NATIONAL SERVICE DEPARTMENT REPORTS OF THE NATIONAL SERVICE DEPARTMENT AND OF THE INDUSTRIAL MAN-POWER DIVISION ON THE ACTIVITIES OF THE NATIONAL SERVICE DEPARTMENT UNDER THE NATIONAL SERVICE EMERGENCY REGULATIONS 1940, THE EMERGENCY RESERVE CORPS REGULATIONS 1941, AND THE INDUSTRIAL MAN-POWER EMERGENCY REGULATIONS 1942

Appendix to the Journals of the House of Representatives, 1943 Session I, H-11a

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1943 NEW ZEALAND

NATIONAL SERVICE DEPARTMENT REPORTS OF THE NATIONAL SERVICE DEPARTMENT AND OF THE INDUSTRIAL MAN-POWER DIVISION ON THE ACTIVITIES OF THE NATIONAL SERVICE DEPARTMENT UNDER THE NATIONAL SERVICE EMERGENCY REGULATIONS 1940, THE EMERGENCY RESERVE CORPS REGULATIONS 1941, AND THE INDUSTRIAL MAN-POWER EMERGENCY REGULATIONS 1942

Presented to both Houses of the General Assembly by Command of His Excellency

PREFACE

The attached reports set out to deal with the evolution, present organization, and work of all sections of this Department from the outbreak of war to the present time. The various aspects of the Department's activities have been so intimately inter-woven that it has seemed most inadvisable to present the reports otherwise than as a single comprehensive treatise. This has been divided into two major sections —the first being in the form of a report from the Director of National Service covering the whole of the Department's work up to date, including, however, only brief references in the appropriate places to the origins and influence of industrial man-power control, while the second section takes the form of a report from the Controller of Man-power giving an account of the full development of that side of the work. Each section is followed by a suitable statistical Appendix. This plan has the great advantage of presenting the whole account of the development of the war effort on the man-power front in a single volume and in a form particularly suitable for the use of overseas representatives and others wishing for complete and up-to-date information. It also entirely avoids a number of extremely difficult problems which would arise out of any attempt to divide into separate compartments those matters which are handled within a single section of the Department although they relate to each of its separate activities. J. S. Hunter, Director of National Service,

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REPORT OF THE NATIONAL SERVICE DEPARTMENT National Service Department, Wellington, Ist June, 1943. The Hon. the Minister of National Service : The Hon. the Minister of Civil Defence : The Hon. the Minister of Justice. Sirs, — I have the honour to submit the following report on the activities of the National Service Department. This report covers the whole period from the inception of the Department up to 31st March, 1943. I have, &c., J. S. Hunter, Director of National Service.

CONTENTS

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Section. Subject. Page. Introduction .. .. .. .. .. .. .. .. 3 Part I.—The Period up to December, J 941 1 The War Situation which had to be faced up to December, 1941 . . . . 3 2 The Inception and Early Functions of the National Service Department . . 3 3 Registrations for National Service .. .. .. .. .. .. 4 4 Ballots for National Service .. . . .. .. . . . . 5 5 Medical Examinations of Men called by Ballot . . . . . . .. 6 6 Appeals against National Service .. .. .. .. .. .. 6 7 The Problem and Treatment of Conscientious Objectors .. .. .. 7 8 Voluntary Organizations associated with the National Service Department — (a) The Home Guard . . .. . . .. .. . . 8 (b) The Emergency Precautions Services .. .. .. .. 8 (c) The Emergency Eire Service .. .. .. .. .. 9 (d) The Women's War Service Auxiliary .. .. .. .. 9 9 Review of the Position and Outlook in November, 1941 .. . . .. 9 Part II.—Developments since December, 1941 10 The Implications of the Changed War Situation .. .. .. .. II 11 The Mobilization of January, 1942 .. .. .. .. .. .. 11 12 The Calling-up of Married Men . . .. . . .. . . . . 12 13 The Introduction of Industrial Mobilization .. .. .. .. .. 13 14 The Introduction of Compulsory Civil Defence Service .. .. .. J 4 15 The Introduction of Compulsory Home Guard Service .. .. .. 14 16 The Introduction of General Military Service .. .. .. .. 15 17 The Introduction of Women into the Armed Forces .. .. .. .. 15 18 The Full-scale Organization of Civil Defence .. .. . . .. 16 19 Review of Mobilization and Preparedness in 1942 . . . . . . . . 20 20 The Outlook of New Zealand's Man-power Resources in September, 1942 .. 21 21 Subsequent Improvements in the Position . . . . . . .. . . 22 22 The Re-distribution of Man-power .. .. .. .. .. .. 22 Part III.—Miscellaneous 23 Staff and Organization .. .. .. .. .. .. .. 23 24 Finance and Expenditure .. .. ,. . . .. . . .. 24 Appendix Statistical Information and Summary of Regulations .. .. .. .. 25-40

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INTRODUCTION The growth and development of New Zealand's war effort during the first three years of war is best regarded as falling into two distinct phases :— . (i) The period from the outbreak of war in Europe in September, 1939, up to the outbreak of war in the Pacific in December, 1941 : (ii) The remaining period, during which the war has been waged in the Pacific as well as in other major theatres. As the war situation assumed a new and ominous aspect during the second of these periods, so the whole organization of New Zealand's war effort was directed throughout this period towards new objectives. Some phases, surviving from the earlier period, had to be rapidly accelerated ; others had to be entirely reconstructed and directed along new lines, while at the same time other and entirely new forms of organization had to be created to meet the needs of the now situation. The functions of the National Service Department are intimately inter-woven with the war effort as a whole. Man-power pervades all phases of human activity, and the primary function of this Department is to mobilize and distribute the available resources of man-power among the many sections of the war organization as a whole so as to secure the best over-all result, the major objectives being to secure the safety of the Dominion and to make the most effective possible contribution to the total defeat of the Axis powers, without at the same time losing sight of post-war considerations. As the war situation has changed, and the Dominion's war organization has had to be transformed to meet these changes, so have the activities of this Department also reflected these changes. The rapidity of the growth and subsequent transformations of the Department form indeed one of its most striking features. It is proposed to divide the present report into two main sections—the first describing the inception of the Department and its activities during the earlier period up to December, 1941, and the second describing the later developments during the remaining period against the changed background of the altered war situation. A short concluding section has been added to deal with staff, finance, and expenditure, while an Appendix containing three diagrams and a number of statistical tables relating to the whole period from the outbreak of war up to the end of March, 1943, will be found at the end of the report. PART I. THE PERIOD FROM THE OUTBREAK OF WAR UP TO DECEMBER, 1941 1. THE WAR SITUATION WHICH HAD TO BE FACED PRIOR TO DECEMBER, 1941 During this earlier period the war was being fought in theatres other than the Pacific. Though there were signs that Japan might possibly enter the war, there was at no time sufficient cause to prepare seriously against immediate invasion. On the other hand, the Dominion had at an early stage despatched a division to the Middle East, and the need to send periodic reinforcements to this Division, together with the requirements of the Empire Air Training Scheme and overseas Naval commitments, all combined to set up a substantial annual demand for thoroughly fit men who could be despatched to any part of the world. At the same time it was decided that a substantial Territorial Force should be maintained in the Dominion and trained on a part-time basis. This force, which was supplemented by the National Military Reserve and a volunteer Home Guard, both of which paraded only iti evenings and weekends, comprised the principal Home Defence Force of the Dominion, and as such had to be adequately provided with personnel up to the limit fixed by War Cabinet. This personnel was not required to be of as high a physical standard as applied to overseas service. As regards war industries, the Dominion's major industrial contribution has from the outset been the provision of foodstuffs, and particular care was necessary to ensure that the farming and other primary industries, and those secondary industries engaged in the processing and transport of foodstuffs and similar products, were not unduly depleted of man-power. Even so, it may be said in general that all industries without exception were expected in the earliest stages of the war to make some contribution of man-power towards meeting the needs of the forces, notwithstanding that they were also in many cases increasing their volume of production. The war effort over the period up to December, 1941, may be summed up therefore as :— (a) The provision and maintenance of the Division overseas : (b) The provision of a substantial Territorial Force at home, involving part-time service only : (c) The provision and training of Air Force personnel for homo and overseas service : (d) The provision and training of Naval personnel for home and overseas service : (e) The maintenance of ancillary organizations, such as the National Military Reserve, the Home Guard, the Emergency Reserve Corps, and the Women's War Service Auxiliary, none of which involved withdrawal of personnel from industry : (/) The development of war industries, including the provision of increasing quantities of foodstuffs, uniforms, boots, equipment, &c., for war purposes, notwithstanding an overall loss of fit man-power. 2. INCEPTION AND EARLY FUNCTIONS OF THE NATIONAL SERVICE DEPARTMENT The progressive deterioration in European international relations in 1939 had presaged war, and for some months prior to its outbreak a Departmental Man-power Committee had been set up in New Zealand to consider, among other things, the conservation of the Dominion's man-power and its redistribution to meet war conditions. Experience in the 1914-18 war had shown that the indiscriminate acceptance into the forces of volunteers from every industry would bring serious economic dislocation in its train, and the Committee therefore finally evolved a " Schedule of Important Occupations," which later played an important part in the determination of those who should remain in industry and those who should be permitted to join the forces.

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Enlistment for the forces was for some time on a voluntary basis. To ensure that industrially valuable men were not accepted for service Army Area Officers at first furnished details of fit volunteers to Placement Officers of the Labour Department, and recommendations for postponement of service were made to the Director of the Registration Branch of the Social Security Department. (This Branch had been set up in October, 1939, to compile a register giving up-to-date information regarding the industrial, economic, and sociological condition of the population.) As the volume of work increased, sixteen independent District Advisory Man-power Committees with local knowledge were appointed to safeguard the continuity of essential industrial activities through the postponement of military service in individual cases where considered advisable. These bodies were advisory and without statutory authority. In the early part of 1940 the probable necessity to resort to compulsion in regard to military service became evident, and the powers necessary to impose compulsory service were taken in the National Service Emergency Regulations, gazetted on 18th June, 1940. It was this necessity to use compulsion in the organization of military service which first brought the National Service Department as such into existence. Immediately following the gazetting of these regulations the Department was constituted under a Minister and a Director of National Service. The Head Office was evolved from the erstwhile Registration Branch of the Social Security Department, which now became the Man-power Division, while the former Employment Division of the Department of Labour was also incorporated in the new Department and redesignated the Employment and Rehabilitation Division. No new district organizations were set up at that time to supplant the Placement Officers already attached to the Employment Division. A central advisory council, known as the Central Advisory Labour Council, was brought into existence to co-ordinate the man-power aspects of the work of three wartime organizations—viz., the Primary Production Council, the Industrial Emergency Council, and the Factory Advisory Committee. The secretarial and executive work of this body was done by this Department. It continued to function until May, 1941, when its work was found to be better delegated to the various committees of the War Council. 3. REGISTRATIONS FOR NATIONAL SERVICE A pre-requisite to the selection of individuals for national service and the subsequent enforcement of compulsory service on the part of those selected was the existence of a complete register of all the eligible individuals from whom to make the selection. Of the many possible orders of priority in which the population of military age might have been called for military service it had been decided that — (i) Single men should be called before married men ; and (ii) The selection of men for service should be decided by lot. The ages looked upon at the time as suitable for military purposes were nineteen to forty-five inclusive as regards home service, and twenty-one to forty inclusive as regards overseas service. The population as a whole was therefore divided for the purpose in hand into sections as follows : — (a) All resident persons aged Sixteen and upwards were regarded as forming one class, and designated the General Reserve : (b) This reserve was thereupon divided into three parts, as follows — (i) Unmarried men aged nineteen to forty-five inclusive. This class was designated the First Division of the General Reserve. (ii) Married men. (including those with children) aged nineteen to forty-five inclusive. This class was designated the Second Division of the General Reserve. (iii) The remaining sections of the General Reserve. This class was designated the Third Division of the General Reserve. Maoris, aliens, naturalized British subjects, members of overseas forces, and men discharged from overseas service as medically unfit were excluded from the First and Second Divisions of the General Reserve. (Naturalized British subjects were later included.) For the purpose of defining marital status, marriages entered into on or after Ist May, 1940, were not recognized until the birth of a child of the marriage. The compilation of a register of the First Division—i.e. single men aged nineteen to forty-five inclusive—was put in hand immediately after the inception of the Department. In August, 1940, the enrolment of all men in this division was directed by Proclamation. The urgency of the position necessitated the use of the already existing social security registration forms as the basis of the register, a course which involved the abandoning of the Social Security Register. These forms were, however, far from complete as a basis, having been furnished in the first place in conjunction with declarations of income other than salary or wages. There were many cases of failure to complete these declarations arising especially from the large class of workers who have no income other than salary or wages. A special registration form was therefore provided at all post-offices, and wide publicity was used to secure compliance with the terms of the Proclamation on the part of those affected. A number of prosecutions for failure to register finally had to be resorted to. In May, 1941, following a War Cabinet decision to utilize eighteen-year-old youths in the Territorial Force, a second Proclamation was issued calling on all youths in this age-class to register. With the progressive exhaustion of the resources of single men, the need to form a register of the Second Division (married men) became evident. Although married men were already included in the Social Security Register, this register was by now considered even more unsatisfactory as a basis than it had been for the purpose of calling single men. The forms themselves had not been drawn up with this end in view, the information was now out of date, the definition of " children " was not the same in relation to military service as was specified

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on the social security forms, the coverage was deficient, and it was found to be impossible to check all the information and correct it where it was deficient. Further, a large number of married men had already joined the forces and gone overseas. A completely fresh registration was therefore decided upon, and the Proclamation authorizing the enrolment of the Second Division of the General Reserve was issued in June, 1941. Finally, naturalized British subjects were brought within the scope of the First and Second Divisions of the General Reserve, and their enrolment was directed by the issue of a Proclamation in March, 1942. It should be explained that from the basic data set out on each registration form a ballot-card was prepared, and the aggregation of all such cards formed the " ballot register " which was used directly in the selection of men for military service. It will be appreciated that the work involved in checking, indexing, and preparing ballot-cards in respect of some 400,000 registration forms and the constant attention to queries, correspondence, police investigations in cases of failure to register, notifications of changes of address, marriages, births and deaths of children, voluntary enlistment in the forces, and similar changes of circumstance, and also failures to notify changes of circumstance, together with new enrolments from youths attaining the youngest age, and from men arriving in the Dominion, and other similar matters of detail, have all combined to keep a substantial staff constantly employed in order that the register should at all times, so far as practicable, form a correct and complete record of all persons in the enrolled classes. 4. BALLOTS FOR NATIONAL SERVICE Towards the end of 1940 there was considerable pressure for speed in making men available to the Army through the new compulsory procedure, and the work of completing the ballot register covering the First Division (single men) was pressed to completion so that the first ballot could be held at the earliest possible date. This was accomplished in time for the names of the 16,000 men who had been drawn for service to be gazetted and calling-up notices delivered to the men themselves on 2nd October, 1940. This ballot, which was for Territorial service, was followed in quick succession by two further ballots. A large Territorial ballot affecting 33,717 men was gazetted on 6th November, and a smaller ballot for overseas service affecting 14,000 men was gazetted on 4th December, 1940. In the first two ballots quotas of men to be drawn were fixed in advance for each of the twelve military areas, and the selection made separately by lot from among the single men aged nineteen to forty-five resident in each of these areas. The third ballot, however, was drawn on a Dominion basis, without regard to internal subdivisions, though the pool of single men from whom the selection was made was restricted to those aged twenty-one to forty inclusive. A fourth ballot, on the same pattern as the third, but affecting 19,000 men, was gazetted on 4th March, 1941. A particular feature inherent in the method of drawing these two overseas ballots should be mentioned. Volunteers and men previously drawn for Territorial service were excluded from the pool from which Territorial ballots were drawn. They were, however, included in the pool from which subsequent overseas ballots were drawn. This resulted in the withdrawal from the Territorial Force of a large number of men for overseas service, and caused disorganization within that force. In drawing further men for Territorial service priority was therefore given to those classes who were not eligible for overseas service, and men in the nineteen-year-old and forty-one to forty-five-year-old classes were segregated and all called up for service in the fifth and sixth ballots, gazetted on 26th March and 29th April, 1941. In order to meet the steady demand for overseas reinforcements, a further 19,000 men aged twenty-one to forty were called in the seventh ballot (gazetted on 7th May), while the whole of the remaining 23,825 single men aged twenty-one to forty were called in the ninth ballot (gazetted on 6th August, 1941). In the meantime the yields from Territorial ballots had not been sufficient to meet the drain to overseas service and to build up the home defence forces to the desired extent, and consequently the eighteen-year-old class had been registered. These youths were called up in one block in the eighth ballot on 24th June, and the inflow of young men and other " seepages " into classes liable for Territorial service were thereafter called in two small ballots (the tenth and eleventh, gazetted on 19th August and Bth October, 1941, respectively). A small inflow into the overseas class, mainly comprising men who had recently attained age twenty-one, was called for overseas service in the twelfth ballot on 2nd December, 1941. December, 1941, therefore marked the end of a phase in the balloting of men for military service, independently of the other more fundamental changes in the general situation. All single men aged twenty-one to forty inclusive had been called up for overseas service, and those aged eighteen to forty-five inclusive had been called for Territorial service (a proportion of these being subsequently called for overseas service). Apart from the inflow at the youngest age, the calling of single men was now complete, and there was a period of hesitation before the calling of married men commenced. A special note should here be made regarding the continuance of volunteering for certain classes of men while balloting was actually in progress. The classes affected have been :— (i) Maoris, who have never been subjected to compulsion in the matter of military service : (ii) Air Force and Naval volunteers, who are excluded from the ballot register on being attested for service : (iii) Married men with not more than three children, who were (for a time) accepted as Territorial volunteers, while single men were being drawn for compulsory service. As regards the Air Force, every effort was made to induce men to volunteer for this service, both before and after being called by ballot. A special invitation was enclosed with the calling-up notice itself, presenting the option of joining that force.

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5. MEDICAL EXAMINATION OF MEN CALLED BY BALLOT Though the medical examination of men called by ballot was not organized by this Department it deserves special mention in this report on account of its importance as a link in the process of selection of men for service, and its intimate relation to the whole purpose and function of the Department. It is in fact viewed by this Department with such concern that a considerable amount of statistical research into the operations of Medical Boards has been carried out by the Department, and a high standard of uniformity as between different Boards has finally been achieved. The object of medical examination is to classify men according to their suitability for different types of Army service, demanding various degrees of physical development and fitness. The five major classes into which men are placed by Medical Boards are : — Grade I, in the case of men ,who arc fit for active service in any part of the world : Grade 11, in the case of men who are fit for active service in New Zealand, but who should not normally proceed overseas : Grade 111, in the case of men who are fit only for sedentary or similar work in the Army : Grade IV, in the case of men suffering from severe disabilities and progressive diseases which render them permanently unfit for any form of military service : Temporarily Unfit, in the case of men who are suffering from a curable disease or minor ailment, and who can be made fit by treatment. Men are placed into one or other of these grades quite independently of whether their ages at the time are such as, for example, to preclude them from overseas service. It should be mentioned that these gradings are not used by the Air Force or Navy, which maintain their own Medical Boards and systems of classification. Up to date it has been found possible to restrict the sending of men overseas to Grade I men aged twenty-one to forty inclusive, except in a few instances of men selected for garrison duties in comparatively healthy localities in the Pacific. Grade II men and some Grade 111 men have, however, been used for home defence duties. The systematic medical examination of so large a part of the male population has provided a unique opportunity to study the incidence of various medical conditions at each age and in each locality, and to examine the effect of age and other factors on fitness for military service. A number of tables showing the results of statistical investigations into these matters are included in the Appendix to this report. 6. APPEALS AGAINST NATIONAL SERVICE The calling up of whole sections of the population for military service would have had disastrous repercussions on industrial activity if there had been no administrative machine provided for determining from among the men callcd for service the individuals who should actually be made available to the forces and those who should in the public interest be held for the time being in industry. Again, men in every variety of personal circumstances and with every type of surroundings and outlook were included indiscriminately in each ballot, and it was necessary for a tribunal to exist so that those on whom the performance of military service would inflict an undue measure of sacrifice and hardship, or to whom the thought of such service was repugnant for reasons of conscience, could have their individual circumstances examined. Provision was accordingly made in the National Service Emergency Regulations for the establishment of statutory Armed Forces Appeal Boards, and six Boards were set up at the end of 1940 to handle appeals arising in respect of overseas service. As the volume of work increased these were reinforced by three temporary Boards. Meanwhile the sixteen District Advisory Man-power Committees were re-constituted as statutory Man-power Committees, and continued to deal with appeals against Territorial service and appeals regarding the service of volunteers. (Appeals on grounds of conscientious objection were, however, referred to Armed Forces Appeal Boards.) A further Committee was established. These Boards and Committees have handled a very large volume of individual cases, both as regards the initial hearing of appeals and the subsequent periodic review of men whose service has been postponed for the time being. The bulk of appeals against military service have been based on the ground of public interest, though cases on the ground of undue hardshij) have formed a fair proportion of the total, a common type of appeal involving both of these grounds. Only a small proportion of men called for service (1-7 per cent.) have lodged appeals on conscientious grounds, and a minute fraction (0-7 per cent.) have appealed on the ground of legal status in relation to liability for inclusion in the ballot. A number of the appeals on the ground of public interest have been initiated by the Director of National Service, in order to protect the interests of important industries in cases where employers or men concerned refrained from lodging appeals because of patriotic scruples or otherwise. Among fit single men called for overseas service it was found that 45 per cent, in all were affected by appeals, approximately 62 per cent, of these being granted indefinite postponement of service at the first hearing of the appeal, a further 17 per cent, being granted temporary postponement. A rather lower proportion of appeals was found to have been lodged in respect of unfit men, and these appeals were adjourned at the time on account of the ineligibility for scrvice of the men concerned, in view of the policy of not posting unfit men for service at that time. Later, as Grade II and Grade 111 men began to be posted for service, these cases were brought on for hearing.

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The industries in which the greatest porportion of men were postponed from the outset were Farming Engineering Coal-mining Railways Saw-milling Shipping Butter and cheese factories Police Freezing works Clergy. Tanneries Releases from Camp.—Cases have arisen in which individual men who had been posted to camp have been, for one reason or another, urgently required in their civilian employment again. In these cases application was until recently made to an Appeal Board to arrange release from camp, though it should be added that the Board can legally do no more than make a recommendation to the Army. The most numerous classes of men affected by these applications have been seasonal workers, though there has been a wide variety of types. A large proportion of the releases have been temporary only. Fuller details of men postponed from military service, applications for release from camp, and other matters relating to Appeal Boards are given in the Appendix. 7. THE PROBLEM AND TREATMENT OF CONSCIENTIOUS OBJECTORS Though comparatively few in number, conscientious objectors have proved to be by far the most difficult section of the population to deal with in the matter of national service. It is provided in the National Service Regulations that appeals should be allowed only where the Board is satisfied that the appellant holds a sincere belief that it is wrong to engage in warfare in any circumstances. It has not been at all easy to identify these genuine conscientious objectors from among those whose objection is concerned with the bearing of arms against a particular nation, or in a particular theatre of war, or with a particular manner of engaging in war, or from those who hold the view that the present war is not justified in the circumstances. Appeals lodged on conscientious grounds have in many cases not been dealt with on these grounds. In a fair proportion of cases the appellant is also the subject of an appeal on the ground of public interest or otherwise, and, where postponement is granted on the merits of such appeal, the appeal on conscientious grounds is simply not heard. In other cases the appellant is found on medical examination to be unfit for service, and again the appeal on conscientious grounds is left unheard. Of those who are fit for service, and not otherwise postponed, three determinations of the conscientious appeal are possible : — (a) It may be allowed, and in this event the appellant may be called upon to perform alternative service under civil control: (b) It may be dismissed subject to the provision that service in the forces shall be limited to non-combatant duties : (c) It may be dismissed outright, and in this event the appellant may be required to perform combatant service with the forces in the ordinary way. The Special Tribunal.—As regards those conscientious objectors whose appeals were allowed or dismissed subject to non-combatant service (and who were not in the meantime required for mobilization), the anomaly arising from their favoured position relatively to other men necessitated the setting-up of a Special Tribunal in the latter part of 1941. The functions of the Tribunal were twofold : — (i) To ensure that these men were not thereby placed in a better financial position than if they were in the Army : (ii) To ensure that they were employed in civilian work which was in conformity with the public interest. At first only Grade I and Grade II men were brought before the Tribunal, but later, as Grade 111 men began to be mobilized by the Army, those who had appealed on grounds of conscience were dealt with on these grounds by Appeal Boards, and those of them whose appeals were allowed were referred to the Tribunal. Finally, as the Army did not intend to mobilize Grade 111 conscientious objectors whose appeals were dismissed subject to non-combatant service, at least for some considerable time, these men were also brought before the Tribunal and dealt with in the same way as allowed cases, pending their utilization by the Army. The Special Tribunal comprises four members, each working independently and with complete jurisdiction. By the end of December, 1942, payments made in terms of orders made by the Tribunal had amounted to £5,049 and there were at that time 373 orders in force, though this number was increasing as new cases were dealt with. There have been very few cases of failure to maintain payments in terms of obligations imposed by the Tribunal. Detailed information regarding the classes of men coming before the Tribunal will be found in the Appendix. Defaulters' Detention Camps.—The dismissal of an appeal, whether with or without provision for non-combatant duties, was in many cases not the end of the matter. About one-quarter of the men in these classes simply refused to perform service, and in order to deal with these cases defaulters' detention camps were established in October, 1941. The men placed in these camps have been employed in— Farming pursuits Forest thinning and pruning Flax-growing Breaking-in of land. V egetable-gro wing

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In general the men are responding well to their obligations in the camps, and much useful service has been performed. Payment for this work has been governed by good conduct and industry marks, with a maximum of Is. 3d. per day. Some of the men in these camps are zealous workers, while others are politically opposed to anything in the nature of co-operation with the camp authorities, and, were it not for the vigilance of the camp authorities, these agitators would in many cases have exercised a bad influence on the rest. The religious type predominates, a high proportion being of the younger type of fit single man. Occupational types are well scattered. Seven camps in all have been set up. A detailed analysis of the men in these camps is given in the Appendix. 8. VOLUNTARY ORGANIZATIONS ASSOCIATED WITH THE NATIONAL SERVICE DEPARTMENT In the early months of the war, many individuals who for one reason or another were unable to serve with the forces were searching for some means of assisting the war effort. Many thousands of offers of service were received and it soon became apparent that some form of Government organization would be necessary to provide a means of utilizing the services of these large numbers of enthusiastic volunteers. The Department therefore submitted proposals in July, 1940, and after many conferences it was decided on 2nd August, 1940, to establish the Emergency Reserve Corps, consisting of— (a) The Home Guard : (b) The Emergency Precautions Services : (c) The Women's War Service Auxiliary : (d) Such other organizations as might later be included in the Emergency Reserve Corps. Through an amendment to the Emergency Reserve Corps Regulations the Emergency Eire Service was established in February, 1941, as a part of the Corps. The Home Guard.—The Home Guard was established on a voluntary basis under the segis of the local authorities. These authorities wore charged with the responsibility of dividing their districts into localities and establishing Home Guard committees in each locality. Committees so established arranged for (a) the selection of commanders and personnel, (b) administration, (c) co-operation with E.P.S. and similar bodies, and (d) miscellaneous matters. Four districts were established with headquarters at the main centres, and these were subdivided into twenty-eight areas in all. The whole organization was placed under the control of Major-General R. Young, C.8., C.M.G., D.5.0., as Dominion Commander. Personnel was recruited through publicity campaigns with the result that more than one hundred thousand volunteers had joined up by April, 1941. Training was developed along military lines in co-ordination with the Territorial Army. At the outset the main difficulty was a shortage of instructors, this deficiency being gradually met through the training of selected officers and N.C.O.s at Army schools. Full-time paid instructors were later provided. A further major difficulty, which has never been fully met, lay in the provision of a sufficient supply of equipment. Privately-owned -303 rifles were impressed in May, 1941, with the result that some eighteen thousand passed to the Home Guard. Vast improvements in the equipment position have since been made, and uniforms, boots, rifles, machine guns, &c., are now available_ in a much more generous measure, though some improvization and lending of equipment is still necessary. Finance also caused difficulties at first, the cost of establishing units being borne at the outset by local authorities. In March, 1941, the Government accepted responsibility for— (а) District and Area Headquarters administrative expenses; and (б) Capitation grants to individual units, on the basis of 2s. per active member at the end of 1940, plus Is. per quarter per active member. In spite of its difficulties, an extraordinary spirit of enthusiasm may be said to have characterized the Home Guard when taken as a whole, and much useful training was carried out with what equipment was available or could be improvised. The administration of this Service remained with the Department until the latter part of 1941, when, by an amendment to the regulations, the whole organization was taken over by the Army as a uniformed branch of the armed forces. The Emergency Precautions Services. —The origins of these organizations lay in events which had taken place long before the approach of the present war. Following the loss of life, damage to property, and general disruption of business and social services resulting from the Murchison (1929) and Hawke's Bay (1931) earthquakes, the local authorities in most of the cities and principal towns of the Dominion set up organizations of varying degrees of efficiency in preparation for such catastrophes. In 1938, when the international position became unsettled, the Government, on the recommendation of the Organization for National Security, decided to take such action as would secure the development of effective emergency precautions organizations throughout New Zealand, and the responsibility of preparing a general scheme was placed with the Department of Internal Affairs. That Department, after consultation with the principal local authorities, issued in 1939 two handbooks under the title " Emergency Precautions Scheme," one for urban and the other for rural localities. These schemes made provision for the setting-up of sub-committees under a central committee, to handle the following activities, each under the direction of a controller :— Supply Works Transport Fire Medical Accommodation and Evacuation Law and Order Finance Communications Publicity.

