Economic effects of the world war upon women and children in Great Britain

by Irene Osgood Andrews; Margaret A. Hobbs

Probably the most serious obstacle to the recruiting of women workers was the body of trade union restrictions against their employment. A prime purpose of the well known munitions acts, which put a new aspect on many of the relations between employers, employes and the state, was the abrogation of these trade union rules.

The change thus made compulsory on the industry was known as the “dilution” of skilled labor by less skilled—which, according to official definition, “fundamentally means increased employment of women with a view to releasing men.”[58] The “dilution” movement is one of the most far reaching labor developments of the war, alike in the industrial transformation entailed, in the change in the status of women workers, and in its probable after war consequences. The events leading up to the passage of the acts, and the subsequent recruiting of women, form a fascinating chapter in English industrial history.

The increasing demand for munitions found workmen in the “engineering” (roughly, the machinists’) trade, thoroughly organized, mainly in the Amalgamated Society of Engineers. This was one of the strongest unions in the skilled crafts, having a membership of 174,253 in 1914. The A. S. E., as it is familiarly called, did not admit women, and its rules among other things restricted the kinds of work which could be done by women, unskilled men, and nonunionists, limited the amount of overtime, and the number of machines to be tended by a single worker. In December, 1914, shortage of labor and the expanding demand caused the employers’ federation in the engineering trades to ask the unions to give up these rules during the war period, but the negotiations which followed were fruitless. About this time the “industrial truce” was broken by the great strike of engineers on the Clyde, when their demand for a raise of pay at the expiration of their wage agreement was refused.

Labor unrest, charges that employes lost much time from work—in many cases, it was said, because of drink—and difficulties in getting a sufficient supply of munitions, caused the government to appoint, on February 15, 1915, a “Committee on Production in Engineering and Shipbuilding to inquire and report ... as to the best steps to be taken to ensure that the productive power of the employes in engineering and shipbuilding establishments working for government purposes shall be available so as to meet the needs of the nation in the present emergency.”

The second report of the committee, issued February 20, on “Shells and Fuses,” recommended as methods of increasing production, first, that the workers should cease to restrict earnings and output, in return for which no attempts to cut piece rates should be allowed, and second, that “there should be an extension of the practice of employing female labor on this work under suitable and proper conditions.” The third report, issued March 20, made an analogous recommendation that, with proper safeguards to protect union interests, a greater use should be made of unskilled and semi-skilled labor during the war.

The “Treasury Agreement”

The next step toward “dilution” was the calling of a conference of representatives of the chief unions doing war work, which met with the Chancellor of the Exchequer, Lloyd George, and the president of the Board of Trade on March 17, 1915. No women’s labor organizations were represented. At the conference Lloyd George showed that the need for munitions was greater than had in any way been anticipated, and begged the unions to give up all restrictions on output and to submit all disputes to arbitration during the war period. In return, the government would take control of the establishments affected and would limit their profits. A committee of trade unionists, also having no women members, was then appointed to draw up proposals embodying these principles. Their work is embodied in the so-called “Treasury Agreement,” which was accepted on March 19, 1915, by all the union representatives present, except those of the Amalgamated Society of Engineers.

The clauses which permitted the increased employment of women included the following provisions: Each union was recommended “to take into favorable consideration such changes in working conditions or trade customs as may be necessary with a view to accelerating the output of war munitions or equipments,” provided the government imposed on contractors for munitions, war equipment, or “other work required for the satisfactory completion of the war,” certain conditions intended to safeguard the unions and their wage rates. All changes were to be only for the war period, and should “not prejudice the position of the work people ... or of their trade unions in regard to resuming prewar rules or customs after the war.” After the war also preference of employment should be given workers who had enlisted or who were employed at the time the agreement was made. When semi-skilled men were introduced on work formerly done by skilled men, “the rates paid shall be the usual rates of the district for that class of work.” Moreover, “the relaxation of existing demarcation restrictions or admission of semi-skilled or female labor shall not affect adversely the rates customarily paid for the job.” A record of all changes was required to be kept, open to government inspection, and “due notice” of intended changes was to be given “where practicable,” with opportunity for consultation by the workers or their representatives, if desired.

However, an agreement of this kind to which the Amalgamated Society of Engineers had refused assent was not a little like the play of Hamlet with Hamlet left out. Further negotiations were immediately held with the A. S. E., and on March 25, when certain additional safeguards had been added, they likewise accepted the agreement. The additions pledged the government to limit profits in the shops where union rules had been given up “with a view to securing that benefit resulting ... shall accrue to the State,” and to use its influence in the restoration of trade union conditions after the war. The restrictions were to be removed solely on work “for war purposes,” and the workers might demand a certificate to that effect from the government department concerned. Most important of these additions in view of the sweeping changes taking place in the engineering industry was the clause to the effect that where new inventions were introduced during the war, the class of workmen to be employed on them after the war “should be determined according to the practice prevailing before the war in the case of the class of work most nearly analogous.”

In accordance with the terms of the agreement an advisory committee of labor representatives was appointed, to help in carrying out its recommendations, and several local “munitions committees” representing employers, employes and the public were formed for the same purpose.