A History of the Ministry of Information, 1939-46
A REPORT ON THE ATTITUDE AMONG BUILDING CONTRACTORS AND THEIR EMPLOYEES TO THE QUESTION OF GOVERNMENT PRIORITIES IN LABOUR AND MATERIALS
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SECRET
I. DO BUILDERS' FOREMEN AND LABOURERS THINK THEIR WORK UNIMPORTANT AND THAT THEY WOULD BE BETTER EMPLOYED IN THE FORCES ?
1. View on the importance of their work . The majority of reports indicate that employers in the building industry regard their work as important, and none suggests that they think it unimportant.
There seems to be less understanding of the importance of their work among labourers. In only four regions, one of which is Scotland (geographically the largest) do these workers appear to think their work important. Reports from four other regions suggest that labourers do not rate the importance of their work highly.
There is little direct reference to the views of foremen, but in three reports the impression is given that they understand the importance of their work better than do the labourers.
2. Why employers think their work important .
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System of priorities . In two reports it is stated that employers regard the system of priorities as a reason for the importance of their work. The fact that “builders can only obtain permits for work of importance and that private building orders are practically limited to essential maintenance work” is given as one reason why builders consider their work important.
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Repairing of raid damage . In London particularly it is stated “that there is never any difficulty in getting operatives to work long hours, seven days a week, if necessary, on the repairing of bombed properties”.
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Shortage of builders' labourers - In the N.M. Region it is said that “the acute shortage of labour makes the available men realise their own importance.”
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Calling up of building workers - From Scotland it is reported that “practically everybody in the industry thinks their work is important, otherwise they would be called up”.
3. Why some labourers think their work unimportant .
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Ignorance of the purpose of their work . - This reason is stressed by two R.I.Os; one of these mentions a case where excellent results were obtained on one building site after the men had been addressed by R.A.F. personnel on the importance of their work in beating Hitler.
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Emphasis on wages and hours of work . Reports from four regions indicate that labourers are far more concerned with questions of hours, wages and conditions than with the national importance of their work. The Scottish R.I.O. states that because working hours have been reduced by early darkness “the men are clamouring for Sunday work at double time rates.”
Other reasons include deficiencies in welfare and transport facilities, particularly in the exposed and isolated sites chosen for camps and ordnance factories; a feeling among the younger men that sooner or later they will be called up; the fact that on some sites the men are not allowed to share canteens provided by the N.A.A.F.I. and Y.M.C.A. for servicemen.
4. Whether it is thought that building workers would be better employed in the Forces .
Reports from six regions expressing the view that building workers are better employed in the building industry. The chief factors determining this view appear to be:-
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The fact that men do not wish to be called up for military service . Four regions give this as a reason. N.W. Region reports that men have been “moving round” to avoid being called up. The R.I.O., E. Region says “the majority of the men apparently do not want to be called up and avoid it where possible.”
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The fact that it is more profitable to remain in the building trade . From London a note is made that “a long period of prosperity in the building industry has made men unwilling to lower their standards of living by going into the Forces”.
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Lack of activity in the Army at the present time . This is thought to be a factor by two northern regions.
II. DO BUILDERS' FOREMEN AND LABOURERS UNDERSTAND WHY BUILDERS' LABOURERS HAVE BEEN CALLED UP ?
There seems to be very little understanding of the reason why builders' labourers have been called up, and some astonishment is expressed at this measure, in view of their present shortage. A comment typical of reports from four regions is that “the call-up is a mystery to both employers and employees”. In the case of only two Regions is even partial understanding of the call-up expressed - a minority of London contacts state “that it was generally recognised that the needs of the Forces are paramount”; from Scotland it is reported that some employees “imagine the proposed call-up is due very much to the fact that they don't do very much work”. In two Regions the call-up is reported not to have aroused wide discussion. One Region (North Midland) reports actual opposition to the call-up, stating that it “raised a storm of protest because the shortage of builders' labourers is said to be the most serious factor in holding up work”.
CHIEF CAUSES OF LACK OF UNDERSTANDING OR OF OPPOSITION :
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Shortage of builders' labourers - The present shortage of building labour, particularly of builders' labourers, is mentioned in reports from seven regions; two regions give this as the reason for opposition to the call-up, or lack of understanding with regard to it. In the N.M. Region there is stated to be an unsatisfied demand for 7,500 labourers. Comment is made on the high wages paid to labourers by Government Contractors, as much as £10 per week it is said.
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Call-up of men urgently needed - This factor is stressed in reports from three regions. A report from the R.I.O. Scotland states that “One man who is doing No. 1 Priority Work, said ‘I cannot understand it, I'm employing men on aerodromes and A.A. work and simply can't get enough of them and here they come calling up what I have got’”.