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The schemes in each case were designed to provide an organization to meet emergency conditions arising from enemy attack, epidemic, earthquake, or other natural disaster, and were commended for adoption by local authorities. Generally speaking, the response was good. Consequent on the decision of the Government to regard the schemes for the duration of the war as part of the precautions necessary for home defence, it was decided to transfer their administration to the National Service Department, and this was confirmed by the gazetting of the Emergency Precautions Regulations in August, 1940. These regulations actually constituted the Emergency Precautions Scheme and gave it its first legal standing. Power was given for the setting-up of a scheme by any local authority, and the Minister of National Service was authorized to direct any local authority to exercise this power if he thought fit. Details of the schemes themselves in their later phases of development are given in Section 18 of this report, and will not be entered into here. The main characteristic of the Emergency Precautions organizations during the earlier phase was that, though they were designed to provide for the safety of the community as a whole, their membership was on a voluntary basis. As in all such circumstances, the real work devolved on the willing few enthusiasts and, though much useful work was done, the position of these services as regards personnel was at no time during this period regarded as fully satisfactory in the main centres and larger towns. The Emergency Fire Service.—As fire constitutes the greatest hazard in attack from the air, and as the trained personnel and equipment available in the peacetime fire brigades, plus the limited first-aid fire-fighting appliances and personnel available through the fire section of the Emergency Precautions Services, provided insufficient cover to deal adequately with even a " hit-and-run " raid on a comparatively light scale, it was evident that this important branch of the emergency services required strengthening to provide efficient personnel and fire-fighting equipment to supplement the ordinary brigades in the centres deemed vulnerable to enemy attack. It was accordingly decided to set up a separate branch of the Emergency Reserve Corps, and early in 1941 the Emergency Fire Service was established under the direction of a Dominion Fire Controller. While recruitment remained voluntary, it was decided that service in the E.F.S. should be paid for on the same scale as Army Territorial service, though on a part-time basis, and, in fact, for certain classes of men this duty was accepted in lieu of Territorial service. Conditions of service were gazetted which placed this branch of the Corps on a strict disciplinary basis. The Women's War Service Auxiliary.—-There had existed from pre-war days a whole complex of women's organizations, and there were few of these which were not anxious in wartime to do whatever was possible to assist the national effort. There was, however, no co-ordination among these organizations until a meeting of representatives was convened by this Department in July, 1940. From this meeting there emerged a form of constitution for a national organization comprising a Dominion Council and Central Executive, and District Committees. This organization was designated the Women's War Service Auxiliary. The functions of the Auxiliary were to co-ordinate the work of existing organizations, to compile a register of women willing to undertake national service, and to advise and assist in all matters relating to the utilization of women in the war effort. Training courses and groups were formed covering : — Physical Drill Signalling Corps Transport • Clerical Workers Bicycle Corps Land Group Emergency Hospital Workers Mothers' Helpers Canteen Workers Sewing and Knitting Groups. A distinctive uniform, together with cap and tie, was made available, through Government subsidy, at a cost of £1. The majority of women registered with the Auxiliary are already in employment. The training is, on the whole, directed toward the meeting of emergency conditions, should they arise, rather than the replacement of men in industry. As an example, the execution of rush typing for the forces may be mentioned. The women remain, in their normal civilian jobs, but when called upon are available in the evenings and week-ends as reinforcements to the typing and clerical staffs of the forces. At the same time much useful assistance has been and is being given to the forces through the part-time activities of canteen workers, sewing groups, and others. Particular reference should also be made to the service performed by the Auxiliary in the selection of women personnel to proceed overseas with the 2nd N.Z.E.F. and in the recruitment of women since as early as January, 1941, for service with the Air Force. (Later developments in connection with the use of women in the forces are described in Section 17 of this report.) Another important function of the W.W.S.A. has been the supply of female personnel to the Emergency Precautions Services, while on the industrial side the early organization of the Women's Land Corps was also undertaken by the Auxiliary. The W.W.S.A. has played a valuable part in co-ordinating the many wartime activities of women's organizations and acting as a channel of communication between these organizations and the Government. 9. REVIEW OF THE POSITION AND OUTLOOK IN NOVEMBER, 1941 During the first nine months of the war, and prior k> the inception of the Department, approximately 60,000 men had volunteered for service with the forces, and of these, some 29,000 had been actually posted to camp. Of the remainder, some 17,000 had been found to be medically unfit, and less than 3,000 had been held back from service in the. public interest on account of the importance of their occupations. The rest awaited medical examination, hearing of appeals, or posting to camp.

2—H. 11A

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Within the ensuing eighteen months, following the establishment of the Department, further developments had been carried into effect, as follows : — (1) Well over one-third of a million men, comprising the whole of the male civilian population of military age, had been registered for national service, and a great mass of detail work had been carried out in connection with the maintenance of the register. (2) A system of calling men up for service either by lot or by classes had been established, and twelve ballots had been held, with the result that every available single man had been called up for service. 77,040 men had been called for Territorial service, and 80,509 men had been called for overseas service including 34,494 who had previously been called for territorial service. (3) The great bulk of these men had been medically examined, with the result that of those examined — 54-0 per cent, had been glaced in Grade I : 11-5 per cent, had been placed in Grade II : 10-2 per cent, had been deferred or found temporarily unfit : 16'2 per cent, had been placed in Grade III: 8-1 per cent, had been placed in Grade IY. Statistical research had shown that the proportion of balloted single men placed in Grade I fell rapidly with advance in age from — 73 per cent, at age nineteen to • 24 per cent, at age forty-three, while the proportion placed in Grades 111 and IV combined rose from9 per cent, at age nineteen to 54 per cent, at age forty-three. (4) A system of statutory Appeal Boards and Man-power Committees, comprising twenty-six bodies in all, had been established and set in motion. Of the 123,055 individual single men called up for service, 34 per cent, had been affected by appeals, though this included 45 per cent, of the Grade I men. Of these Grade I men affected by appeals— 62 per cent, had been indefinitely postponed from service, while 17 per cent, had been temporarily postponed ; or, looking at the matter in a slightly different way, some 27 per cent, of all Grade I men included in the ballots were granted indefinite postponement from service. By these means special protection was afforded to the continuity of essential industrial activities, and by the end of 1941 a large body of men, numbering over 15,000 (apart from many whose appeals were still unheard), had been held back from the forces. The industrial classes in which the highest proportion had been held back were — Farming Engineering Coal-mining Railways Sawmilling Shipping Butter and cheese factories Police Freezing-works Clergy. Tanneries (5) The special problem of dealing with conscientious oftjectors had been met as follows :— (i) A Special Tribunal had been set up for the purpose of ensuring (a) that conscientious objectors whose appeals were allowed were not thereby placed in a privileged position financially as compared with men in the forces, and (b) that they were engaged in useful work : (ii) In order to deal with those whose appeals were dismissed, but who nevertheless refused service, defaulters' detention camps had been established. (6) Voluntary organizations had beeft established to provide a means of utilizing the services of many thousands of enthusiastic volunteers, as follows : — The Home Guard, The Emergency Precautions Services, The Emergency Fire Service, The Women's War Service Auxiliary, and a great deal of useful service and training was being carried out, in many cases in the face of adverse conditions, by these organizations. At that time the Dominion was committed to the maintenance of—One division overseas : A substantial Territorial Force on a cadre plus part-time training basis : An Air Forcc in the Dominion, together with the supply of personnel for the Empire Air Training Scheme: A Naval force based on the Dominion, together with the supply of personnel to the Royal Navy. Each of these commitments, except the second, involved the indefinite absorption of a steady stream of men by the forces, and the major work which appeared to lie ahead was the provision of this steady stream of man-power. The principal sources of supply were the as yet untapped resources of married men, the inflow of men at the youngest age, and the further releasing of single men held back from service following appeal. The whole outlook appeared to be sufficiently stable for long-range forecasts to be possible, and an elaborate survey and forecast of the gradual exhaustion of the Dominion's man-power resources was made in August, 1941.

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The principal problems of the time had lain in the examination of the man-power aspects of certain proposals put forward by General Sir Guy Williams K.C.8., C.M.G., D.5.0., special Military Adviser to the New Zealand Government. These proposals involved, notably (a) The provision of certain additions to the strength of the division in the Middle East: (b) Readjustments to the rate of reinforcements to the Middle East: (c) Reorganization of the Home Defence Forces involving —- (i) Increases in strength, affecting both the Territorial Force and the National Military Reserve ; (ii) The provision of a full-time Territorial cadre ; (iii) The substitution of two months' collective training per annum in place of two weeks ; and (iv) A reversion to the greater use of men suitable for overseas service in the Territorial Force. A separate class of problem opening up at that time lay in the evolution of ways and means of reducing the rate of circulation of workers in industry, and the loss of workers from essential industries as an indirect result of the withdrawal of men to the forces, and the consequent competitive bidding of employers for the now scarce labour resources. A more positive mobilization and redistribution of workers within the industrial field was becoming increasingly necessary. Much thought and study was being devoted to the subject, and particularly to the measures already adopted in the United Kingdom to deal with the corresponding problems. Looking at the position and problems in retrospect and in prospect, these were the main features of the situation when, early in December, 1941, Japan suddenly entered the war. PART 11.- DEVELOPMENTS SINCE DECEMBER, 1941 10. THE IMPLICATIONS OF THE CHANGED WAR SITUATION Prior to the outbreak of war in the Pacific, New Zealand's effort had been mainly concerned with two predominant objectives—firstly, the supply of fighting men to the overseas theatres of war, and, secondly, the supply of foodstuffs to the United Kingdom and the armies of the Middle East. The proposed reorganization of the home defence forces did not involve the permanent withdrawal from industry of more than a small proportion of their personnel; the great majority had been, and were expected to continue to be, trained on a part-time basis only. The appearance and rapid progress toward the South Pacific of a formidable enemy broke up the whole of this background and threw a sudden emphasis on the organization of the Dominion for defence against air raid and invasion. A new spirit of driving urgency pervaded the whole war effort— universal service and preparedness were the keynotes, whether in connection with the armed forces proper, the Home Guard, the Civil Defence organizations, or the civilian population. In a rapid procession of new developments, every defensive phase of the war organization was strengthened out of all recognition. The principle of compulsory universal service was introduced into the Emergency Reserve Corps and the Home Guard, with the result that the membership of these organizations increased by leaps and bounds. Women entered the ranks of the Army, and fit men were relieved from sedentary duties in the forces by women and unfit men, so that they would be available instead to fight the invader. The Territorial Force was mobilized on a full-time basis, and a rapid succession of ballots was held with the object of building it up to a level which was far beyond anything previously contemplated. While members of the home defence forces and freshly balloted men were being called rapidly into camp, a Ministry of Civil Defence was set up and private citizens were soon adapting themselves to black-out regulations, fire-watching duties, the construction of domestic air-raid shelters, and the like. On the industrial side, the main features of the position were the rapid withdrawal of men to the home defence forces, combined with the urgent need to increase the man-power available for the prosecution of defence construction works and other war industries and to prevent the circulation and outflow of labour from essential into non-essential industries, and this situation led to the rapid implementation of control over the movements of industrial workers. As regards the continued supply of man-power to the overseas forces, this was completely suspended for more than a year, except in regard to a relatively small number of Air Force and a few naval trainees. In short, the entry of Japan into the war involved a complete reorientation of the war effort. In the remaining sections of this Part of the Report the leading aspects of this reorientation will be described in fuller detail. 11. THE MOBILIZATION OF JANUARY, 1942 With the Christmas - New Year break at the beginning of 1942 came the mobilization on a full-time basis of a considerable part of the Territorial Force and the National Military Reserve. This mobilization created a new situation and raised an industrial problem which called for immediate action. In dealing with men called for territorial service, Appeal tribunals had in the past assumed that only a short period in camp each year was involved, and consequently many men were released for service who would have been hold back indefinitely from the forces had military training been understood to involve permanent withdrawal from industry. When such withdrawal was in fact applied to many thousands of men all at the same time, the whole crop of these anomalies appeared simultaneously. But this was not all. The question of the withdrawal from industry of the older men of the National Military Reserve had never arisen at all, and no selection whatever had been made from amongst these men as to who should be available for service and who should be withheld from the forces.

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Had immediate action not been taken by the Government to safeguard the continuity of industrial operations and essential services, this sudden and indefinite withdrawal of man-power would have had the most serious effects on every kind of industrial activity. Safeguards were provided, however, through the granting of a fresh right of appeal against mobilization, and this threw a sudden volume of work on to Man-power Committees which were called upon to deal with these appeals. Over 7,000 men were affected by appeals, and of these, 54 per cent, were withheld from mobilization, including 14 per cent, temporarily deferred and 11 per cent, adjourned for later review. 12. THE CALLING-UP OF MARRIED MEN The January mobilization was only the beginning. Throughout 1942 the whole administrative machine of the Department was working at high pressure calling up men in an attempt to bring the Dominion to a state of complete mobilization in the shortest possible time. During the year no fewer than 160,004 men were called for service, the great majority being married men. Order of Priority in Calling up. —The problem of determining the best order of priority in calling up married men had been under discussion by the Government for some time, and it was finally decided that— (i) Married men without children should first be called as a class ; (ii) The remaining married men —i.e., those with children—should be called by age-classes, commencing from the youngest class, irrespective of the number of children. The points in favour of an age-class system were, briefly (a) Prom the military point of view, a rapid flow of quickly trainable men was needed. It had been found that the younger men were fitter and less affected by appeals, so that a more rapid flow of man-power to the Army was secured by this method at a time when it was needed. Further, younger men had been found to be more adaptable to mechanized warfare and subject to lower sickness rates when in the Army, and were therefore to be preferred even after the mobilization stage was passed : (b) From the industrial point of view, the most valuable type of man was the somewhat older type who was thoroughly skilled and experienced, often holding an executive position, and able to train female or other replacements for men called up. The method of calling by age-classes left these more valuable industrial workers to be called up last, and hence was much to be preferred to any alternative : (c) From the personal point of view, there were pros and cons. The age-class system gave some certainty as to the likely time of call-up (an important factor), though the proportion of hardship cases arising from the calling of men with larger families was inevitably higher (a factor which was softened, however, by the appeal system) : (d) From an administrative point of view, the age-class system was much to be preferred. Continual changes of records and movements of men as between sub-groups following notifications of births and deaths of children, and the many status appeals arising from wrong inclusion of men in ballots (usually due to failure of the men themselves to notify births) would be completely avoided. Even in spite of these arguments it was felt that the wisest course would be to call up first those married men who were without children. In some respects this was a happy compromise with public expectations based on the last war and with the sociological arguments which favoured recognition of size of family, and it certainly had the additional feature of freeing the maximum number of wives without children for work in industry. The whole class of married men without children was accordingly called up in January, 1942, and all the remaining married men right up to age forty-five were called in a series of ballots, which included also the inflow at age eighteen and the " seepage " into classes already called up. Full details of these ballots are given in the Appendix. Medical Examination of Married Men. —The medical examination of married men disclosed two prominent features which had already been anticipated from earlier analysis : — (i) That the fitness of married men, as of single men, decreases rapidly with advance in age : (ii) That married men of a given age are, on the average, fitter than single men of like age. The second point is of particular interest as reflecting, among other factors, the effects of the selection exercised at time of marriage (the less healthy section of the single men not being subject to as high a marriage rate as the more healthy). In the case of balloted men in particular there was also the factor of the withdrawal of the fit volunteers prior to the operation of the ballot, this reducing the proportion of fitness among single men more than among married men. Further details of the results of medical examinations are set out in the Appendix. Appeals arising from Married Men's Ballots. —Turning to the volume of appeals arising from married men's ballots, it was found that as the process of calling men advanced deeper and deeper into the remaining sections of the population, the volume of appeals rose to higher and higher levels, until in the last few ballots some 70 per cent, and more of the men called up were affected by appeals. This increase in appeals was due to a whole complex of reasons, including the increasing proportion of key workers included as the older classes were reached, the extent of losses of man-power already borne, and hence the increasing difficulty in releasing further men owing to lack of suitable replacements, and also the increased average size of family of the older men. It may be remarked in passing that there were fewer conscientious objectors among married men than among single men. Not only was there a higher proportion of men affected by appeals toward the end of the ballot process ; it was also found necessary to postpone from service an increasing proportion of these men. The whole policy of appeal tribunals had to be reoriented to meet the new position, and an increasing

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emphasis placed on the postponement of men engaged in fire brigades, hospitals, and other industries and services of particular importance in preparation for defence or in emergency. Reducing Yields from Later Ballots. —The combination of decreasing fitness, increasing appeals and an increasing proportion of appellants postponed from service, has led to a rapid decrease in the yield of men to the forces from each 100 men called up. The following figures show the trend :—

* These figures do not, of course, contain any allowance for wastages, time-lags, discharges from camp, the use of Grade II men, or other marginal factors, and so cannot be taken as a true indication of the yields actually made available from each ballot. They do, however, show the trends of those yields. Significance of the above Ballots.—lt would be entirely incorrect to imagine that, because the calling-up of men has'now been completed (except for the periodic calling-up of the inflow at the youngest age), the country has been drained of all its resources of man-power within the military ages. Far from it. Each ballot which has been gazetted has merely brought a further body of men before Medical Boards and Appeal Boards, so that only those who are fit and available at the time are actually posted to camp. As the ballots have proceeded into the older and more responsible classes of men, a greater and greater proportion have flowed into the classes of (i) unfit men called by ballot, and (ii) fit men postponed from service. From 400,000 men who were of military age when the war started, or have since attained that age, 160,000 have been withdrawn, but 240,000 remain. The progressive reduction which has been found to occur in the proportion found fit is not necessarily a disadvantage to the war effort as a whole. Its real significance is that an increasing proportion of the men called for service pass to Man-power Officers for direction where necessary into essential work, instead of to Area Staff Officers for posting to camp. This important fact has often been lost sight of in discussions regarding the effects on industry of holding ballots. Particular mention should be made iti this connection of the last ballot in which married men (with children) aged forty-one to forty-five were called up. Not only has this ballot resulted in these men being medically classified and the examination of their availability for service put in train (a precaution which may yet turn out to have been of great importance), but also they have through the same machinery been brought under examination as regards the essentiality of their work, thus avoiding a special registration merely for this purpose. (See next section of this report.) 13. THE INTRODUCTION OF INDUSTRIAL MOBILIZATION As mentioned earlier, the problems arising from the circulation and enticement of labour in the industrial field were being studied for several months prior to the change in the situation in December, 1941, and the general outlines of the new measures of control as they have since developed had already been recommended in two reports dated 10th September and 28th November, 1941, respectively. Broadly, these measures have involved—(i) The restriction of outflow of labour from essential work: (ii) The registration, interview, and direction of workers into essential work : (iii) The restriction of inflow of labour into non-essential work : (iv) Frequent consultations with representatives of the major industries and the collection of statistical information, for use as a guide in the formulation of policy. Attached to each of these measures was a whole constellation of secondary problems such as the determination of the exact coverage of the various measures of restriction, registration, and control, and also the conditions of their application (such, for example, as the provision of a guaranteed week in undertakings declared to be essential, the provision of travelling-allowances and compensation to persons directed into essential work, and the treatment of absenteeism in essential industries), as well as the evolution of much new legal and administrative machinery and procedure. The development of these measures is more fully described in the accompanying report of the Industrial Man-power Division, and it is not proposed therefore in the present report to enter into a detailed discussion of their growth and organization. What should be made clear at this stage, however, as a part of the more general account of the Dominion's man-power organization is that it was the prospect of full-scale mobilization to meet the threat of invasion which actually carried the bulk of these measures rapidly into effect. It may be of interest to place on record the following extract of a joint departmental report entitled " The Industrial Effects of Complete Mobilization," dated 26th December, 1941. " The establishment and proper functioning of Man-power Utilization Councils connected with the important industries, the establishment of District Man-power Officers to control labour movements, the registration and interviewing of women, and their direction one by one into essential employment—these and all the related steps, some already authorized by Government, some still awaiting authority, can by their very nature only move forward by a process of steady growth and evolution, rather than by a single stroke. A sudden mobilization might well result in a short period of intense maladjustment and difficulty within industry before these remedial steps have had time to bear fruit."

