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Welfare

AND

Welfare Supervision

Factories and Workshops*

ISSUED BY THE HOME OFFICE.

LONDON :
PUBLISHED BY HIS MAJESTY'S STATIONERY OFFICK.

To be purchased through any Bookseller or directly from
H.M. STATIONERY OB'FIGE at ttie foUowins addre>j.ses:

IMPERIAL House, Kingsway, London, w.c.2, i,ad

1'8, abingdon sxheer, london. s.w.1 ;

37, Peter Strbex. Manchester :

1, ST. Andrew's Gresceni. Cardiff

23 i'OKru SiKEET, Edinburgh
or iroDO E. PONSONBY, LfD„ lib, Grafton Stkeei, Doblln.

1919.

Price 2d. Net.

Welfare

AND

Welfare Supervision

Factories and Workshops.

ISSUED BY THE HOME OFFICE.

LONDON :
PUBLISHED BY HIS MAJRSTYS STATIONERY OFFICE.
To be purchased through any Bookseller or directly trom
H.M. STATIONERY OFFICE at tbe following addresses :
Imperial H(juse. Kingsway, London, W.C.2, and
28. aeixgdox stkeer. london. s.w.i :
37, Petek street, Manchester

1, ST. ANDREW'S crescent CARDIFF:

23, Forth street, Edinburgh .
or irom E. PONSONBY, Ltd., ub, Geafton Street, Dublin.

1919.
Frice 2d. Net.

Welfare and Welfare Supervision i^^

Factories and Workshops.

The object of this pamphlet is to provide employers with an
outline of welfare work in factories, to indicate the principles on
which it should be based, and to promote a consideration of the
subject by employers generally.

Welfare work is sometimes spoken of as if it were an inven-
tion of the War. This was not, of course, the case. Many
employers were carrying on such work before the War with
great success, but it was during the War, and as a result of the
special conditions of employment to which the War gave rise,
that its value has come to be widely recognised.

The close of the War and the transition to jjeace conditions
of industry make it oj^portune for employers to review and
consolidate their welfare arrangements, or, where no definite
arrangements have yet been made, to consider their introduction.
The arrangements made during the War were necessarily carried
through hurriedly under the great pressure of the urgent prob-
lems produced by the introduction of large numbers of women
into industry. Much of the work was experimental and mistakes
were unavoidable. Much useful experience, however, has been
-obtained and this experience should now be applied in placing
welfare work on a sound and permanent footing. The need for
welfare work will not disappear with the War. If the needs
of the Nation in War and the necessity for utilising to the best
advantage the man and woman power of the Nation and safe-
guarding its efficiency called for a great development of welfare
work, the needs of the Nation in the period following
the War when the wastage of man-power has to be met,
the arrears in normal production made good, and the industries
of the country placed on a firmer foundation, will make
such work even more important in the future. It must be
regarded now as a permanent element in factory organization
and management, and a statutory basis has been given to it by
Section 7 of the Police, Factories, &c., Act, 1916, and the Home
Office Orders which are being issued under that section.

WHAT IS WELFARE WORK?

Welfare work may be defined shortly as the provision by the
management for the worker of the best conditions of em-
ployment. The best work and the ma^ximum production
can only be obtained where the conditions are the best, and it
has become generally recognised that the provision and main-
tenance of such conditions are an essential part of efficient
management. In some measure, of course, the management
'i^ . placed. un^^T" a statutory obligation in the matter. The
Factory Acts ' lay down certain requirements in regard to the
j.'fiinditiQ'n's'lqf wp];'fc. biit their requirements do not do more than

specify a general minimum to be attained in all circumstances.
Welfare work has a wider scope. It may be regarded as includ-
ing everything which bears on the health, safety and general
well-being and efficiency of the worker, while avoiding any inter-
ference with his private affairs. The chief matters which will
require the attention of the welfare management under each of
these three heads are indicated briefly in the following para-
graphs but the list must not be reg'arded as exhaustive of all the
possibilities of welfare work. It niay, perhaps, be said here that,
if welfare work is to be successful, it must be undertaken by the
management, not merely as a means to efficiency and maximum
production, but as being the duty which is owed to all those
who are associated as workers or officials in carrying on the
Nation's work.

/, General Health.

