By July, 1916, the Board of Trade had established “an information bureau for the collection and circulation of information as to the replacement of male by female labor,” and soon after, again cooperating with the Home Office, it issued a series of “Pamphlets on the Substitution of Women for Men in Industry,” describing branches of work which were considered suitable by the factory inspectors and in which women were successfully employed. The twenty-seven little pamphlets covered trades as far out of women’s ordinary field as brick making, “oil seed and feeding cake,” leather tanning and currying and flour, as well as the more usual clothing and cotton trades. Under each trade were enumerated the processes on which women had been substituted for men, opportunities for training, and any relaxation of the factory acts, or of trade union rules which favored their employment. The results of this propaganda by the Home Office and the Board of Trade have nowhere been exactly estimated, but whether due to it, or to the necessities of the labor situation, or to both, it was soon followed by a marked increase in the number of women doing men’s work.
In September, 1916, the War Office took a hand in the propaganda. Its contribution was a large illustrated pamphlet listing occupations on which women were successfully employed. The purpose of the book was primarily to guide the administrators of the conscription act and to reduce the number of exemptions from military service on the grounds of industrial indispensability. Incidentally, it was “offered as a tribute to [women’s] effective contribution to the Empire in its hour of need.” It was much criticised because of the lack of discrimination shown in recommending certain kinds of work. It would seem that the heavy lifting involved or the disagreeable nature of the surroundings made such work as loading coal, planks and miscellaneous freight, moving coke and beer barrels, handling heavy steel bars, stoking and the removal of leather from dipping beds entirely unsuitable for women. But much of the work pictured, such as reaping, the care of horses, driving a steam roller and bakery work, though far removed from the usual lines of “women’s work,” did not seem to be objectionable. Still other occupations, where little strength and considerable skill were required, for instance, piano finishing and tuning, making ammunition boxes, modeling artificial teeth, repairing railway carriage seats and the preparation of soldiers’ dinners, would seem positively desirable additions to the field of women’s work.
The most ambitious of the government’s attempts to keep up the essential industries of the country under war conditions was the “National Service Department,” created early in 1917. It commandeered a hotel for its headquarters, and assembled a large staff. Through this department it was planned to secure the enrollment of all persons of working age, who were then to be transferred to “trades of national importance,” if not already so employed. Volunteers to go wherever they were assigned were first called for, and as the response was only slight, conferences with employers and employes were begun to find out what men various firms could spare, and to arrange for their transference to essential war work by the “Substitution Officers” of the Department. The duplication of the work of the employment exchanges is evident. Enrollment and transference were to be purely voluntary, though among the labor groups there were murmurings that the scheme was but a prelude to industrial conscription. But in April the plan was called a “fiasco,” and it was alleged that only a few hundred placements had actually been made.[78] In August, however, the department was reorganized and its purpose was stated to be that of coordinating to the best advantage the labor power of the nation rather than of acting as an employment agency.
In the winter of 1917 a “Woman’s Section” had been set up by the “Director of National Service” in charge of two women well known for their interest in the problems of women’s work, Mrs. A. J. Tennant and Miss Violet Markham, of whom it was said that they had been “asked to bring order out of chaos at the eleventh hour.”[79] The principal achievements of the women’s section were the formation of the “Waacs” for work behind the lines in France, which has been previously described, and also a moderate sized “land army” of women for agricultural work. An effort to carry through another registration of women for war work does not seem to have been particularly successful.
Other Measures to Increase Substitution—Trade
and Commerce
The chief governmental reports covering nonindustrial lines of work are those of the “Shops Committee” and the “Clerical and Commercial Employments Committee,” both formed in the spring and reporting in the fall of 1915. The former stated that it was organized to see how Lord Kitchener’s demand for “more men, and yet more men” could be met by releasing men employed in stores. In the judgment of the committee very few men needed to be retained, except in the heavier branches of the wholesale trade. The committee distributed circulars to shopkeepers throughout the country asking how many men could be released for the army and calling attention to the emergency. A large meeting of representatives of the unions and the employers’ associations was held in London and fifty-five local meetings for the trade through the country, at which resolutions were passed pledging those present “to do everything possible” to substitute women for men. “What we feel we have done,” said the committee, in summing up its work, “is to bring home to shopkeepers in England and Wales the necessity (and the possibility) of rearranging their business so as to release more men for service with the Colours.”
The other committee, on “Clerical and Commercial Employments,” was formed to work out a plan for “an adequate supply of competent substitutes” for the “very large number of men of military age” still found in commercial and clerical work. The committee estimated that 150,000 substitutes must be secured, and that they must be drawn mainly from the ranks of unoccupied women without previous clerical experience. It recommended the securing of such women from among friends and relatives of the present staffs, the starting of one and two months’ emergency training courses by the education authorities and the placement of the trained women through cooperation with the local employment exchanges. The committee went on record in favor of the reinstatement of the enlisted men after the war, and meanwhile “equal pay” for the women substitutes. It brought the need of substitution before the various commercial and professional associations whose members made use of clerical help.
Campaign for Substitution
in Agriculture
Propaganda efforts in agriculture were numerous, but judging from the comparatively small increase in the number of women workers, they were relatively less successful than those in industry and trade. In the minds of both farmers and country women as well as in the public mind, women’s work on the land was usually associated with backward communities, seasonal gangs and a low class of worker. Such prejudice was overcome largely by the work of educated women on the farms. The large number of employers in comparison with the number of workers, and the reluctance of the farmers to make use of the employment exchanges, are mentioned as other handicaps to agricultural substitution.[80] The failure to raise wages materially or to improve living conditions was also not an unimportant factor in holding back the movement of women workers to the land.
In 1915 the Board of Agriculture started a movement for the formation of “women’s war agricultural” or “farm labor” committees. In the spring of 1916 the Board of Trade joined the Board of Agriculture in the work. The committees were supposed to cooperate with the war agricultural committees of men which had been formed in each county, but the connection was considered often to be less close than was desirable. The women’s committees were made up of “district representatives,” who, in turn, worked through local committees, or “village registrars” or both. In the late autumn of 1916 there were sixty-three county committees, 1,060 “district representatives” and over 4,000 “village registrars.” The Board of Agriculture formed a panel of speakers for meetings, and the Board of Trade appointed women organizers for various parts of the country. Local meetings to rouse enthusiasm were followed by a house-to-house canvass in which women were urged for patriotic motives to enroll for whole or part time work. The village registrar then arranged for employment of the women listed either through the local employment exchange or as they heard of vacancies. The women were told that “every woman who helps in agriculture during the war is as truly serving her country as the man who is fighting in the trenches or on the sea.” Each registrant was entitled to a certificate, and after thirty days’ service might wear a green baize armlet marked with a scarlet crown.