13

Percentage Percentage of these * Product—i.e., Unadjusted Ballot No. placed in available—i.e., not postponed Percentage (Grade I) Grade I. by Appeal Boards. yieldod to the Forces. 14 65 63 41 15 57 58 34 16 53 50 27 17 48 45 22 18 44 42 18

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As the partial mobilization of January was followed by the calling-up of married men in a rapid series of ballots, so were these measures thrown successively into effect in order to stabilize and safeguard the industrial side of the war effort against serious losses of man-power and the consequential economic damage which would otherwise undoubtedly have arisen. The Relation between Armed Forces Appeal Boards and Industrial Mobilization.—Considering, on the one hand, the nature of the activities of Man-power Officers in redistributing the labour force, and, on the other hand, the functions of Appeal Boards in determining who shall be withdrawn fro .i industry and who shall remain, it is clear that a unified policy has been most necessary. To a great extent this is at present secured through the operations of Man-power Utilization Committees connected with the principal industries, which are presided over by Man-power Officers, and which make recommendations to Appeal Boards in connection, with their respective industries. A further example of unified action has been in connection with the procedure for releasing men from camp for work in seasonal industries, the initiative having been taken by Man-power Officers to the extent found necessary, though actually the recommendations to the Army to effect release were until very recently made by Appeal Boards. The National Service of Aliens. —The problem of the utilization of aliens in the war effort had been under consideration for a long time before the coming of industrial mobilization, though the many difficulties involved in their utilization in the forces had prevented a satisfactory solution. In the meantime their privileged position in the community, as compared with British subjects, was becoming more and more conspicuous. With the development of the new machinery for providing compulsory war service in essential work, the opportunity was taken of registering all aliens in the same classes as applied to British subjects (including the military ages in the case of male aliens) and ensuring that their occupations were in conformity with the national interest. For further information regarding the various measures of industrial man-power control, reference should be made to the accompanying report of the Industrial Man-power Division. 14. THE INTRODUCTION OF COMPULSORY CIVIL DEFENCE SERVICE It was mentioned earlier that at no time up to the close of the earlier phase in December, 1941, was the personnel of the Emergency Precautions Services considered sufficient in the main centres and secondary towns to deal even with the types of risk which were until then considered to exist. With the southward advance of Japanese forces in the Pacific, there was a sudden alteration in the nature of the risks to be provided against. Whereas large-scale bombing from the air had previously been thought unlikely, it was now considered a possibility, and provision had to be made rapidly to meet this and other new hazards. A continuous fire-watching service in the main centres, calling for extensive increases of personnel, was now considered a vital necessity. This situation naturally threw a spotlight 011 the question of providing adequate supplies of man-power, and providing it quickly. Considering that the work performed by the E.P.S. (along with other branches of the Emergency Reserve Corps) was for the safety of the community as a whole, and that there was no prospect of meeting the need for personnel by any voluntary means, it was felt that the principle of universal service should be invoked in exactly the same way as it had been to deal with a shortage of man-power for the armed forces themselves. The benefit was for the protection of all, and any hardship and inconvenience involved in securing it should be spread equally among all. Compulsory enrolment in the Emergency Reserve Corps of all male British subjects aged eighteen to sixty-five who were not already serving in the armed forces or the Home Guard was therefore directed by the Minister of National Service in the Emergency Reserve Corps Enrolment Order, signed on 22nd January, 1942. The enrolment procedure was very simple. An enrolment form was made available at all postoffices, and when filled in was forwarded to the local E.P.S. Headquarters. This was followed by acknowledgment, interview, selection, and posting to a unit. The introduction of compulsion brought a tremendous influx of personnel into the various sections of the Corps, and this personnel became subject to conditions of service which were gazetted shortly afterwards. Among other things, this enabled existing personnel to be redistributed as between units so as to clear up anomalies and secure the best distribution of the available personnel. The use which has been made of this personnel in the organization of civil defence measures is described in section 18 below. 15. THE INTRODUCTION OF COMPULSORY HOME GUARD SERVICE Until the time when compulsion was applied in order to build up the personnel of the Emergency Reserve Corps, the Home Guard had been relatively much better supplied with man-power. The changed war situation, however, affected the role of the Home Guard to no less an extent than it affected other phases of the war effort. The risk of invasion had now rendered its function a matter of great importance, and the needs of the Emergency Reserve Corps had no sooner been filled by compulsory methods than a controversy broke out as to whether some of the new personnel should not have been made available to the Home Guard instead. With the progressive balloting and withdrawal to the Army of married men, the personnel of the Guard was suffering continual losses, and more losses were in prospect. At the same time recruitment to make good these losses was no longer easy owing to the whole pool of available man-power having been conscripted for the Emergency Reserve Corps. As a further consideration, new and substantial demands were being placed on the Guard as a part of the general scheme of building up the defensive organization of the Dominion. It thus became apparent that, of the two branches of the war organization, the requirements of the Home Guard for personnel must now take priority, with the result that a proportion of the newly available man-power would have to be transferred from the civil defence organizations to the Home Guard. Provision to this effect was therefore made through an amendment to the National Service

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Emergency Regulations and by the issue of the Home Guard Enrolment Order No. 1 on 30th April, 1942. Men aged thirty-five to fifty inclusive had now to re-enrol, the forms in this case going to Selection Committees, comprising representatives of the Home Guard, the Civil Defence organization, and, usually, the secretary of the local Armed Forces Appeal Board (or other representative nominated by the Board). This measure resulted in rather more than 70,000 men enrolling for Home Guard service, of whom some 31,000 were actually called up for service with the Guard after consideration had been given to the factors of health, availability for training, availability for service in emergency, and the effects of the transfer on the losing E.P.S. unit. With this increase in numbers the Home Guard was again restored to a satisfactory state of strength. 16. THE INTRODUCTION OP GENERAL MILITARY SERVICE With the changed war situation the whole nature of Territorial service changed. Men who had been training for overseas service found themselves suddenly switched into home defence units, and, on the other hand, men who had anticipated that their Territorial training would involve only two weeks' (or later two months') absence from their homes a year were now held in camp on indefinite mobilization, and even faced the chance of active service against the invader. The conditions of Territorial service thus became more akin to those of overseas service than had hitherto been the case. At the same time developments in the war situation itself indicated the prudence of making provision for rapid transfers of personnel to any point in the Pacific or elsewhere as might be found necessary to secure the Dominion against the risk of invasion or otherwise. War Cabinet therefore decided in February, 1942, that, in future Gazettes calling men up for military service, such service was to be " general " -i.e., in New Zealand or overseas as required. The existing practice of restricting embarkations to men aged twenty-one to forty was, however, to be adhered to as a matter of policy. This alteration in the basis of service raised two problems— (a) How those already called for Territorial service (but n.ot overseas service) should be dealt with : (b) How the appeal machinery should be re-adjusted to meet the new situation. These problems were met as follows— (а) Men already called for Territorial service were " deemed " to have been called for general service, but were provided with a fresh right of appeal against such service : (б) In the past, two sets of Appeal tribunals had been maintained, one dealing with home service and voluntary (overseas) service, and the other with compulsory overseas service. There was no longer any justification for maintaining these two separate sets of tribunals, and, in fact, this course would have led to endless duplication and confusion. All Appeal tribunals were therefore merged and reorganized as Armed Forces Appeal Boards, each Board dealing henceforth with all types of " general " service. As regards the determination of appeals, provision was made for these to be dismissed in appropriate cases subject to the performance of service in New Zealand only, and, in other cases, subject to the further restriction that performance of service in New Zealand should be limited to certain stated seasons only. The amendment to the regulations which gave effect to these changes was signed on 22nd June, 1942, immediately before the gazetting of the sixteenth ballot, and in all ballots gazetted subsequently to that date men have been called for general service. 17. THE INTRODUCTION OF WOMEN INTO THE ARMED FORCES The mobilization of woman-power to assist the war effort had been proceeding in the industrial field right from the outbreak of war. As men were called into camp from factories, offices, shops, and even farms, their jobs were being taken over to an ever-increasing extent by women. Many thousands of married women who in peacetime would have simply stayed at home, now entered or re-entered employment, and the majority of those already employed who married stayed on in their jobs after marriage. Of those who could not give full time to paid positions, many became employed on a part-time basis, and thousands of others did voluntary work for one or other of the women's organizations. A. great part of the civilian office staffs employed by the various Service Departments were composed of women, and as the war effort developed it became apparent that they could also be used to good advantage in camps and stations within the forces themselves. Before this could be done, however, much prejudice had to be broken down, and special provision had also to be made in the way of separate accommodation, conditions of service, administrative arrangements, and so on. Though an early and successful start had been made by the Air Force in the utilization of women as a part of the uniformed service, it was not until the real pressure for man-power came on during 1942 that a similar course was adopted by the other two services. The Women's Auxiliary Air Force. —As early as January, 1941, the Air Force had set about the recruitment of women through the W.W.S.A. for employment at stations in the following types of occupation:—-Shorthand-typists Telephone-operators • Clerical assistants Dental and medical assistants Cooking, kitchen hands, waitresses Equipment assistants (stores and technical Aircraft hands training) Drivers General duties (cleaners, runners, &c.). An immediate response was secured, and the personnel engaged in this work has since grown steadily until at the present time there are over three thousand members of the Women's Auxiliary Air Force. As with other types of Air Force service, this recruitment has been maintained on a voluntary basis.

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In recent months it has been found possible to employ women on important technical work in radio-location stations, and fresh increases of personnel are at present required for this and other purposes. The Women's Royal Naval Service (New Zealand). —The employment of women on naval stations was commenced at the end of May, 1942, when conditions of service were issued and the training of women telegraphists was commenced. An extension of the utilization of women to include also their employment in shorthand-typing, clerical, pay and general office work, cooking, waiting, motor-driving, dental assistance, and messenger services has resulted in the gradual building up to a total strength of some two hundred and fifty at the present time. The Women's Auxiliary Army Corps. —Though rather later in commencing, the establishment of a women's section of the Army, as a recognized part of the home defence forces, was finally brought about as a measure designed to conserve man-power, and up to date more than three thousand women have been posted for service as cooks, waitresses, moss hands, anti-aircraft assistants, stores assistants, canteen attendants, transport drivers, signallers, clerks, and typists. The field of service for women in the Army is greater than in the other branches of the forces, so that much scope still remains for their employment in order to release men for other duties. Protection of Industry against Loss of Worn,en from Skilled or Essential Work. —Though the intake of women into the forces has been on a small scale relatively to that of men, there have nevertheless been a fair number of instances where women who had acquired a considerable degree of skill, and were engaged on war contract or other essential work, had volunteered for service with the forces. In order to protect essential industries and services against the loss of these women it has been arranged for all enrolment forms from women desiring to join the forces to be examined by District Man-power Officers, and only those women who can either be spared or replaced are permitted to proceed with their applications. In addition to this precaution, a right of appeal to an Armed Forces Appeal Board is provided to the losing employer. With these safeguards, the policy of utilizing women to replace men within the armed forces is receiving every possible assistance and encouragement from this Department. The Women's Land Service- In the earlier stages the utilization of woman-power on the land was organized in the form of a Women's Land Corps under the auspices of the W.W.S.A. Recruitment was on a voluntary basis, conditions of pay were fixed, and a light uniform and one pair of overalls were provided. In this form the scheme was not a great success, partly owing to the prejudice of farmers against the employment of women and partly owing to the inadequacy of the uniform and other conditions. The whole scheme was therefore remodelled so as to provide a very complete set of working apparel and dress uniform, as well as improved rates of pay. Under this scheme the Corps was re-constituted in September, 1942, as the Women's Land Service. Since this re-organization a much better response to the scheme has been secured, and membership exceeded six hundred by the end of March, 1943. 18. THE FULL SCALE ORGANIZATION OF CIVIL DEFENCE The early origins of the civil defence organizations, and the way in which their personnel was provided, were described earlier in this report. It is now proposed to present a brief sketch of the lines along which these organizations were developed in conditions of compulsory service and under the threat of invasion or bombardment from the sea or air. Shelter Protection The urgent need for air-raid shelters led to the passing, early in January, 1942, of special Emergency Shelter Regulations which provided for the construction of public and business shelters and for compensation for land and buildings taken over for this purpose, also adjustments in rents, &c. Following on these regulations, certain " vulnerable areas " were defined, covering the main centres and secondary ports, and these towns were required to carry out a programme of shelterconstruction. Since that date a large number of shelters have been provided. The first constructed were open or slit trenches, though these have in many cases now been covered in, and in all the main centres and sea-port towns a general system of splinter-proof surface shelters has been adopted. Where possible, this method has also been extended to include tunnelling, and in towns where there are the larger type of reinforced buildings, basement shelters have been provided in suitable buildings. For the most part the shelters have been available to the general public, but considerable work has also been done on shelters constructed by business concerns for the protection of their staffs or other occupants of their buildings. A 75-per-cent. Government subsidy is available for public shelters, local authorities meeting the remaining 25 per cent, of the cost, and in the case of business shelters, the Government subsidy is 50 per cent., the local authority and the building owners each providing 25 per cent, of the cost. In addition, every encouragement has been given to householders to provide themselves with their own domestic shelters, and for this purpose standard specifications have been prepared and made available to the public. A standard code of shelter construction was also introduced. To date shelter has been provided for approximately 150,000 of the population located in the most vulnerable centres, and the cost to the Government has been in the vicinity of £700,000. Gas Protection. —A quantity of equipment to deal with a possible gas attack has been received in New Zealand and distributed to those centres considered as most vulnerable to gas attack. The main centres have also established decontamination centres and are pursuing an extensive course of training. A large number of civilian-type respirators have been manufactured in New Zealand, and these have been distributed to the more vulnerable centres. The policy in regard to gas precautions has been based on the best advice available, including the recommendations of a British Gas Liaison Mission which visited the Dominion to advise the Government upon various matters connected with gas warfare.

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Lighting Restrictions For the purposes of reducing sky glow and eliminating fixed shore lights visible from the open sea, orders had been issued by the Dominion Lighting Controller to restrict all lights in coastal areas. These measures were decided upon as a protection against sporadic raids at night from sea-going vessels. Provision was now made for the extension of these regulations to cover the whole Dominion (with modifications only in remote inland districts) and for total black-out during periods of emergency. Restrictions were also placed upon vehicle headlights, particularly in the coastal and near coastal areas, and provision was made for the complete black-out of certain port facilities. The implementation of the Lighting Restriction Regulations was a considerable task, and trials which were held periodically throughout the Dominion showed that a reasonable degree of protection had been achieved. Fire-fighting— In order to meet the possibility of nuisance raids from aircraft catapulted from cruisers, provision had already been made for motor-car patrols carrying bucket pumps, lengths of hose, and sand equipment capable of dealing with the then standard type of incendiary bomb, and also for major patrol units each comprising a truck with four men and enough equipment to provide a one-hose stream. These two branches of the E.P.S. Fire Section were intended to provide the main protection for residential areas where there was the least chance of water-supply breakdown. The Emergency Fire Service, equipped with trailer pumps, was also formed as an auxiliary to the regular fire brigades for protection of the business areas in the ports and other centres regarded as particularly vulnerable to air attack. This was a uniformed service organized on similar lines to the Territorial Force. At the same time most of the country brigades had formed brigade auxiliaries of two-thirds of the strength of the regular brigades. The cost of pay and equipment for the E.F.S. and uniforms for the brigade auxiliary had been undertaken by the Government, while the E.P.S. authorities provided the costs of their Fire Sections, including a limited amount of equipment. With the coming of the new threat it was decided to increase the strength of the E.F.S. and the quantity of fire-fighting equipment, and to mobilize the Emergency Fire Service so that at least enough personnel to man the equipment would be available at all times. Plant and equipment were located at suitable action stations dispersed over vulnerable areas. Crews were required to do continuous duty outside working-hours on a roster basis, and a more intensive training schedule was adopted. The mobilization costs were paid by E.P.S. authorities under the Government subsidy scheme. Throughout the severe emergency period in 1942 a very high standard of keenness and enthusiasm was evidenced, and, having regard to the limitations imposed by the short supply of essential imported equipment, particularly fire hose, a very reasonable standard of efficiency was attained. This was particularly the case in the specialized work of supplying water from static sources which British experience has shown to be the basis of successful fire-fighting under air-raid conditions. Overland operation is seldom required for ordinary fire-fighting and never on the scale required for dealing with air-raid fires. It was therefore necessary to bring the emergency personnel up to a much higher standard of training in this side of the work than is usual with the regular brigades. Arrangements were made for individual sections of the Emergency Fire Service to attend ordinary fires, but owing to the large number of men involved only a limited amount of practical experience could be obtained by the individual members. Fire-watching. While the units specializing in fire-fighting were undergoing intensive training, many tens of thousands of the civilian population in the main centres were doing their part as firewatchers in city buildings. Under the direction of special building wardens, each building was provided with a roster, comprised mainly of persons working in the building, and sleeping-accom-modation was organized so that at all times there were sufficient persons in each building to deal at once with incendiary bombs and resulting incipient fires. All commercial buildings were required to be provided with fire-fighting equipment to a defined standard. This intensive fire-watching system was applied only to the four main centres. In the secondary centres a system of block patrols was introduced. Food Reserves. —To meet any possibility of essential supplies being cut off in an emergency, central food reserves have been established under the direction of the Food Controller throughout the country, and these are stored at centres selected to facilitate distribution to any point in New Zealand, perishable foods being regularly turned over to prevent deterioration. Flans for Evacuation. —Plans for the safe evacuation of the civil population from vulnerable areas have also been completed and E.P. Services in reception areas have made surveys of resources that would be available should this step be necessary. Plans for Denial of Resources to th'e Enemy. A comprehensive plan for the denial of resources to the enemy has been drawn up and is in readiness to operate at the direction of the Army, should the necessity arise. This task was taken over by the E.P.S. at the request of the Army authorities, in collaboration with whom the plans have been prepared. Plans for Impressment of Motor-vehicles. —It has been found necessary in war conditions to provide by regulation for the impressment of motor-vehicles for both Army and civil defence requirements. Motor-vehicle Controllers were appointed and Advisory Committees set up. For civil defence purposes it was not necessary to take possession of vehicles, but simply to ensure that they would be available if required in an emergency. It has been found possible to reserve sufficient vehicles whose owners are already in the E.P.S., so that both vehicles and drivers are assured in an emergency. Operational Units of the Emergency Precautions Services. —In order to carry out the many tasks which would require attention in emergency conditions, the personnel of the Emergency Precautions Services are organized in units as follows : — (a) The Headquarters Unit consists of the administrative officers and others primarily concerned with the operation of the services as a whole : (b) The Wardens Unit collects and classifies local information which might be useful in an emergency and makes personal contact with the civil population located in each area. In an emergency its primary function is to report incidents speedily and accurately. It also assists the Law and Order Unit to control pedestrians and to prevent panic and confusion, and generally assists other units in carrying out their functions :

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(c) The Medical Unit attends to the collection and transport of casualties and to the provision of medical services at first-aid posts and dressing-stations : (d) The Supply Unit acquires and distributes food, clothing, equipment, or supplies, and provides any technical or other requirements of other units : (e) The Law and Order Unit, under the control of the senior officer of police in the locality, assists the Police Force in the maintenance of law and order and the control of traffic : (/) The Communications Unit assists the Post and Telegraph Department to maintain communications, and provides despatch riders, runners, and radio operators : (g) The Information Unit collects facts, distributes news to the public, and keeps a record of events : (.h) The Works Unit maintains public services, such as water-supply, drainage, sanitation, electricity, gas, roads, and streets. It controls the construction of shelters and supplies demolition or rescue squads, gas decontamination squads. Technical committees for the denial of resources may also be attached to the works unit: (i) The Transport Unit provides drivers, mechanics, and others to help transport facilities : (j) The Evacuation Unit arranges to shift people from danger zones and to organize their billeting in safer areas : (k) The Accommodation Unit supplies food and temporary shelter for those who are rendered homeless or are otherwise in need of assistance. This unit also supplies refreshments for workers in other units : (I) The Fire Unit assists the ordinary fire-brigade services : (m) The Lighting Unit helps to enforce the lighting restrictions. This unit is often combined with the Wardens Unit: (II) The Harbour Unit protects wharves and other installations at our ports and assists in evacuation arrangements where necessary. Trials and Exercises - Each of the principal Emergency Services has held trials to test its efficiency and to educate the public as to how to act in an emergency. Though in the early stages these naturally showed up weaknesses, efforts have been made to eliminate these, and each successive trial means fewer errors and a better-prepared emergency service and civilian population. Propagation of Pamphlets and Literature. —Two householder circular-posters have been issued throughout the Dominion dealing with general emergency matters, but particularly relating to incendiary bombs and the fires they cause. In addition, three handbooks have been published and issued to E.P.S. personnel. These cover — (1) Incendiary Bombs and Fire Precautions : (2) War Gases : (3) Instructions to Wardens. This Department also issues to emergency services a monthly Civil Defence Bulletin which contains matters of general interest and instruction to all E.P.S. personnel, and, of course, keeps in touch with local Central Committees by the issue of frequent Circular Instructions. Films have also been purchased by the Department and have been circulated throughout the country, and all standard specifications relating to items useful to the Services have been referred for the information of Central Committees. The Department has also been in close touch with all overseas sources of information on civil defence matters generally and has exchanged papers with nearly all similar services throughout the Empire and in America. A library is maintained at Headquarters of all civil defence and other relevant literature received from overseas. Finance. —In January, 1942, it was announced that the Government was prepared to subsidize to the extent of 66| per cent, expenditure by local authorities on emergency projects, both capital and administrative, and to date a sum approximating £185,000 has been paid by the Government in this connection, in addition to the £700,000 subsidy on shelter-construction referred to earlier. This subsidy has enabled local authorities to go more boldly forward with their plans for civil defence, and, though all major projects were first submitted to the Department for approval, a reasonably free hand was allowed to local bodies to formulate suitable defence measures in accordance with the general policy laid down by Government from time to time. Equipment. —In addition to the subsidies which are paid to local authorities, the Government has provided large quantities of equipment free of cost, and has been instrumental in controlling the price of locally-manufactured equipment and in placing bulk orders for material secured from overseas. Among this equipment are — Over 300 fire-fighting pumps (various kinds) 250,000 civilian respirators 31,000 bucket and stirrup pumps 6,000 steel helmets 3,000,000 ft. of hose 270,000 armlets 850 sets of decontamination equipment 100 air-raid sirens. 6,500 service respirators Regional and District Control of Civil Defence Services. —With the object of achieving the fullest possible co-ordination between the Civil Defence services and the armed forces, and to make provision for the decentralization of control for operational purposes, Government adopted a system of regional control. The Dominion was divided into three regions, to conform with the existing military districts, and a Regional Commissioner was appointed for each district. These Commissioners were selected from men with considerable military background, and were appointed on a full-time basis to the rank of Colonel as the civil defence representative at each of the three Combined Headquarters which formed their Regional Headquarters. The Regional Commissioners are responsible for co-ordi-nation and general effectiveness of all E.P. Services- within their respective territories, and their position at Combined Operational Headquarters ensures the necessary co-ordination with the armed services.

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Each, region is divided into districts, and District Controllers have been appointed for each, of the sixteen districts into which the Dominion has been divided. District Controllers are charged with the co-ordination and functioning of the individual E.P. Services within their districts. The system follows to some extent that which operates in England, and it has been found eminently suitable in New Zealand. Regional Commissioners are in constant touch with the Department and are frequently called together for discussion and for conference witli the Minister. Similarly, but at less frequent intervals, District Controllers meet either at their respective Regional Headquarters or jointly at Civil Defence Headquarters for conference with the Minister and the Department on major policy matters. There is no doubt that this system has led to a greater spirit of co-ordination and standardization of effort amongst E.P. Services. Government Emergency Precautions Services. —So that the operation in emergency of certain Government undertakings and public-utility services would not pass out of the control of those services, it was necessary to establish certain Government emergency services to co-ordinate their activities in an emergency with the local authority services. Among the emergency services so established are the following :— Hospitals E.P.S. National Road Transport E.P.S. Public Health E.P.S. Broadcasting E.P.S. Oil Industry E.P.S. Communications E.P.S. Railways E.P.S. Electricity Supply E.P.S. Each of these services co-operates with and receives the full co-operation of the local E.P.S. in its own district and liaison is maintained wherever this is necessary. Administrative Organization. —The diagram set out below shows in a condensed form how the different sections of the Emergency Precautions Services are related.

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Expert Advisers.—To advise the Government more particularly on technical matters and fire services, Mr. C. W. Hamann, Senior Technical Officer for Civil Defence in the Midlands Area, and Mr. A. D. Wilson, of the National Eire Service, London, were brought out from England. .Bo'tli of these gentlemen have shown a particularly keen interest in the civil defence of the Dominion and have been of great service in advising the Government and the respective emergency services. Stabilization of Personnel.—With the continued calling-up of E.P.S. personnel into the armed forces, and the provision of man-power to the Home Guard, it lias been found difficult to stabilize the strength of the male personnel of E.P.S. units. Increasing use has therefore had to be made of women, and many volunteers have been accepted. The Women's War Service Auxiliary has been instrumental in both the recruitment and training of these women. With the object of securing some stability in the personnel of the more important E.P.S. units in the larger centres, proposals were considered and approved by a conference of Regional Commissioners and District Controllers which, briefly, provided for the fixing of a minimum establishment for the six first-line units—i.e., Wardens, Eire, Medical, Works, Law and Order, and Communications. The new scheme provided for the personnel posted to these fixed establishments to receive training in general duties in addition to their own basic functions, so that reinforcement between units could readily be effected. The fixed establishments for the first-line units were required to be constituted mainly of persons who were either unfit or otherwise ineligible for military service, so that the maximum possible stability could be obtained. These establishments absorbed only a proportion of available personnel, and the remainder were posted to second-line units or to reserve. In these cases only a minimum of training in their own unit functions was required. The .total personnel in the Emergency Precautions Services is estimated at present to be 150,000, of whom approximately the following numbers have been posted to the fixed establishments of the first-line units in the more vulnerable centres : — Auckland .. .. 7,500 Hastings .. .. 750 Westport .. .. 600 Wellington .. .. 5,250 New Plymouth .. 1,200 Greymouth.. .. 700 Christchurch.. .. 3,750 Wanganui .. 1,200 Lyttelton .. .. 400 Dunedin .. .. 3,000 Palmerston North .. 1,050 Timaru .. .. 900 Whangarei .. .. 900 Masterton .. 600 Oamaru .. .. 750 Hamilton .. .. 1, 050 Lower Hutt .. 1,050 Invercargill .. 900 Tauranga .. .. 600 Petone .. .. 750 Bluff .. .. 300 Gisborne .. .. 750 Blenheim .. .. 500 Napier .. .. 1,200 Nelson .. .. 800 Whole Dominion .. 36,450 The allocation of this personnel among the various units has been fixed on the basis of: Wardens, 20 per cent. ; Law and Order, 10 per cent; Communications, 10 per cent. ; Medical, 20 per cent. ; Fire, 20 per cent. ; Works, 20 per cent. Civil Defence School of Instruction.—On the recommendation of the above-mentioned advisers it was decided to set up a Civil Defence School of Instruction where representatives of E.P. Services throughout the Dominion may be given standardized training in the various phases of emergency work. An Operational Training Officer was appointed and standard sets of instructions have been prepared. A panel of lecturers is arranged for each course and a training syllabus laid down. Arrangements have been made for representatives from all the larger centres to receive instruction at the school. As representatives pass out from the School of Instruction they return to their districts and commence the organization and training of local personnel on similar lines. The basis of the school is the " General Personnel Course " which has been laid down as the standard course of instruction in general duties for the personnel of first-line E.P.S. units. This course covora elementary training in ten subjects, designed to supplement the specialized training of personnel in their particular unit functions. A start has also been made with a series of specialist courses, and the first of these has been hold covering instruction in rescue and demolition. Further specialist courses have been arranged for the immediate future covering the functions of Wardens and Law and Order units. Training manuals are being issued by the Department covering the various phases in which general or specialized instruction has been given at the school. Proposed Re-organization of Fire Service.—After an inspection of the emergency organizations throughout the Dominion, Mr. A. D. Wilson submitted a report to the Government, recommending principally that— (i) Further equipment be provided ; and (ii) The system of reinforcement and control be extended on lines which have proved effective under air-raid conditions in Britain. The second of these proposals would have involved the over-riding to some extent of the authority of Eire Boards and local authorities, and was therefore discussed with these and other interested bodies, with the result that a modified scheme was evolved, providing for a central authority, comprising the Minister of Civil Defence advised by a national council representative of both the existing fire-controlling authorities and the Fire Services personnel. At 31st March, 1943, this scheme was still under consideration. 19. REVIEW OF MOBILIZATION AND PREPAREDNESS IN 1942 By the end of September, 1942, the mobilization of the Dominion's resources and the strengthening of her defensive organizations had reachcd a point where any attempt at large-scale invasion would have involved the enemy in a very considerable diversion of effort away from other objectives if it were to stand any real chance of success. More than 90,000 men were equipped and undergoing continuous training in the Territorial Force and other fully-mobilized units of the Army in New Zealand, and these could be reinforced at extremely short notice by a Home Guard of almost equal numerical strength, a National Military

