COPY

    TREASURY CHAMBERS,

     2nd September 1919

Sir,

 I am directed by the Lords Commissioners of His Majesty's Treasury to inform you that His Majesty's Government have had before them the question of increasing the employment of disabled and demobilised men (including officers) in Government Departments, and have approved the proposals made in the enclosed report of a Committee appointed to consider the question.

 My Lords would be glad if your Department would take early steps, within the time limits scheduled in the report, to carry out the decisions of His Majesty's Government which may be summarised as follows:-

 (1) A "disabled man" is defined as an ex-member of His Majesty's Forces who is in possession of a disability pension or has received a gratuity for disability or aggravation of a complaint which precludes him wholly or in part from following his normal occupation. The expression "disabled men" includes officers. (See paragraph 3 of the report).

 (ii) (a) disabled men should be substituted in each Department during the period of three months from the date of this Circular to a number representing not less than 8 per cent. of the temporary staff (male and female) employed in that department on 30th June 1919, irrespective of any reductions effected since that date (or to be effected, on other than "substitution" grounds hereafter).

 (b) All future vacancies in temporary posts should be filled from disabled men, subject to the exceptions mentioned below.

 (iii) The following classes shall be exempt from substitution, but must be included in the total staffs on which the 8 per cent. is based:-

 (a) Administrative and clerical posts in Women's Welfare Branches and Women's Training Branches.

 (b) Posts in Women's Sections of Employment Exchanges.

 (c) Day telephone operators.

 (d) Shorthand typists and typists.

 (e) Ex-service men.

 (f) Persons who were directly dependent on those who have lost their lives in the Service of their country.

 (g) Persons who are directly dependent on ex-service men, now disabled or registered at an Employment Exchange or with the Appointments Department as unable to find work.

 (h) Temporary employees who have a definite right of reversion to permanent posts as part of the terms of their employment (Permanent unestablished employees are also excluded).

 (iv) Failing disabled men, demobilised men should be substituted or engaged, preference being given generally to those who have served overseas.

 In reckoning the percentage, i.e., in computing the number actually employed for the purpose of satisfying the percentage, all disabled men substituted for temporary employees since the 30th June 1919 may be included.

 The position should be again reviewed at 31st March 1920.

 (v) Substitution will be most feasible in the mass of lower grade clerical posts, but the Committee do not exclude substitution in administrative posts. The class of messengers, porters and manual workers should, wherever physically possible, be limited to disabled men.

 (vi) Substitutes for all posts, administrative, clerical, or manipulative, must be obtained through the Ministry of Labour. Applications should be addressed to Mr. R. Fisher, Secretary to the Central Selection Board, Ministry of Labour, Howard Hotel, Norfolk Street, Strand, W.C. (Tel. Central 5429). (Substitutes for lower administrative posts and for clerical or manipulative posts may also be obtained in the Provinces on application to any Employment Exchange).

 The Selection Boards, which the Ministry of Labour, in conjunction with the Civil Service Commission, have set up, both in London and the Provinces, possess already large "pools" of disabled ex-officers and ex-service men with suitable qualifications.

 (vii) Discharges should first be made from among men and women not dependent on their earnings and whose experience of the Public Service or efficiency is limited. Next should come (1) juveniles of either sex under 18; (2) other temporary employees, selected in such order as to inflict the minimum of hardship on those dependent on their earnings, regard being had both to efficiency and length of service.

 (viii) Each "substitute" should be distinctly informed in writing on his appointment -

 (a) that the post is purely temporary;

 (b) that in the process of reducing War staffs it may be necessary in the interests of the Service to discharge him while a non-disabled employee is retained,

 (c) that the fact of his disability will not lead to his indefinite retention in Government employment.

 (ix) The existing rules as to period of notice, Etc., will apply to those discharged to make room for ex-service men. Every temporary employee discharged whether on this account or in consequence of the general reduction of temporary War staffs should be given a statement showing particulars of his or her service.

 My Lords would be glad if your Department would take early steps to carry out the above decisions, any case of doubt being referred to this Department.

 It should be clearly understood that the employment of ex-soldiers must not be allowed to inflate the temporary staffs of Government Departments beyond the minimum necessary for the due performance of the work to be done and the total temporary staffs should remain under continuous review from this aspect.

    I am, Sir,

    Your obedient Servant

     T. L. HEATH

INTER-DEPARTMENTAL COMMITTEE ON THE EMPLOYMENT OF DISABLED SOLDIERS IN GOVERNMENT DEPARTMENTS.

Sir Malcolm Ramsey, K.C.B., representing the Treasury (Chairman).

Sir Thomas Elliot, Bart., K.C.B., (co-opted

Mr. J. A. Corcoran, C.B., representing the War Office.

