The claim must also be made quite clearly, that in throwing open these posts to women, the same method of recruiting must be employed as for men, and the remuneration must be at the same rate. In asking for these opportunities women are simply asking that the s.e.x disability which at present bars them from the majority of posts in the service, may be removed. They do not seek admission in some special way, nor do they wish to undercut men by accepting lower salaries. They ask that the s.e.x barrier may be removed in the case of both Cla.s.s I. and Cla.s.s II. appointments--in other words, that these appointments may be open to them on the same conditions as they are or may be open to men.
In the case of the majority of the appointments. .h.i.therto held by women, some care has been taken to put them on a different footing from those of men; in these instances it is not easy to compare the work of women with that of men, or to urge the claim of women to be paid at the same rate as men for work of equal value. There are, however, some conspicuous instances--_e.g._, of the Factory Inspectors and Inspectors of Schools--in which no such differentiation is possible and in which the only reason for paying the women less than the men seems to be that given by the ex-Permanent Secretary of the Treasury in his evidence before the Royal Commission on the Civil Service, "that women ought to be got as cheaply as possible, and that if they can be got for less, they ought not to be paid the same as men."
There seems some ground for believing that official opinion in this matter is undergoing modification, since in the case of later appointments--_e.g._, in the Labour Exchanges and in the National Health Insurance Commission--the tendency has been to approximate the salaries of women much more closely to those of men and even in some instances to make them identical. It is therefore reasonable to hope that the principle of equal pay for equal work will, before long, be extended to appointments of longer standing, in which its application would be no less just than in the case of new appointments.
II
THE LOWER GRADES AND THE PRESENT POSITION
So far as the position of its women workers is concerned, the State is very far from being the model employer it sometimes professes to be. When one considers the very wide disparity existing between the salaries for similar work of women and of men, one realises to what an enormous extent the Exchequer, and, consequently, the taxpayer, has benefited by the economies practised at the expense of the women Civil Servants ever since their introduction in the early seventies.
There is not a shadow of doubt that economy was the motive for their employment, but even economy would not have justified the continued increase in their numbers, had they not exhibited what has been called by a high official, "remarkable efficiency," and also the very desirable qualities of docility, patience, and conscientiousness.
When the Government first took over the telegraphs from the private companies, it found women in their employ, and decided to retain them in the service. Women Telegraphists and Counter Clerks are now a very large body numbering in London about 2,000, and in the Provinces about 5,000,--a total of 7,000 women as compared with 16,000 men. The duties of men and women telegraphists are more closely comparable than their respective work in any other cla.s.s in the Civil Service, practically the only differentiation being that women are debarred from night duty. They are also generally exempt from Sunday duty, excessive late duty, and special duties in connection with race meetings, although the Hobhouse Committee in 1907 recommended that women should do the Sunday work if required. (As, however, payment for this is made at a higher rate, there is usually no lack of volunteers.) Their scale of salary in the Central Telegraph Office is 18s. a week at eighteen years of age, rising to a maximum of 40s. The men"s scale is 20s.
rising to 65s. When the necessary technical qualifications are acquired, an allowance of 3s. a week carried beyond the maximum and pensionable, is now given to both s.e.xes alike. Formerly the technical allowance for women was 1s. 6d. per week only, and this would appear to account for the lower proportion of women who have qualified for the technical increment.
There appears to be a tendency to stereotype certain kinds of work for men only, in order to justify the differentiation in pay, but in point of fact, most of the work now exclusively allotted to male telegraphists was at one time done by women. The work done by men and women Counter Clerks is identical. The women in the Telegraph Service have no separate organisation, but combine with the men in the Postal Telegraph Clerks" a.s.sociation, which has a large number of branches, and carries on a very active campaign for improvement in pay and conditions of service. Equal pay for equal work is one of the planks in its platform, and formed part of the case put forward before the Select Committee on Post Office Servants last year.