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Reserve of many thousands, as well as two large bodies of Allied troops located and training for the time being in this country. Vast quantities of every kind of military equipment had reached the Dominion or been manufactured here, and a voluminous How of munitions and warlike stores both from internal and external sources was adding rapidly to these resources. The Air and Naval Forces in New Zealand had been transformed and expanded to meet the new situation, and between them accounted at that time for a further 25,000 persons. Powerful as was this great accumulation of strength for defensive purposes within the Dominion, it was also formidable as a flexible force, ready at short notice, and without any need for fresh calling up, to be despatched quickly to some other point in the Pacific so as to block up the very approaches to the Dominion, or aid a neighbour in emergency. On the industrial side, a great programme of defence construction had been carried through, and hundreds of major works, such as aerodromes, hospitals, stores, and shelters had been brought into existence. In spite of man-power losses, the secondary industries of the Dominion were producing record quantities of materials and equipment and performing much jobbing work for the Allied forces, which were moving steadily into the Pacific zone. Civilian man-power and woman-power had been mobilized, and the circulation of labour within the field of industry had been brought under control. In the realms of civil defence the population had by now become accustomed to the routine of conpulsory fire-watching and the sight of air-raid shelters on every hand, while even black-out trials and mock air raids were beginning to lose their novelty. In all, 164,000 persons had been withdrawn from industry and transferred to the armed forces at home and overseas, while more than 250,000 others were serving part time in the civil defence, Homo Guard, and other auxiliary services. 20. THE OUTLOOK OF NEW ZEALAND'S MAN-POWER RESOURCES IN SEPTEMBER, 1942 Formidable as were the Dominion's defences by the spring of 1942, they had not yet reached the dimensions which had been planned by the Army Department. To build the home defence forces up to full war establishment would require yet more thousands of men, while trained reinforcements in addition were also being planned for. At the same time the New Zealand Division in the Middle East was beginning to reach a stage when more reinforcements would be necessary, and there was need also to provide men to garrison Pacific islands. To add to these demands, the Air Force in New Zealand was still building up its strength and looked forward to further developments in 1943 which would involve heavy increases in personnel, apart from the regular flow of recruits for the Empire Air Training Scheme, while the Royal Navy and New Zealand Navy were in need of smaller but regular supplies of man-power. New Zealand had always been in the forefront of the British nations in mobilizing her personnel and had already given up to the forces a quarter of her whole male population aged fourteen to sixty-four, or 10 per cent, of her entire population. Even if industrial production were to remain at the same level, the provision of man-power indefinitely on the scale involved in meeting all these demands simultaneously would in itself require drastic measures of reorganization on the home front and curtailment of many industrial activities and civilian amenities. But industrial production was not required to remain at the same level. As the size of the forces mobilized in the Dominion continued to increase, the amount of work required to be done by the civilian working population in feeding clothing, and equipping them also increased. The industries of the Dominion faced the prospect of a huge and ever-increasing volume of work requiring to be handled by a depleted and still-diminishing labour force. It was at this stage that a new cloud appeared on the industrial horizon. A great chain of island bases was being thrown across the Pacific by our American allies, and troops were pouring in a great stream down into the southern oceans, where supplies of food, timber, and a hundred other things needed by troops could most readily be supplied from New Zealand. It was not long before our capacity to produce for our Allies was being examined. The spotlight was on our industrial man-power position as never before. Men had to be taken out of the forces and placed back on their farms to increase food-production, and now men were urgently wanted for timber-production, flax-cutting, vegetable-growing, and ship-repairing, to mention only some of the newly-accentuated demands. But spring had come, and brought with it all the seasonal demands for workers by the thousand to man the Dominion's vital food-processing industries, which year by year rise to their crescendo as each new spring gives way to summer. And so in the spring of 1942 the Dominion was facing simultaneous urgent demands for man-power from every branch of the armed forces and from all the major producing and processing industries. An all-round man-power shortage, far transcending anything which could have been foreseen a year earlier, was in immediate prospect, and strong and clear-cut action, affecting both industrial control and man-power control simultaneously, was seen to be vitally necessary if the many forms of readjustment which the situation demanded were to be successfully carried into effect. A War Planning and Man-power Committee was therefore formed to advise War Cabinet as to the steps which would be necessary, the personnel of this Committee comprising the Director of Production, the Commissioner for Defence Construction, the Director of the Agriculture Department the Director of National Service, the Controller of Man-power, a member of the Stabilization Commission, and five departmental officers co-opted specially for this work. On 17th September the Committee placed a detailed review of the man-power position in industry before War Cabinet, and recommended a series of measures designed to bring about a standard of rigour and austerity in the war effort going beyond anything which had until then been found necessary.

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21. SUBSEQUENT IMPROVEMENTS IN THE POSITION It soon, became apparent from the progress of events in the war zones that the very strengthening of the Allied position in the Pacific which had contributed so much toward the creation of man-power difficulties, was now beginning to produce a fresh situation which in turn would relieve the man-power position of the Dominion. Tactical successes had been achieved in the Pacific, and the enemy had lost heavily in shipping and aircraft, and these, combined with the growing strength, preparedness, and power of mutual reinforcement of the Allies, all combined to improve the prospects of the Dominion as regards the likelihood of full-scale invasion (at any rate within a measurable time) to such an extent that the upward movement in the numerical strength of the home-defence forces in New Zealand could be halted and reversed. A step was taken by the Dominion at about this time which had an important effect on the tactical position in the Pacific and contributed materially to the all-round improvement in the situation as affecting the safety of the Dominion. This was the despatch of a second Division into the Pacific. Though this step offset to some extent the gain of men which might perhaps otherwise have accrued to industry, and set up a fresh and recurring demand for men for reinforcements, it helped to secure the safety of the Dominion against invasion, and hence to increase the size of the pool of men in the home defence forces who could be considered to be surplus to the immediate defence requirements of the Dominion. The implications of the improvement in the war situation were diverse and complicated. Throughout all the ramifications of the home defence forces and the civil defence organizations a whole train of adjustments were now called for. Street lights came 011 again, and shops and homes returned to their older and brighter standards of illumination, but always there was to be the caution that a reversion to the black-out might suddenly become necessary at any time, and certain areas in the two principal ports must still observe the precautions which other places were now spared. Fire-watching could be dropped, but the organization of it must continue so that it could again become effective at a few hours' notice. On the industrial side, one of the many burdens —that of the maintenance of the home forces— could now be reduced in size, and supplies could be diverted to other uses or cancelled so that industrial capacity itself could be used otherwise to better advantage. But from the point of view of industry, by far the greatest gain lay in the prospect of getting back some of the men who had been lost to the forces. 22. THE RE-DISTRIBUTION OF MAN-POWER The National Service Department was now faced with a new problem. Instead of looking for the best way of finding fresh men for the forces, the problem now was how best to redistribute the men already in the home defence forces to the best advantage, taking into account the rival claims of the overseas forces of the Army, the needs of the Air Force and Navy, and the need for men in a number of war industries which had been becoming more and more embarrassed for man-power in order to meet the demands placed 011 them. (Chief among these industries were farming, sawmilling, tanning, flax, coal-mining, engineering, and woollen-mills.) The first step was clearly to find out how far the home defence forces could be reduced. This was determined finally by War Cabinet after a full review of the whole position, and a very substantial reduction indeed was made. The next step was to allocate the resulting release of man-power among the various claimants, and to select the actual individuals who should transfer to other phases of the war effort. As a preliminary to this step it was decided to carry out a thorough and detailed survey of the man-power in the home forces. The general procedure followed in this survey has been to ask each man in the home forces to complete a card showing details of his military service, his qualifications, and employment history, and whether he is prepared to volunteer to join the Air Force or to enter any of the more important industries mentioned above. Apart from this important result, the survey has enabled the National Service Department to select, in collaboration with the Army, many thousands of men for diversion to industry, including literally hundreds of men with those types of skill which are the most urgently needed, such as toolmakers, pattern-makers, loom-tuners, saw doctors, &c., as well as men whose homes are already located in the most difficult supply and accommodation areas, such as Auckland and Wellington, and experienced volunteers for farming, flax-cutting, coal-mines, and other important industries. It should be emphasized that the men selected were all either too young, too old, or medically unfit for combatant service in the overseas theatres of war. On the other hand, they will in many cases be able to replace fit men held at present from overseas service by Armed Forces Appeal Boards, thus enabling these fit men to be released for active fighting. A very important feature disclosed by the survey has been that many thousands of men have indicated their willingness to undertake jobs in essential war industries in which they have not had previous experience, and already some of the immediate demands in these industries which cannot be directly met from fully experienced men have been satisfied by drawing on these volunteers. For some time there had been public concern regarding the future prospects of young men who were mobilized at age eighteen and retained ill the forces on an indefinite basis. These young men have, during a critical period, missed the opportunity of laying the foundations of their future careers. 111 view of the improvement in the situation as a whole, which has enabled a reduction in the strength of the home forces, it has been found possible to allow those young men who wish to do so to leave camp and return to their civilian employment, at least for the time being. At the same time steps are being taken to ensure that they do not return to non-essential or blind-alley occupations, but are placed into industries which will give them training which will be of value to the community both during the war and in peacetime. In conclusion, it should be made clear that the factors involved in the problem of allocating and redistributing the Dominion's man-power resources are so numerous and complex that a carefullyplanned operation, such as that which is at present being carried out, may appear to an uninitiated observer to be so complicated as to be very confusing, whereas in fact the many and intricate details have been most carefully studied and meticulously planned.

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PART lII.—MISCELLANEOUS 23. STAFF AND ORGANIZATION At the present time the Department controls two major sets of district offices as follows : — (i) Armed Forces Appeal Boards, comprising twenty-six Boards in all, established in seventeen centres. (Note. —These are now being re-organized and reduced to nineteen Boards established in sixteen centres.) (ii) *District Man-power Offices (which have superseded the Placement Offices), these being located in twenty-two centres. In addition, there are the following smaller parts of the external organization : — The Special Tribunal (located in three centres) ; Defaulters Detention Camps (located in seven places) : Women's War Service Auxiliary : Emergency Fire Service (in four centres) : *Man-power Appeal Committees (located in four centres). As compared with the two major sets of district offices, it may be said that the Head Office of the Department is divided into three major divisions : — (i) The National —i.e., military —Service Division, which attends to all matters relating to the calling-up of men and recruitment of women for service with the forces, appeafs against such service, and related matters : (ii) The Civil Defence Division, which attends to the central administration of civil defence throughout the Dominion without at the same time, however, exorcising the same detailed control over local activities as applies in the other branches of the Department: (iii) The Industrial Man-power Division, which controls the administration of all measures of industrial mobilization (including those parts of the external organization set out above which have been marked an asterisk (*)), and which also supervises the workings of the Rehabilitation Division. Within the Head Office are located also three independently organized sections which handle all matters within their respective spheres relating to all three of the above major divisions. These are— (i) The Records Section, which, while limited in scope to the internal records of the Head Office, maintains a very large volume of individual files, in addition to a master index of men registered for service, and other records : (ii) The Accounts Section, which covers the financial and accounting aspects of all phases of the Department's activities throughout the Dominion, and also attends to the purchase and control of stores : (iii) The Statistical Research Section, which not only keeps the workings of all the internal ramifications of the Department under review, but which also conducts statistical surveys, forecasts, and researches of a frequently technical nature into many phases of the war effort which are external to the Department, such, for example, as wagetrend studies, industrial surveys, medical research, statistical reviews of the armed forces and of the civilian population, forecasts of yields to the forces following the calling-up of different age-classes, and many similar investigations into subjects which are intimately involved in some aspect of the war effort. Important work has also been carried out in this Section on inter-departmental co-ordination, the examination of proposals involving major commitments of man-power, and the preparation of major policy reports. The continual evolution and changing emphasis in the Department's activities to meet the changing needs of the war effort have kept the staff in a continual state of flux. With the virtual completion of the balloting phase, a decline in the work of Appeal Boards may now be expected, though this has already been more than compensated for by an upgrowth of work in the industrial man-power organization, which has shown heavy increases of staff during the past year. The actual numbers employed in the various parts of the Department's organization have been as follows : —

It should be noted that the figures relating to Appeal Tribunals do not include the seventy-eight (present) members of these tribunals, but only the secretarial staffs. An unusual feature of the organization is the fact that there are at present no fewer than six separate Ministerial portfolios concerned with the administration of various phases of the work carried on by the Department—namely, those of the Ministers of National Service and Industrial Man-power (held jointly), Civil Defence, Rehabilitation, Justice (as regards the special Tribunal and Defaulters' Detention Camps), and Labour (as regards employment promotion).

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As at 31st March, As at 31st March, As at 31st March, 1941. 1942. 1943. Males. Females. Males. Females.. Males. Females. Head Office .. .. .. 105 82 87 109 95 131 Appeal Tribunals .. .. .. 29 26 29 45 85 99 Placement (later Man-power) Offices .. 146 19 195 48 317 189 Others.. .. .. .. .. 12 2 51 6 108 12 Totals .. .. .. .. 292 129 372 208 605 431 421 580 1,036

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24. FINANCE AND EXPENDITURE Administration Expenses. —The administration expenses of the National Service Department are subject to annual appropriation by Parliament in terms of the Public Revenues Act, 1926, and provision is accordingly made for this expenditure to be met in the first instance from the Consolidated Fund under vote, " National Service." This annual appropriation covers expenditure in connection with the administration of the whole of the Department's activities, including the Industrial Man-power Division. Full details of each year's expenditure are set out in the estimates for that year. With the exception of Employment Promotion administration expenses, in respect of which an assessed amount is recovered annually from vote, " Labour," the not expenditure mot from vote " National Service," is finally recovered from Wat Expenses Account. War Expenses Account.—Apart from promotion of employment, all other expenditure of the Department not provided for in the annual appropriation is met direct from " War Expenses Account, Subdivision IV, Civil." This expenditure is classified under the following headings :— (a) Emergency Fire Service : Includes members' pay and transport costs, cost of uniforms, accoutrements, hose, trailer pumps, and other fire-fighting equipment : (b) Emergency Precautions Scheme : Includes E.P.S. subsidy paid to controlling local autho- « rities, purchase of armlets, respirators, decontamination suits, and other E.P.S. equipment: (c) Home Guard : Includes initial expenditure in connection with the Home Guard such as armlets, capitation grants, rifle impressment, and reconditioning. This department ceased to meet Home Guard expenditure on 31st July, 1941, when the control was transferred to the Army Department on the Ist August, 1941 : (d) Defaulters' Detention Camps : Includes .the cost of establishing the camps and annual operation. No deduction has been made for value of materials and inmate labour supplied to other Government Departments : (e) Industrial Mobilization : Includes the payment of fares, transport costs, travelling allowances, separation allowances, and loss of earnings incurred by workers directed to essential work under the Industrial Man-power Emergency Regulations 1942, and also travelling-expenses of members of Man-power Utilization Councils and Committees : (/) Rehabilitation : Includes the payment of trade training subsidies in respect of discharged ex-servicemen, grants on account of disabled and blinded soldiers, fares and travellingallowances of ex-servicemen, and capital costs in connection with the establishment of the Vocational Training Centre in Wellington : (g) Women's Land Service : Includes the cost of uniforms for members and payment of subsidy to employers in respect of the training of inexperienced girls : (A) Women's War Service Auxiliary : Includes the cost of uniforms for members and grants to members who have proceeded overseas. Promotion of Employment- fy already stated, the employment-promotion schemes are administered by the National Service Department, but provision for the expenditure under the item " Promotion of Employment "is made in vote, " Labour, Subdivision III." A detailed statement of expenditure is set out in the separate section of this report dealing with promotion of employment. The following is a summarized statement of expenditure for the last three years : —

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Year endod 31st March, 1941. 31st March, 1042. 31st March, 1943. Administration expenses charged to vote, " National Service," in first instance — £ £ £ £ £ £ Salaries and allowances .. .. 94,954 139,847 227,387 Other charges 79,538 98,897 156,786 174,492 238,744 384,173 Other expenditure charged direct to War Expenses Account — Emergency Fire Service .. .. .. 72,022 130,420 Emergency Precautions Scheme .. .. 596 4,339 299,631 Home Guard .. .. .. .. 1,748 10,604 Defaulters'Detention Camps .. .. .. 12,297 172,813 Industrial mobilization .. .. .. •• 584 9,213 Rehabilitation .. .. .. •• 262 14,880 Women's Land Service .. .. .. .. 36 1,870 Women's War Service Auxiliary .. .. .. 15,482 9,537 Total .. .. .. .. £176,836 £354,370 £1,022,537 -[ Promotion of employment expenditure met from vote, " Labour" .. .. .. £2,412,786 £1,288,432 £374,179

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APPENDIX TO THE REPORT OF THE NATIONAL SERVICE DEPARTMENT CONTENTS

4—H. 11 A

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Table No. Subject-matter. Pago. Section I Calling up op Men por Military Service 1 Details of Ballots up to end of March, 1943 .. .. .. .. 26 2 Distribution by Districts and Type of Service .. .. .. ., 26 Section II Medical Examinations of Men called up for Military Service 3 Results of Medical Examination of Men in each Class .. .. ,. 27 4 Proportions of Men drawn who have been examined to 31st March, 1943, and 27 Percentage Analysis of-Results 5 Analysis of Medical Grading of Unfit Men .. .. .. .. .. 28 6 Distribution among Districts of Cases in which Medical Grading was lower than 29 Grade I 7 Analysis of Changes in Medical Gradings .. .. .. .. .. 29 8 Effect of Age on Fitness .. .. .. .. .. .. .. 30 Section III Appeals and Postponements from Service with the Armed Forces 9 Analysis of Appeals lodged and their Determination .. .. .. .. 32 10 Appeals against Mobilization of Home Defence Units .. .. .. 3.3 11 Appeals on Grounds of Conscientious Objection .. .. .. .. 33 12 Recommendations for Release of Soldiers from Camp .. .. .. 34 13 Industrial Analysis of Grade I Men aged twenty to forty, &c., held in Industry 35 following Appeal or Release from Camp 14 Distribution, by Districts, of certain Classes of Men held in Industry .. .. 36 15 Cases dealt with by the Special Tribunal .. .. .. .. .. 38 16 Men in Defaulters' Detention Camps .. .. .. .. .. 39 Section IV Regulations 1.7 Schedule of Regulations .. .. .. .. .. .. .. 40

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SECTION I. —CALLING-UP OF MEN FOR MILITARY SERVICE Table 1. —Details of Ballots up to 31st March, 1943

Table 2.—Distribution by Districts and Type of Service

26

T!„n„t wn Cat' 6 of Number of Nature of Classes inchulpd in TtillnfGazette. Men drawn. Service.* uasses incluaea m Fallot. 1 .. 2/10/40 10,000 Territorial .. Single men aged 19 to 45, inclusive. 2 .. 6/11/40 33,717 „ .. Single men aged 19 to 45, inclusive. 3 .. 4/12/40 14,000 Overseas .. Single men aged 21 to 40, inclusive. 4 .. 4/3/41 19,000 „ .. Single men aged 21 to 40, inclusive. 5 .. 26/3/41 7,710 Territorial .. All remaining single men aged 19 and 41 to 45 inclusive. 6 .. 29/4/41 . 1,445 „ .. Inflow at age 19 and age 41 during period since fifth ballot. 7 .. 7/5/41 19,000 Overseas .. Single men aged 21 to 40 inclusive. 8 .. 24/6/41 11,111 Territorial .. Bulk of 18-year-old group, plus further inflow at ages 19 and 41. 9 .. 6/8/41 23,825 Overseas .. All remaining single men aged 21 to 40 inclusive. 10 .. 19/8/41 4,431 Territorial .. Balance of 18-year-old group, together with inflow at age 18. 11 .. 8/10/41 2,626 „ .. Inflow at age 18 since tenth ballot. 12 .. 2/12/41 4,684 Overseas .. Inflow at age 21 since ninth ballot. 13 .. 20/1/42 27,104 Territorial .. fMarried men (without children) aged 18 to 45 inclusive. 14 .. 25/3/42 17,570 „ .. fMarried men (with children) up to age 28 inclusive. 15 .. 28/4/42 17,955 „ .. fMarried men (with children) aged 29 to 31 inclusive. 16 .. 24/6/42 21,268 General .. fMarried men (with children) aged 32 to 34 inclusive. 17 .. 15/9/42 22,395 „ .. fMarried men (with children) aged 35 to 37 inclusive. 18 .. 11/11/42 21,715 „ .. fMarried men (with children) aged 38 to 40 inclusive. 19 .. 22/12/42 31,997 „ .. fMarried men (with children) aged 41 to 45 inclusive. * With the coming into force of the General Service provisions, all men drawn in previous Territorial ballots were deemed to have been drawn for general service. t Each of these ballots included also the inflow at age eighteen, together with other " seepages " into classes previously drawn.

Military Area Ballot No. j 2 I 3 4 5 fl 7 I 8 9 10 11 12 Dominion. Ak. Pae. Wha. Ham. Wgn. Wang. Nap. N.P. Ncl. Choh. Dun. Inv. Territorial Service Ballots 1 .. 2,000 1,350 1,450 2,000 1,900 750 1,000 1,000 750 1,900 900 1,000 16 000 2 .. 8,300 2,000 1,717 2,300 5,600 1,600 2,900 400 400 5,800 1,700 1,000 33 717 5 .. 1,079 338 139 294 853 615 634 356 726 1,156 774 746 7 710 6 .. 254 46 43 68 196 80 108 46 75 251 148 130 1,445 8 .. 1,913 643 375 614 1,358 722 948 492 517 1,8.16 963 750 11 111 10 .. 644 250 235 238 459 325 384 209 356 629 376 326 4 431 11 .. 474 147 90 135 319 190 210 109 162 429 213 148 2^626 13 .. 5,566 1,308 963 1,422 4,112 1,705 1,877 J.,006 1,395 4,211 2,126 1,413 27 104 14 .. 3,093 1,117 687 1,164 2,101 1,250 1,438 835 1,124 2,541 .1,232 988 17,570 15 .. 2,952 1,147 876 1,205 2,187 1,247 1,510 884 1,129 2,521 1,227 1,070 17,955 Total .. 26,275 8,346 6,575 9,440 19,085 8,484 11,009 5,337 6,634 21,254 9,659 7,571 139,669 Overseas Service Ballots 3 .. 2,186 825 533 862 1,795 967 1,091 649 966 2,063 1,088 975 14 000 4 .. 2,984 1,104 658 .1,223 2,572 1,282 1,522 833 1,320 2,760 1,402 1,340 19 000 7 .. 2,936 998 735 1,180 2,493 1,251 1,582 828 1,236 2,914 1,450 1,397 19 000 9 .. 3,758 1,374 931 1,450 3,253 1,578 1,919 1,063 1,447 3,568 1,891 1,593 23 825 12 .. 860 251 155 244 676 315 359 208 274 680 373 289 4,684 Total .. 12,724 4,552 3,012 4,959 10,789 5,393 6,473 3,581 5,243 11,985 6,204 5,594 80,509* General Service Ballots 16 .. 3,526 1,317 990 1,313 2,501 1,542 1,780 1,083 1,281 3,109 1,536 1,290 21,268 17 .. 3,811 1,294 1,019 1,337 2,690 1,546 1,798 1,152 1,326 3,355 1,686 1,381 22 395 18 .. 3,682 1,259 961 1,307 2,640 1,535 1,880 1,076 1,227 3,224 1,564 1,360 21 715 19 .. 5,748 1,977 1,357 1,938 3,809 2,222 2,654 1,542 1,693 4,787 2,323 1,947 31,997 Total .. 16,767 5,847 4,327 5,895 11,640 6,845 8,112 4,853 5,527 14,475 7,109 5,978 97,375 , ! 1_ All Ballots combined Grand total 55,766 18,745 13,914 20,294 41,514 20,722 25,594 13,771 17,404 47,714 22,972 19,143 317,553* Percentage 17 6 5-9 4-4 6-4 13-1 6-0 8-1 4-3 5-5 15-0 7-2 6-0 100-0 of Dominion total Notes. —*(i) Of the 80,509 men called for overseas service, 34,494 had already been included in previous territorial ballots. (ii) In 2,440 cases the calling up was subsequently cancelled by amending Gazette notice. (iii) Apart from the men included in ballots as shown above, 487 men have been called up under Regulation 44, following default in complying with the obligation to register for service.

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SECTION II. —MEDICAL EXAMINATIONS OF MEN CALLED UP FOR MILITARY SERVICE Table 3. —Results of Medical Examination of Men in each Class

Notes. —(i) These figures give the results of original gradings assigned to men examined, as a result of the initial examination following call-up for military service, and do not allow for subsequent regradings. * (ii) The classes covered by No. 13 and subsequent ballots included also a Bmall proportion of men who had recently attained age eighteen or entered classes previously called up.

Table 4. —Proportions of Men drawn who have been examined to 31st March, 1943, and Percentage Analysis of Results

Notes. —(i) Certain classes of men called in each ballot were excluded from medical examination. These were notably policemen, clergymen, seamen, and miners, and also Air Force and Naval volunteers. * (ii) Men who had been called up for Territorial service and subsequently called for overseas service were, for a considerable time, not re-examined following the second call-up. This explains the particularly low percentage examined among men called in Ballots Nos. 3, 4, 7, 9, and 12. Tn the case of Ballot 19, medical examinations wero proceeding at 31st March, 1943. (iii) The above table has been arranged so as to bring out the extremely important effect of age as a factor affecting fitness for military service. The examination of this subject is further pursued in Tables 8(a) and 8(0).