This includes a number of matters that have long been
the subject of statutory regulations which indi<iate the pro-
visions necessary for the health of the worker. Such matters

are, ventilation, heating, cleanliness, sanitary con-
veniences. Even here there is ample scope for welfare work.
Maintenance of the standards fixed is often difficult or impossible
without special and constant care, and proper organization and
supervision.

There are other matters, however, also the subject of statutory
regulation, where the standard set is not regarded now as
adequate or does not altogether cover the ground, and there are
others where there is no standard at present fixed. For example,

Spacing of the work and workers. — Under the I actory
Act a space of not less than 250 cubic feet (or 400 cubic feet
during ovei'time) must be provided for each person employed ;
but in modern factories it is usual to allow a working space con-
siderably in excess of this standard. Moreover, it is not sufficient
merely to consider the total cubic capacity of the room in relation
to the total number of persons emjDloyed. The work, and
the workers, should be so arranged as to take full advantage
of the space available. In particular, workers should not be
huddled together or placed facing one another at narrow benches ;
apart from the discomfort caused, the danger of the spread of
infection e.g., by a tuberculous worker is greatly increased.

Lighting.* — It is particularly important that attention
should always be given both to the distribution of the light,
whether natural or artificial, in relation to the work, and to the
arrangement of the work so as to use the light available to the
best advantage. Lighting must be adequate, and should provide
a reasonable degree of constancy and uniformity of illumination
over the area of work. Lamps should always be so placed as to

* For fuller information on this subject, reference should be made to the
Report of the Departmental Committee on Lighting in Factories and Work-
shops (Cd. 8,000), to be obtained from H.M. Stationery Office at the addresses
mentioned on the cover, price lie?. A separate pamphlet on this subject is in
preparation and will be issued by the Home Office shortly.

(21161—1). Wt. 38852— 594/c 68. 8000. 7/19. D & S. G- 1.

guard against glare in the eyes of the operator, and to avoid the
casting' of extraneous shadows on the work.

^ . Prevention of Fatigue.

This is really a branch of General Health, but as it raises
many important questions, some of which affect the whole
management of the industry, it is more convenient to deal with
it separately. Such questions are the length of the working-
day, the length of the spells, the arrangement of intervals and
pauses, the hour of commencing work (whether before or after
breakfast), the weekly half -day, holidays and so forth. Hight
arrangements in regard to these matters form the foundation on
which welfare work has to be built. These questions are now
being widely discussed in the different industries. Hours and
spells have too often been fixed in the past merelj^ in conformity
with trade customs or local conditions, and without regard to
the nature of the operation performed or the fatigue involved.
In point of fact it is impossible to select any one system of work-
ing as being applicable to all kinds of work, and the best schemes
of hours can only be evolved by observation and experiment at
the works and by scientific investigation into the question of
the causation and prevention of fatigue. A special Authority,
the Industrial Fatigue Research Board*, has recently been set
up by the Government to carry out such investigations, and the
Board are prei^ared to assist employers in the consideration of
these problems.

Besides these larger questions there are many minor matters
which have a bearing on the production of fatigue, and which
should receive attention. Tor example,

Facilities for sitting and rest. — Unnecessary fatigue
is often incurred through constant standing. It is better that,
if practicable, work should be done sitting rather than standing.
Even where the work has to be done standing there are in most
cases some intervals when the workers have opportunities for
sitting, and so obtaining a short rest ; and sufficient and suitable
provision (if possible, close to the work) should be made for
them to do so. Where work is done sitting, careful considera-
tion should be given to the kind of seat provided, and to its proper
adjustment to the work, or to the table, bench, &c. at which the
work is done. Employers are referred for more detailed informa-
tion to the Home Office Memorandum on this subject, t

Labour saving appliances. — Fatigue is often caused

by much unnecessary lifting and carrying of heavy weights.
The elimination of all such luinecessary work should be made
the subject of careful study by the works management.
It can often be avoided by a judicious arrangement of the
machinery or plant; but where heavy weights must be lifted

* Communications may be addressed to the Secretary, 15, Great George
Street, S.W. 1.

■j- In preparation. Copies will be obtainable on application to H.M.
Inspectors of Factories, or from H.M. Stationery Office at the addresses
mentioned on the cover.

and moved, the introduction of overhead runways, hoists, or other
lifting- tackle, and the use of suitable carriers ought to be
arranged for.

ft) • Safety.

