor. Vols. I. and II. C.B., S.T. [Contains a mass of information about London Street Sellers ; vol. I, pp. 468-485, section on Child Street Sellers.] 1863. KiNGSLEY, Charles. Water Babies. (First Edition). C.B. 3i6 *i867. §*i882. *i883 1884. *i886. *i888. 1894- ti899- t§i900. t§ ti9oi. *I902. tr t§- }.Iarx, Karl. Das Kapital. A.6. [English Translation, First Edition 1886; Tenth Edition 1904. The Report of the Children's Employment Commission on Agricul- tural Gangs is summarised, pp. 714-8 of the Tenth English Edition.] Jevons, W. Stanley. The State in Relation to Labour. A.G. [Second Edition 1887, Third 1894, Fourth 1910.] Lyttel, Rev. E. Z. Letter on the Treatment of Acrobat Children, in The Times, 2nd August, 1883. P.E. Barlee, Ellen. Pantomime Waifs (with a preface by the Earl of Shaftes- bury). P.E. HoDDER, Edwin. Life and Work of the Seventh Earl of Shaftesbury, K.G. Three Vols. A.G., P.E., C.B. r-IiTCHELL, William (Vice-Chairman, School Board of Glasgow). Rescue the Children.. P.E., S.T., Gen. Waugh, Rev. Benjamin. Street Children, in Contemporary Review, June 1888. S.T. Hall, W. Clarke. The Law Relating to Children. Gen., S.T., P.E. [Second Edition 1905, Third 1908.] Tuckwell, Gertrude M. The State and Its Children. P.E. Maddison, a. J. S. The Law Relating to Child-Saving and Reformatory Efforts. Also later Editions. Fourth Edition 1909. Gen., S.T., P.E. Hall, W. Clarke. The Queen's Reign for Children (Part I. : The Employer and the Child). C.B., A.G., P.E. Hogg, Edith F. School Children as Wage-Earners, in Nineteenth Century, August, 1897. Gen., S.T. HoDDER, Edwin. The Seventh Earl of Shaftesbury, K.G., as Social Reformer. C.B., A.G. London School Board : Report on Children Working for Wages. Gen., S.T. HiRD, Frank. The Cry of the Children. Gen. GoRST, Sir John E. School Children as Wage Earners, in Nineteenth Century, July, 1899. Gen., S.T. DowDALL, Chaloner. The Liverpool By-Laws Regulating Street Trading by Children, in the Economic Review, October, 1899. S.T. AvES, Ernest. Kinderarbeit in London. In Sociale Praxis, 6th July, 1899. Anon. The Children's Labour Question. Reprinted from Daily News. Gen., S.T. Tollerton, E. Juvenile Breadwinners. S.T. City of London Branch of the Independent Labour Party. Commercialism and Child Labour. Gen., S.T. Burke, Thomas. The Street-Trading Children of Liverpool, in the Contem- porary Review, November, 1900. S.T. London County Council. Report of the Chief Officer of the Public Control Department as to the Limitation and Regulation of the Employment of School Children out of School Hours. No. 468. Gen., S.T. Report of Committee on Wage-Earning Children. The Employment of Children for Wages. Gen. Scottish Council for Women's Trades. The Employment of Children, Eeport of an Inquiry. Gen., S.T. Peacock, Robert (Chief Constable of Manchester). Employment of Children, with special reference to Street Trading by Children, in " Report of the Proceedings of the Third International Congress for the Welfare and Protection of Children," pp. 191-202. Also Discussion on the Paper, pp. 214-7. S.T. DowDALL, Chaloner. The Operation of the Liverpool Bye-laws Regulating Street Trading by Children, in the Economic Revieiv, July, 1902. S.T. Graham, J. E. A Manual of the Acts Relating to Education in Scotland. Gen., S.T., P.E. Adler, N. Wage-Earning Children in England. (Published by the Com- mittee on Wage-Earning Children.) Gen., S.T. Burke, Thomas. Wage-Earning School Children in England, in the Forv.m, May, 1902. Gen., S.T. Cunynghame, H. H., C.B. Street Trading for Boys and Girls. (Published by the Reformatory and Refuge Union.) S.T. Scottish Council for Women's Trades. The Statutory Powers of School Boards in Scotland relating to the Employment of Children. Gen., S.T., P.E. 317 Committee on Wage-Earning Cluldren. The Employment of Children Act, 1903. Gen., S.T. [Leaflet explaining Provisions.] First Report of City of London Newsboy Brigade, 1902-3. S.T. Adler, N. Children as Wage-Earners, in Fortnightly Review, May, 1903. Gen., S.T. Committee on Wage-Earning Children. Memorandum on Employment of Children Bill, 1903. Gen., S.T. Committee on Wage-Earning Children. Memorandum (No. 2) on Employ- ment of Children Bill, 1903. Children Employed in Theatres. P.E. Bauer, S. Die neuere Kinderschutzgesetzgebung in Deutschland und in Grossbritannien, in Archiv fur Sozialwisscnschaft und Sozialpolitik, Vol. 19, Part 3. ■I-I904. Agahd, Konrad. Das englische Kinderschutzgesetz, in Die Zeit, 5th March, 1904. Gen., S.T. j§ Committee on Wage-Earning Children. Report on the Employment of Chil- dren Act, 1903. A Statement of the Chief Provisions of the Measure, with Suggestions as to the Form of Bye-laws required to secure the Effective Protection of Juvenile Workers. Gen., S.T., P.E. § Urwick, E. J. [Ed.) Studies of Boy-Life in