Women Clerks are employed in the great financial Services of the General Post Office, the Savings Bank Department, Money Order Department (including the Postal Order Branch), Accountant-General"s Department, and the Controller"s Office of the London Telephone Service, as well as in the Accountant"s Departments of the General Post Offices in Edinburgh and Dublin. In all, they number nearly 3,000. It may, perhaps, be of interest to go into the history of this cla.s.s.
Women Clerks were first introduced into the General Post Office in 1871 by Mr Scudamore, who considered that as women were more "fault-finding" than men, they might well be used as "a check on the somewhat illiterate postmasters of the United Kingdom in the interests of a somewhat long-suffering public." Entry was at first by nomination, but in 1881 the appointment of Women Clerks was thrown open to the public by compet.i.tive examination by Mr Fawcett, who was then Postmaster General. This step met with some opposition, and Queen Victoria even caused a letter to be written to Mr Fawcett expressing her strong disapproval of the change. The Postmaster-General, however, carried his point, and fixed the scale of salary at 65, rising by 3 per annum to 80. When the working day was increased from six to seven hours, the maximum was raised to 100. The revisions of the Tweedmouth Inter-Departmental Committee came into force in 1897, involving many concessions to the male staff, and simultaneously the minimum salary of the Women Clerks was, without any warning, reduced for new entrants to 55 per annum, and the increment for the first six years was reduced to 2, 10s.
Realising the defencelessness of their position, the Women Clerks formed an a.s.sociation in 1901, and so strong was the case for improvement which they were able to bring before the Hobhouse Parliamentary Committee of 1906, that in spite of considerable misrepresentation of their work in the evidence given by Heads of Departments, they were able not only to get back the 1881 minimum of 65, but were awarded further an increased increment of 5 throughout the scale and a rise of 10 in the maximum. This was the position until December 1911, when a tentative scheme was introduced in the Money Order Department to hand over all the simpler duties to a new cla.s.s of a.s.sistant Women Clerks with an eight-hour day and a wage of 18s. rising to 34s. a week. The a.s.sociation of Post Office Women Clerks, the basis of which is "equal pay and opportunities for women with men in the Civil Service," and which therefore necessarily stands for simplification of the cla.s.ses of employment, regarded the restriction of a fresh grade of women to yet another water-tight compartment at a low wage as in itself an evil. But apart from this, they looked upon the scheme as a deliberate evasion of the Hobhouse Committee"s recommendations. So strong was the criticism levelled at the new scheme, both by Members of Parliament and the Press, that the Postmaster-General, Mr Herbert Samuel, consented to refer the matter to the Select Committee on the Post Office (known as the Holt Committee)[1], which was appointed in the early part of 1912, and he gave an undertaking that no more appointments to the new grade should be made in the Money Order Department until the Committee had reported, The value of this concession was considerably lessened by its limited application, and the fact that many a.s.sistant Women Clerks were subsequently appointed to the London Telephone Service, clearly indicated the intention of the authorities to proceed with the development of the scheme in a Department which provided an easier field of operation in the shape of new work and a new staff taken over from the National Telephone Company.
In 1897 the cla.s.s of Girl Clerks was created, to undertake some of the simpler duties in the Savings Bank Department, hitherto performed by Women Clerks. They were subsequently introduced into the Money Order Department and the Controller"s Office of the London Telephone Service, and there are approximately 250 now employed. They take the same examination as Women Clerks, but at a lower age--sixteen to eighteen--and are grouped apart for the purpose of marking. Their hours of duty are seven daily, and their salary 42, raising by 3 per annum, to 48. They are in reality a probationary cla.s.s, and become Women Clerks automatically after two years" service. The introduction of this cla.s.s was not considered by the Department to be an administrative success, as the obligation to make them Women Clerks in two years prevented their being employed in sufficiently large numbers to effect any appreciable economy. The scheme for the introduction of the grade of a.s.sistant Woman Clerk involved the abolition of the Girl Clerk.