Mr. E.H. Shearme, O.B.E., representing the Ministry of Labour.

Mr. R. Tinniswood, O.B.E., representing the Ministry of Pensions.

Mr. A.W. Watson, O.B.E., representing the Ministry of Labour.

Major W.H. Lowe-Watson, D.S.O., D.C.M., of the Ministry of Labour (Secretary).

SUMMARY OF REPORT

I. TERMS OF REFERENCE (paragraphs 1 to 5).

Terms of Reference (1) - Extension of terms of Reference (2) - Their Interpretation (3) - Procedure(4) - Definition of disabled man (5).

Number of disabled men now employed in Government Departments (6) - Impossibility of substituting disabled men for permanent Civil Servants (7). - Steps already taken to provide for disabled men in permanent posts (8) - Immediate field for substitution to be found in temporary posts (9) - Number of temporary posts and existing practice for filling same (10).

III. GENERAL CONSIDERATIONS AFFECTING SUBSTITUTION (paragraph 11).

Considerations affecting substitution - Reduction of War Staffs (11a) - Possible loss of efficiency (11b) - cost of substitution (11c) - Accommodation (11d) - Classes of posts and employees to be exempt from substitution (11e) - Substitution on a large scale possible.

IV. RECOMMENDATIONS (paragraphs 12 to 15).

 Detailed analysis of conditions in each department not necessary (12) - Recommendations (a) 8 per cent. of temporary vacancies on the 30th June, 1919; (b) all future vacancies to be filled by disabled or demobilised men (13) - Recommendations will produce 21,000 posts available for disabled men within six months (14) - Number of qualified disabled 5,900; balance of posts available for demobilised men 15,100 (15).

V. PRINCIPLES OF SUBSTITUTION (paragraphs 16 to 19).

 Certain general principles applicable (16) - Most fruitful field lower grade clerical posts; administrative posts not excluded from substitution (17) - Suitability test and proof of good character necessary, qualifications of all candidates to be scrutinised by Ministry of Labour (18) - Priority of discharge (19).

VI. GENERAL RECOMMENDATIONS (paragraphs 20 to 26).

 Disabled or demobilised men to be informed on appointment that their posts are purely temporary (20) - Pay of disabled men not to be re-assessed at end of probationary period (21) - No special training facilities or extension of notice to those discharged in consequence of recommendations (22) - Statement of service to be given to discharged employees (23) - Application of substitution to civilian clerks under Admiralty, War Office or Air Board recommended (24) - Promises already made to regular soldiers, sailors and airmen not over-ridden by recommendations (25)- Future position of women in the Civil Service to be considered apart from these recommendations (26).

 Appendix "A" Treasury Circular 26065/19, dated 2nd July, 1919.

 Appendix "B" List of Witnesses.

.

III. GENERAL CONSIDERATIONS AFFECTING SUBSTITUTION

 11. Considerations Affecting Substitution - There are certain considerations affecting the substitution of disabled men for temporary employees to which we think it essential to refer before proceeding to our recommendations.

 Reduction of "War Staffs" (a) Departments are very largely reducing their "War Staffs." The reduction in the number of temporary posts between the 11th November, 1918 and 31st March, 1919, amounted to 50,000. We may expect that in the course of the next twelve months, further large reductions of temporary staffs will be made in consequence of the disappearance of work. The question, therefore, arises whether it is worthwhile to place disabled men in posts from which it may be necessary to discharge them in a comparatively short time. We are, however of opinion that it is a matter of national importance to give immediate employment to unemployed disabled men, and in a lesser degree, to unemployed demobilised men. It was stated to us in evidence that in twelve months' time industries which are at present unable to develop as a result of economic difficulties, may be expected to revive and there would be openings, which are not at present available, for discharged and demobilised men outside the Government Service. Since, therefore, temporary employment, even of only a limited duration, will assist them in passing through a critical period, we came to the conclusion that it would be advantageous to set free the necessary numbers of posts immediately.

 Possible Loss of Efficiency. - (b) The qualifications of disabled men at present unemployed are problematical, and it was for our consideration whether their introduction into Departments in the place of more experienced employees might not seriously affect the efficiency of the Civil Service. After careful investigation of the difficulty, we have come to the conclusion that the substitution of disabled men for temporary employees within the limits which we shall indicate would not be likely to result in any loss of efficiency which Departments should not be prepared to face, provided that :-

 (i) candidates are subjected to an adequate test of suitability and a sufficient period of probation;

 (ii) the changes are not effected so rapidly that the work would be dislocated.

