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 Welfare 
 
 AND 
 
 Welfare Supervision 
 
 IN 
 
 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 
 
 IN 
 
 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. 
 
y 
 
 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 
 
3 
 
 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. 
 
5 
 
 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 
 
9 
 
 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. 
 
10 
 
 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. 
 
u 
 
 (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 
 
12 
 
 grouuding in and lamiliarity with the following 
 subjects : — 
 
 (a) Industrial life and social studies. 
 
 (6) Factory organisation and industrial law. 
 
 (c) General conditions of the maintenance of 
 
 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." 
 
 REGISTER OF SUPERVISORS. 
 
 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 
 
13 
 
 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. 
 
14 
 
 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, 
 
15 
 
 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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