Prevention of accidents. — It would not be possible with-
in the limits of this memorandum to deal with the safeguarding
of machinery, the adoption of safety devices and other measures
for preventing accidents. Reference should be made to the pro-
visions of the Factory Acts on these matters, the reports and
memoranda issued by the Home Office, and other publications.
The special attention of employers, however, is draT\^l to the
institution of Safety Committees — see the Home Office memo-
randum on this subject, which is printed in the Appendix to
this pamphlet. Generally speaking, the prevention of accidents
will be a duty devolving upon the engineering or technical
branch of the management rather than on the welfare branch.

First aid and ambulance.* — Some Orders have already
been issued by the Home Office on this subject for trades in
which the accident rate is high, but arrangements for prompt
attention to injuries are necessary in every factory. There
should always be available a sufficient supply of sterilised dress-
ings, kept in the charge of some person with a knowledge of
First Aid treatment. In large factories more elaborate arrange-
ments with a well-fitted ambulance room are desirable.
Reference may be made to the provisions of the Orders already
issued, e.g., the Order of 12th October, 1917, for Blast Furnaces,
Foundries and other works.

General Well-being and Effi^ciency of the Worker.

(a) Drinking-water. — An Order has been issued by the
Home Office which requires that in all factories or workshops in
which more than 25 persons are employed the occupier shall pro-
vide and maintain at suitable points, conveniently accessible to
the workers, an adequate supply of wholesome drinking-water,
together with a suitable cup or. drinking vessel at each point of
supply.

It is desirable of course to avoid putting the supply in places
where the water in the pipes or in the vessel containing the water
is liable to become tepid through heat from the works, or in
the open air or other position where the worker will be exposed
to cold or wet when he goes for water.

The best facilities for drinking are alforded by the upward
fountain-jet. By this plan the need for a drinking vessel is
avoided, since the worker drinks directly from the jet. Where
jets are not provided, the water should, if practicable, be laid
on in pipes rather than kept in vessels.

* A'pamphlet dealing fully with the subject is now in course of preparation
and will be issued shortly

(b) Mess-rooms and Canteens. — The need for the pro-
vision of mess-rooms oncl canteens has become widely recognised,
and there is probably no branch of welfare work which is more
necessary. Good work cannot be expected from workers who have
no adequate opportunity for obtaining- food and refreshment.
A mess-room ought to be a suitable and pleasant room set apart
for the purpose and sufficiently furnished with suitable tables
and seats, and adequate means of cooking or heating food and
boiling water. It need not be an elaborate undertaking ; attrac-
tive and successful mess-rooms can frequently be provided, more
particularly in small factories, on very simple lines. In larger
works it will often be desirable to provide a canteen, where a
hot meal, freshly cooked, can be served. Such a meal conduces
to much better work, particularly during cold weather, and it is
not much more trouble to cook a meal than to heat up a large
number of miscellaneous meals broughit by the workers. A can-
teen is specially desirable if any considerable number of the
workers live at a distance. Employers desiring fuller informa
tion on this subject should consult the pamphlet issued by the
Liquor Traffic Control Board and entitled '' Feeding the Muni-
tion Worker,"* or that issued by the Home Office, entitled,
" Mess-rooms and Canteens at Small Factories and Work-
shops."!

Attention may be called here to the practice that is now being
adopted in many works, with good results in diminishing fatigue
and promoting efficiency, of taking round refreshment (tea,
coffee, &c.) to the workers in the course of the morning and
afternoon spells, or allowing a brief interval for the workers to
obtain such refreshments in the mess-rooms or canteens.

(c) Protective Clothing. — The need for protective cloth-
ing may arise from different causes, such as (1) dusty and dirty
processes ; (2) working in proximity to dangerous machinery,
climbing ladders, &c. ; (3) use of acid and caustic liquids ; (4^ wet
processes ; (5) excessive heat ; (6) exposure to weather. It is
obvious that different kinds of clothing will be needed according
to the nature of the employment. The question is discussed
fully in the memorandumt published by the Home Office on the
subject, wherein different types of clothing are illustrated, and
some indication is given of the kinds of processes in which pro-
tective clothing ought to be provided. Adequate arrangements
should of course be made by the employer for keeping the cloth-
ing clean and in good repair.