The Women Clerks are an a.n.a.logous grade to the Male Clerks of the Second Division who are common to the whole Civil Service, and they do practically the same cla.s.s of work. The examinations for the two cla.s.ses are somewhat severe in character and are roughly comparable.[2] There is, however, a wide disparity in the salaries paid, as will be seen from the following comparison:--
SECOND DIVISION CLERKS.
70 by 7, 10s. per an. to 130 thence by 10 per an. to 200 thence by 10 per an. to 300 (Efficiency Bar at 130 and 200)
Above the salary of 300 advancement to higher posts by promotion.
WOMEN CLERKS.
_Second Cla.s.s_-- 65 by 5 per an. to 100 (No Efficiency Bar)
_First Cla.s.s _(by promotion)-- 115 by 5 to 140
Above the rank of First Cla.s.s Clerk there are certain higher posts which const.i.tute a percentage of 4.6 of the total number of First and Second Cla.s.s Clerks.
The existence of this double standard of payment for the same kind of work is not only an injustice to the women concerned, but is a standing menace to the men, who rightly consider that the presence of women as a blackleg cla.s.s keeps down their wages and reduces their prospect of promotion. A sense of irritation and dissatisfaction is thus engendered between the two s.e.xes. The maintenance of separate staffs of similar status but with different rates of remuneration, enables the department to play off one against the other, for the existence of a lower paid cla.s.s makes it increasingly difficult for the Men Clerks to substantiate a claim for better pay themselves. The standard of their work is raised by the "moving-down" or "degrading"
of duties, without any improvement in pay such as they would probably be able to obtain if women were not involuntarily undercutting them.
Women fully sympathise with their male colleagues, whose prospects are injured in this way, but they insist that the only solution of the difficulty is equal treatment and fair and open compet.i.tion.
The a.s.sociation of Clerks of the Second Division supported the Women Clerks" claim for equal pay for equal work in their evidence before the Royal Commission on the Civil Service, and it is gratifying that, in spite of the determined policy of the department to adhere as far as possible to the absurd segregation of the s.e.xes, the two organised bodies of Men and Women Clerks are on excellent terms.
In 1883 the cla.s.s of Women Sorters was inst.i.tuted, its original scale of pay ranging from 12s. per week, increasing by annual increments of 1s. to 20s. per week. In 1885 a first cla.s.s was created with a maximum of 30s. per week. The Tweedmouth Committee of 1897 abolished the cla.s.sification, and subst.i.tuted therefor an efficiency bar at 21s., so that, unless incompetent, all the Women Sorters have a right to proceed to the maximum of 30s. Since the salary was fixed at that figure, the work of the Sorters has greatly improved in character.
Originally introduced for the purpose of sorting, arranging, and filing the mult.i.tudinous kinds of official doc.u.ments and papers, they have by degrees taken over more and more of the simpler duties formerly performed by the Women Clerks, until, at the present day, it is no exaggeration to say that nearly one-half of their duties consists of elementary clerical work. The Women Sorters are recruited from an examination of the same standard as that hitherto applied to Telegraphists, and the Women Sorters" a.s.sociation claims that the principle of equality between Sorters and Telegraphists, which was recommended to the department by the Tweedmouth Committee in 1897, should be applied to the Women Sorters. Prior to 1900, vacancies occurring in the female staff at the Returned Letter Office were filled by transferred Women Telegraphists, but since that date, vacancies have been filled by successful candidates at the Women Sorters" examinations, who are awarded the Women Telegraphists" scale of pay. There is, therefore, the anomaly of two different scales of pay being given to successful candidates in the Women Sorters"
examinations. The Women Sorters also claim some outlet, or prospect of advancement, other than that provided by the "Senior Sorterships,"
of which there are a few in each department, carrying a supervising allowance of 3s. a week; this claim has been partly met by the apportionment of the new posts of a.s.sistant Women Clerks previously mentioned.
Women Telephone Operators are a large and rapidly growing cla.s.s, recruited entirely by nomination followed by a qualifying examination.