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(Position as at 31st March, 1943) Number of Men placed in Medical Grade— Ballot Nos. Marital Status. Age-class of Men examined. Temp examined I. Unfit and II. III. IV. Defer. 8,10,11 .. Single .. .. 18 years (also few 19 and 41) .. 12,110 1,230 1,351 1,118 380 16,189 1,2 .. „ .. .. 19 to 45 years .. .. .. 24,146 4,340 4,538 6,748 3,726 43,498 5,6 .. ., .. .. 19 years .. ... .. 3,965 427 545 435 180 5,552 5,6 .. „ .. .. 41 to 45 years .. .. .. 518 140 408 815 460 2,341 3, 4, 7, 9 „ .. .. 21 to 40 years (whole group) .. 16,824 3,823 4,645 6,201 2,233 33,726 12 .. „ .. .. 21 years .. .. .. 1,039 225 174 289 153 1,880 13 .. Married (no children) *18 to 45 years .. .. .. 11,176 2,327 3,821 5,027 961 23,312 14 .. Married (with children) *18 to 28 years (whole group) .. 10,123 1,544 1,920 1,949 232 15,768 15 .. „ *29 to 31 years (whole group) .. 9,533 1,616 2,184 2,753 244 16,330 16 .. „ *32 to 34 years (whole group) .. 10,006 2,058 2,618 4,066 311 19,059 17 .. „ *35 to 37 years (whole group) .. 9,590 2,042 3,122 4,792 407 19,953 18 .. „ *38 to 40 years (whole group) .. 7,741 1,883 2,731 5,253 320 17,928 19 .. „ *41 to 45 years (whole group) .. 6,161 1,258 2,644 6,898 515 17,476 Total men examined up to 31st March, 1943 .. .. .. 122,932 22,913 30,701 46,344 10,122 233,012

Numbor of Percentage of Men placed in Medical Grade— Niimiisr pnlwi these medically Percentage Principal Ballot Noa. " canea exam i ne( j up medically Age-class (see Tnmn Total. 1 • to 31st March, examined. Table 1 above). j Unfit and II III IV 1043 ' ' Defer. 8,10,11.. .. 18,168 16,189 89-1 18 ' 74-8 7-6 8-3 6-9 2-4 100-0 1,2 .. .. 49,717 43,498 87-5 19-45 55-5 10-0 10-4 15-5 8-6 100-0 5, 6— 19 years .. \ Q / 5,552 \ 19 71-4 7-7 9-8 7-8 3-3 100-0 41-45 years .. / ' \ 2,341 / 80 z 41-45 22-1 6-0 17-4 34-8 19-7 100-0 3,4,7,9.. .. 75,825 33,726 *44-5 21-40 49-9 11-3 13-8 18-4 6-6 100-0 12 .. .. 4,684 1,880 *40-1 21 55-3 12-0 9-2 15-4 8-1 100-0 13 .. .. 27,104 23,312 86-0 18-45 47-9 10-0 16-4 21-6 4-1 100-0 14 .. .. 17,570 15,768 89-7 18-28 64-2 9-8 12-2 12-3 1-5 100-0 15 .. .. 17,955 16,330 90-9 29-31 58-4 9-9 13-4 16-8 1-5 100-0 16 .. .. 21,268 19,059 89-6 32-34 52-5 10-8 13-8 21-3 1-6 100-0 17 .. .. 22,395 19,953 89-1 35-37 48-1 10-2 15-7 24-0 2-0 100-0 18 .. .. 21,715 17,928 82-6 38-40 43-2 10-5 15-2 29-3 1-8 100-0 19 .. .. 31,997 17,476 *54-6 41-45 35-3 7-2 15-1 39-5 2-9 100-0

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Table 5.— Analysis of Medical Grading of Unfit Men This table is based on the analysis of a group of 22,736 cases of men placed in Grades II, III, and IV, these representing the bulk of those examined over the period June to December, 1942, and including men called in Ballots 15 (part), 16, 17, and 18 (part).

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Nnmhfir of Men r>lared in o™ ri * Percentage Percentage within the jn uraoer or Men placed in uiade. of Grand Cla8s placed in Gra(le _ Item. Class of Medical Condition. Total. Total falling Total. II. III. IV. Wi aass thG IL I1L IV - Infectious and Parasitic Diseases 1 Tuberculosis (excluding pulmonary) .. .. 8 45 24 77 0*3 10 59 31 100 2 Venereal .. .. .. .. .. 4 15 4 23 0-1 17 66 17 100 3 All other infectious and parasitic diseases .. 12 28 6 46 0*2 26 61 13 100 Items 1 to 3 combined .. .. .. 24 88 34 146 0-6 17 60 23 100 Nervous and Mental Diseases 4 Mental deficiency, mental alienation, and epilepsy 15 167 136 318 1*4 5 52 43 100 5 Functional nervous disorders .. .. 349 521 34 904 4-0 38 58 4 100 6 Organic nervous disorders .. .. .. 68 123 49 240 1-0 28 51 21 100 Items 4 to 6 combined .. .. .. 432 811 219 1,462 6 -4 30 55 15 100 Cardio-vascular Diseases 7 Organic heart diseases and arrhythmias .. 73 553 68 694 3*1 10 80 10 100 8 Functional heart disorders .. .. .. 135 183 4 322 1-4 42 57 1 100 9 Blood-vessel diseases .. .. .. 1,102 1,426 24 2,552 11• 2 43 56 I 100 Items 7 to 9 combined .. .. .. 1,310 2,162 96 3,568 15-7 37 60 3 100 Alimentary Diseases 10 Mouth (including dental) and throat .. .. 50 47 1 98 0-4 51 48 1 100 11 Stomach and duodenal disorders .. .. 165 713 15 893 3-9 18 80 2 100 12 Other alimentary disorders, including liver and 81 133 21 235 1*1 34 57 9 100 gall-bladder Items 10 to 12 combined .. .. 296 893 37 1,226 5 -4 24 73 3 100 Respiratory Diseases 13 Pulmonary tuberculosis .. .. .. 6 112 98 216 1*0 3 52 45 100 14 Other pulmonary diseases .. .. .. 97 174 17 288 1-3 34 60 6 100 15 Asthma .. .. .. .. .. 181 437 41 659 2-9 28 66 6 100 16 Paranasal sinus infection .. .. •• 93 96 3 192 0-8 48 50 2 100 Items 13 to 16 combined .. .. 377 819 159 1,355 6 0 28 60 12 100 Disorders of Bones and Organs of Locomotion 17 Disorders of upper extremities .. .. 337 644 31 1,012 4-4 33 64 3 100 18 Disorders of lower extremities (excluding flat feet) 1,056 2,469 85 3,610 15-9 29 69 2 100 19 Flat feet .. .. .. .. .. 413 759 5 1,177 5-2 35 65 .. 100 20 Rheumatic (bone and joint) and arthritic disorders 157 419 24 600 2-6 26 70 4 100 21 Other bone disorders .. .. .. 58 218 33 309 1*4 19 70 11 100 22 Fibrositic conditions including lumbago, sciatica, 175 241 2 418 1-8 42 58 .. 100 Items 17 to 22 combined .. .. 2,196 4,750 180 7,126 31-3 31 67 2 100 Ear Disorders 23 Otitis media and mastoid disease .. .. 113 268 10 391 1-7 29 69 2 100 24 Other ear disorders .. .. . • 139 292 39 470 2-1 30 62 8 100 Items 23 and 24 combined .. .. 252 560 49 861 3-8 29 65 6 100 Eye Disorders 25 Defective vision .. .. •• 1,248 969 3.1 2,248 9-9 56 43 1 100 26 Blindness (one or both eyes) .. .. 135 92 16 243 1-1 55 38 7 100 27 Other eye disorders .. .. .. 126 64 6 196 0-8 64 33 3 100 Items 25 to 27 combined .. .. 1,509 1,125 53 2,687 11-8 56 42 2 100 Other Glasses 28 All skin-diseases .. .. .. .. 151 287 11 449 2-0 34 64 2 100 29 Tumours, malignant and non-malignant .. 5 II 8 24 0'1 21 46 33 100 30 Genito-urinary diseases, other than venereal .. 136 224 21 381 1-7 36 59 5 100 31 Diseases of blood and blood-forming organs .. 11 13 2 26 0-1 42 50 8 100 32 Diabetes .. .. .. .. .. 3 44 26 73 0-3 4 60 36 100 33 Thyroid gland diseases .. .. .. 250 319 13 582 2-6 43 55 2 100 34 Hernias .. .. .. .. .. 344 749 18 1,111 4-9 31 67 2 100 35 Overweight or underweight .. .. .. 254 171 7 432 1-9 59 39 2 100 36 Other disorders, local or general (not included 711 479 37 1,227 5'4 58 39 3 100 above) Grand total.. .. .. .. 8,261 13,505 970 22,736 100-0 36 60 4 100 Note. —Cases of indefinite medical grading such as " Deferred," "Temporarily Unfit," &c., are excluded from this analysis.

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Table 6. —Distribution among Districts of Cases in which Medical Grading was lower than Grade I

Table 7. —Analysis of Changes in Medical Gradings

Note.—These figures represent the whole of the cases medically regraded prior to entry into camp during the poriod from February, 1941, to the end of March, 1943.

Of all cases regraded, 12-9 per cent, were taken from Grade I; 57-6 per cent, were taken from the class " Temp. Unfit and Deferred" ; 13-0 were taken from Grade II; 12-3 per cent, were taken from Grado III; 3-6 per cent, were taken from Grade IV.

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(This table is based on the group of 22,736 classified cases analysed in the previous table) TnfQl Percentage of Cases arising in Military Area No.— Class of Medical Condition r , m * , (see also Previous Table). Dominion. 1 2 3 4 5 6 7 8 I) 10 11 12 " & ' Ak. Pae. Wha. Ham. Wgtn. Wang. Nap.* N.P. Nel. Chch. Dun. inv. Infectious and parasitic diseases 146 20-5 3-4 6-9 2-1 12-3 5-5 2-7* 4-1 0-2 19• 9 4-8 11-6 100-0 Nervous and mental diseases 1,402 16-3 7-9 3-3 6-0 13'9 7-0 3-4* 5-3 6-7 15-5 7-2 7-5 100-0 Cardio-vascular diseases .. 3,568 11-1 4-5 6-3 3-7 14-6 9-5 4-0* 6-8 5-3 15-0 8-1 11-1 100-0 Alimentary diseases .. 1,226 9-7 5-5 5-1 6-0 11-4 7-6 3-5* 6-8 11-0 15-2 7-2 11-0 100-0 Respiratory diseases .. 1,355 11-1 6-4 4-6 7-5 14-6 8-0 4-4* 4-3 7-4 16-5 6-3 8-9 100-0 disorders of bones and organs 7,126 15-4 6-6 5-4 6-0 11-6 6-6 3-6* 5-3 7-9 18-2 5-2 8-2 100-0 of locomotion Ear disorders .. .. 861 19-2 4-2 3-7 6-4 13-2 7-4 4-7* 4-4 9-0 17-5 5-1 5-2 100-0 Eye disorders .. .. 2,687 19-2 3-5 4-0 5-0 18-3 7-7 3-9* 4-4 3-9 16-6 5-9 7-6 100-0 Others specified (see Table 5) 3,078 17-0 5-1 4-6 4-9 12-8 7-5 4-0* 4-0 7-2 19-1 6-4 7-4 100-0 Others not specified .. 1,227 18-8 2-7 5-4 5-9 10-8 9-7 4-5* 7-2 9-3 16-7 3-0 6-0 100-0 All above classes combined .. 22,736 15-2 5-4 5-0 5-4 13-4- 7-7 3-9* 5-3 7-1 17- J 6-1 8-4 100-0 Cases not classified .. 1,436 2-7 1-3 1-9 0-1 14-4 3-7 52-8* 1-1 2-3 9-9 2-4 7-4 100-0 Total (including cases not 24,172 14-5 5-1 4-8 5-1 13-5 7-4 6-8 5-1 6-8 16-7 5-9 8-3 100-0 classified) Number called in corresponding .. 16-8 6-0 4-6 6-0 11-9 7-1 8-2 5-1 6-0 14-8 7-4 6-1 100-0 ballots *Note.—In the case of data arising from Area 7 (Napier) the proportion of unclassified cases was so groat as to render any comparisons within the classified categories of little value.

(a) Classification of Gases regraded Number placet! (on regrading) into Grade— Original Grade. Total. X. and' II. Ill, IV. Defer. I .... 601 901 925 337 2,764 Temp. Unfit and 6,731 .. 3,207 2,003 372 12,313 Defer. II .. .. 964 305 .. 1,450 178 2,897 III .. .. 786 348 1,328 .. 178 2,640 IV .. .. 80 66 128 488 j .. 762 Total .. 8,561 1,320 5,564 4,866 1,065 21,376

(b) Percentage Analysis of Regradings Percentage placed (on regrading) into Grade— Original Grade. ~ j Total. X. and' i II. III. IV. Defer. I •• .. .. 21-7 32-G 33-5 12-2 100-0 Temp. Unfit and 54-7 .. 26-0 10-3 3-0 100-0 Defer. II .. .. 33-3 10-5 .. 50-1 6-1 100-0 HI -• .. 29-8 13-2 50-3 .. 6-7 100-0 IV .. .. 10-5 8-7 16-8 64-0 .. 100-0 All oases com- 40-0 6-2 26-0 22-8 5-0 100-0 bined

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30

Table 8. —Effect of Age on Fitness (a) Distribution among Medical Grades at Selected Age-points (Single Men) The table set out below is based on the medical gradings assigned to 13,274 single men examined after being called up in the fifth, sixth, and seventh ballots, these being all such men examined up to the end of June, 1941.

The most striking features shown by this table are — (i) The rapid decline in physical fitness (as shown by the percentage placed in Grade I) as age advances ; and (ii) The correspondingly rapid increase in the proportion found unfit for active service (Grades 111 and IV) as age advances.

Graph showing Distribution among Medical Grades at each Age (Single Men)

(b) Distribution among Medical Grades at Selected Age-points (Married Men) This table is based on the medical gradings assigned to married men examined following their being called up in the thirteenth to nineteenth ballots inclusive —i.e., some 129,000 men.

Age-point. Medical Grade. 19 21 25 30 35 40 43 Per Cent. Per Cent. Per Cent. Per Cent. Per Cent. Per Cent. Per Cent. I .. .. .. 73-1 66-0 54-7 47-0 40-4 32-4 24-0 Temp. Unfit and Defer. .. 7-9 10-0 11-5 10-8 10-5 10 * I 9-8 II .. .. .. 9-5 10-5 13-1 14-8 15-3 14-6 12-3 III .. .. 6-7 9-7 15-3 20-5 24-8 28-3 33-9 IV .. .. .. 2-8 3-8 5-4 6-9 9-0 14-6 20-0 All grades .. 100-0 100-0 100-0 100-0 100-0 100-0 100-0

Age-point. Medical Grade. 19 21 25 30 35 40 43 Per Cent. Per Cent. Per Cent. Per Cent. Per Cent. Per Cent. Per Cent. I .. .. .. .. 69-7 61-7 53-3 46-4 37-9 30-6 Temp. Unfit and Defer. .. .. 9-1 11-1 11-9 10-6 9-9 8-3 II .. .. .. .. 9-0 12•6 15-5 17-4 17-2 16-1 III .. .. .. .. 11-4 13-7 18-2 23-9 31-7 40-0 IV .. .. .. .. 0-8 0-9 1-1 1-7 3-3 5-0 All grades „ 100-0 I 100-0 100-0 100-0 100-0 100-0

H.—llA

(c) Comparative Fitness of Single and Married Men called by Ballot By comparing the above figures with the corresponding percentages of single men placed in Grade I at each age-point (Table 8 (a)) it will be seen that balloted married men have been found fitter than balloted single men of like age. This is due to a combination of factors, notably (a) the fact that the ranks of single men are continually being depleted of relatively fit men by transfer to the married classes on marriage, and (b) the fact that a relatively greater number of fit single men had volunteered and been accepted for service prior to the introduction of compulsory service, leaving a greater proportion of less fit volunteer rejects to be included in the ballots. The following graph shows the comparison between the proportions of married and single balloted men respectively who were actually placed in Grade I.

There is, however, another factor which tends to reduce the number of fit men yielded from the whole group of married men (as compared with single men) when considered in one block ; this is the relative age-distribution of married and single men respectively. As will be seen by the graph below, the average age of single men is much below that of married men of military age, so that the married men, while fitter at each age-point, are older on the average.

The following table gives the percentages placed in each grade for the whole block aged twenty-one to forty inclusive :—

This table shows the extent to which the superior fitness of married men at each age is offset by the fact that they are an older group of men. Had the limits of the group been taken as eighteen to forty-five years, however, the single men would have shown a marked superiority overall, owing to the inclusion of a preponderance of single men at the fittest ages (eighteen to twenty), while the majority of those at the unfittest ages (forty-one to forty-five) are married.

31

Grade I. Grade II. Grade III. Grade IV. Total. All single men aged 21-40 inclusive .. 49-9 11-3 13-8 18-4 6-6 .100-0 All married men aged 21-40 inclusive ! 48-3 10-9 16-2 22-8 1-8 I 100-0

ll.—lla

SECTION III.—APPEALS AGAINST MILITARY SERVICE Table 9.—Analysis of Appeals lodged, and their Determination

Notes. —(i) Cases adjourned on account of second call-up are excluded from figures relating to determination of early Territorial appeals. (ii) Tn addition to the appeals shown above, there were a number of appeals against Territorial service arising from Grade II men and others called for overseas service and later diverted to the Territorial Force. (iii) Appeals against mobilization (early in 1942) affecting Territorials and members of tho National Military Reserve are not included in the above table ; these are shown in Table 10. (iv) The roduced proportion of appeals arising from the nineteenth ballot (as compared with other general service ballots) was due to a press announcement that 110 immediate action would be taken to post these (forty-one to forty-five year old) men to camp. (v) The determination of appeals arising from the nineteenth ballot had not progressed sufficiently by 28th February, 1943, to enable analysis to be made; hearings were virtually suspended.

32

Single Men. Married Men. Territorial Overseas Territorial Service. General Service. Position as at 28th February, 1943. Service: Service: —-— — —• — Ballots Ballots Ballot Ballots Ballots Ballot 1-12 3,4,7,9,12 13 14,15 16,17,18 19 (Ages 18-45). (Ages 21-40). (Ages 18-45). (Ages 18-31). (Ages 32-40). (Ages 41-45). Number ofmen called up .. 77,040 80,509 '27,104 35,525 65,378 31,997 Number of men affected by 25,684 26,336 12,975 21,392 47,362 22,003 appeals Percentage affected by appeals 33-4% 32-7% 47-9% 60-2% 72-4% 68-8% * Grounds of Appeal Status (i.e., incorrect inclusion in 585 612 391 179 293 75 ballot) Public interest .. .. 19,647 21,501 11,108 18,867 43,395 20,655 Undue hardship .. .. 15,954 16,465 6,308 10,295 23,782 9,284 Conscientious objection .. 1,696 2,395 349 462 833 307 Detekmination of Appeals Per Cent. Per Cent. Per Cent. Per Cent. Per Cent. Per Cent. Withdrawn .. .. .. 8-0 6*8 5-8 6-0 4-5 Dismissed (including dismissed 15-6 9-5 7-7 5-2 3-6 outright after hearing, dismissed for lack of prosecution, dismissed subject to non-com-batant service) Dismissed subject to condition — (a) Subject to a time condition 31-0 12-7 15-0 8-5 9-5 (b) Subject to New Zealand .. .. ■■ 7-4 3-5 service only (includes also restricted " seasonal" service within New Zealand) Adjourned on merits from military 27-4 45-8 51-8 63-2 62-2 service (including sine die and for review on a definite date) Allowed .. .. ■■ 1' 6 1*8 2-2 0-7 0-5 Determined on medical grounds— (а) Adjourned (unfit; not 12-2 21-4 15-4 8-2 14-9 Grade IV) (б) Struck out (Grade IV) .. 4-2 2-0 2-1 0-8 1-3 Excluding Unfit Cases : — Withdrawn and dismissed .. 28-3 21-3 16-5 12-3 9-7 Dismissed subject to a time 37-0 16-6 18-2 9-3 11-3 • condition Dismissed subject to New Zea- .. .. •• 8-1 4-1 lcind service Adjourned on merits and allowed 34-7 62-1 65-3 70-3 74-9 * These figures include under each separate type of ground those oases where appeals were also lodged on other grounds.

H.—lla

Table 10.—Appeals against Mobilization of Home Defence Units (January, 1942) (a) Number and Disposal of Appeals

(b) Industrial Analysis of Appeals and Postponements from Mobilization

Table 11.-Appeals on Grounds of Conscientious Objection (a) Numbers and Percentages of Men appealing on Conscientious Grounds

(b) Disposal of Appeals on Grounds of Conscientious Objection (Position as at 10th November, 1942)

5—H. 11 A

33

Number of appeals lodged against mobilization of units of Territorial Force and National Military Reserve .. .. .. .. .. .. .. 7,359* Determination of these Appeals. | Number. Percentage. Released at once for service .. .. .. 3,385 4.6 Deferred for a definite period .. .. .. 1,030 14 Adjourned for later review .. .. .. 810 11 Held back indefinitely from home defence forces .. 2,134 29 Total cases .. .. .. 7,359 100 * The men affected by appeals represented approximately 22 per cent, of those callod into camp.

Number of Industrial Group. Appeals L ercenta 8 e lodged. postponed. Farming .. .. .. .. .. 2,160 53 Other primary.. .. .. .. .. 304 46 Building and construction .. .. .. 326 46 Transport, communication, power . . . . 906 56 Manufacture .. .. .. .. .. 2,540 61 Commerce and finance .. .. .. .. 645 39 Public administration and professional .. .. 330 55 Miscellaneous .. .. .. .. .. 148 34 All industries .. .. .. .. 7,359 54

a en Married Men „ . 1-12? (Ballots 13-19). Tota1, Number called for military service .. .. .. 157,549 160,004 317,553 Number appealing on grounds of conscientious objection .. *3,864 1,951 5,815 Percentage appealing on grounds of conscientious objection .. 2-5 1-2 1-8 Notes.—(i) A preponderance of the above appeals were found to have been lodged in the centres of Auckland, Wellington, and Christchurch. * (ii) Duplicate cases arising from separate appeals against Territorial and overseas service are excluded from this figure.

Number dealt with up to 10th November, 1942 .. .. .. .. .. 4,504 Of these — Number withdrawn, struck out (Grade IV), or dismissed for lack of prosecution .. 856 Number adjourned sine die on grounds of public interest or otherwise . . . . 779 Remainder —-i.e., cases heard on grounds of conscientious objection .. .. 2,869 Of the cases heard on grounds of conscientious objection— Number — (i) Allowed .. .. .. .. .. .. .. .. 554 (ii) Dismissed subject to non-combatant service .. .. .. .. 1,124 (iii) Dismissed outright . . . . .. . . .. .. . . 1,191 Total .. .. .. .. .. .. .. 2,869 Of the above cases heard on grounds of conscientious objection— Percentage— (i) Allowed .. .. .. .. .. .. .. .. 19-3 (ii) Dismissed subject to non-combatant service .. .. .. .. 39-2 (iii) Dismissed outright .. .. .. .. .. .. .. 41-5 Total.. .. .. .. .. .. .. 100-0

EL—lla

Table 12. —Release of Soldiers from Camp: Analysis of Recommendations for Release made by Armed Forces Appeal Boards during Period from 1st June, 1942, to 22nd March, 1943

Note.—While these tables show the analysis of cases recommended for release by Appeal Boards, they do not show the numbers actually released. These may be taken for the purpose of estimates to be 90 per cent! of the cases recommended.

34

(a) Date of Release recommended (d) Industries affected lleoommended Date to commence Leave T ' ,ta '- mdustrlal Group. ™es° f recommended. Total. 1942 r ■ During Farming Industries— June .. .. .. .. 27 16 43 All types of farming (including sheep, 11,900 58-6 July .. .. .. .. 1,092 532 1,624 dairy, fruit, vegetable, tobacco, August .. .. .. 3,575 822 4,397 &c -) Septembir .. .. .. 2,159 746 2,905 Other Primary Industries— October .. .. .. 1,297 605 1,902 Sawmilling .. .. .. 315 1-5 November .. .. .. 1,027 795 1,822 Coal, gold, and scheelite mining .. 271 1-3 December .. .. .. 805 904 1,709 Other primary .. .. .. 206 1-0 1943 Sub-total .. .. 792 3-8 ° January .. .. .. 619 1,300 1,919 Building and Construction— February .. .. .. 519 1,452 1,971 -Building and allied trades .. 026 3-1 March .. .. .. 496 1,200 1,696 Construction .. .. .. 236 1-2 April .. .. .. .. 102 326 428 Sub-total .. .. 862 4-3 Totals .. .. .. 11,718 8,698 20,416 Transport ana Communication— r Motor transport .. .. 399 2 • 0 Railways .. .. .. 82 0-4 Harbour services .. .. 81 0-4 Others .. . . .. 49 0-2 (b) Period of Leave recommended ' 611 Heat, Light, and Power .. .. 40 0-2 Period of Leave recommended. Farming All All . (See also Table (c) below.) Workers. Others. Types. Secondary Industries — Engineering and metal trades . . 552 2 • 7 Bread baking .. .. .. 72 0-4 Number of cases— Butter and cheese manufacture . . 479 2-3 Less than three months .. 4,329 2,192 6,521 Meat-freezing, &c. .. .. 2,340 11-5 Three to six months .. .. 3,210 2,708 5,918 Other food manufacture .. 137 0-7 Over six months (including sine die) 4,179 3,798 7,977 Tanneries .. .. .. 22 0-1 Footwear manufacture .. .. 62 0 • 3 Totals .. .. .. 11,718 8,698 20,416 Textile and clothing manufacture.. 112 0-5 Timber, joinery, and furniture 276 1-3 Percentage of cases — manufacture Loss than three months .. 37 25 32 Lime, cement, fertilizers, and mis- 351 1-7 Three to six months .. .. 27 31 29 cellaneous ; - Over six months (including sine die) 30 44 39 Sub-total .. .. 4,403 21-5 All periods .. .. 100 100 100 Commerce and Finance— Clerical and administrative .. 205 1 • 0 Shop proprietors, managers, and 482 2 • 4 assistants Storemen and miscellaneous . . 250 1 • 2 Sub-total .. .. 937 4-0 (c) Extensions of Leave , — Public Administration, Professions, and The above tables show details of recommendations for initial Miscellaneous— release from camp, and do not include subsequent extensions of Public Service, local authorities .. 148 0-7" leave. Since 1st January, 1943, these have numbered 1,450, their Miscellaneous professions .. 80 0-4 distribution being as follows:— Teachers and students .. .. 98 0-5 Sub-total .. .. 320 1 • 0 Number of extensions for— Less than three months .. .. .. 633 Miscellaneous and unspecifiod (in- 485 2-4 Three to six months .. .. .. .. 547 eluding cases released for domestic Over six months (including sine die) .. .. 270 reasons, to sit examinations, &c.) All periods .. .. .. 1,450 All groups .. .. 20,416 100-0

H.—llA

Table 13.—Industrial Analysis of all Grade I Men ased Twenty to Forty inclusive, and Air Force and Naval Volunteers, postponed or released from Service with the Abmed Forces following Appeal Board Action. (Position as at 31st March, 1943)

Notes.—(i) These figures include a small proportion of men (mainly in seasonal industries) held back from overseas sorviee but classed as available for Now Zealand service. (ii) The above figures exclude, however, 930 men who were postponed from service on grounds other than occupational grounds. (Of these, 147 were single men. Of the total, 393 were held on account of E.F.S. duties, while 519 were held on domestic hardship grounds.) They also exclude men postponed temporarily from service. (iii) In any estimate of the total number of men held in industry, allowance should be made for appeals unheard on 31st March, 1943. These totalled 5,596 in the classes covered in this table. (iv) Apart from the classes included above, there are some thousands of men in the eighteen years, nineteen years, forty-one to forty-five years, and Grade II classes who were held in industry on Slat March, 1943. As their numbers were at the time in a state of flux owing to the release of the eighteen-year-old and nineteen-year-old classes and the redistribution of man-power as between the Army and industry, no details of these classes are given in this Appendix.