Our Cities, containing The Boy and His Work, by J. E. Cloete. S.T. * Wood, G. H. An Outline of the History of the Employment of Women and Children in Industry, in the Co-operative Wholesale Societies^ Annual for 1904, (pp. 209-238). C.B. * Committee on Wage-Earning Children. Third Annual Report, for the year ending 31st December, 1903. Gen. [The earlier Annual Reports have not been preserved.] |§ Conway, Michael. Child Labour. (Published by Bradford Moor Socialist Institute.) Gen., S.T. * Webb, Catherine. Review of the Third Annual Report of the Committee on Wage-Earning Children, in the Economic Review, April, 1904. Gen. §1905. Sherard, R. H. The Child Slaves of Britain. Gen., S.T. § Russell, C. E. B. Manchester Boys. S.T. §f Committee on Wage-Earning Children. Fourth Annual Report for the Year ending 31st December, 1904. Gen. §*i9o6. Adler, N. Juvenile Wage-Earners and Their Work, in Progress, July, 1906. Gen., S.T. London County Council. Report of the Education Committee submitting the Report of the School Medical Officer for year ending March, 1906. ■|-§ Committee on Wage-Earning Children. Fifth Annual Report, for the Year ending 31st December, 1905. Gen. § GoRST, Sir John E. The Children of the Nation. Gen., P.E. * Warner, H. Lee. Article on Gangs (Agricultural), in the Dictionary of Political Economy, Vol. II. A.G. §♦1907. Black, Clementina. Sweated Industry. Gen., S.T. [See Chapter on Child Wage-Earners.] Malvery, O. C. Baby Toilers. Gen. §f Committee on Wage-Earning Children. Sixth Annual Report, for the Year ending 31st December, 1906. Gen. t Peacock, R. Street Trading by Children. Paper read to Conference of Chief Constables, 9th May, 1907. S.T. §*i9o8. Gray, B. Kirkman. (Ed. E. K. Gray and B. L. Hutchins.) Philanthropy and the State. C.B. * Hasbach, W. a History of the English Agricultural Labourer. Translated by Ruth Kenyon. A.G. [See Index under "Child Labour" and " Agricultural Gangs."] §* Alden, 1\Iargaret, M.D. Child Life and Labour. Gen., S.T. § Woman in Industry, by several wTiters. Gen., S.T. [Contains essay on Child Employment and Juvenile Delinquency, by N. Adler.] * Adler, N. Child Workers and Wage-Earners, in the Journal of the Royal Society of Arts, 12th June, 1908. Gen., S.T. §* Dale, Mrs. Hilton. Child Labour under Capitalism (Fabian Tract No. 140). Gen., S.T. f* Fabian Society, Executive Committee. The Children's Bill and Street Trading. A Serious Omission. S.T. 3i8 1908. ^1909. §*i9ii. Parr, Robert J. Prevention of Cruelty to Children Act, 1904, with an Ex- planatory Note. S.T., P.E. [Shows portions of the Act left unrepealed by the Children Act, 1908.] TucKWELL, Gertrude M., and Smith, Constance. The Worker's Handbook. Gen., P.E., S.T. Russell, C. E. B., and Rigby, L. M. Working Lads' Clubs. S.T. [See Index under Street Vendors.] Clark, Victor S. Woman and Child Wage-Earners in Great Britain (Bulletin No. 80 of the American Bureau of Labour). Gen., S.T. Irwin, Margaret H. Homework in Ireland. (Published by Scottish Counci- for Women's Trades.) Gen. [Pp. 18, 19 on the Employment of Children in Homework.] Scottish Council for Women's Trades. National Scottish Conference on the Employment of Children. S.T. [Contains Paper on Juvenile Street Trading, by Rev. C. Rolland Ramsay, and other information on Street Trading.] Smith, Constance. Report on the Employment of Children in the United Kingdom. (Published by the British Section of the International As- sociation for Labour Legislation.) Gen., P.E. Russell, C. E. B. Boys and Street Trading, in Manchester Guardian, 16th September, 1909. S.T. Committee on Wage-Earning Children. Seventh and Eighth Annual Reports, for the Years 1907-8. Gen. Lincoln Newsboys' Association. January, 1899- June, 19 10. Issued by the Association. S.T. [Brief annual reports are also issued by the Association.] Anon. The Problem of the Newsboy, in Westminster Gazette, 21st July, 1910. Hind, Oliver W. Juvenile Street Trading, in the Shaftesbury Magazine, November, 19 10. S.T. Parr, R. J. Wilful Waste : The Nation's Responsibility for its Children. Gen., S.T. [Contains short chapters on Child Labour and Street Trading.] Pelhatj, H. S. With Introduction by W. H. Carnegie. Street Trading by Children. S.T. Tennant, Mrs. H. J. {Ed.) Industrial Work and Industrial Laws. Gen., S.T. [Contains Essay on The Employment of Children, by Constance Smith.] Russell, C. E. B. Street Trading. In the Manchester Evening News, 12th August, 1910. S.T. Committee on Wage-Earning Children. Ninth and Tenth Annual Reports for the Years 1909-10, ending 31st October, 1910. Gen. Adler, N. The Limitation of Juvenile Labour, in the Papers and Proceedings of the National Conference on the Prevention of Destitution, 1911. Gen., S.T. Bray, R. A. Boy Labour and Apprenticeship. Gen., S.T. Jewson. W. H. Street Trading, in the