They number at the present time about 4,000, including Supervisors.
The growing use of the telephone is replacing the telegraph, and is likely to make of this cla.s.s a serious rival to the grade of Telegraphist. In this connection, it is important to recognise that the change is likely to entail an enormous increase in the use of cheap labour. The maximum salary of the Telephonist in London is only 28s. per week. The work is extremely exacting and exhausting to the nervous system, so much so, that it is an absolute necessity for the maintenance of health that proper and adequate rest-room accommodation should be provided, and that the operators should be equipped with apparatus of the proper type.
The cla.s.ses already mentioned have, until the present year (1913), been recruited solely for the Post Office, but the cla.s.s of Women Typists, numbering about 600, are a Treasury Cla.s.s, and are common to the whole Civil Service, the conditions of entry varying according to the Department. In the Post Office alone, are Typists recruited by open compet.i.tive examination. The scale of salary is 20s. a week, rising in three years to 26s.: they then have the option of qualifying in shorthand, after which they can rise to 31s. per week. In the Post Office, however, the number allowed to qualify in this way is limited to 50 per cent. of the staff. The supervising posts are: Superintendent, 35s. a week, and Chief Superintendent, 40s. a week.
No higher positions are open to Typists anywhere, no matter how good their qualifications and educational equipment. The a.s.sociation of Civil Service Typists claim some avenue of promotion to clerical work in the Departments in which they serve.
There are also about 650 women employed by the Board of Trade in the Labour Exchange Service. With the exception of about 180, who were transferred from the Post Office for Unemployment Insurance Work under Part II. of the National Insurance Act, these women were admitted by the new method of recruitment adopted by the Civil Service Commissioner under Clause VII. of the Order in Council of January 1910. Under this system, applications are invited, and a certain number of apparently suitable candidates are interviewed by a committee of selection, and those chosen for appointment are subsequently required to pa.s.s a qualifying examination. The educational standard of this examination, for both men and women, is so low that it appears to be designed, not for the purpose of selecting candidates of good general education, but merely to eliminate the illiterate.
The scale of salary for these posts is the same for women as for men, and is as follows:--
Lower Grade 60, rising by increments of 5 per annum to 105.
Higher Grade 110, rising by increments of 5 per annum to 150.
There are also a few higher appointments. Women are, however, under a particular disability in that they must wait for a vacancy in the Higher Grade before pa.s.sing on beyond 105, whilst in the case of the Men Clerks there is no such stoppage, officers being allowed to proceed straight on, if certified efficient.
It will, no doubt, have been observed that the post of Women Clerk is the highest in the Service open to women by compet.i.tive examination, and with the exception of some sixteen or eighteen appointments in the Board of Education, Women Clerks have hitherto been recruited for the Post Office alone. They are now being recruited from this examination for the National Health Insurance Commissions. The exclusion of Women Clerks from the numerous State Departments such as the Home Office, Local Government Board, Inland Revenue, etc., is mainly traditional, as they are not excluded by the wording of the Order in Council of 10th January 1910 (paragraph 5, Part I.) which states that
"all appointments ... shall be made by means of compet.i.tive examinations according to regulations framed, or to be from time to time framed by the Commissioners, and approved by the Treasury, _open to all persons_(of the requisite age, health, character, and other qualifications prescribed in the said regulations) who may be desirous of attending the same...."
In this pa.s.sage the word "persons" is interpreted to mean men only, but as other professions are yielding to the pressure of modern economic conditions and are opening their doors to women, it is time that the State considered the advisability of profiting by the services of women eminently fitted to perform clerical, organising, and administrative duties, many of whom may possess the special qualifications needed for the work in various Government Departments.