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Unsatisfactory replacement workers - Dissatisfaction with many of the labourers who have taken the place of those called up is expressed in reports from two northern regions. One states that “the inferiority of much of this unskilled labour is one of the reasons given for delays in construction”. Attention is drawn to what seems to be a pertinent aspect of this question. The fact that builders' labourers can be divided into two categories: the labourer who “through years of experience in the building trade is a very skilled individual”; and the men “who are only useful for fetching and carrying”. It is remarked “it can be understood why the latter type are called up”.
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Necessity for craftsmen to do unskilled labour . From London Region the view is expressed that “the call-up of labourers while craftsmen are reserved at a lower age is a short sighted policy, increasing the cost of a building, as it simply means that craftsmen have to do labourers' work at craftsmen's rates of pay.”
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Men called up do not use their skill . The view that men called into the Forces are not given jobs where they can use their skill is expressed in reports from two Regions. One report states “it appears to be generally taken for granted that men called into the Forces are not given jobs where they can use their skill...... there is no doubt that if it were felt that this were changed it would be welcomed with general approval”.
III. DO THEY UNDERSTAND WHY BOTTLENECKS ARISE THROUGH SHORTAGES OF MATERIAL ?
1. The great majority of workmen do not appear to understand why bottlenecks arise through shortages of material, and among builders only about half of them are said to realise why such shortages occur. On the whole, employers seem to be rather better informed.
2. Reports from four regions suggest that defects in administration lead to unnecessary delays in the supply of materials. It is remarked that “still more of the hold-ups are due to unnecessary delays, red tape, lack of organisation etc. on the part of the authorities granting Priority Certificates”. In the Midland Region, foremen and labourers are claiming in some instances that they would welcome much tighter control, and suggest that this should be carried out jointly by the Government and a Joint Council of Builders' and Operatives' Associations.
Three Regions refer to defects in transport arrangements - “Carting coals to Newcastle”.
There is criticism of the Priority System from three regions. The Scottish R.I.O. states “Some of the managers and foremen understand the Priority system and see merit in the principle, but nothing but confusion in the practice of it. Very few of the workmen engaged in the building industries seem to realise what priorities mean, and among the tradesmen and labourers the Priority system is believed to be mixed up with the cost plus 10% basis of production. There is an almost universal belief that the cost plus 10% is the chief method of handing out contracts. As a result, the workmen believe that the employers [Text Missing] just sit back and see profits roll in without bothering about the time that the job takes. The men act according to this belief and take things easy”. The N.M. R.I.O. reports that “[Text Missing] sometimes seem to feel that firms (apparently to reduce liability to excess profits tax) are ordering unnecessary work. Any hint of this causes much resentment and makes the men ‘fed[Text Missing] up’”.
IV. IRISH LABOUR
1. British labourers' opinion of Irish labourers . In nine regions the majority of opinion is critical of Irish labour. The chief causes of criticism are:-
(a) Character and temperament of Irish labourers . Six of the nine regions reported adversely with regard to this. A typical comment is that “Irishmen are not generally liked”. “It appears they are mostly of a low type, dirty and uncouth and troublesome”.
Some improvement in the behaviour of the Irish is reported from Wales and N.W. regions. In respect of West Wales, it is stated “The many Irishmen who are working in this district seem to get along fairly well with the British workmen. When Irishmen commenced to work here there was considerable friction between them and the ‘locals’ but this seems to have died away”.
(b) Criticism of Eire's neutral status . Some comments refer critically to the fact that Irish labour is able to replace our own men called up for service owing to Eire's neutral status It is felt to be wrong that Irishmen are able to benefit from this situation. The R.I.O. London Region states “It is said that there had been critical comment on the fact that Irish are imported while our men are in the army.”
In Scotland the most important issue in respect of Irish labour is said to be that of religion. Scotch Protestants dislike Irish Catholics and Scotch Catholics dislike Irish Protestants.
2. Irish labourers' opinion of British labourers . There is little comment from the regions on this question. The views available reflect a favourable view of British workers on the part of the Irish.
3. Attitude of the public . Reports from four regions indicate that the views of the public are critical of the Irish labourers owing to their rowdy behaviour and their presence in England being the result of Eire's neutral position.
REMARKS :
Building Trade Propaganda .
North Midland Region comments with regard to this: “There is a strong feeling that Government propaganda to the building trade will have to be extremely tactfully done as there is a lot of cynicism about managerial and Ministerial mismanagement as the cause of most of the hold-ups. There seems little doubt that this feeling of distrust is impeding the war effort in this trade, and also that there is enough truth behind it to make it dangerous. Any propaganda making out that ‘everything in the garden is lovely’ should, therefore, be avoided.”
Home Intelligence.
Ministry of Information.
12th December, 1941 .
