CORNELL UNIVERSITY LIBRARY 3 1924 092 434 806 ILR U 750 .C58 Gdrnell ilr LIBRARY Martin P. C School of Ind latherwcx ustrial and La )d Library jor Relations The Civil Employment of Soldiers and Sailors on Their Discharge. A STATEMENT OF WHAT HAS BEEN DONE AND WHAT IT IS STILL NECESSARY TO DO IN REGARD TO THIS IMPORTANT PROBLEM. Issued by the Demobilisation Committee, Social Welfare Association for London, 845, Salisbury House, London Wall, EX. THE CIVIL EMPLOYMENT OF SOLDIERS AND SAILORS ON THEIR DISCHARGE. -It -has always been recognised that the men who join the Eegular Army at 19 to 23 years of age should, after their seven or twelve years service with the colours, procure suitable work or at least be given a faar opportunity to obtain it. When we consider that the nation will have to face the problem of reinstatement at the close of the war of something like three million men now under arms, it is obviously of vital importance that the whole matter should be thought out and the way cleared in order that timely and adequate preparation may be made for demobilisation. It will be desirable, in the first instance, to summarise briefly the steps that have been taken both by the Government, by soldiers inside and outside of the War Office, by Labour leaders and others to improve the position of the soldier upon his return to civil life. War Office Committee, 1906. The first really comprehensive and considered plan was formulated by a War Office Committee " on Civil Employment of ex-Soldiers and Sailors," the Chairman of which was Colonel Sir Edward Ward, Bart, K.C.B., K.C.V.O., then Permanent Under-Secretary of State. for War. This Com- mittee, after a very wide survey of the means then existing to employ discharged soldiers, and the work of the voluntary societies procuring work for men in discharge, made recommendations of which the following were the most important and far-reaching : — 1. That an association should be created to take the place of the several existing separate voluntary societies engaged in helping soldiers to procure employment. This association to be financially assisted by, but not to be under the control of, the Admiralty and War Office. The association to be governed by a Council, on which should be represented, in addition to the voluntary societies absorbed, the municipal authorities of the Metropolis, the War Office and Admiralty, employers of labour, and ex-sailors and soldiers who had achieved success in civil life after leaving the colours. The association to have branches in every county and town throughout the country, conducted by local committees of the leading people of the locality, the Government to give a substantial contribution a year for the organisation of the work ; all other moneys required to be provided by voluntary funds. 2. That every soldier should be required to learn some description of technical work during his military career, certificates being granted for proficiency, and that among the subjects to be chosen should be shorthand and typewriting, bookkeeping, platelaying, trenching, saddlery, telegraphy, electric wiring, agricultural work, and motor driving. Technical institutes where soldiers are quartered to be made use of. 3. That facilities should be given for emigration, together with a short course of training to fit the men to be good Colonists. 3 The recommendations of the Committee, though cordially supported in the Press, were not carried out to any great extent by the authorities. The Treasury refused to make a financial, grant for the. proposed Central Association, and the societies did not see their way to unite. Nothing was done in regard to emigration. The public authorities did not greatly vary their procedure in making appointments in favour of ex-soldiers and sailors. Steps were, however, taken by the War Office to institute technical training at some of the chief military centres, and a Central Advisory Committee was formed under the chairmanship of Sir Edward Ward to keep in touch with the subject. General Federation of Trade Unions. In 1909 the Council of the General Federation of Trade Unions con- sidered a memorandum by its Secretary (Mr. W. A. Appleton) urging upon the Federation the wisdom of giving fair hearing to any proposals from the Government to give technical training to soldiers while still in the Army, and suggesting that the Trade Unions should make constructive proposals on this matter, so that, if possible, full agreement might be come to between the authorities and all Labour organisations both as to the subjects to be chosen for training and the character of the training to be given. It was pointed out in the memorandum that if the attempt of the soldiers to learn a trade were unwisely assailed by Trade Unions, and the desire of soldiers to associate themselves with Trade Unions repelled, these soldiers, on their return to civil life, might become a dangerous factor in trade disputes. The great "importance of bringing about a good understanding between soldiers and Trade Unionists was emphasised, and the responsibility resting upon Labour to do its share to help the Government. The suggestion was made that reasonable