The present limitation of the employment of women, and their lack of prospects of advancement const.i.tutes a serious grievance. Whilst many avenues are open to men to improve their condition in the early years of service, if they possess the necessary ability and enterprise, women have no such opportunities, and have practically no chance of advancement except by way of supervision in their own grade. Moreover, if we look at this question from the point of view of advantage to the community, we find that the present mode of staffing the higher posts of the service from the male s.e.x narrows the field of selection. It is in the interests of the public that the best type of officer should be secured, and not merely the best male available, and the unrestricted admission of women to the higher cla.s.ses in the Civil Service, and their payment on the same terms as men would make for the greater efficiency of the Department, by securing the services of highly qualified women, who at present are not attracted by the small salaries and the meagre prospects offered. It must also be realised by heads of families that they have a right to expect that the service of the State--a dignified, secure, and independent profession--should be open to their daughters as well as to their sons. Furthermore, as the revenue, out of which the salaries of Civil Servants are paid, is collected from women as well as from men, women should have an equal right to earn those salaries.
Economy in working and simplification of administration would be attained by abolishing the separate examinations, and allowing men and women to enter for the same examinations on equal terms.
There are certain advantages attached to service under the State, which are taken into account when salaries are fixed, but the value of these privileges to the staff is frequently over-estimated by the outsider. For instance, security of tenure and the prospect of a pension at retirement, often act as a deterrent to clever and enterprising officers who, but for the sacrifice involved, would throw up their appointment and seek more remunerative and promising employment outside. Again, the medical attendance provided by the Post Office is, in the case of the women employed in the Headquarters Departments, only available in practice when they are well enough to attend at the office to wait on the Medical Officer there. In theory, every employee is ent.i.tled to the services of a Medical Officer at her own home in case of serious illness, but, in fact, the Women Medical Officers are too few to be able to give the necessary individual attention. As an instance of this, it may be stated that to one Department, numbering 1,800 women, the part time of one doctor only, is allotted.
Other advantages are a steadily progressing scale of salary, provided that efficient service is rendered; annual leave with pay; a reasonable working day--seven hours for the clerical force and the typists, and eight hours for the other cla.s.ses; in most Departments payment is made for overtime; a pension on compulsory retirement after ten years" service, except in the case of women retired on marriage, when a gratuity is given after six years" service, amounting to one month"s salary for every year of service up to twelve years.
A compa.s.sionate allowance is also given on the same basis for both s.e.xes, in cases where an officer is compelled to retire through ill-health before completing ten years" service. Sick pay is granted up to a maximum of six months on full pay and six months on half pay. The full period of leave is not, however, always allowed before retirement. It is given only at the discretion of the Department, if there is a chance of complete recovery; officers have no definite claim to it. Although these are distinct advantages to the staff, it must not be overlooked that it is essential for the State to offer some inducements of this kind, in order to obtain a staff more or less permanent who will regard their employment as a career. It is most important for the proper conduct of a Government office that the officials should have a lasting interest in their work, and a share in the successful administration of the Department.
Women Civil Servants are under the Superannuation Act of 1859 as regards their pensions, and receive an amount equal to one-sixtieth of their annual salary at retirement, for every year of service. Under the Courtney Scheme of 1909, the basis of calculation is one-eightieth instead of one-sixtieth, and the reduction in the pension is compensated by a cash payment at retirement, or, in the event of death occurring whilst in harness, a cash payment is made to the next-of-kin. Women secured their exclusion from the provisions of the latter scheme at their own request, as it was felt that the larger pension was of more value to them than the cash payment at death or retirement; moreover their pensions were already too small to admit of further diminution.
It is a general rule throughout the Service that a woman must retire on marriage; as already mentioned, a compensating-bonus is granted in respect of the loss of pension thereby sustained. A married woman has no definite claim to return to her employment, should she again desire to earn her own living, and only if widowed is she allowed, in certain circ.u.mstances, to return to the Service. Should any other misfortune overtake her, or should she for any other reason wish to become economically independent, she is not allowed to earn her living by means of her own profession of Civil Servant. This rule of the Service undoubtedly acts as a deterrent to marriage for, according to the statistics published, only about 3 per cent. of the whole female staff annually leave to be married. It need hardly be pointed out that in the present state of the law of the land, when no portion of a husband"s income is secured to his wife as a right, a woman will not lightly throw up her means of livelihood with no prospect of returning to it should she so desire, in order to take her chance of happiness with a man whom the law permits to hold her in subjection body and soul. There is another aspect of the question: Women Civil Servants have to pa.s.s a strict medical examination before entering the Service; they have to furnish satisfactory evidence of respectability, of the health of their antecedents, and of a certain standard of education.