 Cost of Substitution. - (c) A further difficulty is that of cost. Considerable expenditure would be involved in the substitution of disabled men for temporary women clerks, since it may be stated generally that a woman clerk is paid two-thirds the salary of a man clerk. The minimum salary, for example, of a Grade II temporary male clerk is 73s., and of a Grade II temporary female clerk, 50s. The cost of substituting 5,000 male clerks for 5,000 female clerks of the same grade would amount, therefore, in round figures, to £300,000 per annum. On the other hand, the cost of substitution would be a temporary charge, inasmuch as a large proportion of the posts concerned are likely to disappear within the next year. We think it necessary to call attention to these considerations, but in our judgement the advantages in view are such as to justify the acceptance of the additional cost involved in substitution.

 Accommodation - (d).....substitution is adopted, but in our view where disabled men are substituted for temporary women clerks, it will be necessary in exceptional cases only for extra accommodation to be provided. Men and women already work side by side in Departments where large temporary staffs are employed, and there is, therefore, no reason to suppose that the introduction of additional male staff would give rise to problems of accommodation which have not already been surmounted.

 Classes of posts and employees to be exempt from substitution - (e) Lastly, there are certain classes both of temporary posts and temporary employees in which substitution appears to be undesirable. The following are examples :-

 (i) Administrative and clerical posts in Women's Welfare Branches and Women's Training Branches;

 (ii) Posts in Women's Sections of Employment Exchanges;

 (iii) Day telephone operating. We do not recommend that men should be substituted for women in an occupation, which, before the war was practically confined to women;

 (iv) Shorthand - Typists. (There are not sufficient Shorthand - Typists of either sex to meet the demand).

 (v) Ex-service men;

 (vi) Persons who are directly dependent on those who have lost their lives in the service of their Country;

 (vii) Persons who are directly dependent on ex-service men, now disabled or unable to find work;

 (viii) Temporary employees who have a definite right of reversion to permanent posts as part of the terms of their employment.

 Substitution on a large scale possible in spite of difficulties. - It is, however, in our opinion, to substitute, and without undue delay, a large number of disabled or demobilised men for temporary employees in the Civil departments of the Government.

IV. RECOMMENDATIONS.

 12. A detailed analysis of conditions in each Department not necessary. - Since we have been unable in the limited time at our disposal to consult more than a certain number of Departments, it has not been possible to explore the problem in every detail. We have, therefore, sought a remedy which would not necessitate, at present, for its application an exhaustive analysis by us of the various conditions in various Departments.

 13. Recommendations. (a) Eight per cent. of temporary vacancies on the 30th June, 1919. (b) All future vacancies to be filled by disabled or demobilised men. - Subject to the reservations we have already made in Clause (e) of paragraph 11, we recommend, after most careful consideration, that -

 (a) disabled men be substituted in each Department, during the period of three months from the date on which instructions on this Report are issued, to a number representing not less than 8 per cent. of the temporary staff, male and female, employed in that Department on the 30th June, 1919, irrespective of any reductions effected since that date, and

 (b) all future vacancies in temporary posts should be filled by disabled men.

 Failing disabled men, demobilised men should be substituted or engaged, as far as qualified candidates can be made available. Broadly speaking, we consider that among demobilised men preference should be given to those who have served overseas. In reckoning the percentage, all disabled men substituted for temporary employees since the 30th June, 1919, may be included.

 We consider that the position should again be reviewed on the 31st march, 1920.

 14. Recommendations will produce 21,000 posts available for disabled men within six months. - 19,000 temporary and permanent posts are already filled by disabled men. The substitution of 8 per cent. of the temporary staff employed on the 30th June, 1919, will produce approximately 12,000 posts. Apart from wastage, therefore, the total number of disabled men in Government Departments three months after instructions are issued to carry these recommendations into effect, should be 31,000, which will be approximately 8 per cent. of the total staff, male and female, on the 30th June 1919. Further, the wastage over a period of six months in each Department may be calculated at not less than 1 per cent. of the total temporary staff, producing 1,500 posts per month, or 9,000 posts in six months. Therefore, in six months from the date on which the process of substitution commences, 21,000 posts will have been set free. Again, the percentage of disabled men to the total number of the staff will increase monthly since, although the percentage for substitution is based on the total number of temporary staff on the 30th June, the total number of staff will be materially decreased by the reduction of "War Staffs."

 15. Number of qualified disabled - 5,900; Balance of posts available for demobilised men 15,100. - We are of the opinion that substitution on the above lines will be sufficient not only to absorb all the disabled men who have suitable qualifications, but to make room for the employment of a considerable number of demobilised men.