(d) Cloak-room Accommodation. — It conduces greatly

to the comfort and well-being of the workers if they are provided

* To be purchased from H.M. Stationery Office at the addresses given on the
cover of this pamphlet, price Gd.

t To be obtained on application to H.M. Inspectors of Factories, or from
H.M. Stationery Office at the addresses mentioned on the cover, price 3d.

J Protective Clothing for Women and Girl Workers in Factories and
Workshops, to be obtained on application to H.M. Inspectors of Factories, or
from H.M. Stationery Office at the addresses mentioned on the cover, price 3(/.

with suitable facilities for changing" clothes and boots and for
drying' wet outdoor clothes in bad weather, or overalls used in
wet processes. A simple and effective means of drying clothes
is to place steam pipes under the hanging pegs. Lockers for
each person are much appreciated and are often provided. Each
peg or locker should bear the worker's number or name. It is
important that the cloak-room should be in charge of some
responsible person, and that measures should be taken to guard
against pilfering. Where lockers are provided each worker can
have his or her own ke}-. Another convenient arrangement is to
have the pegs attached to a suspended bar, which can be drawn
up out of reach during the absence of the workers.

Through ventilation in the room where clothes are dried is
desirable.

(e) Washing Conveniences. — Though accommodation of

this kind is more particularly required in dusty or hot processes or
when poisonous substances enter into the process of manufacture,
its value in promoting health and personal efficiency generally
should not be overlooked. A much more general provision of
washing conveniences is needed. The installation should be
provided with an adequate supply of hot and cold water, towels,
soap and nail-brushes. It should be as simple as possible, strong
and durable, and so constructed that it can be easily cleaned.
It should be situated in positions conveniently accessible to all
4)r whom it is provided. It is desirable too that accommodation
should always be provided in close proximity to the mess-room
or canteen.

In addition to ordinary washing accommodation the provision
of baths, either a shower-bath or slipper-bath, is most desirable
in industries where workers are exposed to great heat or excessive
dust.

For fuller information on this subject employers are referred
to Memorandum 'No. 14,* issued by the Health of Munition
Workers' Committee.

SELECTION OF THE WORKER.

Another important matter calling for the attention of the
management is the suitability of the individual worker for the
work to which they are assigned, in respect of health, strength,
sight, intelligence, &c. This calls for careful selection of the
worker for the job in the first instance, and for supervision and
observation of the worker after appointment. The amount of
time lost by workers, their absences from work through sickness,
&c., often throw light on the question of a worker's fitness, and
a system under which careful records on these points are kept in
respect of all the workers has been found to be very valuable to
the management. By these methods the employment of indivi-

* "Washing Facilities and Baths" (Cd. 8387) to be obtained from H.M.
Stationery Office at the addresses named on the cover of this pamphlet,
price Id.

duals on work beyond their strength or capacity, or unsuited to
the worker on some other ground, can often be prevented, and
defects in the conditions of work which are prejudicial to health
or efficiency may be discovered. For instance, it may be found
that unnecessary fatigue is being caused by the faulty adjustment
of the work benches or seats, that strain is being caused by the
worker having to list or move excessive weights, and so on.

The arrangements to be made for such selection and observa-
tion will vary according to the size and organisation of the
factory, the nature of the processes used and other circumstances.
Many large works or works where arduous or unhealthy processes
are carried on are now appointing works doctors who visit the
works periodically or a special arrangement is made with the
certifying factory surgeon on the same lines. This is an impor-
tant development which has received a great stimulus during the
War. The duties of such doctors include the examination of
workers, especially of those engaged in exacting work or un-
healthy processes ; advising on the cases of particular workers as
to the class of work to be assigned to them or the conditions of
their work ; the supervision of the First Aid and Ambulance equip-
ment and its use; examination of the sickness and accident
records tO' see if there is excessive incidence from any particular
cause {e.g., sepsis in accident cases) or among persons engaged
in particular processes. Where a works doctor is employed,
all cases in which any doubt is felt as to the worker's fitness for a
particular kind of work would be referred to him before engage-
ment by the official charged with the duty of engaging the
workers or supervising them after appointment.