Boys' Brigade Gazette, ist February, 1911. S.T. Oates, Austin. April, 191 1. Garnett, W. H. t§i9i2. Street-Trading Children and the Act of 1903, in Month, S.T. Stuart. Children and the Law. Gen. E.B., S.T., C.B. [The account of the law with regard to the employment of children given in this work is inaccurate in some particulars.] Report of the Committee appointed by the Bishop of Birmingham to inquire into Street Trading by Children. S.T. Committee on Wage-Earning Children. Some recent information obtained during May, 1911. S.T. Committee on Wage-Earning Children. Memorandum on the Employment of Children Act Amendment Bill. S.T. Committee on Wage-Earning Children. Employment of Children Act Amend- ment Bill. Memorandum. (Issued at a later stage of the discussion on the Bill.) S.T. Committee on Wage-Earning Children. Eleventh Annual Report. Gen., S.T. The London Newsboy. What to Do with Him. (Issued by the Newsboy Club.) S.T. The Newsboys' Club and Working Lads' Institute. Report and Balance- Sheet to 31st October, 191 1. S.T. 319 Brown, H. Maughan, Assistant Medical Officer, Surrey Education Com- mittee. Schoolboys as Wage-Earners, in The Child, September, 191 2. Gen. Greenwood, A. The Medical Supervision of Juvenile Workers, in the Papers and Proceedings of the National Conference on the Prevention of Destitu- tion, 191 2. Gen. Jewson, W. H. Juvenile Employment, in the Class Teacher, January, 1912. Gen., S.T. § Whitehouse, J. H., M.P. Problems of Boy Life. S.T. [Contains Essays by Norman Chamberlain on The Station Lounger, and J. H. Whitehouse on Street Trading by Children.] * DuNLOP, J., and Denman, R. D.. M.P. English Apprenticeship and Child Labour. Gen., S.T., C.B. t§ Clopper, E. N. Child Labour in City Streets. S.T. f§ [NIuNDELLA, A. J. The Cry of the Children. (Reprinted, with alterations, from the Daily News, 4th December, 191 1, and published by the Committee on Wage-Earning Children.) S.T., Gen. §* Lawrence, A. Susan. The Children's Minimum. (Supplement to The Crusade, October, 1912.) Gen., P.E. § " H.S." The Employment of Children, in School Child, May, 191 2. Gen. § " Accelerans." Juvenile Labour Notes, in School Child, March, April, May, June, 191 2. Gen., S.T. Greenwood, A School Medical Inspection and Juvenile Employment, in Local Government Review, September, 19 12. Gen. ^^ Committee on Wage-Earning Children. Twelfth Annual Report. Gen., S.T. 191 3. Waugh, Rosa. The Life of Benjamin Waugh. S.T., P.E. t§ Birmingham Branch of the National Union of Women Workers. Discussion on the Employment of Children Act, in Women Workers, June, 1913. Gen., S.T. [See pp. 2, 3.] fl The Case for the National Minimum. (Issued by the National Committee for the Prevention of Destitution.) Gen., S.T. [Contains Section on Child Labour.] f Phillips, Mary E. How the Public can Help Wage-Earning Children. (Pub- lished by the Committee on Wage-Earning Children.) Gen., S.T. + Keeling, Frederic. Die Durchfiihrung sowie die praktischen Ergebnisse der Kinderarbeitsgesetze in Grossbritannien. (In Schrif ten des zweiten osterreichischen Kinderschutzkongress in Salzburg, 191 3, Band I.) Gen., S.T., P.E., C.B., A.G. t§* Player, H. D. Medical Inspection and Juvenile Employment, in The Labour Woman, May, 19 13. Gen. § Alden, Margaret, M.D. Women and Children and the Labour Market, in Nelson's " Encyclopaedia of Industrialism." Gen. Rowntree, B. Seebohm, and Kendall, May. How the Labourer Lives. A Study of the Rural Labour Problem. Gen. [See references under "Children's Earnings" in index for details of wage-earning by school children in rural districts.] § " Accelerans." Juvenile Labour Notes, in School Child, April, May, June, 1913. Gen., S.T. * Greenwood, A. The Health and Physique of School Cliildren (published by the Ratan Tata Foundation). Gen. 320 INDICES. These Indices cover the Introduction and the whole of Parts I. to V. of the Report. They do not contain references to the Bibliography [Part VI.). I. INDEX TO PLACES. Aberdare, 41, 48, 146, 190, 214, 216, 220; Aberdeen, x., 16, 27, 156, 224: Abertillery, 41, 190, 214, 216, 220; Accrington, 211, 222; Acton, 146, 190, 214, 216, 226, 279; Aldershot, 214; Alverstoke [see Gosport) ; Anglesea, 224; Antrim, 224; Ardrossan, 164; Ashton-under-Lyne, x., 211, ^,22; Aston Manor, 218; Australia, xxii., 16; Ayr, 156, 194, 224. Bacup, 211, 222 : Banbury, 36, 122, 184, 222, 279; Bangor, 211 ; Barhead, x. ; Barking Town, 214; Barnet, v.; Barnsley, 36, 46, 82, 174, 210, 216, 218, 224, 279; Barnstaple, 32, 211, 221 ; Barrow-in-Furness, x., 47, 72, 82, 174, 210, 216, 218, 222, 279, 280 ; Barry, x., 146, 190, 214, 216, 220 ; Bath, x., 72, 84, 174, 210, 216, 218, 223, 235 ; Batley, 49 211 ; Beckenham, 40, 48, jt,, 146, 190, 214, 216, 220, 279; Bedford, 211, 221 ; Bedfordshire, 221 ; Belfast, x., 41, 44, 196, 224; Berkhamsted, Great, v. ; Berkshire, 