35

Total Industrial Group. Number held. Primary Industry-— Fishing and trapping .. .. .. .. 162 Sheep-farming .. .. .. .. 2,240 Dairy-farming .. .. .. .. 0,265 Other farming (including tobacco and vegetable) .. 4,502 All farming industries .. 13,013 Flax growing and milling .. .. .. 77 Bush sawmilling and afforestation .. . . 1,124 Coal-mining .. . . .. .. .. 1,900 Gold-mining .. .. .. .. 203 Other mining (including schoolite and oil) .. 32 Quarrying .. .. .. .. . . 49 Sub-total .. .. .. .. 10,560 Building and Construction — Road, railway, hydro., &c., construction .. 350 Housing and other building construction .. 1,470 Sub-total .. .. .. .. 1,820 Transport and Communication— Railways (including workshops and motor services) 2,781 Tramways (including workshops) .. .. 212 Motor services, n.o.i. (including garages) . . 1,288 Shipping and harbour services .. .. .. 2,171 Air services .. .. . . . . .. 17 Post and Telegraph and radio broadcasting .. 517 Sub-total .. .. .. .. 6,986 Heat, Light, and Power— Electricity production and supply .. .. 435 Gas production and supply . . .. . . 123 Sub-total .. .. .. .. 558 Secondary Industry— Engineering .. .. .. .. .. 2,915 Meat freezing, preserving, &c. .. .. 2,181 Butter and cheese manufacture .. .. 921 Grain-milling and cereal food making .. .. 64 Sugar-refining .. .. . . .. 51 Bread, cake, and pastry making .. . . 393 Biscuit and confectionery making . . . . 62 Jam-making, fruit and vegetable preserving .. 33 Brewing and malting .. .. .. .. 24 Aerated-water and cordial making .. . . 10 Other food and drink industries . . .. 185 All food and drink industries .. 3,924 Fellmongering and wool-scouring .. .. 93 Tanning .. . . .. .. .. 138 Woollen and knitted goods manufacture . . 293 Silk-hosiery manufacture .. .. .. 17 Flock, felt, sack, rope, &c., manufacture .. 42 Hats and millinery manufacture .. .. 13 Clothing-manufacture n.e.i. . . .. .. 145 Boot, shoe, and slipper making .. .. .. 371 Boot-repairing .. .. .. . . 19 Other leather-working .. .. .. 27 Laundering, dry-cleaning, and dyeing .. .. 31 Other textile, clothing, &c., industries .. .. 18 All textile, clothing, &e., industries 1,207

Total Industrial Group. Number held. Secondary Industry—continued. Lime and cement making .. .. .. 88 Brick, tile, and concrete products manufacture .. 133 Asbestos, stone, and other mineral processing .. 70 Wallboard-manufacture .. .. .. 10 Timber milling and joinery manufacture .. 275 Wooden box and case making .. . . . . 93" Cabinet and hard furniture making .. .. 70 Upholstering and soft furniture making . . .. 13 Other industries allied to building .. .. 22 AH industries allied to building 774 Glass-manufacture .. .. .. .. 43 Rubber and rubber goods manufacture, vulcanizing 71 Paint and varnish making .. .. .. 30 Soap and candle making .. .. .. 25 Manure-manufacture .. .. .. .. 71 Drugs and chemical manufacture . . . . 49 Papor and cardboard manufacture .. . . 48 Carton, cardboard-box, and paper-bag making .. 27 Printing, publishing, and bookbinding .. . . 214 Tobacco processing and cigarette-making .. 23 Other (miscellaneous) industries .. . . 104 Sub-total .. .. .. .. 9,525 Commerce and Finance — Banks, insurance, trustees, &c. .. .. 388 Shops, warehouses, depots, &c. .. .. 1,298 Stock and station agencies and storage . . .. 186 Sub-total .. .. .. .. 1,872 Public Administration and Professional — Health, religion, and social welfare .. .. 1,340 Education .. .. .. . . .. 353 Defence (civil staffs) .. .. .. . . 60 Lawyers, police, justice, and prisons .. .. 790 Government Departments n.e.i. .. .. 370 Local authorities n.e.i. .. .. .. 526 Sub-total .. .. .. .. 3,439 Miscellaneous Services and Professions — Entertainment, sport, and recreation .. .. 20 Hotels and catering .. .. . . . . 26 Musicians, artists, authors, &c. .. .. 7 Other services .. .. .. .. 29 Sub-total .. .. .. .. 82 Training for Industry— Engineering students .. .. .. .. 44 Medical students .. .. . . .. 186 Dental students .. . .. .. 42 Other science students .. .. .. 86 Theological students .. .. .. .. 20 Other students, &c. ... .. .. 50 Sub-total .. .. ... .. 428 Grand total for all industries .. .. 41,270

H.—llA

Table 14.-Distribution, by Districts and Industries, of certain Classes of Grade I Men aged

Note". —(i) Th<we figures include a small proportion of men (mainly in seasonal industries) held back from overseas service but elassod as available for New Zealand service, (ii) The above figures exclude, however, 930 men who were postponed from service on grounds other than occupational g-o.mds. (Of these, 147 were single men. Of the total, 393 were held on account of E.F.S. duties, whilo 519 were held on domestic hardship grounds.) They also exclude men postponed temporarily from service.

36

(Position as at 31st March, 1943) This table gives the distribution among districts of all Grade I men aged twenty to forty and Air Force and Naval Military Area (or Sub-area). Item is"u, and Industrial Group. ~ 1 2 3 4 6 6 OA 7 Auck. Pae. Wha. Ham. Wgtn. Wang. P.N, Nap. Primary I ndustry— 1. Fishing and trapping .. .. .. .. 35 18 5 3 31 .. .. 19 2. Sbeep-farming .. .. .. .. 9 98 62 140 34 233 42 212 3. Daify-farming .. .. .. .. .. 518 1,802 698 1,079 89 91 106 94 4. Other farming (including tobacco and vegetable) .. 127 43 197 441 67 83 49 454 5. Flax growing and milling .. .. .. .. 1 5 .. .. .. 15 6. Bush sawmilling and afforestation .. .. 14 155 15 117 12 106 .. 53 7. Mining (not coal) and quarrying .. .. 19 100 5 8 5 1 1 Building and Construction— 8. All building and construction .. .. .. 501 36 55 76 551 35 23 80 Transport and Communication— 9. Railways (including workshops and motor services) 342 116 115 131 608 204 .. 69 10. Motor services n.e.i. (including garages) .. 236 I 137 96 103 113 26 2 92 11. Other transport services (not ships'personnel) .. 252 1 4 .. 205 6 3 16 12. Post and Telegraph and radio broadcasting . . 101 7 7 5 210 7 17 11 Heat, Light, and Power — 13. All gas and electricity production and supply .. 71 25 34 25 59 17 51 41 Secondary Industry— 14. Engineering .. .. .. .. .. 841 86 33 121 892 27 30 80 15. Meat freezing, preserving, &c. .. .. 474 32 19 62 83 54 28 101 16. Butter and choose manufacture .. .. 42 161 58 71 3 8 9 17. Other food and drink industries .. .. 279 35 22 25 95 19 12 31 18. Fellmongering, wool-scouring, tanning .. .. 98 .. 1 . . 12 1 1 16 19. Textile, fibre, and clothing manufacture and repair 134 3 3 .. 106 10 5 11 20. Leather working and repair .. .. ..211 2 3 1 62 2 .. 2 21. Building-materials manufacture .. .. 60 3 16 13 26 .. 1 13 22. Timber milling and joinery (including box) manu- 64 10 31 42 69 14 20 20 facture 13. Furnishings manufacture .. .. .. 35 .. 1 2 32 5 .. 2 24. Paper, &c., manufacture, printing, and publishing.. 56 38 6 11 65 3 7 25. Other secondary industries .. .. .. 143 .. 4 24 110 6 5 8 Commerce and Finance — 26. Banks, insurance, trustees, &c. .. .. .. 77 15 7 13 99 9 .. 24 27. Shops, warehouses, depots, &c. .. .. 327 43 43 70 278 27 7 41 28. Stock and station agencies and storage 15 6 I 11 15 3 I 21 Public Administration and Professional— 29. Health and social welfare (not religion).. .. 110 8 7 28 101 5 6 18 30. Education .. .. .. .. .. 44 17 19 15 12 14 9 32 31. Lawyers, justice, and prisons (not police) .. 8 3 1 6 13 8 3 32. Government Departments n.e.i. .. .. 61 19 5 5 254 4 .. 9 33. Local authorities n.e.i. .. .. .. 215 22 2 12 82 9 2 36 Miscellaneous—34. Miscellaneous services and professions .. .. 18 7 2 .. 20 1 .. 4 35. Training for industry .. .. .. 68 5 .. .. 38 .. .. 1 Total of above classes .. .. .. 5,605 3,054 1,582 2,660 4,451 1,038 435 1,631 Unclassified by districts : Coal-miners (1,900), ships' personnel (1,707), ministers of religion (866), police (720) Grand total of all Grade I men aged 20 to 40 inclusive, and Air Forco and Naval volunteors held in industry on 31st March,

H.—lla

Twenty to Forty, etc., postponed or released from Service with the Armed Forces

(iii) In any estimate of the total number of men held in industry, allowance should be made for appeals unheard on 31st March, 1943. These totalled 5,590 in the classes covered in this table. (iv) Apart from the classes included above there are some thousands of men in the eighteen years, nineteen years, forty-one to forty-five years and Grade II classes who were hold in industry on 31st March. 1943. As their numbers were at the time in a state of flux, owing to the release of the eighteen-year-old and nineteen-year-old classes and the redistribution of man-power as between tho Army and industry, no details of these classes are given in this Appondix.

37

volunteers held in each industry, with the exception of coal-mines, merchant shipping, religion, and the Police Force Military Area (or Sub-area). : Dominion mS? 6 Item 7a 7 ii 8 !) 9a 10 10A 11 12 Total - Included. No ' Grist). Mast. N.l\ Wei. Grey. Ghch. Tim. Dun. Inv. 1 1 11 2 3 9 12 12 162 53 1 140 139 118 162 .. 239 168 204 240 2,246 861 2 19 196 985 106 157 109 33 104 79 6,265 2,566 3 11 50 216 262 44 799 542 246 871 4,502 1,896 4 5 2 5 19 25 77 66 5 16 13 24 40 375 23 20 1 140 1,124 317 6 8 4 1 104 7 7 14 284 58 7 9 28 72 117 58 58 40 70 11 1,820 162 8 9 33 76 26 174 373 31 268 206 2,781 619 9 37 8 65 59 45 93 41 67 68 1,288 \ au f 10 10 10 41 79 7 51 8 693 / Sb \ 11 6 4 12 15 9 46 5 28 27 517 109 12 15 9 36 26 29 51 17 23* 29 558 40 13 15 10 50 22 26 379 40 231 32 2,915 903 14 59 49 282 14 .. 505 227 126 66 2,181 585 15 7 57 387 23 14 26 18 8 29 921 320 16 12 5 22 22 24 80 29 74 36 822 112 17 2 2 .. 25 25 40 8 231 1 f 18 1 2 2 1 91 38 109 43 559 V 372<| 19 1 . • 3 3 90 12 22 3 417 J 1 20 1 1 6 12 5 18 8 67 51 301' 1 f 21 3 18 11 2 34 10 11 9 368 i 22 r 2 1 .. 16 1 7 1 105 J I 23 4 2 7 2 8 26 3 25 26 289 \ „„/ 24 2 10 6 44 26 26 2 416 / 25 14 3 20 8 4 29 9 38 19 388 9 26 21 10 54 36 51 109 26 120 35 1,298 \ 27 4 4 25 23 18 24 15 186 / 108 \ 28 4 6 13 11 28 79 7 32 11 474 ~| f 29 6 8 24 10 14 56 5 42 26 353 30 4-. 7 2.. 6.. 2 7 70 >■ 329<[ 31 1 4 3 5 12 25 3 8 12 430 32 5 10 3 16 12 34 17 22 27 526 J 33 7 4 1 4 3 7 4 82 18 34 69 .. 247 .. 428 411 35 440 652 2,541 1,073 1,244 3,653 1,457 2,369 2,192 36,077 10,226 5,193 2,197 1943 .. .. .. .. .. .. .. .. .. .. .. 41,270 12,423

lI.—IIA

Table 15. —Cases dealt with by the Special Tribunal

38

(Position as at 31st December, 1942) (a) Classification, by Age and Marital Status Under 21-25 26-30 31-35 36-40 41 Years All 21 Years. Years. Years. Years. Years. and Over. Ages. Single men .. .. .. 26 101 64 24 17 12 - 244 Married, no children .. .. 1 14 39 26 6 5 91 Married, with children .. .. .. 4 18 15 1 38 Totals .. .. 27 119 121 65 24 17 373 _l (b) Classification, by Normal Occupation (c) Classification, by Amount of Annual Payment Farming workers .. .. . . . . 67 Number of cases in which estimated annual payment in terms of orders made by the tribunal Other primary (sawmill, mining, &c.) workers.. 8 is— Nil .. .. .. .. ..227 Transport and communication workers (not 24 clerical) Under £10 per annum . . . . 17 Engineering workers .. .. .. 25 £10 and under £20 per annum .. .. 31 Building and constructional workers .. .. 33 £20 „ £30 „ .. .. 23 Miscellaneous factory workers .. .. 57 £30 „ £4-0 „ .. .. 27 Shopkeepers, warehousemen, salesmen .. 57 £40 „ £50 „ .. .. 15 Clerical workers .. .. •. • • 55 £50 „ £60 „ .. .. 11 Ministers of religion and theological students . . 8 £60 „ £70 .. .. 8 Other students .. .. .. • • 8 £70 „ £80 .. .. 3 Teachers .. .. . ■ ■ ■ • • 4 £80 „ £90 .. .. 2 Others .. .. • • • • ■ • 27 £90 „ £100 „ .. .. 1 £100 „ £110 „ .. .. 4 £110 „ £200 „ .. .. 3 £200 „ £300 „ .. .. I Total .. .. . ■ .. 373 Total .. .. .. .. 373 Total estimated annual yield .. .. £5,525 Average estimated annual yield per order .. £14 16s. (e) Proportion of Cases dealt with as at (d) Classification, by Medical Grade 31st December, 1943 Number of men placed in— Total number classed as liable for Special Tribunal Grade I .. .. .. .. 206 action .. .. .. .. 583 Of these — Grade II .. .. .. .. 35 Number under action by Appeal Board Secretaries .. .. . . 135 Grade III .. .. .. .. . 79 Number under action by Special Tribunal .. .. 75 Number classed as" Defer," temporarily unfit, &c. 20 210 Number not examined (owing to refusal or 33 otherwise) Total .. .. .. .. 373 Balance—i.e., orders made by Special Tribunal.. 373 I

H.—ll A.

Table 16. —Men detained in Defaulters' Detention Camps (Position as at 20th January, 1943) (a) Classification, by Ages and Marital Status

Section IV. —Regulations (See Schedule over.)

39

Under 21-25 26-30 31-35 36-40 41 Years ... 21 Years. Years. Years. Years. Years. and Over. Ages. , ' j Single men .. .. .. 45 195 120 60 23 14 457 Married, no children .. .... 16 35 19 6 5 81 Married, with children . . .... 16 44 14 1 1 76 Totals .. .. 45 227 199 93 30 20 614 (b) Classification, by Medical Grades (c) Classification, by Disposal of Original Appeal Number of men placed in—• Appeal dismissed outright, or subject to time Grade I . . . .i .. . . 477 condition only .. . . .. . . 409 Appeal dismissed subject to non-combatant service 130 Grade II .. .. .. '.. 103 Appeal struck out and withdrawn . . . . 7 Grade III .. .. .. .. 30 Cases where no appeal was lodged .. .. 68 Number classed as " Defer," temporarily unfit, &c. 4 Total .. .. .. .. 614 Total .. .. .. .. 614

H.—llA

SECTION IV.—REGULATIONS Table 17. —Schedule of Regulations The following are the various Regulations, Proclamations, and Orders which authorize and govern (or have at some time authorized and governed) the functions of the National Service Department. Those marked with an asterisk have been revoked or superseded by later Regulations or Orders: —

40

Name'of Regulation, Proclamation, or Ordor. Date. Reference to Statutory Regulations or Qaztfte. 1940 *The Social Security (Supplementary) Regulations 1940 .. .. .. 20th March .. 1940/60 The National Service Emergency Regulations 1940 .. .. .. .. 18th June .. 1940/117 * The General Reserve Classification Order 1940 .. .. .. .. '24th June .. 1940/133 * The General Reserve Classification Order 1940, Amendment No. 1 .. .. 6th August .. 1940/1(54 Proclamation Directing Enrolment of First Division of General Reserve .. .. 7th August .. Gazette, 8/8/40, p. 1847 The National Service Emergency Regulations 1940, Amendment No. 1 .. .. 16th August .. .1940/186 * The Emergency Precautions Regulations 1940 .. .. .. .. 16th August .. 1940/187 * The Emergency Reserve Corps Regulations 1940 .. .. .. .. 16th August .. 1940/188 The National Service Emergency Regulations 1940, Amendment No. 2 .. 6th September .. 1940/223 * The General Reserve Classification Order 1940, Amendment No. 2 .. .. 9th September .. 1940/224 1941 The National Service Emergency Regulations 1940, Amendment No. 3 .. .. 16th January .. 1941/3 The Lighting Restrictions Emergency Regulations 1941 .. .. .. 14th February .. 1941/18 * The General Reserve Classification Order 1940, Amendment No. 3 .. .. 25th February .. 1941/29 * The Emergency Reserve Corps Regulations 1940, Amendment No. 1 .. .. 28th February .. 1941/33 The Emergency Fire Service Conditions of Service Order 1941 .. .. .. 4th March .. 1941/33 Order under Regulation 7b of the Emergency Reserve Corps Regulations 1940 30th April .. Gazette, 1/5/41, p. 1087 (Impressment of • 303 Rifles) The National Service Emergency Regulations 1940, Amendment No. 4 .. .. 14th May .. 1941/73 * The General Reserve Classification Order 1941 .. .. .. .. 20th May .. 1941/75 Proclamation: Directing Enrolment of Additional Members of First Division of 21st May .. Gazette, 22/5/41, p. 1357 General Reserve The Lighting Restrictions Emergency Regulations 1941, Amendment No. 1 .. 29th May .. 1941/81 Proclamation: Directing Enrolment of Second Division of General Reserve .. 16 th June .. Gazette, 16/6/41, p. 1655 The Lighting Restrictions Emergency Regulations 1941, Amendment No. 2 .. 25th Juno .. 1941/98 The Cheese Industry (Registration of Employment) Ordor 1941 .. .. .. 30th June .. 1941/103 The National Service Emergency Regulations 1940, Amendment No. 5 .. .. 27th August .. 1941/148 * The Emergency Reserve Corps Regulations 1940, Amendment No. 2 .. .. 10th September .. 1941/153 The National Service Emergency Regulations 1940, Amendment No. 6 .. .. 10th September .. 1941/154 The Emergency Reserve Corps Regulations 1941 .. .. .. .. 22nd October .. 1941/194 The National Service Emergency Regulations 1940, Amendment No. 7 .. .. 12th Novomber .. 1941/210 The Emergency Reserve Corps Regulations 1941, Amendment No. 1 .. .. 12th December .. 1941/234 1942 The Emergency Shelter Regulations 1942 .. .. .. .. .. 2nd January .. 1942/1 The Closing of Shops (Late Night) Emergency Regulations 1942 .. . . 5th January . . 1942/2 * The National Service Emergency Regulations 1940, Amendment No. 8 .. . . 10th January .. 1942/5 The Emergency Reserve Corps Enrolment Order 1942 .. .. .. .. 22nd January .. 1942/10 The Emergency Reserve Corps Enrolment Order 1942, Amendment No. 1 .. 20th February .. 1942/37 The General Reserve Classification Order 1942 .. .. .. .. 6th March .. 1942/56 The Closing of Shops (Late Night) Emergency Regulations 1942, Amendment No. 1 7th March .. 1942/57 Proclamation : Directing Enrolment of Additional Members of First and Second 9th March .. Gazette, 11/3/42, p. 651 Divisions of the General Reserve The National Service Emergency Regulations 1940, Amendment No. 9 .. .. 14th March .. 1942/69 The Registration for Employment Order No. 1 .. .. .. .. 18th March .. 1942/71 The Building and Allied Trades'Workers'Registration Order 1942 .. .. 18th March .. 1942/72 The Metal Trades'Workers'Registration Order 1942 .. .. .. .. 18th March .. 1942/73 The Emergency Shelter Regulations 1942, Amendment No. 1 .. .. .. 31st March .. 1942/92 The Emergency Reserve Corps Regulations 1941, Amendment No. 2 .. .. 31st March .. 1942/93 The Emergency Precautions Services (Conditions of Service) Order 1942 .. .. 31st March .. .1942/94 The Registration for Employment Order No. 2 .. .. .. .. 8th April .. 1942/97 Tho Sale of Rabbit Skins Emergency Regulations 1942 .. .. .. 15th April . . 1942/103 The Home Guard Enrolment Order No. I .. .. .. .. .. 30th April .. 1942/119 Tho Timber Workers'Registration Order 1942 .. .. .. .. 7th May .. 1942/130 The Employment Restriction Order No. 1 .. .. .. .. .. 14th May .. 1942/135 The National Service Emergency Regulations 1940, Amendment No. 10 .. .. 20th May .. 1942/142 *The Industrial Absenteeism Emergency Regulations 1942 .. .. .. 20th May .. 1942/143 The National Service Emergency Regulations 1942, Amendment No. 11 .. .. 23rd May .. 1942/158 The Emergency Reserve Corps Regulations 1941, Amendment No. 3 .. .. 22nd June .. 1.942/187 The National Service Emergency Regulations 1940, Amendment No. 12 .. .. 22nd June .. 1942/188 The Emergency Shelter Regulations 1942, Amendment No. 2 .. .. .. 22nd June .. 1942/189 The Registration for Employment Order No. 3 .. .. .. .. 15th July .. 1942/218 The National Service Ministers Emergency Regulations 1942 .. .. . . 15th July .. 1942/219 The Closing of Shops (Late Night) Emergency Regulations 1942, Amendment No. 2 29th July .. 1942/231 The National Service Emergency Regulations 1940, Amendment No. 13 .. .. 5th August .. 1942/238 The Registration for Employment Order No. 4 .. . . .. . . 3rd August .. 1942/239 The Lighting Restrictions Emergency Regulations 1941, Amendment No. 3 .. 9th September .. 1942/270 The Registration for Employment Order No. 5 .. .. .. .. 24th September .. 1942/281 The Registration for Employment Order No. 6 .. .. .. .. 8th October .. 1942/291 The Registration for Employment Order No. 7 .. .. .. .. 8th October .. 1942/292 The Industrial Man-power Emergency Regulations 1942 .. .. .. 14th October .. 1942/296 The Emergency Shelter Regulations 1942, Amendment No. 3 .. .. .. 14th October .. 1942/297 The Employment Restriction Order No. 2 .. .. .. .. .. 6th November .. 1942/319 1943 The National Service Emergency Regulations 1942, Amendment No. 14 .. .. 13th January .. 1943/6 Tho Scientists and Technicians Registration Order 1943 .. .. .. 3rd February .. 1943/14 The Emergency Reserve Corps Regulations 1941, Amendment No. 4 . . .. 3rd February .. 1943/21 The Registration for Employment Order No. 8 .. .. .. .. 18th February .. 1943/24

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REPORT OF THE INDUSTRIAL MAN-POWER DIVISION National Service Department (Industrial Man-power Division), Wellington, Ist June, 1943. To the Hon. the Minister of Industrial Man-power. Sir, — I have the honour to submit the following report on the activities of the Industrial Man-power Division of the National Scrvice Department. This report covers the period from the inception of industrial man-power control at the beginning of 1942 up to 31st March, 1943. I have, &c., H. L. Bockett, Controller of Man-power.

CONTENTS

INTRODUCTION The mobilization of civilian man-power for work in war industries has been the greatest single development in man-power organization since the introduction of compulsory military service, which itself brought the National Service Department into existence. In setting up an administrative organization capable of handling this industrial mobilization attention was first turned to the already existing Placement Service which was operated by the Employment Division of the Department, and this whole system was taken over and re-organized as the Industrial Man-power Division. This Division has since increased in size as the range of its control has been extended through a succession of stages. Even though man-power as a whole is in short supply, the need for special assistance in keeping in employment the semi-unemployable margin of the labour force (which would otherwise rapidly become completely unemployable) has not disappeared, and the Industrial Man-power Division has therefore carried on the work of controlling the various schemes designed to assist in the continued employment of these men.