In the selection of juvenile workers, the employer may find
it useful to consult the Juvenile Employment Committee for
his district. Information as to these Committees can be obtained
from the local Employment Exchange.

OUTSIDE WELFARE.

It does not lie within the scope of this pamphlet to deal with
the subject of welfare work outside the factories, including such
matters as the provision of clubs, facilities for recreation, &c.,
but there are some matters in the life of the worker outside the
works which are of importance as having a direct relation to the
worker's life in the factory, and which should receive attention
by the employer, for instance : —

Transport of Workers to and from the Factory.—

Difficulty and discomfort in travelling to and from work often
add greatly to the fatigue of the worker and lengthen the hours
of his or her working life. The subject of travelling facilities
is one that should engage the attention therefore of the manage-
ment. It may be possible to make special arrangements with
tramway, omnibus and railway companies. Crush at starting
and stopping times may be avoided by having diiferent times for
different departments and by arrangements with neighbouring

works. Workers who have to come long- distances and may have
to make a very early start from home should be specially con-
sidered ; if possible, arrangements should be made to enable
them, before starting work, to get refreshment, dry their clothes
and rest.

In dealing with any matter of outside welfare, it is essential
to avoid even the suspicion of interfering with the worker's
private life. Factory welfare workers should be specially
warned against this.

CO-OPERATION OF THE WORKERS.

Welfare work, to be successful, must carry with it the consent
and good will of the workers and secure their co-operation. It is
desirable, as far as possible, to associate the workers with the
management of the welfare arrangements. Where a Works Com-
mittee exists this should be one of the Committee's functions ; in
some cases it may be well to form a special Welfare Committee
or Committees for particular purposes, e.g., the management of
the canteen.

ORGANIZATION OF WELFARE WORK.

The arrangements will necessarily vary in dilferent factories
according to size of factory, nature of work, class of workers
employed, and other circumstances. In all cases, however, it is
essential that the responsibility for each branch of welfare work
should be definitely assigned to some qualified person. Some
duties it may be more convenient to assign to officials in charge
of departments, foremen, forewomen, &c., but generally speaking
the best arrangement is to assign the responsibility for the
welfare work in a factory, esj^ecially such as is common to the
whole works (canteen, first aid, &c.) to some official specially
selected for the purpose and free to devote his or her full time
to the work. In very small works it may be found possible to
combine all the diiferent duties with other duties of management
in the hands of a single official or the manager himself. In
large works, on the other hand, more than one special official
will probably be necessary as the work develops, but if so, the
diiferent branches of work should be co-ordinated under and
supervised by a " supervisor " in chief. These principles apply
equally for whatever class of worker welfare work is designed —
men, women or boys. Welfare work diiring the War has de-
veloped mainly in works where women are employed — to a grow-
ing extent also among boys,* where it has been attended with
striking success ; but on the lines described in this pamphlet it is,
of course, equally required in the case of men workers, and in
some factories much work had been done in their case even before
the War.

* A Handbook on welfare work amorg boys has been published by the
Department of Civil Demobilisation and Resettlement of the Ministry of Labour,
entitled " Handbook for Wt-lfare Supervisors and Apprentice Masters," and can
be obtained from the Ministry.

It is essential to the success of welfare work in a factory that it
should be reg-arded as a distinct and definite part of the manage-
ment. The oificial in charge of it should have a definite posi-
tion in the management, with definite duties and authority, and
should be in direct touch with the Employer or Managing
Director. There should be a clear understanding as to his or
her relations to the other branches of management.

No attempt is made in this pamphlet to indicate all the duties
of a welfare supervisor. Much of the best work done by a
supervisor is personal work and cannot be summarized.

THE WELFARE SUPERVISOR.

" Welfare Supervisor " is the name by which the official
who is in charge of welfare work or any branch of welfare work
is now generally known. This class of official has come into
existence during the War, and mainly in the munitions and con-
trolled factories, and factories working under special Orders as
to hours, where large numbers of women have been employed.
The selection of this official is important. Except in special
circumstances no persons should be appointed to the post in any
large works unless they have had special training or experience
in the work and the employer is satisfied that they have the
necessary qualifications for the work. The knowledge of the best
conditions of work, the best methods of promoting the welfare
of the workers, is expert or specialised knowledge which cannot
be acquired without training and experience. Before the War
few persons with special experience or training in welfare work
were available, and with the great demand brought by the War,
unsuitable persons were appointed in some cases with results
which are still prejudicing welfare work in the eyes of the
workers. With the closing down of munitions work a number of
trained women are becoming available.