221; Berwick-on-Tweed, 211, 222; Beverley, 212, 223; Bexhill, 48, 122, 184, 212, 216; Bilston, 190, 214, 216, 220; Birkenhead, x., 36, 39, 48, 51, 84, 174, 210, 216, 218, 221, 237-240, 279 ; Birmingham, x., xxx., 7, 16, 17, 19, 21, 25, 39, 42, 43, 45, 46, 48, 49, 57, 58, 61, 64, 174, 210, 217, 218, 223, 235-7, 261, 273 ; Bishopstoke, 76, 172, 218 ; Bishops Stortford, v. ; Blackburn, x., 174, 210, 218, 222 ; Blackpool, x., 174, 210, 218, 222 ; Blantyre, 164; Blythe, 214; Bolton, 22, 36, 40, 43, 46, 48, 57, 72, 86, 174, 210, 216, 218, 222, 279, 304 ; Bootle, x., 44, 174, 210, 218, 222, 240, 241 ; Boston, 212, 222; Bournemouth, x., 41, 47, 73, 86, 174, 210, 216, 218, 279; Bradford, x., xxiii., 22, 36, 40, 43-4, 47, 49, 50, 52, 57, 59, 62, 72-3, 88, 174, 210, 216, 218, 224, 241--2 ; Bruchin, 156; Brecon, 224; Bridgwater, 212, 223; Bridlington, 49, 212; Brighouse, 212 ; Brighton, x., 'ig, 47, 49, 57, 88, 174, 210, 216, 218, 223, 279; Bristol, x., 18, 19, 20, 34, 38, 39, 57, 61, 90, 174, 210, 216, 218, 222, 242-6, 279 ; Bromley, x., 72, 122, 184, 212, 216 ; Bucks, 221 ; Burnley, 174, 210, 218, 222 ; Burton-on-Trent, x., 210; Bury, X., 22, 174, 210, 218 ; Bury St. Edmunds, 212 ; Bushey, v. Cambridge, x., 36, 47, 57, 124, 184, 212, 216, 219, 221, 279, 280; Cambridgeshire, II, 36, 221 ; Cannock, 214; Canterbury, 210, 222 ; Cardiff, x., 17, 20, 47, 72, 90, 174, 210, 216, 218, 224; Cardigan, 224; Carlisle, x., 47, 72, 124, 184, 212, 216, 219, 221 ; Carmarthen, 212, 224; Carmarthenshire, 237; Carnarvon, 224; Cathcart, 164; Chadderton, 214 ; Chatham, 72, 126, 184, 212, 216, 219, 279 ; Chelmsford, 212 ; Cheltenham, x., 17, 45, 126, 184, 212, 216, 219 ; Cheshire, 36, 72, 76, 90, 172, 210, 216, 218, 221, 279 ; Cheshunt, v. ; Chester, x., 47, 49, 72, 174, 210, 216, 218, 221, 279, 280 ; Chesterfield, 126, 184, 212, 216, 219, 221 ; Chichester, 212 ; Chiswick, x., 40, 73, 14C, 190, 214, 216, 220, 279 ; Chipping Wycombe, 212 ; Chorley, 212 ; Clackclose, 233, 234; Clitheroe, 212, 222; Coatbridge, x., 224; Colchester, 32, 184, 212, 221; Colne, 126, 212, 279; Congleton, 212, 221 ; Cork, x., 45, 196; Cornwall, x., 221; Coseley, 214 ; Coventry, x., 47, 73, 92, 174, 210, 216, 218, 223, 279, 280 ; Crewe, 36, 47, 126, 184, 212, 216, 219 ; Crieff, 164 ; Croydon, x., 36, 45, 94, 174, 210, 216, 218, 279, 280 ; Cum- berland, X., 221. Darlington, 36, 40, 48, 128, 184, 212, 216, 219, 279 ; Darwen, 212 ; Deal, 212 ; Denbigh, 224 ; Denbighshire, x. ; Derby, 210, 221 ; Derbyshire, 221 ; Devonport, X., 174, 210, 218, 221 ; Devonshire, 34, 63, 210, 221 ; Dewsbury, x., xxx., 32, 33, 43, 47. 51. 73. 94. 174. 210, 216, 218, 224, 247-8, 279, 280; Doncaster, 36, 41, 48, 128, 184, 212, 216, 219, 224; Dorset, 221 ; Dover, 36, 72, 128, 184, 212, 216, 222, 279 ; Dublin, X., 41, 44, 46, 196, 224, 293, 295 ; Dudley, 174, 210 ; Dukinfield, 212 ; Dumfries, 156 ; Dundee, 158, 194; Durham, 212, 221 ; Durham County, 221 ; Dysart (see Kirkaldy). Ealing, x., 130, 184, 212, 216, 219, 279 ; Eastbourne, 73, 96, 174, 210, 216, 218, 223,279; East Retford, 212 ; East Ham, 36, 47, 130, 184, 212, 216, 219, 279 ; Eastleigh, 76, 172, 218 ; Ebbw Vale, 190, 214, 216, 220 ; Eccles, 212 ; Edinburgh, 6, 7, 8, 13, 22, 27, 40, 41, 57, 158, 190, 208, 209, 277, 278, 283 ; Edmonton, 214 ; Ely, Isle of, 11, 221 ; Enfield, 73, 148, 190, 214, 216, 220, 279 ; Erith, 36, 40, 48, 148, 190, 214, 216, 220, 279; Essex, 221 ; Exeter, x., 72, 96, 174, 210, 216, 218, 221, 248-50. 321 Falmouth, 212; Farmvorth, 214; Favcrsham, 212; Felling, 214; Ferryport- on-Craig, 164; Finchley, x., 36, 45, 148, 190, 214, 216; Flint, 224; Folkestone, x., 212, 222 ; Freebridge Lynn, 234. Galway (West Riding), 224; Gateshead, 210, 221; Germany, 65; Glamorgan, 224; Gillingham, 47, ^2, 130, 184, 212, 216, 219, 279; Glasgow, x., 7, 8, 13, 16, 21, 40, 158, 190, 224, 277; Glossop, 212, 221; Gloucester, x., 210; Gloucestershire, 76, 172, 210, 216, 218, 222 ; Gosport and Alverstoke, 41, 48, 150, 190, 214, 216, 220, 279 ; Gourock, 35, 164; Govan, 34, 53, 166; Grantham, 212, 222; Gravesend, 212, 222; Great Yarmouth, 210, 218, 222; Greenock, 160, 224; Grimsby, 211, 222; Guildford, 130, 186, 212, 216, 219, 223, 279. Halifax, x., 22, 34, 36, 40, 47, 49, 72, 98, 106, 174, 211, 216, 218, 224, 260, 279, 304; Hampshire, 76, 172, 210, 216, 223, 279; Hanley, 223; Harpenden, v.; Hartle- pool, 212, 221; Harrogate, 49, 186, 212, 220; Harwich, 212; Haslingden, 212; Hastings, 17, 51, 98, 174, 211, 216, 218, 223 ; Hebburn, 214 ; Hemel Hempstead, 7, 212 ; Hendon, x., 42, 45, 73, 150, 190, 214, 216, 220, 279 ; Hereford, 186, 220, 222 ; Hereford- 5hu"e, 222 ; Hertford, v. ; Hertfordshire, v., 7, 78, 172, 210, 216, 222 ; Hesse, 65 ; Heston and Isleworth, 214; Heywood, 212; Hindley, 214; Holland, parts of (Lines), 222 ; Hornsey, x., 45, 132, 186, 212, 216, 220, 279, 280 ; Hove, 47, 132, 186, 212, 216, 220, 223, 279 ; Huddersfield, x., 21, 22, 33, 43, 100, 174, 211, 218, 224, 283, 304 ; Hull, X., 17, 18, 19, 49, 72, 73, 174, 102, 211, 216, 219, 223, 250, 280; Huntingdonshire, x., 222 ; Hyde, x., 212, 221. Ilford, 34, 40, 47, 73, 150, 190, 214, 216, 220, 279 ; Ilkeston, 212 ; Ince-in- Makerfield, 214; Ipswich, x., 36, 102, 174, 211, 216, 218, 223; Ireland, x., xiv., xxii., xxvii., xxxi., 7, 10, 13, 23-25, 41, 52, 53, 58, 196, 224, 225, 280, 283, 284-5, 288-9, 291, 293. 