 At present the situation is as follows :-

(a) Number of disabled men suitable for administrative or clerical posts on the Live Register of the Employment Exchanges on the 11th July, 1919    1,400

(b) Approximate number of disabled men, with administrative or clerical qualifications, now in hospital, who may come forward in the next six months   3,000

(c) Approximate number of disabled men with administrative or clerical qualifications, now on the books of the Appointments Department    1,000

(d) Approximate number of disabled men now in Government employment who will be discharged during the next two months through the reduction of "War Staffs"  500

    Total  5,900

 A balance remains of 15,100 temporary posts available for demobilised men, possessing the requisite qualifications.

V. PRINCIPLES OF SUBSTITUTION.

 16. Certain general principles applicable. - We now proceed to indicate certain general principles which in our judgement should govern the selection of temporary employees for discharge in order that their posts may be filled by disabled or demobilised men. ...........which a number of disabled and demobilised officers, or men of similar educational qualifications, now employed, would appear especially qualified to fill. We were informed in this connection that the Treasury have recently issued a circular* to all Departments, strongly recommending that -

 (i) no administrative or higher grade clerical post of a temporary nature should be filled without prior reference to the Appointments department, or

 (ii) similar lower grade clerical post without reference to the Employment Exchanges.

 The class of messengers, porters and manual workers, should, whenever this is physically possible, be limited to disabled men.

 18. Suitability test, proof of good character necessary. Qualifications of all candidates to be scrutinised by Ministry of Labour.

 No disabled man should be substituted for a temporary employee until he has given proof of his suitability and good character. We recommend that the Ministry of Labour, with the assistance of the Civil Service Commissioners, should scrutinise the qualifications of all applicants in such manner as may be found most thorough and expeditious; arrangements should be made not only in London but also at convenient centres throughout the Kingdom. Departments would then apply to the Ministry of Labour for selected candidates. We understand that the Ministry of Labour has already set up the appropriate machinery.

 19. Priority of discharge. - We think that, with a view to finding employment for disabled or demobilised soldiers, Departments should discharge men and women not dependent on their earnings,, and those whose experience in the public service is limited, and whose efficiency is below the requisite standard. It is not probable, however, that the discharge of employees falling within these two categories will be sufficient to provide the number of places at which we are aiming, and we recommend, therefore, that any further discharges which may be necessary for the purpose, should be made :-

 (i) from amongst juveniles of either sex under 18,

 (ii) from other temporary employees,

 selected in such order as to inflict the minimum of hardship on those dependent on their earnings, regard being had both to the efficiency and to length of service. Any persons displaced under (i) and (ii) should be allowed the same opportunities for competing for appointments to permanent posts as those which are or may be given to persons who continue to be retained in temporary employment.

 It may be desired to retain the services of employees falling within the above categories on the ground that they are indispensable, but any exception proposed on this ground should be referred to and approved by the Establishment Branch concerned.

VI. GENERAL RECOMMENDATIONS

 20. Disabled or demobilised men to be informed on appointment that their posts are purely temporary. - Following upon our previous recommendations, it is necessary to provide that each disabled or demobilised man who is appointed in place of a temporary employee should be distinctly informed in writing on his appointment :-

 (1) That the post is purely temporary.

 (2) That in the process of reducing "War" staffs it may be necessary in the interests of the service to discharge him, while an employee who has not.........

ﾠ

     No. 6, 1919

Circular to Surveyors, Heads of Department, &c.

Regd. No. 61598/18

    General Post Office, London, E.C.1.

    3rd May, 1919.

EMPLOYMENT OF DISABLED SOLDIERS (AND SAILORS) IN THE POST OFFICE

Sir,

1. I am directed by the Postmaster-Genera to inform you that the committee which was appointed to consider the question of employing in the Post Office men disabled in the war, both Post Office Servants and others, have now reported on various aspects of the matter, and their recommendations have been approved. The following instructions based on the Committee's recommendations are issue for your guidance:-

EMPLOYMENT OF DISABLED MEN ON POSTMEN'S Duties

2. It is hoped to provide for a substantial number of disabled men on postmen's duties, both town and rural, and in particular to find employment in this way for men who have lost an arm or have been seriously disabled in the hand or arm.

As vacancies on the permanent establishment become available, disabled men should, if they are forthcoming, be employed on full time postmen's duties in each town up to the following limits; and until those limits are reached disabled men should be given the preference over able-bodied candidates for vacancies which are allotted by the Surveyor to ex-soldiers or ex-sailor candidates:-

 (i) Approximately one-half of the indoor work of a light nature proper to Postmen (stamping, sorting, &c.) should be aggregated and formed gradually, as required, into full time indoor duties which should be allotted to men who have lost a leg or sustained severe injury to the legs. If it is more convenient to form some of these indoor duties at once, in connection with the restoration of services, this may be done.