1. REACTIONS OF AGRICULTURAL WORKERS TO INCOME TAX
1. Comparative lack of reaction .
There appears to have been comparatively little reaction among agricultural workers to the possibility of their having to pay income tax. Six out of ten Regions (including Wales and Scotland) report that there has been little or no reaction so far. This is thought to be due chiefly to the fact that not many agricultural workers will be liable for tax under the new scale and that those who will be have not yet realised this.
2. Reactions so far indicated
Reports from seven out of ten R.I.Os give some indication of farm workers' reactions but the sources are not representative of the whole of each Region.
Willingness to pay tax
Reports from three of these Regions refer to existing liabilities and they suggest that “most agricultural workers accept the payment of income tax as being a necessary wartime measure” and that allowing for the usual proportion of grumblers they are in general prepared to have to pay it.
Objections to payment
Only four Regions report on a possible new liability to tax and only two Regions refer to possible objections to payment from agricultural workers themselves.
(a) One of these objections is that though the payment of tax will be accepted “it does seem unfair that when they are able to command a decent wage, for the first time in their history, they should be subject to income tax from a very much lower basic rate than has previously been the case” They point out that other people have earned much more than this amount in the past and paid no income tax, but now, when the cost of living is very much higher and their wages have been raised to meet the cost, a considerable proportion is taken from them in tax.
(b) Overtime and income tax
A serious complaint comes from a number of labourers in the Spalding district who claim that a very large proportion of their overtime pay is taken back in income tax without any consideration of the extra food, wearing out of clothing, etc. involved. It is thought, states the R.I.O. that this complaint has some grounds and that it tends to restrict a desire to work longer hours.
(c) Difference in assessment of farmers and workers
A report from the N. Midland R.I.O. mentions as a cause of great resentment among workers the position of farmers who have holdings with assessments of less than £300. It is said to be possible “for a worker who may be earning £4 or £5 a week (with overtime) and who is single, to be actually paying more tax than his employer who may be, nevertheless, making as much as £1,000 a year in these times.”
II. VIEWS OF FARMERS AND OTHERS CONNECTED WITH AGRICULTURE
1. Farm Workers' reactions
Only Northern and N. Eastern R.I.Os. refer directly to the views of farmers on farm workers' reactions. It is suggested says the first “that arguments which may be used to reconcile farm workers to the payment of tax are:
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the equity of their sharing a burden borne by all other workers at the same income level;
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compulsory saving.”
The other reports that “difficulties expected by employers are a greater disinclination to work overtime, and the problem of adjusting the value of perquisites such as potatoes, milk, rent of land, and of a tied cottage”
2. Lack of understanding about income tax
Reports from the North Eastern, North Western, Midland and Scottish R.I.Os. refer to lack of understanding among agricultural workers about their income tax position, the reasons for payment of tax, and the postwar credit scheme.
The North Eastern R.I.O. states that “it would be of the very greatest advantage if the position could be explained to farm workers at the earliest possible date. He suggests that both the extent of their liability and the reasons for it should be made clear.”
The comments of the N. Western, Midland and Scottish R.I.Os are on the same lines.
Three R.I.Os refer to lack of understanding about the postwar credit scheme. “It appears that there is need for a strong, positive programme of publicity re postwar repayment” says one. “Certainly” says another “the agricultural worker doubts whether the postwar credit will in fact be worth anything to him (or to anybody) when postwar values are compared with present-day values. He wants to know what £1 saved now will buy him when he gets it back after the war.” The R.I.O., Northern Region gives the opinion that “in view of the frugal, thrifty character of farm workers, it is suggested that they be told not that they are compulsorily saving, but that so much money is being put in the bank for them each year.”
3. Need for simplification of income tax forms
Two Regions, N. Midland and Southern, refer to this. North Midland Region expresses the view that “there seems no doubt that the present form worries agricultural workers very considerably, in spite of the attempts at explanation made in certain Trade Journals. The National Union of Agricultural Workers has met this difficulty by supplying a simplified form for their members to fill up. The Union then completes the official form for members, who then sign it. It is felt that if something simpler could be devised, it would be a material help.”
III. SUGGESTIONS FOR PUBLICITY
Five R.I.Os make suggestions about this. Their suggestions are connected, to a large extent, with the lack of understanding referred to above. It is thought that a simple explanation of their income tax position should be made to farm workers, that the need for them to pay tax should be clear and that the postwar credit scheme should also be explained to them.
The R.I.Os Eastern and Midland Regions, refer to the need for a poster especially directed to agricultural workers. The first states “it would appear that publicity, apart from posters, leaflets, etc., that confine themselves merely to figures, is inappropriate and slightly out of focus to agricultural workers.” The second says “in planning publicity it might well be borne in mind that the public house is the main centre for discussions of difficulties of this type, and that the men tend to solve their problems in discussion there. The isolated village Post Offices and weekly delivery vans have been suggested as suitable sites for informative posters”, and the same Region points out that “Sunday is the one day when country people make a point of listening to the broadcasts.”
Home Intelligence.
5th December, 1941 .