295, 301; Isleworth, 214; Italy, 12; Itchen, 76, 172, 218. Jarrow, 212. Keighley, 41, 47, 48, 72, 73, 134, 184, 212, 216, 220, 279, 280 ; Kendal, 212, 223 ; Kent, 222 ; Kerry, 225 ; Kesteven, parts of (Lines), 222 ; Kettering, 214, 250 ; Kidderminster, x., 186, 212, 220, 223 ; Kildare, 225 ; Kilkenny, 225 ; Kilmacolm, 166 ; Kilmarnock, 160 ; Kings Lynn, 213, 222 ; Kingston-on-Thames, 6, 213 ; Kingston- upon-HuU {see. Hull) ; Kircaldy and Dysart, x., 160, 194, 224 ; Kirkintillock, 160, 224. Lancashire, 222; Lancaster, 213, 222; Lannditch {see Mitford) ; Leamington, 22, 186, 213, 220, 223, 283 ; Leeds, x., xxx., 40, 44, 47, 48, 50, 51, 56, 57, 64, 72, 73, 102, 174, 202, 211, 216, 219, 224, 251-6 ; Leicester, 7, 17, 19, 20, 36, 39, 41, 42, 43, 47, 56, 72, 104, 174, 211, 216, 219, 222, 273, 279, 280 ; Leicestershire, 8, 222 ; Leigh, 213 ; Leith, 160; Letchworth, v.; Lewes, 213; Leyton, 40, 42, 47, ^i, 150, 190, 214, 216, 220, 279; Limerick, x. ; Lincolnshire, 9, 222; Lincoln, x., 45, 178, 211, 219, 222; Lindsey, parts of (Lines), 222 ; Liverpool, x., 7, 17, 18, 19, 20, 21, 22, 38, 39, 43, 44, 45, 46, 47, 49, 50, 51, 56, 57, 58, 59-61, 62, 178, 211, 216, 217, 219, 222, 228, 256-266, 279, 280, 283, 304; Llanelly, 214; London, x., 7, 8, 13, 16, 21, 25, 26, 32, 34-40, 42-8, 50-2, 56-7, 61, 62, 65, 73, 74, 172, 210, 216, 218, 222, 226-32, 273, 275, 279; Londonderry (Co.), 224; Londonderry (City), 224; Longton, 213; Loughborough, 213; Louth, 222 ; Lowestoft, x., 22, 48, 134, 186, 213, 216, 220, 279 ; Luton, 213, 221. Macclesfield, 36, 72, 134, 186, 213, 216, 220, 221 ; Maidenhead, 213 ; Maidstone, X., 213, 222 ; Manchester, x., xxiii., 7, 15, 16, 17, 29, 38, 39, 43-7, 57, 58, 60, 178, 204-6, 211, 217, 219, 222, 260, 261, 266-69, 273, 277, 283, 304; Mansfield, 186, 213, 220; Margate, 136, 186, 213, 216, 222, 279 ; Marshland, 232-34, ; Melcombe Regis {see Weymouth); Merioneth, 224; Merthyr Tydfil, x., 178, 211, 219, 224; Middlesbrough, X., 22, 178, 211, 219, 223, 283; Middlesex, x., 40, 47, 78, 172, 210, 216, 218, 279; Middleton, 213; Mitford and Lannditch, 234; Monmouthshire, 222; Montgomery, X., 224; Morley, 213; Morecombe, 213; Mossley, 213; Motherwell, x. ; Mountain Ash, 214. Neath, 136, 186, 213, 216, 220, 224 ; Nelson, 36, 72, 136, 186, 213, 216, 220, 280 ; Newark, 213 ; Newbury, 138, 186, 213, 216, 220, 279 ; Newcastle-under-Lyme, 186, 213, 220, 223; Newcastle-upon-Tyne, x., 17, 18, 36, 47, 108, 178, 211, 216, 219, 223, 256, 279; Newport (Mon.), 62, 178, 211, 219, 222; Newport (Isle of Wight), 213; Norfolk, 9-11, 52, 78, 210, 216, 222, 232-4; Northampton, x., 20, 36, 43, 47, 51, 57, 72, 108, 178, 211, 216, 219, 222, 279, 280; Northamptonshire, 222; Northumberland, 222; Norwich, x., 17, 46, 47, 51, 57, 65, no, 178, 211, 216, 219, 222, 270-2, 279; Nottingham, x., 17, 19, 34, 43, 56, no, 178, 211, 216, 219, 223, 272, 273, 279, 280. 322 Oldbury, 214; Oldham, x., 22, 211, 222; Old Kilpatrick, 166; Old Monkland, 166; Ossett, 213; Oxford, x., 178, 211, 219, 223, 274, 275; Oxfordshire, x., 223. Paisley, 162, 224 ; Paris, 16 ; Peebles, 166 ; Pembroke (Ireland U.D.), 196 ; Pembroke, 213; Pembrokeshire, 224; Pendlebury, 214; Penge, x., 40, 48, 73, 152, 190, 214, 216, 220, 279; Penzance, 213, 221; Perth, 162, 194, 224; Peterborough, 36, 72, 138, 186, 213, 216, 220, 222, 279, 280 ; Peterborough (Soke of), 222 ; Plymouth, x., 178, 211, 219, 221 ; Pontefract, 213 ; Pontypridd, x., 41, 47, 152, 190, 214, 216, 220 ; Poole, 32, 213; Portsmouth, x., 60, 178, 211, 219, 223; Poulton-cum-Seacombe, 275, 276; Preston, 22, 178, 211, 219, 222; Pudsey, 213. Radcliffe, x., 214; Radnor, 224; Ramsgate, 213, 222; Rawtenstall, 213; Reading, x., 36, 62, 112, 180, 211, 216, 219, 221, 279; Reigate, 47, 140, 186, 213, 216, 220, 223, 279; Renfrew, 162; 'Rhondda, 152, 192, 214, 216, 220; Richmond (Surrey), 213 ; Rickmansworth, v. ; Rochdale, x., 222 ; Rochester, 213, 222 ; Rotherham, x., 34, 36, 57, 72, 112, 180, 206, 207, 208, 211, 216, 219, 224, 273, 279; Rowley Regis, 214; Rutland, 223; Ryde, 213, 223. St. Albans, 36, 140, 186, 213, 216, 219, 222, 279 ; St. Helens, 180, 211, 219, 222 ; Salford, x., 20, 38, 180, 211, 219, 222 ; Salisbury, x., 213, 223 ; Salop, 223 ; Scarborough, X., 22, 186, 213, 220, 223, 283 ; Scilly Isles, 221 ; Scotland, x., xiii., xx.-xxii., xxvii.