QUALIFICATIONS OF SUPERVISORS.

It is evident that the qualifications required will vary widely
in different factories according to the size and character of the
works, and it is impossible to lay down very definite standards.
Certain general qualifications, however, can be indicated which
every Supervisor should possess. In the first place, there are
the personal qualities, which may be summed up under the word
'* character " or " personality," and on which success or failure
largely depend.

(a) The supervisor must, in the first place, be a person who is
able to earn the respect of both employers and workers.
In a small factory the superior type of forewoman
has often proved herself highly satisfactory ; in larger
works a higher educational standard will generally
be required, according as the responsibility placed
upon the officer increases. In all cases, however,
the person selected should be someone who naturally
stands out amongst his or her fellows.

(6) The supervisor, who will constantly be coming into con-
tact with other branches of the management, must
have tact and judgment to know how to avoid friction
and deal with difficulties that may arise with foremen
and under-managers through possible conflict of
duties.

(c) The supervisor must take a real interest in the work, be
quick to observe defects, and possess initiative and
capacity to formulate and carry through plans for
improving working conditions.

To these personal qualities must be added knowledge of indus-
trial conditions, and of the conditions under which the workers
live. This knowledge can only be gained by actual experience
of work in a factory and intercourse with the workers themselves
in factories, clubs, and elsewhere.

These are the general qualifications necessary, but it is obvious
that in addition other technical qualifications are desirable, and
even necessary, in large Avorks where elaborate schemes of welfare
are adopted, e.g., a knowledge of household and domestic science,
some practical acquaintance with factory hygiene, experience in
First Aid and elementary nursing. In large works, too, where
there are Assistant Supervisors, nurses, and others working under
the Supervisor, powers of organisation, experience in the keeping
of recoAis and in office routine, and a general knowledge of
industrial and social organisation are required.

For these qualifications, preliminary training is almost always
essential.

TRAINING OF SUPERVISORS.

The question of training has been carefully considered. The
two principal ways in which adequate training for the duties of a
Supervisor can be got are : —

(1) by serving an apprenticeship for some considerable

period in a factory under a competent supervisor ;

(2) by taking one of the special courses of training which

are now provided in manj^ industrial centres. A list
of these can be obtained from the Home Office, the
Inspectors of Factories, the Secretary of the Joint
University Council for Social Studies or the Central
Association of Welfare Workers, 11, Adam Street,
Adelphi, London, W.C.2. These courses have
been so arranged as to combine a study of
industrial conditions, &c., with visits of observa-
tion to factories and actual practical work in a
factory. The subjects which a student is required
to take in these courses (as distinguished from the
practical work) vary to some extent, but they all aim
at giving the future welfare supervisor a general

grouuding in and lamiliarity with the following
subjects : —

(a) Industrial life and social studies.

(6) Factory organisation and industrial law.

health.

(d) Special conditions upon which the main-

tenance of health in the factory depends.

(e) Duties of Welfare Supervisor.

A diploma or certificate is given to those who complete the
course satisfactorily, but is not awarded unless the reports of
those who have supervised the candidate's work, including the
practical work in a factory, show that he or she is suitable for
the post of Welfare Supervisor.

Employers are strongly recommended to make it a condition
of appointment that the applicant, unless qualified by such an
apprenticeship as is mentioned under (1) above, takes one of
the courses of training before taking up the appointment.