representations by the Trade Unionists to the War Office in respect of trade training to be given to soldiers previous to discharge would be well received by the authorities. Mr. Appleton's memorandum, though not formally adopted by the General Federation of Trade Unions, was strongly supported by some of its members, and is of the utmost importance, being the first considered pro- nouncement of a leader in Trade Union ranks setting forth the need for the Trade Union movement to recognise and take part in the national duty of absorbing discharged soldiers into the industrial community. Co-ordination of Official and Voluntary Effort. In 1913 a further step was taken by the War Office. In February of that year there was appointed a Consultative Committee on Employment of Soldiers discharged or transferred to the Eeserve. This Committee was formed by the Army Council and the Secretary of State for War at the suggestion of the Social Welfare Association for London. The association had pointed out the pressing need for systematised co-ordination of effort among the Government Departments, public authorities, and voluntary associations directly concerned with employment of soldiers on discharge, and had submitted that if a consultative body, formed on representative lines, were set up by the War Office it would be possible to formulate a plan of action to institute effective measures for dealing with all soldiers discharged from the colours and requiring work in which the authorities and societies should agree to act together ; overlapping and the present confusion of independent bodies working separately avoided, and the way opened for the establishment of a national system of employment of discharged soldiers. The Industrial Training of Soldiers. Sir Edward Ward was ; Chairman of the Coatee and^smenjWs included representatives of the War Office *«™ 1 ™ f ' loyment for General Post Office, and all voluntary agencies ?«*»££ § e ? ^p.^ discharged soldiers established on a national bas s. M£ A i± , Secretly of the Social Welfare Association f J L ° nd ^ u f gurv ™ of t y- SecretarJ to the Committee. ^^^^^^T^sSnJi industrial potion and P^^^,,^ 1 ^ ^, ttfsJretaiy of State for the Eeserve, undertook to inquire ana'epiy • t iWWtm War upon all industry or ■£££ training of soU, ^ ^ JX^dtetZ r & "Z S ^Z d ^, sevt ^SeW service to get e^loyrnent on their return to civil life, on a basis which would ensure that their service to tl.eir country had not placed them at a disadvantage with men of the same industrial position who had remained at home. The Committee, in addition to those already mentioned, included Lieut.- Colonel Earl Fitzwilliam, K.C.V.O., D.S.O., a large employer of labour, Mr. John Ward, M.P., to represent Labour organisations, Colonel (j. A. Carr, inspecting and supervising officer of classes for the technical instruction of soldiers, Lieut. -Colonel B. G. M. Campbell, 9th Lancers, and Lieutenant H. M. Biddulph, 1st Battalion Rifle Brigade, as officers fully cognisant of the present needs of the men. The Committee took evidence from experienced serving soldiers, retired * officers engaged with old comrades' associations, a few large employers, and leaders from the ranks of Labour fully acquainted with all the difficulties which must inevitably arise between large masses of men coming out of the Army, for the most part unskilled or only partially skilled, and mingling with, and often competing against, members of Trade Unions. A report of the evidence was drawn up and presented to the Secretary of State for War at the end of January, 1914. Recommendations for immediate action were made, in which representatives of employers and of organised Labour on the Committee, and those who had given evidence before the Committee, were in full agreement and accord. The Secretary for War, however, did not see his way to take any steps in the direction suggested or to present the report to Parliament. Another Committee had been appointed subsequently to the Consultative Committee, and, in answer to questions asked in the House of Commons by Mr. John Ward, M.P., and others, the Secretary for War, while promising to present the report of the Consultative Committee at an early date, intimated that it would not be published until the second Committee, under the chairmanship of Sir Matthew Nathan, was also ready to issue a report. It is, therefore, not possible to do more than indicate in general terms the findings of Sir Edward Ward's Committee. These were that the Central Advisory Committee to supervise technical training in the Army, which had been appointed as a consequence of the recommendations of Sir Edward Ward's Committee on Civil Employment of Soldiers, 1906, should be strengthened by the representatives oi Labour organisations, men who have served in the ranks, and expert officials engaged in the work of technical training Ihe importance of ascertaining accurately the trade or occupation or recruits was pointed out. Suggestions were "made for a systematic a nd r ZT^- m ** e g eneral , ^ucation of men after they join the colours, h? fse^vi^ft 11 a c n lmCUlum Whi0h would enilble a s °idier on completing Recomi; e