 (ii) In large towns 20 percent. of the outdoor duties in the town delivery area outside the central business district, and in small towns 20 percent. of the total number of duties (indoor and outdoor), should be allotted to men who have lost an arm or hand or been seriously disabled in the arm or hand.

 (iii) In addition to the foregoing, 15 per cent. of the total number of duties in town areas should be allotted to men suffering from other forms of disablement sufficiently serious to disqualify them for performing heavy postmen's duties.

The numbers taken for the calculation of these percentages should be the probable final authorised establishment after restoration of services. They will, in many cases, only be estimates at present.

3. For the present, the indoor duties under this scheme should be reserved for disabled Post Office Servants, and none should be allotted to disabled men from outside the Service, with the exception mentioned in paragraph 20. For the outdoor duties, disabled outsiders should for the present be recruited to the extent of one-half only of the limits indicated, the remaining half being reserved for disabled Post Office Servants. These latter may be drawn from any branch of the Service; for example, it may be found convenient to transfer disabled Engineering Workmen to the Postmen's class. If more than half of the prescribed number of posts is required for disabled Post Office Servants in any district, the number allotted to outsiders should be correspondingly reduced.

4. Rural foot-posts are, generally speaking, particularly suitable for men who have lost an arm or the use of an arm; and whenever a vacancy for such a post occurs it should unless allotted to a " Service" candidate (and the Surveyor should be able to avoid allocation to a "Service" candidate) be reserved for a disabled man, preferably one who has lost or suffered severe injury to an arm. For the present not more than one-half of the suitable vacancies in each Supervisor's district should be allotted to men from outside the service, in order to allow ample margin for providing for Post Office Servants.

5. Rural cycle posts should be regarded as unsuitable for men who have lost or suffered severe injury to an arm; but the few one armed men who at present are employed on such posts need not be disturbed against their wish. In a few cases it might be possible to substitute a tricycle for a cycle post in order to provide for a one-armed man; but this course should not be followed unless there seems to be no other means of providing satisfactorily for a one-armed Post Office Servant. Any such case should be submitted to the Secretary for consideration. The possibility of filling cycle posts by men with some other form of disablement should be considered as each vacancy arises.

6. The requirement of three years' service with the Colours to render an ex-soldier eligible for nomination to an established Postmanship will not be enforced in the case of candidates who are recognised as having been disabled by war service, and as vacancies on the establishment are, or become available, disabled men should at once be selected for nomination from among the temporary men who have been employed for as long as twelve months, whether still employed or recently discharged on account of the return of the regular staff, and also from disabled Auxiliary Postmen.

7. At some offices it may be that sufficient numbers of disabled men are not being employed to enable vacancies at present existing, or likely to occur soon, to be filled in this way. It should be explained to Postmasters of such offices that it is the duty of the Post Office to take its share in providing work for the disabled; and they should be requested at once to endeavour to obtain a few disabled soldiers for temporary employment in the first instance, with a view to permanent employment if found suitable, due regard being had to the probable number of vacancies that will be available for disabled outsiders. Alternatively, the Surveyor may wish to transfer disable temporary men from other towns whose services might otherwise have to be terminated.

8. Each Surveyor's district should be regarded as the unit in dealing with the appointments of disabled men; but, as far as possible, it will no doubt be desirable to appoint men in the towns in which they are presently employed.

9. Part- time postmen's duties, both auxiliary and allowance posts, should be filled preferentially by disabled men; and Local War Pensions Committees and other agencies concerned with the employment and welfare of disabled men should be informed by Postmasters of the existence of part-time vacancies, and asked whether they can recommend disabled soldiers for them. These duties-- especially those in rural districts--are suitable for men who have been or are suffering from shell-shock, neurasthenia, or pulmonary tuberculosis which has been arrested, and also for men who have been gassed. The instructions in the typed Circular of the 4th of October, 1916, regarding the employment of disabled soldiers in a temporary capacity and in the typed Circular of the 1st of June, 1918, regarding the employment of consumptive, should be followed.

10. Some reduction in the effective working power of the disabled man as compared with that of the able-bodied man must be expected; and in some cases additional compensatory force will be necessary. There has not been sufficient experience up to the present to enable any reliable estimates to be framed of the average loss of efficiency which may be expected. Such loss should tend to diminish as the disabled men improve and gain experience and accustom themselves to overcoming their difficulties. Much will depend on the initiative, zeal and force of character of the disabled man himself, and upon the sympathy and encouragement shown him by his supervising officers and colleagues.