For a fuller consideration of this question, reference may be
made to a " Report upon the Selection and Training of Welfare
Supervisors in Factories and Workshops" (published by P. S.
King and Son, Ltd., 1, Orchard House, Westminster, S.W.I,
price 3^.), which was prepared by an unofiicial committee
appointed at a conference held at the Home Office in 1917. The
following extract is taken from this report : —

"It is essential to the future progress of Welfare Work
that the Welfare Worker should be capable of dealing in a
broad and enlightened spirit with a number of complex
subjects. Experience has shown that the employer in many
cases looks to the Welfare Supervisor for assistance, among
other problems, in the selection of suitable workers, in ques-
tions of technical education, in the question of the relation
of fatigue to efficiency, and in questions of labour organisa-
tion. The Welfare Worker who is to do his or her duty
satisfactorily requires a thorough preliminary groundwork
of social knowledge such as is given in the University Social
Study Courses. A short intensive course in Welfare Work
might enable the student to master the actual technique of
Welfare Work, but would fail to give such an all-round
training as would qualify the student for the increased
responsibility which is likely to fall upon the Welfare Super-
visor as the work develops. At the same time, the Com-
mittee is fully conscious that there is a considerable amount
of specialised knowledge which is indispensable for the
Welfare Supervisor."

Arrangements are being made by the Ministry of Labour to
form locally and centrally, in connexion with their Professional
Register, a special register of persons seeking employment as

Welfare Supervisors, xiii.s register will contain full particulars
of the education and training of the candidates, of their general
industrial experience and their specialised experience in welfare
work.

Employers desiring to appoint a Welfare Supervisor are
advised therefore to consult the local Divisional Officer of the
Employment Department of the Ministry of Labour or the
Professional Women's Register, Ministry of Labour, 16, Curzon
Street, London, W.l.

RECORDS.

While in general it is not to be expect-ed that the results of
welfare work can be tabulated, there are certain matters capable
of statistical record, on which such work will have an important
bearing and may be expected to exert a strong influence — for
instance, on such matters as loss of time by workers, absences
from work through sickness, fatigue, &c., accidents, labour wast-
age or turnover. It is suggested that careful works records should
be kept with regard to all these matters, and while other causes
will exert an influence also, it should be possible to trace dis-
tinctlv the beneficial effects of welfare work.

CONSULTATION BETWEEN EMPLOYERS.

In welfare work much can be learned from the experience of
other works. It is suggested to Emploj-ers and Employers'
Associations that the consideration of questions of welfare should
form a regular part of the functions of Associations, Chambers
of Trade, &c., and as the questions are largely the same in the
different industries, and as in regard to some matters there is
also room for co-operation and united action between employers
in the same locality, that these questions should be considered
in local and district meetings of the employers. A Central
Association of Welfare Supervisors has been formed, with local
branches, at whose meetings welfare questions are discussed
from time to time, and these meetings are frequently attended
by employers.*

It is also suggested that much valuable work might be done by
employers who have successfully carried through schemes of
welfare, if they would bring to the notice of other employers,
either at local meetings or in association meetings, particulars
of their schemes and the results.

There will be many questions arising in connection with the
organisation and development of welfare work which could be
discussed with great advantag'e between the employers' and
workers' representatives on the Joint Industrial Coimcils. Some
Councils have already appointed Committees to consider such
questions.

* Particulars may be obtained from the Secretary to the Association,
11, Adam Street, Adelphi, London, W.C 2.

APPENDIX.

SAFETY COMMITTEES IN FACTORIES AND WORKSHOPS.

For many years a great amount of attention has been given by the
Home Office to the fencing of machinery and the provision of safeguards
against accidents in general, and considerable advances have been made
in preventing the more serious classes of machinery accidents. This has
been effected mainly by standardising precautions through statutory regu-
lations or agreements reached after conferences with the industries, by
continuous administrative action on the part of the Inspectors of
Factories, by greater attention to safety on the part of the designers
and manufacturers of machinery, and in other ways.

Nevertheless, in spite of all the efforts that have been made the
yearly roll of industrial accidents is still a long one. In 1914, 969 persons
were killed and 147,045 persons were injured by accidents in the factories
and workshops of this country. If to these figures were added the acci-
dents in mines, quarries, building and other constructional work, and
railways, the total would be much more than doubled. These figures
represent an enormous loss to the nation, to the industries, and to the
workers themselves.

It is of the first importance to the country, both during the war and
also during the period of reconstruction after the war, that this great
cause of waste and loss of efficiency in our industrial organisation should be
as far as possible removed.