nLtn a A W T^ industri * n y «8 a civilian of his ow/ class. Recommendations were also made in regard to courses of industrial training which should be instituted and ultimately absorb the whole of a man's time for a definite period immediately preceding his discharge. Suggestions were offered as to facilities and opportunities which should be given to men who undergo such training to procure employment upon discharge through recog- nised agencies and in co-operation with Trade Unions and with employers. The main recommendation, and the one on which the Committee laid most stress, was that the Central Advisory Committee, when strengthened by repre- sentation from Labour organisations, should at once get to work to prepare for the consideration of the Army Council and the Secretary of State for War a system of education, training, and technical instruction which, in peace time, should commence as soon after enlistment as purely military training allowed, and which should be developed according to the individual capacity and wishes of each man until it culminated in a period of full-time training during the closing months of his colour service. When the outbreak of the war came the whole matter -fell into abeyance, but in January of this year the attention of the War Office and the Board of Trade was directed to the importance of considering on what lines prepara- tion should be made for dealing with the issue of the demobilisation of the present Army. Sir George Murray's Committee. In February a Committee which had been appointed by the President of the Local Government Board to report upon the provision of employment for sailors and -soldiers disabled in the war issued a Eeport, which it was hoped would form the basis of immediate Government action on then- behalf. This Committee considered the subject under three aspects : the restoration to health of disabled men, the provision of industrial training for those who required it to enable them to become self- supporting, and the finding of suitable employment for those able to work. The means they recommended to give effective assistance to the disabled under these three heads was the appointment of a Central Com- mittee to act under the direction of a suitable Government Department, and to provide through the agency of the department or society most directly concerned the treatment or help needed by the men. This Central Committee was to comprise representatives of the Admiralty, War Office, Board of Trade, Local Government Board, Board of Education, Board of Agriculture, and the National Health Insurance Joint Committee, also employers of labour and representatives of Labour organisations and the existing voluntary agencies which obtain employment for discharged sailors and soldiers. The Central Committee, having been formed on this representative basis, was to be primarily responsible for all schemes and arrangements of every kind undertaken throughout the country in regard to the help, training, and employment of disabled sailors and soldiers. It was to appoint, however, wherever needed a local committee to give direct personal super- vision to individual cases of men in any neighbourhood where the numbers of such men rendered a local committee necessary. Where the numbers did not justify the formation of a committee, one or more persons would be appointed in a district to deal with the men within their district under the supervision and control of the Central Committee. The most interesting and significant part of the Eeport is contained in page 7, paragraphs 25 and 26 : — " It has been suggested to us that an organisation so created might ultimately be utilised for the purpose of dealing with the 6 employment of ex-sailors and ex-soldiers of all kinds, whether able-bodied or disabled. • "The numerous agencies at present engaged on this work in different parts of the country, and the comp exity of their operato make it highly desirable that some step should be taken to co-ordinate their activities and to prevent overlapping. " But such a scheme does not come within the terms of our refer- ence, and we are aware that the question has already received a good deal of attention elsewhere. " It is only mentioned in this place because it seems to us almost impossible to contemplate the establishment of two unconnected organisations —one dealing with disabled and the other with able-bodied sailors and soldiers." No Government action followed the publication of the Eeport of Sir George Murray's Committee until the Naval and Military War Pensions, etc., Bill, which was to include the care of disabled officers and men, was introduced in the House of Commons in July by the Eight Hon. W. Hayes Fisher, Parliamentary Secretary of the Local Government Board. In the meantime, however, leading employers of labour, representatives of Trade "Unions, and the Labour Party in the House of Commons made it known to members of Sir Edward Ward's Consultative Committee on the Employment of ex-Soldiers that a feeling was growing throughout thj|| country that the whole matter, not only of procuring work for disabled soldiers, but preparation for the demobilisation of able-bodied