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Section. Subject. Page. Introduction .. .. ., .. .. .. .. .. 41 Part I.—Industrial Mobilization 1 The Origins of Industrial Mobilization . . .. . . .. . . 42 2 The Various Measures of Control .. .. . . . . .. .. 42 3 Administrative Organization .. . . .. . . .. . . 42 4 Advisory Bodies .. .. .. .. .. .. .. .. 43 5 Essential Industries and Undertakings . . .. . . .. . . 43 6 Registrations for Work .. . . .. .. .. . . .. 44 7 Directions into Essential Work .. .. .. .. .. .. 45 8 Restriction of Inflow into Non-essential Work .. . . .. . . 46 9 The Problem of Absenteeism .. .. .. .. .. .. 47 10 Movements as between the Armed Forces aud Industry .. .. .. 47 11 Review of Industrial Mobilization .. .. .. .. .. .. 47 Part II. —Employment Promotion 12 Employment Promotion Schemes .. .. .. .. .. .. 48 Statistical Appendix .. .. .. .. .. .. .. 51-60

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The return of ex-servicemen to civilian life after discharge from the Forces—a field of activity which is intimately related to all other measures concerning man-power—is the special province of the Rehabilitation Board. The Secretariat of the Board, however, is located within the Department, and works under the general supervision of the Industrial Man-power Division, while out in the districts the work of industrial mobilization and rehabilitation is carried out in the same district offices. While, therefore, the major interest of the Division lies in the control of the movements of the industrial labour force, these further activities enter into its scope to some extent. In conformity with this general conception of the subject, the present report is divided into two main sections —the first describing the development of industrial man-power control, and the second referring to employment promotion. A separate report is being prepared by the Rehabilitation Board to deal in detail with the subject of rehabilitation. Details of staff, finance, and regulations affecting this Division along with other sections of the National Service Department are set out in Part 111 and in the Appendix of the accompanying report of the Director of National Service, and these matters will not therefore be specially covered in the present report. A number of statistical and similar tables relating to the work of the Division will be found in an Appendix at the end of this report. PART I.—INDUSTRIAL MOBILIZATION 1. THE ORIGINS OF INDUSTRIAL MOBILIZATION By the end of 1941 the withdrawal of man-power to the armed forces had reached a point where employers engaged in important industries were experiencing great difficulty in replacing these losses of personnel or, alternatively, in maintaining the scale of their activities with their remaining manpower. But these were not the only difficulties with which they had to contend. Other employers, engaged in both essential and non-essential industries, were similarly placed, and the all-round shortage' of labour had led to a state of competition between employers for the remaining labour, and to the practice of enticement of workers from one employer to another for higher wages. Not only was the economic stabilization of the Dominion in danger of becoming prejudiced by this spiralling of wages and consequently of prices, but also the output of war industries was being threatened through staffing difficulties. These difficulties were common to all countries which had been mobilizing their man-power resources for service in the armed forces, and a series of remedies for them had been evolved in Great Britain some time previously. As mentioned in the accompanying report of the Director of National Service, these remedies had been closely studied by officers of the National Service Department, and a number of recommendations had been placed before War Cabinet in the latter part of 1941. The entry of Japan into the war at that time, and the subsequent mobilization of the home defence forces, greatly accentuated the already difficult man-power position in industry, so that within a short time authority was given to implement the first of the series of measures which are described hereafter. As the home defence forces continued to be built up, further measures became necessary, and the full programme of industrial man-power control at present in operation has thus been the result of a process of growth and extension spread over more than a year. 2. THE VARIOUS MEASURES OF CONTROL The leading measures of control which are at present administered by the Industrial Man-power Division are, briefly : — (1) Restriction of movements of labour from industries and undertakings which are essential in war conditions : (2) Registration of civilians for work, and subsequent interview, selection, and direction into work of national importance : (3) Restriction of engagement of labour in undertakings which are not regarded as essential in war conditions : (4) Administration of regulations affecting industrial absenteeism : (5) Control of applications for release from camp of members of the armed forces (a recent development). The administration of these measures may be said to be directed toward the following four main purposes :— D (a) To secure priority in the labour market for war industries and essential services : (b) To protect continuity of production by minimizing the circulation of labour in such industries and services : (c) lo tap all available reserves of man-power not in industry, in order to supplement the existing labour force : (rf) To facilitate adjustments or re-organization likely to result in either (i) increased production, or (ii) economies of man-power, 3. ADMINISTRATIVE ORGANIZATION Power to give effect to the above measures of control was first taken in an amendment to the , merg ?7 dated 13th 1942, and in the Industrial Absenteeism w 0 Regulations dated 20th May, 1942. These provisions and subsequent amendments to them 1942 rC ~ en aS Industrial Man-power Emergency Regulations 1942, gazetted on 15th October,

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These regulations are administered primarily through District Man-power Officers located in twenty-two centres and acting under the direction of the Controller of Man-power. Man-power Officers are assisted in matters relating to women by Women Personnel Officers, who have been appointed to their staffs. In the four main centres the services of the Secretaries of Youth Centres are availed of in matters relating to young persons, particularly those leaving school. A number of liaison officers have also been appointed to assist Man-power Officers in their work. All decisions and directions of District Man-power Officers are subject to a right of appeal, and four travelling Man-power Appeal Committees have been established in the four main centres to deal with these appeals. 4. ADVISORY BODIES The co-operation of both employers and workers has been a necessary pre-requisite to the effective working of the various measures of control, and, in order to both (a) secure this co-operation and (b) obtain the benefit of experienced opinions in the formulation of detailed policy matters affecting particular industries, a number of advisory bodies have been set up under the title of Man-power Utilization Councils and Committees. Each Council is a national body consisting of representatives of employers and workers in some important industry, together with representatives of this Division and any other Government Departments concerned. Its functions are to keep the Government advised of the man-power position in the industry, to discuss and put forward recommendations regarding the functioning of man-power control and the more effective use of man-power in the industry. Local Committees are set up as recommended by the National Council, and consist of local representatives of employers, workers, and Government Departments, with the District Man-power Officer as chairman. Their main functions are :— (а) To advise the Man-power Officer regarding local labour requirements and resources : (б) To make recommendations to Armed Forces Appeal Boards concerning local personnel in the industry who have been called up for military service : (c) To deal with local man-power problems or difficulties as they arise : (d) To make recommendations regarding the better use of man-power. The industries in respect of which these bodies have so far been established are Baking Laundries Biscuits Motor trades Butter and cheese Optical trades Clothing Plumbing Coal-gas Printing and publishing Electrical trades Road transport Engineering Tanneries Food canning and preserving Tobacco Footwear Tramways Freezing-works Wholesale groceries Furniture Woollen-mills. (See Appendix for details of Local Committees.) In addition to these bodies (which are organized in the first instance by this Division), Man-power Officers have recourse to— (i) Primary Production Councils, which are organized by the Agriculture Department to deal particularly with problems arising in connection with farm production, including, of course, man-power problems ; and (ii) Building Committees, which are organized by the Building Controller on behalf of the Commissioner for Defence Construction. These deal with the problems of the building and constructional industries, again including man-power problems. All these bodies have played an important part in the harmonious development and application of measures for the re-organization and redistribution of industrial man-power. 5. ESSENTIAL INDUSTRIES AND UNDERTAKINGS The first measure of control to be given effect has been to declare a large number of industries and individual undertakings to be " essential" in terms of the new regulations. The conditions imposed by these declarations are briefly as follows : —■ (a) The employer may no longer terminate the employment of a worker except with the consent of a District Man-power Officer: (b) No worker is permitted to terminate his employment except with the consent of a District Man-power Officer : (c) Workers are protected against reductions in wage-rates, and are guaranteed a minimum weekly wage provided they are capable of work, available for work, and willing to perform any reasonable services required of them : (d) Penalties are, however, provided for absenteeism or failure to work with due diligence: (e) Employers are required to operate their plant to the full extent specified by Controllers. (These provisions are designed not only to reduce the loss of workers from industries which are important in war conditions, but also to ensure that the labour attached to these industries is fully and effectively used.)

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By the end of 1942 the coverage of these provisions had been extended to a point where some 230,000 workers were affected, or about one-third of the entire working population. The principal industries affected have been :— Mining Food processing Sawmilling Clothing and footwear Defence construction Provision of meals Railways Government departments Power supply Education Engineering and shipbuilding Hospitals, Fire Boards, sanitation. A fuller statement of this coverage is set out in the Ajjpendix. The farming industries have not, so far, been included, their omission being due to the difficulties which would arise from any attempt to apply the above conditions to these industries. It should be added that before any industry or undertaking is declared essential the views of the relevant Man-power Utilization Council and trade-union are obtained and considered. Evidence which has come to hand indicates that a very considerable redaction in the rate of labour turnover has been achieved by the adoption of these measures. Though more than 62,000 applications to terminate employment had been received by the end of March, 1943, these represent only a part of the total number of terminations which would otherwise have occurred, as many thousands of workers who would ordinarily have left their employment have not done so because they have realized that their applications would have little chance of success. Of the 62,000 cases where definite application was made, 8,400, or 14 per cent., were declined on investigation by District Man-power Officers. Of the cases where permission to terminate was granted— 22 per cent, transferred to another employer in the same industry ; 50 per cent, transferred to an employer in another " essential " industry ; 5 per cent, transferred to an employer in an industry which had not been declared essential; while 23 per cent, were lost to industry through ill-health, retirement, marriage in the case of women, &c. A large number of these terminations were from seasonal work, and were quite unavoidable. Many applications have been based on medical evidence, and where this has appeared to be satisfactory permission to terminate has been granted. Some medical evidence, however, has proved unsatisfactory, and arrangements for the setting-up of independent regular examining doctors have therefore been put in train. In the main, the decisions of Man-power Officers have been well received by both employers and workers. As against 61,000 decisions actually made by the 31st March, 1943, only 1,160 appeals had been received —i.e., 2 per cent, of the number of decisions. The administration of the regulations has been carried out with a wide exercise of discretion and the avoidance of harshness, and in the early period considerable leniency was allowed. Where young persons are affected, their long-range welfare has been given careful consideration. 6. REGISTRATION FOR WORK A preliminary step towards the transfer of individuals into essential employment has been the setting-up of registers covering those sections of the population from which it is desired to make a selection. The general plan has been to require persons of specified classes to register with the District Man-power Officer in whose district they normally reside. Twelve Registration Orders have been issued to the end of the period under review, these falling into two distinct classes : — (а) Occupational Registration Orders, which affect all civilians possessed of some particular type of skill or experience ; and (б) General Registration Orders, which cover specified age-classes of the civilian population. The occupational registration orders have covered : — Building and allied workers, Engineering workers, Timber workers, and Scientists and technicians, while the general registration orders have brought in the following classes in a series of progressive stages : — Men aged forty-six to fifty-nine inclusive, Male Aliens aged eighteen to forty-five inclusive, Women aged eighteen to thirty inclusive. As regards male British subjects aged eighteen to forty-five inclusive, their liability for military service overrides their liability for transfer into essential employment; those of them, however, who are found to be medically unfit for military service are deemed to be registered for employment, and details of these men are supplied to Man-power Officers. In the special case of the Scientists' and Technicians' Registration Order, the registration forms were concentrated in the office of the Director of Scientific Developments, and included details of members of the forces as well as of civilians possessed of scientific, engineering, and similar qualifications.

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As a result of ail the other registrations, Man-power Officers throughout the Dominion now have in their registers details of:— 184,000 men (including 69,000 unfit men aged eighteen to forty-five inclusive); and 110,000 women — i.e., 294,000 persons in all. A schedule giving fuller details of the various registration orders is set out in the Appendix to this report. In order to cut down the expenditure of work and paper involved in these registrations, each Order has provided for a series of exempted classes, these being in every case classes of persons who are already registered or are in the forces, or engaged in some definitely essential industry, or are for some other reason considered unsuitable for inclusion in the registration. A notable exempted class comprises married women with children, who were excluded from the Order covering women aged twenty-four to thirty. Though very extensive publicity has been given to each Order as it has been issued, it has been found in practice that there is always a margin of the population which refuses to meet the obligation to register. As the scope of industrial man-power control has been extended, an};- imagined advantage to be gained from failure to register has, of course, been curtailed, and no movement into any position can now take place without the person concerned coming under the notice of a Man-power Officer. Nevertheless, cases of failure to register are looked upon severely, and there have been a number of prosecutions to date for this offence. 7. DIRECTIONS INTO ESSENTIAL WORK From their pools of registered persons Man-power Officers have during the past year selected many tens of thousands of likely subjects for direction into essential work and have called these persons in for interview. Arising mainly from these interviews, a steady stream of directions has been given to men and women workers engaged in less-important occupations, as well as to persons not at the time in employment at all, to commence work with a specified employer engaged in some industrial activity which is essential in war conditions. By the end of March, 1943 — 25,013 directions had been given to men ; and 5,766 directions had been given to women — i.e., 30,779 directions in all had been given. Of all these directions, 3,261 were later withdrawn on a fuller examination of the circumstances, practically all the remaining directions being duly complied with. Only 1,079 appeals were lodged, this being rather less than 3 J per cent, of the number of directions given. Those were divided about equally between appeals from losing employers and appeals from the persons actually directed. Of the appeals dealt with by 31st March, 23 per cent, have been withdrawn, 33 per cent, have been uphold, while 44 per cent, have been dismissed. Many of the directions, particularly in the case of constructional workers and seasonal workers, have been of temporary application only, so that it cannot be said that the labour force in essential work has been augmented by any figure deduced from the number of directions given. On the other hand, there has been a very considerable voluntary drift of workers —particularly women workers —into essential work in advance of direction, and even in advance of registration. Administrative Policy. —In directing persons to work of national importance, the following main lines of policy have been followed : — (a) Persons have generally been directed only into those industries and undertakings which have actually been declared essential —i.e., into undertakings where the nature and conditions of work have been subject to examination, and where the whole labour force is subject to control under conditions in reasonable accord with those to which the directed person is subject in terms of the direction order : (b) The inflicting of any serious loss of income as a result of transfer has been avoided : (c) Regard has been had to the fact that certain industries, while not actually declared essential, are nevertheless of such importance that staff should not be directed away from them : (d) The inflicting of any excessive hardship on a particular undertaking in comparison with other similar undertakings by way of arbitrary and wholesale removal of staff has been avoided : (e) Transfers from work demanding a high degree of skill to work demanding a lower degree of skill are avoided where possible : (/) Regard has been had to the need to retain sufficient nucleus staffs within the field of lessessential industries to enable rapid expansion during the time of demobilization after the end of the war : ((j) Workers are directed from distant centres only when all local means of filling positions in urgent essential work have been exhausted. Where workers are transferred to employment away from their homes, and where removal, travelling, and separation expenses and allowances are not otherwise provided for, these expenses and allowances are met as a charge to War Expenses Account: (h) Industrial transfers initiated by Man-power Officers are carried out in harmony with the policy of Armed Forces Appeal Boards in the selective release of men to the forces and are designed where possible to facilitate such releases.

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It may be said in general that when a group is registered the early directions to work of greater mportance will affect only those persons in the group whose direction involves 110 undue disturbance of either their own affairs or those of their employers. When further groups have been registered and sifted to the same extent, the first group is re-examined with a view to securing a further yield from it. Such re-examinations result in the direction of further persons, with a gradually increasing incidence of disturbance and hardship in line with the increasing national need. Financial Assistance.—To the end of 1942 it was possible to meet the needs of essential industry mainly without recourse to directions involving loss of income. This policy has, however, left a considerable pool of persons in non-essential work who in all other respects are available for transfer. The further development of essential industries requires that this pool be drawn upon, and in December, 1942, the Government accordingly approved of the granting of financial assistance where the circumstances of a transferred worker might warrant this. At the end of the period under review this scheme was about to be put into effect. Classes directed.—The majority of directions to men have been given to engineering, building, and constructional workers, in order to move them into more urgent work in the trade to which they have been trained. Freezing and similar seasonal workers, often released from military camps for the purpose, have also formed a large proportion of the classes directed. In many cases men with skill or training of particular value in war conditions, such as coal-miners, sawmilling workers, and engineering and building tradesmen, have been found to bo working in jobs such as motor-driving, which are of less importance and which do not make full use of their skill. These men have, of course, been directed back into work in their own occupations. Up to the present time it has been found possible to avoid the enforcement of drastic changes of occupation on a large scale, such, for example, as the wholesale direction of white-collar workers into munition or other manual work, though in emergency conditions a number of temporary directions of this type have been resorted to. Great interest attaches to the mobilization of woman-power through the use of the machinery for registration and direction, for it is in this field that the greatest proportion of latent labour-power is to be found. Women are doing a magnificent war job. They are taking men's places on farms, in offices, on trains and trams, in motor-driving and mail deliveries, while in the secondary industries they form a large proportion of the staffs of engineering and munition plants, biscuit, clothing, and footwear factories, canneries, woollen-mills, and many others. Not by any means all of these women have had to be directed into war jobs ; many thousands have gone into them of their own accord. Various analyses of women registering and women actually under direction have shown, however, that there still remained a fair number of available women who had not entered any employment prior to their being compelled to do so, and Man-power Officers have not been slow in finding suitable work for these women. The remaining types of transfer brought about by Man-power Officers have involved a general migration from shops and less essential offices and factories into hospitals, transport services, essential office, factory, and other types of work. There is, however, the problem of accommodating women as well as other workers in the centres where the greatest demand for their services exists. Auckland, Wellington, and the Ilutt Valley are at once the busiest industrial areas, the most difficult labour supply areas, and the most difficult areas in which to obtain accommodation. To assist farmers during the mid-summer peak in farm activities an appeal was made to secondaryschool boys to accept work 011 farms during the summer vacation. Arrangements were further made for such boys to be exempted from school attendance during February if farm-work necessitated their continued assistance. Where boys could not make their own arrangements in regard to farm-work, schools and Primary Production Councils were asked to co-operate with departmental officers in placing them. The response from school-boys was extremely good, more than, five thousand accepting farm employment. In addition, parties of secondary-school girls assisted in fruit-picking activities, while in many cases teachers also took up work of national importance during the vacation. 8. RESTRICTION OF INFLOW INTO NON-ESSENTIAL WORK It will be of interest to place 011 record the following extract from a report submitted to War Cabinet in March, 1942 : — " The rapid drain of men from industry, as full-scale mobilization draws men into the forces, is setting up a high rate of circulation of workers. Employers in luxury and non-essential industries are enticing workers 011 a large scale from more essential industries. "As the available man-power resources shrink up on the one hand, while urgent war production is required to expand rapidly on the other hand, this practice of enticement is prejudicing the whole of the Dominion's war effort. " The most direct means to prevent the continuance of this spectacle is by the issue of a prohibition 011 selected industries and undertakings to prevent them from engaging labour without express authority to do so." The report goes 011 to point out that the problem of enticement arises particularly in those centres where shops, offices, and factories of every grade of essentiality are congregated together. In accordance with these recommendations, the Employment Restriction Order No. 1 was made on the 14th May, 1942, its application being limited to certain classes of shops and less-essential manufacturing concerns in all but one of the centres where Man-power Officers' headquarters are located, and also in a number of smaller centres where important industrial units are situated.

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Witli the further expansion of the coverage of declarations of essentiality, so as finally to leave little outside their scope which could be regarded as of fundamental importance other than the farming group and a few classes of casual work, it was decided in November, 1942, to extend the coverage of the Employment Restriction Order so as to make it apply to all work arising in the abovementioned centres which had not been declared essential, other than farming, market gardening, wharf work, nursing, and casual work lasting not more than three days. Up to 31st March, 1943, there had been approximately 12,000 applications lodged with Man-power Officers to engage workers in undertakings covered by these provisions, and while the majority of these wore granted, there were 867 cases where permission, was refused, and 359 of the workers who would have gone to non-essential work were diverted instead into essential work. Appeals against these decisions have numbered 2 only. 9. THE PROBLEM OE ABSENTEEISM It would be fruitless to impose obligations on employers in order to prevent the termination of employment in essential industries and to keep the plant operating at full capacity if workers were at the same time free to absent themselves at will. In order to bring this aspect home to the workers concerned, and to provide a means of reducing absenteeism, the Industrial Absenteeism Emergency Regulations were brought into effect on 20th May, 1942. These regulations impose the obligation on employers of notifying cases of absence without leave for four hours or more, or cases of persistent shorter absences. The first step taken by Man-power Officers in dealing with cases of alleged absenteeism is to investigate the complaint so as to ensure that genuine absenteeism without reasonable cause is in fact involved. Where this is found to be the case a warning is usually given where there has been no previous complaint, and if this warning is not effective a fine may be imposed. Up to the end of March, 1943, there had been 7,564 complaints of absenteeism lodged with Man-power Officers. In 1,427 cases these charges were found not to be well founded, 5,109 warnings were issued, and 424 fines had been imposed. (The remaining cases were still under action.) Women workers accounted for 2,736 of the complaints. 10. MOVEMENTS AS BETWEEN THE ARMED FORCES AND INDUSTRY With the up-swing of the seasonal industries during the spring of 1942 special provision had to be made for the manning of seasonal industries. Much of the seasonal labour force was by then in camp, and the man-power position in every field of industry was extremely difficult,. As there was no alternative, men had to be released from camp to man butter and cheese factories and freezing-works throughout the Dominion. In collaboration with the Army Department, arrangements were made in several cases for Man-power Officers to visit camps and select men on the spot for work of this nature. Recommendations for release were in such cases made subsequently by Armed Forces Appeal Boards after a fuller investigation of the individual circumstances. In other cases, such as for harvesting work, releases have been for very short periods only, and Appeal Board action has been unnecessary. Team work as between the Army authorities, Appeal Boards, and Man-power Officers has resulted in many difficult situations being avoided. With the recent survey and large-scale redistribution of man-power as between the Army, the Air Force, and industry, it has recently been decided that in future all applications for the release of men from camp shall pass through the hands of Man-power Officers, and several thousands of releases of Grade II men possessing skill or experience of particular industrial value have in fact been initiated by this Department and effected through Man-power Officers. Of the many thousands of applications from individual employers or men themselves, the only cases now being referred to Appeal Boards are those relating to men who are (or will soon become) eligible for overseas service—i.e., Grade I men aged twenty to forty inclusive. The remaining cases are dealt with entirely by Man-power Officers on the one hand and Army officers on the other hand. A new chapter in the activities of Man-power Officers has now been opened up with the supply to each Man-power Officer of details of all Grade I men aged twenty to forty inclusive and Air Force and Naval volunteers held back in his district from service with the forces, so that by means of the release of Grade II men from camp or otherwise the maximum possible number of these men can be made available to the forces through the provision of industrial replacements. By these means a planned attempt is being made to attain the twin objectives of securing the maximum benefit to industry from the release of men from the forces, while at the same time facilitating the supply to the forces of the maximum number of fighting men. 11. REVIEW OF INDUSTRIAL MOBILIZATION Looking back over the past eighteen months of development in the organization of industrial man-power control, and comparing the position of man-power in industry to-day with what it would have been in the absence of this sytem of control, it is not difficult to realize that neither the present magnitude of the forces supported by this Dominion nor the large and expanding volume of output from her war: industries could have been attained without the assistance of some such measures as those which have actually been adopted. To have discriminated among individual men called up for military service, so as to take only those who could be spared without injury to fundamentally necessary industrial activities, was a vast improvement on any indiscriminate system of recruiting for the armed forces. But this step alone

47

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could not have mobilized the remainder of the labour force for war work and brought forth from the leisured population its idle but available members as has been done through the operation of the present system. Though there have been many improvements and adjustments in points often of major importance to the working of the whole system, it cannot be claimed that there remain no further unsolved problems. Reference has already been made to the difficulties and hardship involved in directing workers to undertake work at a rate of pay below that to which they have become accustomed, and also to the embarrassments arising out of trying to deal with applications based on unsatisfactory medical evidence ; in each of these cases a new plan is at present in the course of adoption in an attempt to meet the problem. No fully satisfactory solution to the accommodation difficulty has yet been found. Though much new accommodation has been provided in the centres where war industries have undergone the most rapid expansion, there still remain many pools of unused woman-power in areas where there is no labour shortage, and these resources cannot be tapped until such time as further accommodation becomes available in the more difficult labour supply areas. Another problem which will recur with added difficulty while the war continues is that of findiug a sufficient supply of seasonal labour at the right time each year to meet the demands of the shearing, harvesting, and food-processing industries. New Zealand is far more subject to this particular difficulty than are many of the older and more industrially-developed countries. The conditions of war impose peculiar and unexpected demands upon working populations throughout the world. In peacetime, and apart from seasonal movements, the distribution of skill groups needed among the various industries is subject only to slow change and adjustment, but in war the whole emphasis of urgency and priority is thrown on a few industries only, while the remainder aro suddenly subordinated, so that whole migrations of workers from industry to industry become an inherent feature in the larger picture of the country at war. On the extent to which these migrations are facilitated in wartime, and later reversed or compensated when the time for demobilization comes, depends much of the success and efficiency of attempts to reach other and greater objectives of policy. PART lI.—EMPLOYMENT PROMOTION 12. EMPLOYMENT PROMOTION SCHEMES As indicated earlier in this report, the Employment Division has been absorbed by the Man-power Division of the Department and the administration of the Employment Promotion Schemes, which are under the control of the Hon. the Minister of Labour, is now undertaken by the District Man-power Officers. The following statement shows the operations of the various schemes for the period from Ist April, 1942, to 31st March, 1943. Description of Schemes. —Scheme No. 4b : Under this scheme subsidies up to 75 per cent, of the wages-cost were provided for the employment of registered and eligible unemployed men on a contract basis for the improvement and development of farm lands. The scheme was suspended during November, 1941, but current contracts were permitted to continue. With the increased shortage of man-power generally, however, this scheme was terminated from the 31st December, 1942. During the past financial year contracts in respect of which subsidies were paid under this scheme have produced the following results : — Estimated stock increase— Sheep .. .. .. .. .. .. .. 14,000 Cattle .. .. .. .. .. .. 2,418 Work completed— Scrub-cutting .. .. .. .. .. .. 13,035 acres. Gorse-grubbing .. .. .. .. .. 4,248 acres. Stumping .. .. .. .. .. .. 5,751 acres. Bush-felling .. .. .. .. .. .. 494 acres. Drain digging, deepening, and widening .. .. .. 6,581 chains. Fencing .. .. .. .. .. .. 6,540 chains. Scheme No. : This scheme provides subsidies for twelve months on the basis of £1 10s. per week for the first six months and 15s. per week for the second six months in respect of the employment of inexperienced labour on operational farm-work. In addition, a house-allowance of £1 per week is payable in the case of married workers (whether experienced or inexperienced) where married accommodation is not available and the worker is consequently required to be separated from his wife and family. Up to the 3rd April, 1943, a total of 1,293 inexperienced farm hands had been placed under this scheme for training, and in an additional 245 cases house-allowance had been paid. Of the whole number placed, only 4 were still employed on subsidized employment at the 3rd April, 1943. Scheme No. 13 : This scheme provides for the full-time employment at award rates with local bodies and other employing authorities of registered and eligible men. During the year there has been continuous combing out of all men believed fit for the great variety of light tasks which war-time conditions provide. As a result many men who, after medical examination, were considered unfit and who considered themselves unfit for any form of normal employment have gone to and remained in unsubsidized employment of the lighter types. At 3rd April, 1943, only 636 men remained in employment under this scheme. These men represented cases of visible handicap, medical disability, advanced age, or failing powers, and all except a negligible proportion had dependants. It is considered that, denied work, many of these

48

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men would deteriorate, whereas steady employment and the difference between social security benefit and award rates of pay enable them to maintain their health and a reasonably contented psychology, to provide a somewhat improved standard of comfort for their dependants, and to render useful service to the community. The numbers of men engaged in each main class of work are :— Streets, roads, and reserves .. .. .. .. .. .. 352 River-protection .. .. . . . . . . .. .. 8 School-ground improvements .. .. .. . . . . .. 15 Vegetable-production .. .. .. .. .. .. ..179 Recovery of essential war materials .. .. .. .. 18 Miscellaneous .. .. .. .. .. .. 64 636 The following table shows the classification by age-groups of those employed : —

More than 90 per cent, of these men are classed as unfit for heavy manual work.