- xxix., xxxi., 7, 10, 12, 13, 14, 17, 22, 23, 24, 27, 28, 32, 40, 41, 46, 49, 51, 52, 53-6, 58- 60, 63, 64, 156-67, 194, 208, 209, 224, 277-8, 280, 283-5, 287-91, 293, 295, 297-9, 301 ; Seaforth, 240; Sheffield. 17, 20, 21, 36, 72, 114, 180, 211, 216, 219, 224, 279; Shipley, 49, 214; Shrewsbury, 188, 213, 220, 223; Smethwick, x., 114, 180, 211, 216, 219; Somerset, 223 ; Southampton, x., 34, 47, 116, 180, 211, 216, 218, 219, 223, 279; South- ampton (County) (see Hampshire) ; Southend, 40, 48, 142, 188, 213, 216, 220, 279, 280; Southport, X., 22, 211, 222; South Shields, x., 211 ; Spitaliields, 4, 5; Staffordshire, 7, 223; Stafford, 213; Stalybridge, 213, 221 ; Stirling, 162; Stockport, x., 211, 221 ; Stockton-on-Tees, 17, 188, 213, 220; Stoke-on-Trent, 36, 72, 116, 180, 211, 216, 219, 223; Stretford, 192, 214, 220; Suffolk, 9, 76; Suffolk (East), 172, 210, 216, 223; Suffolk (West), 223 ; Sunderland, x., 211, 221, ; Surrey, x., 32, 223 ; Sutherland, 224; Sussex (West), 210, 223; Sussex (East), 223; Sutton Coldfield, 213; Swaffham, 234; Swansea, x., 17, 22, 180, 211, 219, 224, 283, 304 ; Swindon, 188, 213, 214, 216, 220. Taunton, 213 ; Terrington, St. Clements, 232, 233, 234 ; Tipton, 215 ; Thornaby- on-Tees, 213 ; Tipperary, 225 ; liverton, 213, 221 ; Todmorden, 36, 72, 73, 142, 188, 213, 216, 220 ; Torquay, x., 36, 40, 48, 144, 188, 213, 216, 220, 279 ; Tottenham, 48, 154, 192, 215, 216, 220, 279 ; Tring, v. ; Truro, 213, 221 ; Tunljridge Wells, 213, 222 ; Twickenham, 73, 154, 192, 215, 216, 220, 279; Tynemouth, x., 211, 223; Tyne River (Police District), 223 ; Tyi-one, 224. Wakefield. 213, 224; Wallasey, x., 32, 36, 47, 56, 118, 180, 211, 216, 219, 275, 276, 279. 280; Wallsend, 214; Walsall, 180, 211, 219, 223 ; Walthamstow, 40, 47, j^, 154, 192, 215, 216, 220, 279; Warrington, 180, 211, 219, 222; Warwick, 214; War- wickshire, 223 ; Waterford, x., 196, 225 ; Waterloo-with-Seaforth, 215 ; Watford, 215 ; Wayland, 234; Wednesbury. 214; Wenlock. 214; West Bromwich, 211 ; West Ham, X., 40, 48, 120, 180, 211, 216, 219, 279 ; Westmorland, 223 ; West Hartlepool, x., 211 ; Weymouth and Milcombe Regis, 214, 221 ; Whitehaven, 214; Widnes, 188, 214, 220; Wigan., X, 22, 180, 211, 219, 222, 283; Wight, Isle cf, 213, 223; Willesden, 215; Wiltshire, x., 36, 72, 78, 172, 210, 216, 223, 279 ; Winchester, 214, 223 ; Windsor, 214, 221; Wisbech, 11 ; Wood Green, x., 73, 154, 192, 215, 216, 220, 279; Wolstenton United, 215 ; Wolverhampton, 62, 180, 211, 219, 223 ; Worcester, 43, 48, 49, 120, 180, 211, 216, 219, 223, 279 ; Worcestershire, 223 ; Workington, 214 ; Worms, 65 ; Worthing, 214; Wrexham, 188, 214, 220; Wycombe, Chipping (or Wycombe, High), 212, 221. Yarmouth, Great, x., 182, 210, 218, 222; Yeovil, 214; York, x., 22, 182, 211, 219, 223, 280 ; Yorkshire, 8 ; Yorkshire (East Riding), 223 ; Yorkshire (North Riding), 223 ; Yorkshire (West Riding), ;f2, 80, 172, 210, 216, 218, 223, 279. 323 2. INDEX TO PERSONS. Argles, Dr., 228 ; Atkinson, Miss Mabel, 22. Banbury, Sir F., 25, 211, 216; Barlee, Miss Ellen. 12; Barlow, Dr. (M.O.H., Wallasey), 275, 276; Beck, Mr., M.P., 25 ; Bentinck, Lord Henry, M.P., vii., 64, 252; Bernard', Sir Thomas, 6; Blake, William, 3, 4, 8 ; Booth, Mr. Handel, M.P., 25; Buckmaster, Mr. S. O., M.P., K.C., 63, 227, 228 ; Burke, Mr. Thomas, 22, 266. Caldwell, Mr. Francis, 263 ; Chamberlain, Mr. Norman, 23, 236, 237 ; Chapman, Mr., II ; Clifford, Mr. W., v., 18 ; Coward, Mr. H., 243 ; Cunningham, Dr. W., $. De la Warr, Earl, 11 ; Denman, Mr. R. D., M.P., 25 (see also Dunlop, J.) ; Douglas, Mr. Akers, M.P., 15 ; Dowdall, Mr. Chaloner, 266; Dunlop, Miss J., and Denman, Mr. R. D., M.P., xxi., 3, 19, 21, 25 ; Durham, Bishop of (1800), 6 ; Duthie, Mr., 20. Ellis, Mr. (Leicester), 7. Fawcett, Mrs., 13; Fox, Wilson, 11. Gorst, Sir John, 26 ; Graham, J. E., 14, 17, 277 ; Greenwood, Mr. Arthur, xii., 3. Hall, Peter, 7, 8 ; Hanway, Jonas, 3-5 ; Harrison {see Hutchins) ; Hartop, Miss R., 247 ; Harvey, Mr. T. E., M.P., 64 ; Hind, Mr. O. W., 272-3 ; Hogg, Mrs. E., 26 ; Hope, Dr. E. W., 256, 262 ; Horner, Leonard, xviii. ; Hutchins, Miss B. L., and Harrison, Miss A. (Mrs. Spencer), xiii. Jackson, Mr. Cyril, 23 ; Jewson, ]\Ir. W. H., 272 ; Jones, Mr. Chester, 226, 232 ; Jorns, Dr. A., 65. Kimberley, Earl of, 232 ; Kingsley, Charles, 8. Marx, Karl, xix. ; Mayhew, H., 16; Mead, Mr. F., 60; Mitchell, Mr. W., 12; Mundella, A. J., M.P., 17. Oastler, Richard, 3 ; Oastler, Robert, 3. Peacock, Mr. R., 20, 22 ; Pinnington, Canon, 260 ; Picton, Mr., M.P., 17 ; Pope, Mr. Samuel, 61, 63, 244; Porter, David, 4, 5 ; Prince Regent, The, 6. Redgrave, Mr., 14; Richmond and Gordon, Duke of (1878), 16; Rowntree, Mr. Seebohm, 65 ; Russell, Mr. C. E. B., 61. Shaftesbmy, Lord, 7, 8, 9, 10, 11 ; Shaftesbury, Lord (191 1), 24; Simon, the Rt. Hon. Sir J. A., 24 ; Spencer Mrs., see Hutchins ; Stevenson v. Craig, xv. ; Strachie, Lord, 16; Swain, Mr. R., 272; Thomas, Chilton, 259. Watts, Alderman (of Liverpool), 256, 259 ; Warner, Mr. H. Lee, 11, 234 ; Waugh, Rev. Benjamin, 13, 18 ; Waugh, Miss Rosa, 13 ; Weyer, Dr. O., xiii. ; White, Sir George, 234 ; Whitehouse, Mr. J. H., M.P., 23. 