men upon the return of our forces to civil life at the end of the war, should be taken in hand without delay. The Social Welfare Association thereupon called an informal conference of representatives of these classes to consider this subject. At this conference Sir Edward Ward read a paper which was unani- mously adopted. The paper embodied the scheme already considered, and laid down in definite terms, with all 'the authority of Sir Edward's long experience and knowledge as late Permanent Under-Secretary for War the main principles which should govern all action by the Government and voluntary associations in preparing for and dealing with demobilisation. The basis of Sir Edward Ward's scheme was " organised decentralisa- tion." In each locality there should be formed a strong committee of leading public citizens and employers and leaders of Trade Unions to befriend the ex-fighting men on their return to their homes. There should be a central council to co-ordinate and unify the efforts of all local committees, and to form a " clearing house," by which a surplus of labour openings in one area might make good any deficiency in another. All existing local military employment agencies should be absorbed, and the organisations should work in closest relationship with Labour Exchanges. The central council to be widely representative, and to appoint a strong, capable executive committee. The funds for payment of officials and offices must be supplied by Government, but the central and local organisations were con- stituted on so widely representative a basis that they could not be controlled by a Government Department. Patriotism and desire to help the men who have fought to be the inspiration of the whole movement. The need of preparation long before peace was in sight was urged as a grave necessity. ■n T ^ 6 ° on 1 ference ' after adopting the scheme, placed itself in touch with the Parliamentary Committee of the Trades Union Congress, with the General Federation of Trade Unions, and with leading men in both Houses of Parliament and leading employers of labour. The Parliamentary Committee of the Trades Union Congress gave Official approval to Sir Edward Ward's scheme. The General Federation of Trade Unions, while also giving it their support, urged that the following measures be taken : — "That a statutory and representative committee be appointed to organise and direct the industrial situation with the view to the orderly utilisation of labour and resources after the termination of the war. ' That this committee be charged with the collection and registration of sources of employment. ' That it act in conjunction with the naval and military authorities in .connection with discharges from the Service of able-bodied soldiers and sailors. That it so organise the surplus labour supply as to prevent congestion in any area of industry. " That it encourage the Government, while maintaining the letter and spirit of the contracts entered into with the men who have enlisted, to o^fer such inducements to continued service as will reduce the danger of congestion such as is indicated in the previous paragraph. 1$ " That it endeavour to secure that during the interval between discharge from the Service and the obtaining of employment the sailor and soldier is adequately supported by the State. " That it encourage municipalities to undertake work held in abeyance during the war. " That it operate fully the opportunities for works of public utility ns suggested and provided for in the Development Act. That it suggest methods by which, through national credit banks, industries and occupations may be financed during the period of stress and reconstruction which is expected to follow as a consequence of the war. " The contention that preparation should be made for demobilisation while the war was in progress was universally approved, and the present Committee was then formed, and entitled " The Demobilisation Committee of the .Social Welfare Association for London." Naval and Military War Pensions. In the autumn the Committee took action in regard to the Naval and Military War Pensions, etc., Bill. Members of the House of Lords and of the Labour Party were brought into communication, and a full agree- ment was reached that the care of disabled soldiers should be under the control of a Statutory Board directly responsible to Parliament, and not a Committee of the Boyal Patriotic Fund Corporation. The amendments of the House of Lords in this direction were followed up by the issue of a memorandum by the Demobilisation Committee to the Members of the House of Commons, setting forth the following points for their considera- tion: — 4 1. That since the provision of supplementary aid to those who have fought for their country, and their dependents, has been recognised by the representatives of the Government as a national duty, and public funds are to be available, if necessary, for the purposes of the BUI, it would be contrary to public policy to entrust the expenditure of such funds to a body not subject to direct public control. CORNELL UNIVERSITY LIBRARY 3 1924 092 434 806 DATE DUE GAYLORD PRINTED IN U.S.A. fefifeSSSi ■ _■■_>