11. For some time, therefore, it may be desirable in some instances to provide compensatory force to balance the deficiencies of the disabled men employed; and this should be done for the present by means of overtime or temporary force. But when the number of disabled men permanently employed has increased, and the period of employment has been long enough to enable a reliable estimate to be formed of the resulting loss of efficiency, proposals for additional compensatory force may be put forward. The additional force and expense under this head should be recorded from the outset, and clearly earmarked in all statements of establishment. But in dealing with the question of loss of efficiency and compensatory force, it is important to bear in mind that much may be done by re-arrangement of duties and employment of the disabled men on the duties most suited to their impaired capacity.

12. For indoor work the additional compensatory force should usually consist of able-bodied men, so that proper provision may be made for the heavier items of work eliminated from the indoor duties allotted to disabled men. In the case of the town outdoor, it will probably be found necessary to reduce the amount of work normally allotted to the duties in order to adjust them to the reduced working powers of disabled men; and where this is done the compensatory force employed might consist of disabled men. These compensatory duties will be additional to those to be provided for disabled men under paragraph 2. In the case of rural posts, it is not proposed to afford relief to a man whose disability may cause him to occupy slightly longer than the scheduled time, unless this interferes with the due performance of connecting services.

13. Some degree of interference with the privileges of able-bodied staff in regard to hours of duty and selection of lighter duties may result from the employment of disabled men; but every effort should be made to avoid the infliction of hardship on the able-bodied members of staff. Where it appears likely that any difficulty may arise in this connection, it would be advisable for the matter to be discussed between the Postmaster, or if thought desirable, the Surveyor or a member of his staff, and the local representatives of the Postmen's Federation. Disabled postmen must not be promoted preferentially to vacancies for Assistant Inspectors, or appointed preferentially to vacancies for the supervision of Postmen and Boy Messengers.

14. The following regulations have been authorised by the Treasury in regard to the pay of disabled men in the Post Office:-

 (i) On first employment, or immediately after return to civil duties in the case of men previously in the Post Office, an endeavour should be made to assign the most suitable duty to the disabled man if it appears that he is not able to perform the normal duties of his position, but it will not usually be possible to decide at once whether there will be any permanent loss of efficiency. In the case of outsiders employed for the first time, the employment will at first be temporary only and the normal temporary rate of wages should be paid. In the case of returning Post Office Servants who give a full-time attendance, the existing pay should for the time being be continued. (The pay of men who are placed on a part-time duty will still be fixed as laid down in para. 3 of the Post Office Circular of 29th October, 1918, page 408.)

 (ii) When a disabled temporary man is about to be considered for establishment or when a disabled established man has been on duty for six months, an endeavour should be made to ascertain the reduction of output resulting from his disablement, due regard being paid to the extent to which assistance is given him by others, and the compensatory force rendered necessary. Unless it is clear that there is no appreciable reduction of output, the matter should be enquired into by Joint Committees consisting of the Postmaster and supervising officers nominated by him acting for the Post Office, and representatives of the local branches of the Staff Associations concerned. It would obviously be impossible to arrive at an exact estimate of the loss of output; but there should be little difficulty in arriving at an agreement if efficiency be graded by steps of 10 per cent., i.e.,10 per cent.,20 per cent., 30 per cent., &c., below the normal. Loss of efficiency of less than 10 per cent. may be disregarded. It should be understood that, before finally determining the degree of loss of efficiency for pay purposes, regard should be had to the possibility of assigning the man to other duties, either at his own, or at another office, which he might be able to perform with greater efficiency. The Surveyor should be consulted in all cases of doubt; and should local agreement prove impossible, the case should be reported to the Secretary. In the case of a man whose disablement causes him to occupy longer than the scheduled time laid down for a rural post, the question of reduction of pay will not arise unless the loss of time is such as to render it necessary to relieve him. (See para. 12.)

 (iii) In the case of outsiders, the percentage loss of efficiency thus determined should be applied to each point on the incremental scale above the age points or the overriding minimum, and a disabled man should proceed up the scale so reduced in exactly the same manner as he would otherwise have proceeded up the full scale.

 Thus, if a man's efficiency is 10 per cent. below the normal and he is on a scale 22s. 6d., 25s., 27s. 6d., 30s., 32s. 6d.,35s., his pay for the corresponding year will be 22s. (over-riding minimum), 22s. 6d., 24s. 9d., 27s., 29s. 3d., 31s. 6d. Similarly in the case of a 20 per cent. reduction of efficiency, the pay will be 22s., 22s., 22s., 24s., 26s., 28s., (time being marked at the over-riding minimum till an increase is justified).