324 3. INDEX TO SUBJECTS. Advisory Council of Workers with Boys : 239- Age : Groups, xxiii. ; — Minimum, xiv.- xviii., xxviii., Parts I., III. and IV. passim. Agricultural Gangs : ix., xxiii., 9-1 1, 233-4, 283. Agriculture : 52, 72-148 passim, 232-4. Apprentices : xxii., 3-9. Association of Workers with Boys : 51. Bakers: 132, 148, 207. (See also Shops.) Barbers : (See Lathering.) Butchers: 98, 112, 152, 207, 242, 250, 253, 276. (See also Shops.) Betting : 136, 280. Billiard Marking, etc. : 72-169 passim, 280. " Blind Alley " Employment : 3, 23. Board of Education : xxi., xxvii., xxix., XXX., 63-4, 66-7. Board of Trade : x., 3, 27. Boot: Boys, 249; — Makers, 112, 207. Burgh Police Acts : 7, 8, 21. Bye-laws : (See Table of Contents.) Caddies : 21, 238, 251. Canal Boats Acts : xxvii. Carrying : Meals (see Errands) ; — Parcels ',bee Shops). Certificates : Birth, 14, 38, 231 ; — Labour, xiii., xiv., XX., 35, 161, 165, 167, 274; — Learners, xxii. ; — Medical, xi., xii., xxiv., xxvii.. xxviii., 14. (See also Medical Inspection). Certifying Surgeons : xi., xii., xxiv., xxvii. Charity Organisation Society : 51. Children Act: xi., xxviii., 15, 23, 46, 284, 291. Children (Emplo^maent Abroad) : Act, 16, 293 ; — Bill, 16 ; — Order, 295. Children's Aid Association : 32. Children's Courts: 15, 38, 45, 54, 55. Children's Employment Commission (1862- 7): 7.8. Chimney Sweepers : ix., 3-9, 283 ; — Acts, xxii., 5-8. Choice of Employment Act : x., xi., 64. Club-rooms : (See Intoxicants, Sale of.) Coal, Delivering, etc. : 108, 138. Committee : Advisory, for Juvenile Em- ployment, X., xi., 25, 32-3, 43, 51, 228, 247-8, 252, 273 ; — of Council on Educa- tion, xxix., 22 ; — Departmental, on Acci- dents, xii. ; — Departmental, on Employ- ment of Children Act (1909-10), 24, 217, 266, 273 ; — Departmental, on Van and Warehouse Boys, 28, 59 ; — Education, xviii., xxi., 16, 25, 39, 41, 43, 48, 210-216, 226-276 passim; — on Home Work, 272 ; — Health (see Sanitary) ; — Inter-departmental, on Employment of School Children (i 901-2), xxii., xxx., 15, 20-22, 27. 33. 235, 237, 246, 250-1, 259-62, 266, 275-6; — Inter-depart- mental, on Partial Exemption (1909), XX., xxi., xxvii., xxix., xxx. ; — of Inter- national Association, vii. ; — Police and Sanitary Regulations (H.C.), 17, 18, 235, 257, 266;— Public Control (L.C.C.), 17- 21, 26, 38, 47, 50, 229, 231, 232 ; — Sanitary, 39, 41, 47, 49, 210-216, 241, 250, 262, 275 ; — School Attendance, xv., XX. ; — Select, on Climbing Boys, 6 ; — Standing, on Trade (H.C.), 15 ; — on Wage-earning Children, 23-4, 26, 28, 31- 2, 217, 248 ; — Watch, 226-276 passim. Continuation Classes : 28, 61, 1 57-161, 209. Dangerous Performances: ix., 11-12; — Act (1897), 12, 293; — Children's Act, 11, 242, 292-3. Dangerous Trades : xviii., xxiv. Departments : (See under Committee.) Domestic Work: 71-169 passim, 207, 226, 237-8, 248-9, 251, 274-5, 280. Education : (See under Committee ; Con- tinuation Classes ; School Attendance ; School Board.) Education Acts : xiii.-xvii., xx.-xxii. ; (England and Wales), xx.-xxii., 11, 26; (Ireland), xx.-xxii. ; (Scotland), xii., xx.-xxii., 16, 28, 277, 283, 297-8 ; — (Administrative Provisions), xii. Employment of Children: Bill (1902), 23, 27; (1912), 28; (1913). 25, 299;— Act (text), 285 ; (Circular on), 301 ; (Order under), 288. Errand-Running : 26, 72-169 passim, 207, 237-9, 242, 247-52, 270, 273-5, 280. Factory Acts : viii.-xxx. passim, 72, 229, 247. Feather-Sorting : 78. Fruit-Picking : 232-3. Grants-in-Aid : 64, 67. Greengrocers: 112, 207, 251, 253. (See also Shops.) Grocers: 112, 152, 207, 227, 253. (See also Shops.) Half-Time Employment : xiii., xxi., xxiii.- xxx., 72, 242. Harvest, Employment during : xvii., 233. Hawking : (See Street Trading.) Holidays : xxiii., 71-169 passim, 230, 233. Home Office : viii., x., xii., xiii., xxi., xxvii., 18, 22, 27, 33-4, 64-5, 73, 227, 232-3. 235, 237-8, 243-4, 247-52, 257, 266, 270, 273, 275-6, 284. Home-Work : 72-169 passim, 201, 203, 207-8, 226, 229, 237, 272-3. 325 Hours of Work : xxiii., xxv.-xxviii., lo, 19, 27-8, 31, 34-6, 62, 65-7, 200-209, 226-8, 233. 