The development of industrial processes brought about dur- ing the last century and a half by the application of mechanical power has introduced greater variations into the conditions of life and of work than formerly existed. During the period while control was being established over the efficiency of mechanical devices, the relation of the worker to these devices, and study of the efficiency of human beings in relation to altered conditions of work, were largely neglected. Nevertheless, industrial develop- ment in England, as elsewhere, has been followed step by step by "occupational" legislation, controlling employment in fac- tories, mines, workshops and other places, aimed at protect- ing physical health. But knowledge of how to protect health lagged for many years behind the rapid alterations which were taking place; and the hurry onward to develop wealth-produc- ing industries left no time for taking full advantage of what knowledge did exist. Certainly no organized effort was made during the igth century to acquire new knowledge, and little or no recognition was given to the new psychological influences brought into existence even though their effect upon the workers was manifested in riots and strikes.
The commencement of the 2oth century saw a few far-seeing employers coming to appreciate that their workers were individ- uals with whom personal contact must be established and main- tained, and that modern industrial concerns were far too large to permit of this contact being established by a busy works manager. These employers delegated this side of their duties to definite persons, entrusted with supervision of the welfare of their workers. The result of this action was in every case markedly successful, and 30 British factories in 1913 sent rep- resentatives to a conference held at York. Nevertheless, pre- vious to the World War the possibilities of welfare work were undeveloped. One of its results has been to attract more and more attention to its importance.
Welfare work, as such, may for convenience be considered alone. In practice it cannot be separated from supervision of health. The difference between health supervision and wel- fare is the difference between supervising the health of domestic animals such as prize cattle and of human beings. Mere pro- vision of healthy surroundings and of means for personal hygiene does not meet the needs; there must be appeal to and cooperation with those concerned. The true spirit of industrial welfare work cannot be fostered merely by enforcing compliance with legal requirements. Welfare work means something different; it means educating and training each individual worker to take an intelligent interest not only in his own health and efficiency but also in that of his fellow workers, and in that of the industrial establishment of which he forms a part. Legal requirements can but seldom go further than fixing a minimum standard of accommodation needed; they cannot deal with the personal idiosyncrasy of workers, or establish a code of healthy etiquette, or ensure personal cooperation.
The unprecedented demand in the United Kingdom for muni- tions during the World War called for action to meet varying needs more rapid and elastic than that of ordinary peace re- quirements. In 1915, on the formation of the Ministry of Munitions, Mr. Lloyd George appointed the Health of Muni- tion Workers' Committee who promptly recommended the adoption of welfare supervision for munition workers, using the following words of a well-known employer in support: " If the welfare workers have the confidence of the employees, , and are always in touch with them, they will naturally be the medium whereby matters occasioning dissatisfaction or misunderstanding can be investigated and put right. By suggesting and advising upon improvements in conditions of work that may be helpful on the business side, by initiating and supervising recreative and other clubs, societies and classes, by visiting the sick, by endeav- ouring to foster the spirit of good fellowship amongst all grades of employees, and by being ready to give advice and assistance in matters affecting individual employees personally and privately by these and other methods welfare workers may find means of giving practical effect to the desire of employers to realize their obligations towards their workers." The Committee also
issued a series of valuable memoranda dealing with workers' food and industrial canteens; employment of women and of juveniles; hours of work; industrial efficiency and fatigue; sickness, injury, and special industrial diseases; ventilation and lighting; washing facilities; and eyesight in industry. These various memoranda formed the basis of work undertaken by a special section established in the Ministry of Munitions en- trusted with the welfare and health of workers.
Officers of the factory department (lent for the purpose by the Home Office) directed the work, which is historically important since thereby the foundations of industrial welfare were laid, and for the first time official propaganda going ahead of legal requirements and statute law were largely and successfully employed. The work was essentially advisory rather than puni- tive; it aimed at pointing out the lines reforms should take, and assisting and expediting in every way the carrying out of improve- ments. The following memoranda, issued by the Ministry of Munitions, indicate the scope of the work which was being initiated:
I. WELFARE FOR WOMEN AND GIRLS
The experience which has now been obtained in National and other factories making munitions of war has demonstrated that the post of welfare supervisor is a valuable asset to factory management wherever women are employed. Through this channel attention has been drawn to conditions of work, previously unnoted, which were inimical to the well-being of those employed. The following notes have, therefore, been prepared for the information of employers who have not hitherto engaged such officers, but who desire to know the position a welfare supervisor should take and the duties and author- ity which, it is suggested, might be delegated to her.
It has generally been found convenient that the welfare supervisor should be directly responsible to the general manager, and should be given a definite position on the managerial staff in connexion with the Labour Employment Department of the factory. She is thus able to refer all matters calling for attention direct to the general manager and may be regarded by him as a liaison between him and the various departments dealing with the women employees. The duty of a welfare supervisor is to obtain and to maintain a healthy staff of workers and to help in maintaining satisfactory conditions for the work. In order to obtain both a satisfactory staff from the point of view of health .and technical efficiency, it has been found to be an advantage to bring the welfare-supervisor into the business of selecting women and girls for employment.
Her function is to consider the general health, physical capacity and character of each applicant. As regards those under 16 years of age, she could obtain useful advice as to health from the certify- ing surgeon when he grants certificates of fitness. The manage- ment can, if they think fit, empower her to refer for medical advice to their panel doctor other applicants concerning whose general fitness she is in doubt. The selection of employees furnishes the welfare supervisor with a valuable opportunity for establishing a personal link with the workers. Her function is thus concerned with selec- tion on general grounds, while the actual engaging of those selected may be carried .out by the overlooker or other person responsible for the technical side of the work. In this way both aspects of appointment receive full consideration.
The management may find further that it is useful to consult the welfare supervisor as to promotions of women in the factory, thus continuing the principle of regarding not only technical efficiency but also general considerations in the control in the factory.
The welfare supervisor should ascertain what are the particular needs of the workers. These needs will then be found to group themselves under two headings :
(a) Needs within the factory Intramural Welfare.
(6) Needs outside the factory Extramural Welfare.
Intramural Welfare.
The welfare supervisor may be made responsible for the following matters:
(a)'General behaviour of women and girls inside the factory. While responsibility for the technical side of the work must rest with the technical staff, the welfare supervisor should be responsible for all questions of general behaviour.
(6) Transfer. The welfare supervisor would, if the health of a woman was affected by the particular process on which she is en- gaged, be allowed, after having consulted the foreman concerned, to suggest to the management the possibility of transfer of the woman to work more suited to the state of health.
(c) Night Supervision. The welfare supervisor should have a deputy for night-work and should herself occasionally visit the factory at night to see that satisfactory conditions are maintained.
(d) Dismissal. It will be in keeping with the general suggestions as to the functions of the welfare supervisor if she is consulted on general grounds with regard to the dismissal of women and girls.