It is evident that this will never be done by improved methods of
fencing, statutory regulations, or administrative action alone. Notwith-
standing all that has been done, machinery accidents due to carelessness or
neglect on the part of officials and workers alike to maintain or use the
guards provided are of daily occurrence. It is also perhaps not generally
realised that machinery is responsible for only a minority of the accidents
which occur in factories and workshops. The Home Office records show
that more than two-thirds of such accidents are dvie to other causes. The
annual reports of the Home Ofiice Inspectors regularly show that a great
number of accidents are due simply and solely to carelessness, inattention,
and want of thought. It has been estimated that the percentage of
avoidable accidents in Rome industries is as much as 60 per cent.

There is no doubt that a large reduction in the number of accidents
would be brought about if managers, officials and workers in factories
were determined that avoidable accidents should be prevented and would
co-operate in taking the steps necessary to prevent them. Experiments
have already been made in many factories in this country \vhich tihow that
most satisfactory results can be achieved by the joint action of employers
and workers.

The following description of what has been done in a large factory
in the North of Engand is given in order show by a concrete example
the kind of methods which may be adopted for the purpose. Departmental
Committees were established some years ago in the works with the primary
object of encouraging the workpeople te make suggestions with respect
to their work or conditions of employment. Each Committee v as com-
posed of a certain number of employees nominated by the Firm and an
equal number elected by the workpeople themselves. It was found that
manj' useful suggestions were received with regard to the guarding of
machinery and other safety devices.

This step led on to the formation of Accident Enquiry Committees,
similarly constituted, for the various departments of work. Their chief
duties were (1) to enquire into and report on all accidents that occurred
in their departments and to make recommendations, if possible, to pre-
vent their recurrence, and (2) to nominate quarterly two members to
make regular inspections of the departments along with the department
manager and a foreman, to point out defects, and to make such recom-
mendations for the prevention of accidents as they considered desirable.
This system of inspection was found to be of great practical usefulness,

and the reports of the Committees on the accidents investigated had an
excellent effect on the workers, especially in those cases proved to be
due to carelessness or negligence. The workers' representatives retire
after six months' service and are not eligible for re-election for a further
period of twelve months. In this way a large number of the workers
in each department are trained in the way of accident prevention and
acquire the " safety " attitude, and their example and influevice have
very beneficial effects upon their fellow-workers.*

As a result of these steps the number of accidents in the works was
greatly reduced, but the firm felt that more could still be done. About
two years ago a more extensive " Safety First " scheme was put into
operation, of which the chief feature was the appointment of a Safety
Inspector to supervise all the accident prevention measures.

The Safety Inspector is in close touch with the manager or foreman
in each department. He attends the meetings of all the Committees
when an accident enquiry is being held or matters relating to safety
are being discussed. He inspects the various sections, usually with the
respective manager or foreman ; he also studies the working of new
machines with a view to detecting sources of danger and suggesting
remedies. By carrying out his duties with tact and discretion, he very
soon obtained the necessary confidence and support of all concerned.

For the purpose of keeping the question of " safety " prominently
before the workpeople, notices and warnings, together with a set of
general safety rules, are exhibited throughout the sections and aspecially
in parts of the works where special care is necessary. The notices and
warnings are varied from time to time so as to attract more attention.

In the view of the firm, the education of the worker is the main factor
in the reduction of preventable accidents. It is no use merely telling
workers to be careful. They must be shown how to avoid accidents; they
must be made to understand that the employers are in earnest in their
intention to prevent accidents, and in every possible way the safety
attitude must be inculcated. At the same time, the sympathy, help and
co-operation of the management, and the officials and foremen, are essen-
tial to the development of " safety " principles and practice, and must
be actively promoted by the employer if success is to be attained.

The result of these new measures has been in a single year to reduce
the number of accidents in the works by more than 50 per cent.

This brief description of what can be done in the way of accident pre-
vention in a factory by the earnest endeavours and close co-operation of
all concerned is issued, with the consent of the Firm referred to, in order
to bring the matter to the attention of occupiers of other factories and
to induce them to take up the question of " safety " in their works in
a similar way. Even in small factories a scheme on similar, though
necessarily simpler, lines might be introduced with great advantage.

Where a Works Committee representative of the management and the
workers has been established, it will probably be convenient that the
safety duties indicated above should form part of its functions.

September, 1918.

t- * At the same time an ambulance or First Aid brigade was established, the members of
which were selected from the various departments and thoroughly trained in First Aid
work. They wear a distinctive badge, and in order that they may keep up to date they are
re-examined in First Aid work each year.

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