 (iv) The pay of Post Office Servants who return disabled will usually be in excess of the highest age points or the over-riding minimum; and in their case the mean of the scale (i.e., the point midway between the highest age point and the maximum) should be the point beyond which reduction of the scale should begin. Thus, a man will proceed in normal course up to the mean of the scale; and beyond that point the scale pay will be reduced by the appropriate percentage, time being marked, if necessary, at the mean till a further increase is justified. If a man's pay is in excess of the mean of the scale it should not be reduced unless it is in excess of the maximum of the scale diminished by the percentage figure; but time should be marked till an increase of pay is justified on the reduced scale. Pay in excess of the maximum of the scale diminished by the appropriate percentage must be reduced to that point.

 If an increment falls due during the period of six months after first resumption of civil duty, it may be allowed subject to the ordinary rules. The case of disabled established men who have already been back for more than six months should be reviewed at once on the lines indicated above.

 (v) War Bonus should be paid at the appropriate rate to a man in receipt of the wages drawn by a disabled man.

 (vi) Dockets should be issued in respect of modifications of pay arising out of disablement inefficiency, and suitable notes should be made on the Increment Schedules prepared by Postmasters.

15. It will be open to the disabled man to claim a review of his efficiency with a view to a decrease in the percentage of reduction, and he may be allowed to do so at intervals of three months. He should be informed when the first decision in regard to his percentage reduction of efficiency is reached. Similarly, a Postmaster may have disabled men's efficiency reviewed, if necessary, with a view to an increase in the percentage. These claims should be dealt with promptly by the Joint Committees, and any alterations in the percentages agreed upon should take effect from the date of the Committee's decision.

16. A man whose output is found to be less than 60 per cent. of the normal, and who shows no reasonable prospect of improvement, should not continue to be employed, and if he is an established man, his case should be reported with a view to superannuation, unless some other duty can be found for him. In all cases endeavour must be made to find the duty on which a disabled man can attain his maximum degree of efficiency, whether on his own or another class not of higher status. (See also para. 20.)

17. At a number of offices there is reason to think that disabled men have been allowed to remain on special duties although they have recovered sufficiently to enable them to perform the ordinary duties of their class. It is obviously desirable to keep the number of special duties as low as possible; and in many cases it is very desirable in the interests of the disabled man himself that he should resume the normal duties of his position as soon as possible. Care should therefore be taken to see that disabled men are placed on the ordinary duties of their class as soon as possible.

18. Some devices were brought to the Committee's notice, having for their object the assistance of disabled men in carrying out different items of a Postman's work. The one armed man, for example, finds considerable difficulty in tying his letters into bundles before leaving the office to begin a delivery, and subsequently in untying them for delivery. The use of web straps with buckles or elastic bands instead of string for securing the bundles has been suggested and would no doubt help. Another arrangement suggested is the provision of a box fitting with a wide opening down the centre of the front, to be placed inside the ordinary delivery pouch, so that letters can be arranged in a pile in order for delivery with the addresses uppermost and tying into bundles can be dispensed with. A number of these fittings are being obtained by the Stores Department for use by one-armed men on deliveries, and application should be made to the Stores Department for them as required.

19. For one-legged men or men with serious leg injuries employed on sorting duties, some special kind of seat seems necessary, although it is probably not, as a rule, necessary for them to remain seated for the whole period of duty. Probably in most cases it would be possible and would be sufficient to arrange for men with leg injuries who are engaged in sorting to stand for the periods of pressure, during which the maintenance of a high rate of sorting is specially desirable, and to allow them to sit at other times so far as they find it necessary. But a high stool on which the man with an artificial leg could rest in a semi-sitting position would probably be preferable to the low swing-seat at present fixed to the sorting tables, and stools of this type would probably be found suitable also for men with leg injuries employed on hand stamping or working a stamping machine. A supply of such stools for issue when applied for is being obtained. They will be available through the Office of Works in due course.

SORTERS,TELEGRAPHISTS, COUNTER CLERKS AND TELEGRAPHISTS (LONDON), AND SORTING CLERKS AND TELEGRAPHISTS (PROVINCES).

20. Vacancies on these classes cannot be reserved preferentially for disabled outsiders or for disabled Post Office Servants in lower classes. Disabled outsiders at present employed in a temporary capacity on the duties of Sorters or postal Sorting Clerks and Telegraphists, and who have been employed for as long as a year and have given satisfaction, may be nominated to appointments as Postmen, subject to the existence of vacancies, and any who are physically unfit for ordinary outdoor duties may exceptionally be employed on indoor duties proper to Postmen. Disabled Post Office Servants on lower paid classes employed temporarily on duties proper to Sorting Clerks and Telegraphists should be returned to the duties of their own class as opportunity offers.