237-9, 241, 243-4, 248-9, 251-2, 262, 270, 272, 274-5 ; also Part III. passim. Hotels: (See Kitchens.) Industrial Schools : 46, 54, 258. Inspection: xi., xii., 14, 15, 37-56, 62-3, 210-16, 226-78 passim. International Association for Labour Legis- lation : vii., 217. International Congress for Welfare of Children : 20. Intoxicants : Sale of, etc., 72-165 passim, 201, 207, 230, 253, 279, 284; — Entering Premises where Sold, lyi-igj passim, 284. Ironmongers: 112, 207, (See also Shops.) Kitchens of Hotels, etc. : Employment in, 82-138 passim, 280. Labour Exchanges : ix., x., 33, 43, 64> 228, 236-7, 247, 254, 267. Lace-Making : xxii., 272. Lathering: 34, yz-it,^ passim, 201, 226-8, 230, 238, 247-53, 276. Laundries, Employment in : 74-148 passim, 201. Liberal Christian League : 51, 270. Licensing : Of Chimney Sweepers, 4, 7, 9, 21, 283; — of gang masters, 10, 11, 233-4, 283; — of Newspaper Boys, 21, 61-2 ; — of Porters, etc., 21 ; — for Public Performances, see that Heading ; — of Street Traders, 22-3, 41-5, 58, 60, 71, 171-197, 226-76 passim,. Local Acts : 17, 22, 32, 283 ; (Birmingham), 17. 235 ; (Bradford), 241 ; (Edinburgh), 7, 41 ; (Glasgow), 7 ; (Liverpool), 21, 22, 257-60 ; (Manchester), 17, 266. Local Authorities : (See under name of localities, and also Committee ; School Boards.) Local Government Act (1894): 11. Messengers : (See Errands.) Medical : Inspection, xii., 43, 52, 63, 66, 228, 262 ; — Officer of Health, 32, 47, 195, 233-4, 256, 262, 266, 275-6 ; — Officer (School), xii., 52, 63, 66, 232, 237, 241-2, 262, 271-2, 274. (See also Certificates.) Mentally Deficient Children: 52, 242, 271. Milk, Sale and Delivery of : 36, 71-169 passim, 207, 226-7, 238, 249, 251, 253, 270-1, 274. Mines Acts : viii., ix., xiii.-xviii., xxiii.- xxix., 247. Minimum Wage : 5, 7, 51, 273. Municipal Corporations Act : 17, 242, 256. National Conference on Prevention of Destitution : 58, 217. National Society lor Prevention of Crueltj' to Children : viii., 18., 258; (Scottish) 19. Newspapers, Sale and Delivery of: 36,71- 197 passim, 207, 227, 238, 244, 247, 249, 251, 253, 270, 274. (See also Street Trading. ) Nursing: 86, 106, 1 10-14, 138, 207. Outwork : (See Home Work.) Pea-Picking : 140. Police: 8, 15, 18, 19, 40, 41, 45-9, 210-16, 234-7, 239-42, 247-8, 252-8, 262, 266- 9, 270-2, 275. (See also Committee, Watch.) Police-aided Clothing Association : 256, 259, 261, 267. Poor Law : 64, 65. Prevention of Cruelty to Children Act (1889): 17, 19, 20, 40, 243, 256, 272; (1894), II, 15, 17, 20, 40, 260; (1904), 15. 7I' 73. 235. 246, 267, 277, 283, 289, 304- Programmes, Sale of, etc. : 76-118 passim, 138, 142, 279. Prohibitions of Employment : 34, 73-197, 279-80 ; — During Illness, 157-169 passim, 208. Prosecutions : 52-6, 221-5, 228, 230, 232, 234-6, 240-2, 244, 246, 250, 252-3, 255, 260, 262, 264, 265-8, 271-2, 276. Public Entertainments, Employment of Children in : xxiii., 11-13, 34, 37-40, 57, 59, 71-145 passim, 171, 202, 207-8, 231, 237, 240, 242, 244, 246, 254, 262, 267-9, 272, 277-9, 283. Public-Houses : (See Intoxicants.) Ouarries Act : xvi., xxvi. Railway Stations, Trading in or near : 23, 1 75-191 passim. Rag and Refuse Sorting : 80, 90, 94, 1 34, 280. Registration of Employed School Children : 63-4, 66. Restaurants : xxvii. (See also Intoxicants ; Kitchens.) Sanitary Inspection. See Committee ; Sanitary ; Inspection.) School Attendance : xiii.-xvii., xxv., xxix., 10, 157-97 passim, 208, 231, 258; —Officers, 38, 40-45, 48, 50, 56, 62, 227-31, 249-50, 253-4, 266. (See also Half-Time.) School Boards : (English), xv., xvii., xx., 258-9, 262, 266, 272 ; (Scottish), xvii., 28, 32, 59, 156-69, 277-8, 284. Scottish Council for Women's Trades : 27. Shops : Acts, xxvii., 253 ; — Employment in connection with, xxvii., 26, 7i-i54^a5siw, 207, 226-7, 237-8, 242, 247, 250-3, 262. Society for Bettering the Condition of the Poor : 6. 326 Society for Superseding the Necessity of Climbing Boys : 6. Stable Boys : 98, 148. Step-Cleaning: 94, 132, 248. (See also Domestic Work.) Spitalfields Weavers Act : 4, 5. Statistics of Employed Children : xxvii.- xxxii., 8-10, 22, 26, 58, 217-220, 226, 230-1, 238, 243-4, 247-8, 251, 254, 262, 264, 266-7, 270-8. Street Children's Union : 237. Street Traders : (See Table of Contents and Part IV. passim ; also under Licensing) ; — Assistance for, 21-2, 46-7, 65, 171, 197, 206, 241, 256-7, 259-61, 264, 267. Sunday, Employment on: xxiii., 71-197 passim, 201, 204, 207, 230, 253. Trade Boards Act : xxii., 273. Teachers: 51, 228, 275. Theatres : (See Public Entertainments.) Van-Boys : 28, 59, 82, no, 242. 5, 98, 100, 108, 34. III. 113. ^^'eight-Carrying : xxiv. 207, 230, 233, 242, 273. Widows, Children of : 64-5, 236, 254. Women's Industrial Council : 26. International Association for Labour Legislation* PUBLICATIONS. ** The Bulletin of the International Labour Office '' (Monthly). Contains translations of labour laws in all countries. '* The World's Labour Laws'' (Quarterly). Contains accounts oi the progress of labour legislation abroad. The above arc supplied to members of the British Section. Apply to the Secretary, Queen Anne's Chambers, West- minster, S.W, Printed by the Pioneer Press, Ltd. (T.U. 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