They are therefore what is known as "selected lives": if these women are forced to remain celibate as a condition of their employment, it is a distinct loss to the nation of a specially selected cla.s.s of potential mothers. In these days, when the declining birthrate is causing some concern to our statesmen, it would surely be worth their while to consider how far they are themselves contributing to the condition of affairs which they deplore, by maintaining this rigid regulation for the sake of a worn-out sentiment. The compulsory resignation on marriage is a definite wrong both to the women concerned and to the community at large, for women of selected health and intellect are discouraged from marriage by this regulation.
Pending the final settlement of this question which is likely to be a very controversial one, the difficulty might be met by a modification of the existing rule allowing married women who have been Civil Servants to return to their employment should they again desire to earn their own living by means of the only profession for which they have qualified.
Women in the Civil Service are in a peculiar position with regard to their rights as citizens. They are handicapped by all the rules governing the political action of men, while they are without the means of maintaining their status as wage-earners. Although they are prohibited by reason of their s.e.x, from taking part in any Parliamentary election as voters, they are nevertheless bound by the rules of the Civil Service which were drawn up when Civil Servants were first enfranchised. These rules state that "now officers have been relieved of the electoral disabilities to which they were formerly subject, they are eligible to be placed on the Parliamentary Register and to vote at a parliamentary election. Nevertheless, it is expected of them as Public Servants that they should maintain a certain reserve in political matters and not put themselves forward on one side or the other." This rule has been interpreted by the Department to mean that no Woman Civil Servant may take an active part in any Suffrage Society which interferes in party politics. Thus women are forced to accept a subservient position, and are also prevented from taking direct steps to raise their status. The principle of equal pay for equal work, if conceded without equal opportunities, is liable to be evaded, and must be safeguarded by statute, and there is no guarantee that any improvement gained will be permanent until women have political power to enforce their demands, for the masculine point of view dominates every Government Department and colours all administration.
Moreover, it should be borne in mind that women are handicapped by being, to a large degree, dependent on reports of their work emanating from male Heads of Departments who are in many cases prejudiced, sometimes unconsciously, against their employment. Heads of Departments do not as a rule take the same amount of personal interest as a private employer in the women under their control, and so these are frequently the victims of caprice. If the person in authority at a particular office happens to object to employing women, he actually opposes their appointment in that office, and deprives them of the chance of displaying their ability. Whilst they have more than their fair share of routine work, and are excluded from practically all the higher posts, they are on that account actually accused of possessing less initiative, less administrative ability, and less power of acting in sudden emergencies than men. It is indeed a vicious circle. They are prevented by their s.e.x from acquiring these qualities in the ordinary course of their duties and excluded from the examinations for admission to those posts in which such qualities would be of use. It is then seriously urged by responsible officials of the Civil Service as an argument against their admittance to superior appointments, that they are lacking in the necessary qualifications.
Such unreasonable and unfair criticism creates bitterness in the minds of the women, who find themselves, in a large number of cases, saddled with domestic responsibilities as great or greater than those of the officials who would seek to drive them back into the home, and who endeavour to prevent them from rising to any decent positions in their profession. An encouraging sign, however, is the enlightened att.i.tude shown by some of the members of the Royal Commission on the Civil Service; the pertinent enquiries made of the Heads of Departments regarding the position of women tend to show that the question will, at least, receive consideration, and that the evidence placed before the Commission by the women"s organisations will not be without its effect on the administration of the Civil Service in the future.