21. It will no doubt be necessary to assign special duties to Sorters, Telegraphists, Counter Clerks and Telegraphists, and Sorting Clerks and Telegraphists who return seriously disabled; and in selecting such duties regard should be had to the nature of the disablement, so that the man may be given the duty on which he is likely to attain the highest possible degree of efficiency, and as far as possible to his seniority, so that the position of other officers may be affected as little as possible.

22. As regards the pay of disabled men on these classes, the general rules stated above will apply. Where a man is prevented by his disablement from performing the usual rota of duties which qualify for passing the efficiency bar, he may be allowed to pass the bar if he is fully employed regularly upon some form of work recognised as "above bar" and there is no reason to suppose that, apart from his disability, he would have been unable to qualify in the other above bar duties.

23. The remarks in paragraphs 13, 17 and 19 above will apply to these classes also.

TELEPHONE WORK

24. Disabled men should be employed on certain types of telephone operating work as indicated below. Speaking generally, men who have lost a leg or been seriously injured in the legs, but who have full use of both arms, would be the most suitable for telephone work. Men suffering from nervous disorders would be unsuitable, but the work would probably be suitable for men suffering from disease which unfits them for heavy work exposed to weather.

25. Caretaker Operators.- These posts are quite suitable for a disabled man provided that he has a wife and family or other relatives who reside with him and can help him to maintain the necessary continuous attendance. Whenever a vacancy for a Caretaker Operator arises, endeavour should be made to fill it by the appointment of a disabled soldier, the procedure indicated in Circular to Surveyors No. 3 of 1918 being followed.

26. Operators at Private Branch Exchanges.- The work at these Exchanges is considered suitable for disabled men; one-armed men, men who have lost one or even both legs, and also blind men could be employed at many of these Exchanges after the necessary training. One or two blind men are already so employed; but for the employment of blind men it is essential that the board should be a small one (not more than 30 extensions) and boards at which two simultaneous operations have to be carried out by the operator to establish a connection will, of course, be unsuitable for one-armed men. As, however, the staffing arrangements at these Exchanges (apart from those in Government offices) are made by the subscriber, the Post Office cannot do more than bring to the notice of subscribers the fact that the work is probably suitable for a disabled man and to offer to find and train such a man on a vacancy occurring. The subscribers concerned should be circulated accordingly, and in particular they should be informed that St. Dunstan's Regents Park, has a number of blind soldiers available who have been trained as telephone operators.

27. The question of employing disabled soldiers on day work at public Exchanges is reserved for further consideration.

28. Night Telephonists. - Preference must be given to disabled men for vacancies on this class, both for full-time and part-time duties, but for the present no disabled or other outsider should be appointed to any full-time Night Telephonists' positions. They will probably all be required for some time for disabled Post Office Servants (Postmen, Engineering Workmen, etc.).

29. In reckoning the percentage of established posts in this class, those which are filled or temporarily blocked by transfer of disabled established men from other classes, who will retain their established status, should be ignored, i.e., if there are 125 posts in the district and 25 have been filled by the transfer of disabled established men from other classes, the remaining 100 men are entitled to 75 established places.

30. Call Office Attendants' duties should be allotted to disabled men who have lost a leg or an arm, and should for the present be reserved for disabled Post Office Servants.

31. Cleaners, Liftmen, Doorkeepers, Contract Officers and Wayleave Officers. - Vacancies in these classes should be filled, as far as possible, by disabled men, disabled Post Office Servants being given preferential consideration. The practice of recruiting Liftmen and Doorkeepers from ordinary Naval or Police Pensioners should be suspended. Appointments of other than disabled men should not be made without previous reference to the Surveyor.

32. If an established man is permanently disqualified by his disablement for the work of his own or any other suitable established class and is employed in consequence on the work of an unestablished class, it will be necessary to proceed with his superannuation from the established class and re-employ him in an unestablished capacity on the unestablished class.

33. With the exception of men who still have a prospect of recovering sufficiently to resume duty on their own class or at their own office, disabled returned Post Office Servants who have provisionally transferred to other classes or offices under the terms of the typed Circulars of 19th May, 1916, and 23rd October, 1918 (e.g., Postmen acting as Night Telephonists or sent to other offices for a suitable Postman's indoor duty), may now be permanently transferred to the new class or office as vacancies become available.

34. Men who may be permanently transferred to a class or office with a lower scale of pay on account of their disablement may carry their pay at the time of transfer, subject to the limits of the maximum of the lower scale, and should mark time at that pay until an increase would have been due in ordinary course if the previous service had been given on the lower class.

35. Instructions are being prepared for issue to Postmasters on the foregoing lines.

    I am, Sir

    Your obedient Servant,

     G. E. P. MURRAY

     Secretary