Scheme No. 16 (Subsidized Apprentices in Building Trade) : Since this scheme commenced in September, 1937, some 631 apprentices and 128 trainees have been placed, the position regarding these contracts on the 3rd April, 1943, being as follows

Scheme No. 16 a (Subsidized Workers in Boot-manufacturing Industry) : A total of 29 men have been engaged under this scheme since its commencement in August, 1939, 4 of these contracts being in operation on 3rd April, 1943, 17 having terminated and the remaining 8 having expired. Numbers em-ployed under the above Schemes. —The following table shows the numbers of men engaged under the various schemes in full-time subsidized employment at approximately quarterly points of time from January, 1942, to April, 1943 : —

Rabbit-extermination : To obviate the necessity for continued subsidies to encourage " summer " rabbiting, the Sale of Rabbit-skins Emergency Regulations 1942 were passed on the 15th April, 1942. The main purpose of these regulations is to provide a scheme, by means of a system of levies and subsidies, whereby persons engaged in the destruction of rabbits will obtain approximately the same return from summer killing as from winter killing, and in this way it is hoped to defeat the instinct to " farm " rabbits in summer for the sake of their greater winter value. Financial.—Provision for expenditure incurred in the promotion of employment is subject to appropriation by Parliament in terms of the Public Revenues Act, 1926, and during the year under review the sum of £263,500 (gross) was appropriated from the Consolidated Fund under vote, " Labour," for this purpose.

7—H. 11A

49

Age .. .. .. . . 20-24. 25-29. 30-34. 35-39. 40-44. 45-49. 50-54, 55-59. 60 and , AU ° over. Ages. . - - ' Number .. .. .. 6 10 9 18 51 52 116 174 200 636 Percentage .. .. 0-9 I 1-6 } 1-4 2-8 8-0 8-2 18-2 27-4 31-5 100-0' I I j

Carpenters. — Bricklayers. Total. ! Apprentices. Trainees. Contracts in operation .. .. .. 1 . . .. 1 Contracts suspended .. .. . . 214 14 7 235 Contracts terminated .. .. .. 185 81 4 270 Contracts completed .. . . . . 198 28 12 238 Contracts cancelled . . .. . . 9 5 1 15 Totals .. .. .. .. 607 128 24 759

Scheme Scheme Soheme Scheme Scheme T , , Uate - No. 4b. No. 4f. No. 13. No. 16. No. 10a. 10taL 1942 lOth January .. .. .. 528 124 3,703 76 11 4,442 4th April .. .. .. 194 70 2,092 47 10 2,413 27th June .. .. .. 50 42 1,401 18 10 1,521 19th September .. .. .. 30 20 1,110 4 7 1,171 12th December .. .. .. 20 16 790 4 8 838 1943 3rd April . . . . .. . . 4 636 1 4 645

H.—lla

The amount appropriated included £12,500 (gross) to cover the administration expenses of the Employment Division, which were met by vote, " National Service," in the first instance and subsequently recovered from vote, " Labour." The net payments during the year ended 31st March, 1943, and corresponding figures for the previous year, including administration expenses, were as follows :— 1942-43. 1941-42. Employment Promotion Schemes— £ £ Scheme No. 4b .. .. .. 19,441 158,206 Scheme No. 4f .. .. .. 985 8,863 Scheme No. 13 .. .. 329,509 1,095,770 Scheme No. 16 .. .. .. 637 4,422 Scheme No. 16a .. .. 485 606 Insurance of workers .. .. 218 657 Transport of workers .. .. 831 1,042 Youths' farm settlement .. .. 384 345 Rural housing bonus .. .. 3,438 15,376 Assistance to flax industry .. .. 4,052 Miscellaneous .. .. .. 1,699 3,145 361,679 1,288,432 Administration expenses .. .. .. 12,500 97,162 £374,179 £1,385,594 It will be seen from the above statement that the expenditure under the employment promotion schemes during the year ended 31st March, 1942, was £1,288,432, as compared with £361,679 during the year under review, a reduction of £926,753. Notwithstanding this substantial reduction in expenditure as compared with the previous year, the amount provided in the estimates was overexpended to the extent of £111,679. When the estimates were prepared it was anticipated that the amount of £250,000 net would be sufficient to provide subsidized employment for the continually reducing numbers of men who could not be placed in unsubsidized employment, but, although every endeavour was made to transfer to unsubsidized employment every man who was physically capable of performing useful work, it was found to be impracticable, for the reasons mentioned above, to reduce the numbers of men employed under the schemes to such an extent as to enable the expenditure to be kept within the limits of the amount appropriated.

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APPENDIX TO THE REPORT OF THE INDUSTRIAL MAN-POWER DIVISION CONTENTS

51

Table No. | Subject-matter. Page. Section I Man-power Utilization Councils and Local Committees 1 Schedule of Local Committees attached to the various Councils .. .. 52 Section II Essential Industries and Undertakings 2 Estimated Coverage of Declarations of Essentiality .. .. .. .. 53 3 Terminations of Employment in Essential Industries and Undertakings .. 53 Section III Registrations for Work op National Importance 4 Schedule of Registration Orders .. .. .. .. .. .. 54 5 Results of Registrations: Males .. .. .. .. .. .. 54 6 Results of Registrations: Females .. .. .. .. .. 55 7 Occupational Analysis of certain Classes of Women .. .. .. 55 Section IV Directions into Essential Work 8 Results of Directions given .. .. .. .. .. .. 56 9 Appeals arising from Directions .. .. .. .. .. .. 56 10 Monthly Progress of Directions .. .. .. .. .. .. 56 11 Monthly Increase in Appeals .. . . .. .. .. .. 56 12 Redistribution of Woman-power by Direction into Essential Work . . .. 57 13 Inflow and Outflow of Labour through Government Youth Centres .. .. 58 Section Y Application of Industrial Absenteeism Regulations 14 Table showing Results of Application of Industrial Absenteeism Regulations .. 58 Section VI Survey of Wage Rates and Trends 15 Relation between Award Rates, Ruling Rates, &c., in 1939, 1941, and 1942 .. 59 16 Movements in Award Rates, Ruling Rates, &c., since 1939 .. .. .. 60

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SECTION I.—MAN-POWER UTILIZATION COUNCILS AND COMMITTEES Table 1. —Schedule of Local Committees attached to the various Councils

(Position as at 31st March, 1943) Industries for which Dominion Locations of Local Committees attached to each Councils have been set up. Dominion Council. Baking trades .. .. .. Nil. Biscuit-manufacture .. .. .. Nil. Butter and cheese .. .. .. Nil. Clothing-manufacture .. .. .. Auckland, Wellington, Christchurch, Dunedin. Coal-gas .. .. .. .. Auckland, Wellington, Christchurch, Dunedin. Electrical trades .. .. .. Auckland, Wellington, Christchurch, Dunedin. Engineering .. .. .. .. Auckland, Wellington, Christchurch, Dunedin, Whangarei,. Hamilton, Thames, Gisborne, Napier-Hastings, New Plymouth, Wanganui, Palmerston North, Nelson, Westport, G-reymouth, Timaru, Invercargill. Pood canning and preserving .. .. Nil. Pootwear-manufacture .. .. Auckland, Wellington, Christchurch, Dunedin. Freezing-works .. .. .. Auckland, Wellington, Christchurch, Dunedin, Gisborne.. Furniture-manufacture .. .. Auckland, Wellington, Christchurch, Dunedin, Hamilton,, Gisborne, Napier, New Plymouth, Wanganui, Nelson,. Timaru, Invercargill. Laundries .. .. .. .. Auckland. Motor trades .. .. .. Auckland, Wellington, Christchurch, Dunedin, Whangarei,. Hamilton, Thames (including Paeroa), Rotorua, Gisborne, Napier, New Plymouth, Wanganui, Palmerston North, Masterton, Nelson, Greymouth, Timaru, Invercargill. Optical trades .. .. .. Nil. Plumbing trades .. .. .. Auckland, Wellington, Christchurch, Dunedin. Printing and publishing .. .. Auckland, Wellington, Christchurch, Dunedin, Hamilton,, Gisborne, Napier-Hastings, New Plymouth, Wanganui, Palmerston North, Timaru, Invercargill. Road transport .. . . . . Auckland, Wellington, Christchurch, Dunedin, Whangarei,. Hamilton, Paeroa, Rotorua, Gisborne, Napier, New Plymouth, Wanganui, Palmerston North, Masterton,. Nelson, Westport, Greymouth, Timaru, Invercargill. Tanneries .. .. .. .. Nil. Tobacco-manufacture .. .. .. Wellington, Napier. Tramways .. .. .. .. Auckland, Wellington, Christchurch, Dunedin, New Plymouth, Wanganui, Invercargill. Wholesale grocery trade :. .. Auckland, Wellington, Christchurch, Dunedin, New Plymouth, Napier,- Invercargill. Woollen-mills .. .. .. (Local committees being set up.)

H. —11a

SECTION II.—ESSENTIAL INDUSTRIES AND UNDERTAKINGS Table 2.—Estimated Coverage of Declarations of Essentiality

Table 3. —Termination of Employment in Essential Industries and Undertakings

B—H. 11A

53

(Position as at 31st December, 1942) Number of Workers affected. Industrial Group. fWerin-p Males. Females. Coverage. Primary industries — Sawmilling .. .. .. .. .. 7,960 101 8,061 Mining (including coal) and quarrying .. 6,165 8 6,173 Building, construction, and allied industries — Defence (including hospital) building and construction, and allied 14,210 88 14,298 industries Transport— Railways and certain motor-transport services, including maintenance 38,523 3,538 42,061 Gas and electricity supplyProduction and supply of gas and electricity, including maintenance 5,704 666 6,370 Secondary industries — Engineering (including munition-manufacture) .. .. .. 9,546 3,159 12,705 Shipbuilding and ship-repairing .. .. .. .. 2,403 130 2,533 Pood-manufacture (including butter, cheese, moat, and other food 25,428 3,989 29,417 canning, preserving, and processing) Clothing-manufacture .. .. .. •• •• 1,974 11,629 13,602 Other essential secondary industries .. .. .. .. 19,787 9,691 29,478 Public administration and professional — Government Departments (not including defence construction, 26,400 12,149 38,549 railways, or teaching) Education (public and private) .. .. .. .. 4,071 7,381 11,452 Other essential services— Hospitals, Eire Boards, sanitation, &c. .. .. .. 4,994 10,319 15,313 Accommodation and meals .. .. .. .. .. 3,454 8,747 12,201 Miscellaneous essential undertakings .. .. .. •• 3,146 282 3,428 Total .. 173,765 71,876 245,641

Applications from Results of Applications received : Position as at 31st March, 1943. Total. Employers. Employees. Total number of applications received up to 31st March, 1943 .. 20,742 41,552 62,294 Of these applicationsNumber subsequently withdrawn .. .. .. 165 563 728 Number in which permission to terminate employment was refused 955 7,447 8,402 Number in which permission to terminate employment was granted 19,473 33,044 52,517 Number still under action on 31st March, 1943 .. .. .. 149 498 647 Percentage of refusals to cases dealt with .. .. .. •• 4J5 18- .1 13-6 Number. Percentage of those traced. Of all cases in which permission was granted—■ Transfers to another employer in the same industry accounted for .. . . 9,912 21-9 Transfers to an employer in another " essential " industry accounted for .. 22,832 50-6 Transfers to an employer in an industry not declared essential.. .. .. 2,134 4 • 7 Losses to industry through ill health, retirement, marriage (of women), &c., 10,276 22-8 accounted for Cases untraced at close of period .. .. .. .. •. • • 7,363 Totals 52,517 100-0 Appeals from Total. Employers. Employees. Appeals arising from the above decisions — Total appeals lodged up to 31st March, 1943 . . .. .. 252 908 1,160 Percentage of appeals to applications dealt with by 31st March, 1943 1-2 2-2 1-9 Disposal of appeals — Withdrawn . . . . .. .. • ■ • • 58 155 213 Upheld .. .. .. .. •• .. 46 253 299 Dismissed .. .. .. . ■ • ■ • • 136 436 572 Awaiting hearing at close of period .. .. .. 12 64 76 Percentage of appeals upheld to total appeals determined .. 19 -2 30'0 27 -6

II.—11A

SECTION III.—REGISTRATION FOR WORK OF NATIONAL IMPORTANCE Table 4. —Schedule of Registration Orders

Table 5.—Results of Registrations: Males

54

Name of Order. Date. Reference Classes covered.* The Registration for Employment Order No. 1.. 18/3/42 1942/71 Men aged 46-49 inclusive, and women aged 20-21 inclusive. The Building and Allied Trades' Workers' Regis- 18/3/42 1942/72 Men with experience in building and contration Order 1942 struction, aged .18-70 inclusive. The Metal Trades' Workers' Registration Order 18/3/42 1942/73 Men with experience in engineering and 1942 metal trades, aged 18-70 inclusive. The Registration for Employment Order No. 2. . 8/4/42 1942/97 Men aged 50 but not 51. The Timber-workers' Registration Order 1942 .. 7/5/42 1942/130 Men with experience in the timber industry, aged 18—65 inclusive. The Registration for Employment Order No. 3.. 15/7/42 1942/218 Women aged 22 25 inclusive, resident in boroughs of Hamilton and Cambridge. The Registration for Employment Order No. 4.. 3/8/42 1942/239 Women aged 22-23 inclusive. The Registration for Employment Order No. 5.. 24/9/42 1942/281 Women aged 24-30 inclusive. The Registration for Employment Order No. 6. . 8/10/42 1942/291 Men aged 51-59 inclusive. The Registration for Employment Order No. 7.. 8/10/42 1942/292 Aliens aged 18-45 inclusive. The Scientists and Technicians Registration 3/2/43 194-3/14 Persons with qualifications or experience Order 1943 in science or engineering. The Registration for Employment Order No. 8 18/2/43 1943/24 Women aged 18-19 inclusive. * Except in the case of the Scientists and Technicians Order, exempted classes were provided for in each case, including, inter alia, persons already registered, members of the forces, invalids, and other classes definitely unavailable for direction into (other) employment.

(Excluding results of scientists and technicians registration) Class of Men registered. Total Man-power District. Other Men registered. Building, <fec., Metal- Limber- . . , A at * Workers. workers. workers.* ions. 40-59 Years)!Whangarei .. .. 568 381 232 792 64 2,037 Auckland .. .. 5,743 4,847 455 12,928 512 24,485 Hamilton .. .. 1,512 972 830 2,154 61 5,529 Paeroa .. .. 314 346 85 1,213 53 2,011 Rotorua .. .. 670 380 733 1,350 32 3,165 Gisborne .. .. 549 297 106 1,106 24 2,082 Napier .. .. 932 497 231 2,861 29 4,550 New Plymouth .. 862 370 152 2,148 55 3,587 Wanganui .. .. 970 495 353 1,526 32 3,376 Palmerston North .. 1,217 616 242 2,022 71 4,168 Masterton .. .. 427 136 93 1,187 49 1,892 Wellington* !! " } 5,000 4,533 180 9 ' 796 586 20,095 Nelson .. .. 848 602 358 1,402 15 3,225 Westport .... 83 53 72 219 9 436 Greymouth .. .. 334 332 682 834 38 2,220 Christchurch .. .. 3,404 3,226 236 6,401 115 13,382 Timaru .. .. 869 550 105 2,346 38 3,908 Oamaru .. .. 220 117 5 622 20 984 Dunedin .. .. 1,982 2,135 171 4,046 90 8,424 Invercargill .. .. 964 649 559 3,020 24 5,216 Whole Dominion .. 27,468 21,534 5,880 57,973 1,917 114,772 Number or metal-workers registered who were not then engaged in metal trades.. .. 2,959 Number of building, &c., workers registered who wore not then engaged in building, &c.. . 4,941 Number of timber-workers registered who were not then engaged in timber industry .. 1,256 Number of men aged fifty-one to fifty-nine who at time of registration were not in any employment.. .. .. .. .. .. .. .. .. 2,447 * The figures relating to timber-workers and aliens are particularly affected by the prior inclusion of large numbers of men in these classes in previous registrations. f The class " Other men " includes men aged forty-six to fifty-nine with the addition of a small proportion outside those ages who registered voluntarily.

lI.—IIA

Table 6.—Results of Registrations: Females

Table 7. —Occupational Analysis of certain Classes of Women at Time of Registration

Notes. —(i) It should be noted that members of the armed forces, hospital employees, and invalids were exempted from the obligation to register. (ii) The three figures marked with an asterisk (*) contain arbitrary allowances to cover deficient data.

55

Age 24-30 Years. Man-power District. 18-19 Years. Years. ~ T Married" no otherB -* registered. | Children! Whangarei .. 718 1,183 454 290 651 3,296 Auckland .. .. 4,066 8,088 4,339 3,082 3,855 23,430 Hamilton .. .. 1,344 2,752 869 634 1,172 6,771 Paeroa .. .. 486 740 411 218 448 2,303 Rotorua .. .. 470 1,055 368 266 118 2,277 Gisborne .. .. 458 756 379 209 344 2,146 Napier .. .. 845 1,384 727 383 602 3,941 New Plymouth .. 889 1,824 715 484 621 4,533 fWanganui.. .. 532 1,157 625 374 107 2,795 Palmerston North .. 954 1,913 886 605 490 4,848 Maeterton.. .. 402 809 395 233 113 1,952 Lower Iiutt .. 423 415 435 495 541 2,309 Wellington.. .. 2,332 5,174 2,656 1,919 247 12,328 fNelson .. .. 323 735 567 452 51 2,128 Westport .. . . 125 224 65 46 52 512 Greymouth .. 331 515 302 211 173 1,532 Christchurch .. 2,916 5,288 2,714 1,906 1,227 14,051 Timaru .. .. 786 1,530 891 348 361 3,916 Oamaru .. .. 197 387 234 130 157 1,105 fDunedin .. .. 1,656 3,528 1,922 951 1,150 9,207 In ve reargill .. 1,183 1,865 944 510 621 5,123 All districts .. 21,436 41,322 20,898 13,746 13,101 110,503 * The item " Others" includes a number of married women with children and women over age thirty who registered voluntarily, t The figures for Wanganul, Nelson, and Dunedin contain arbitrary allowances to cover deficient data.

Women Womon a S ed 24-30. Women Women a 8 ed 24-30. Occupational Group. aged Occupational Group. aged 20-21. Single. Married. 20-21. Single. Married. Living at Home (not otherwise em- Transport (not office workers) — ployed)— . Railways .. .. .. f 31 13 Cities and towns .. .. 2,569* 1,781 5,154, Tramways .. .. .. I J 29 24 Country areas .. .. .. 2,048* 1,095 1,786 Motor-drivers.. .. [ ) 52 29 Others .. .. .. J (. 6 3 Sub-total .. .. .. 4,017 2,876 6,940 Percentage of finai total .. 21*5 13*8 50-5 Sub-total .. .. .. 75 118 69 Percentage of final total .. 0-4 0-6 0-5 Professional — Teachers .. .. .. 798 991 202 Shop Workers n.e.i.— Nurses and dental nurses .. 882 978 200 Shop-assistants .. .. 2,042 1,978 1,015 Other professional .. .. .. 236 48 Hairdressers, beauty parlours, &c. 186 298 115 Students .. .. .. 350 . . . . Commercial artists, florists, and 197 122 53 others (skilled) » Sub-total.. .. .. 2,030 2,205 450 Sub-total .. .. 2,425 2,398 1,183 Percentage of final total .. 9-5 10-5 3-3 Percentage of final total .. 11-3 11-5 8-6 Office Workers — Hotels, Domestic, and Catering— Typists .. .. .. 1,981 1,337 434 Hotels and restaurants.. .. 728 1,159 406 Telephone and exchange .. 255 177 54 Private domestic .. .. 1,466 1,609 330 Other office ... .. .. 2,705 3,396 1,396 — — Sub-total .. .. 2,194 2,768 736 Sub-total.. .. .. 4,941 4,910 1,884 Percentage of final total .. 10-2 13-2 5-3 Percentage of final total .. 23'0 23-5 13-7 — Others — Secondary Industrial (not included Farm workers .. .. 940 1,420 545 above) —■ Others employed .. .. 330 616 235 Food and drink .. .. 474 447 215 Textile and clothing .. .. 2,406 2,032 915 Sub-total .. .. 1,270 2,036 780 Footwear .. .. .. 246 179 111 Percentage of final total .. 5--9 9-7 5-7 Printing, publishing, stationery . . 207 132 61 Other industrial .. .. 566 797 402 Final total .. .. 21,451 20,898 13,746 Sub-total.. .. .. 3,899 3,587 1,704 Percentage of final total 18-2 17-2 12-4

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SECTION IV.—DIRECTIONS INTO ESSENTIAL WORK

Table 8. —Results of Directions given

Table 9. —Appeals arising from Directions

Table 10.—Monthly Progress of Directions

Table 11. —Monthly Increase in Appeals

56

Directions to— Position as at , , 31st March, 1943. 10UU ' j Males. Females. Total directions given 25,013 5,766 30,779 Of these, number— Withdrawn .. 2,402 859 3,261 Complied with .. 21,705 4,396 26,101 Not complied with '294 119 413 to date Result not yet 612 392 1,004 known ——— Percentages — Withdrawn .. 9-6 14-9 10-6 Complied with .. 86-8 76-2 84-8 Not complied with 1-2 2-1 1-3 to date Result not yet 2-4 6-8 3 • 3 known I

Appeals from—• Position as at , 31st March, 1943. T I „ ' iotal - ' Losing j .Persons Employers. [ directed. Total appeals received 584 4-95 1,079 Of these, number— Withdrawn .. 127 112 239 Dismissed .. 255 190 445 Upheld .. .. 181 149 330 Not yet heard .. 21 44 65 Percentages — Withdrawn .. 21-7 22-6 22'2 Dismissed .. 43-7 38-4 41-2 Upheld.. .. 31-0 30-1 30-6 Not yet heard .. 3-6 8-9 6-0

(June, 1942, to March, 1943) Directions to— Total Period. Directions Males. Females. given. Total up to 30th June, .4,066 475 4,541 1942 Increase during — 1942 July .. .. 1,4-05 389 1,794 August .. .. 1,479 370 1,849 September .. 1,654 499 2,153 October.. .. 1,768 388 2,156 November .. 2,783 537 3,320 December .. 3,632 488 4,120 1943 January.. .. 3,327 685 4,012 February .. 2,076 675 2,751 March .. .. 2,823 1,260 4,083 Total up to 31st 25,013 5,766 30,779 March, 1943

(June, 1942, to March, 1943) Appeals from— Total Period. 1 A PP. ea1^ Losing Persons received. Employers. directod. Total up to 30th June, 152 59 211 1942 Increase during— 1942 July .. .. 54 23 77 August .. 50 50 100 September .. 33 23 56 October.. .. 18 27 45 November .. 44 70 114 December .. 49 54 103 1943 January .. 72 59 131 February .. 56 56 112 March .. .. 56 74 130 Total up to 31st 584 495 1,079 March, 1943

H.—lla

Table 12. —Redistribution of Woman-power by Direction into Essential Work The following table shows an analysis of the changes in employment brought about in 1,409 cases of women under direction on 15th October, 1942 :—

57

Group into which placed. i t~T~i t ~l~t * X §s ° 1,0 1 a is .9 S § Industrial and Occupational § ■§, 8 rS S S 1 • — c ® _o Group. ° o£,|Jj£fg| | || 1 ? ° . i t I ! | i« +3 r-Hr-_ T* H 0> "O 3> o a -a -c^ - 4 I ■« -2 9 ™ Pn .8 ,g o<o £ Sc Js# £ , "3 d " " « -e « a 3 •§ § 3 J 3 O § "2 s & 8 8 'Bef "3 H J § "3 | £° "S 1 Q -§ fe g« 1 J e a J- I N 5 I WH m M M wcoOOM HQ OH Group from which withdrawn— Farming .. .. 2 .. 2 1 1 1 1 g Transport and communica- .. 1 1 i 3 tion Industrial— Engineering .. .. .. 1 3 5 5 1 5 l 21 Food and drink 4 18 7 2 1 7 2 41 Clothing and footwear .. 2 7 7 196 5 4.. .. 5 14 2.. 2 244 Other specified 7 3 16 6 1 3 l 37 Unspecified .. .. .. 1.6 3 9 4 10.. .. 1 2 2 .. .. 38 Shops and warehouses .. 1 4 76 9 26 3 4 2 .. 53 26 6 1 211 Offices— Typists .. 6 40 13 59 Others .. .. .. 1 26 .. 1 .. 2 .. 2 67 4 ..... 3 106 Hospitals, mental hospitals .. .. 1 1 4 1 22 1 30 Hotels, restaurants 13 8 12 3 1 9 23 69 Domestic duties, and those 4 5 136 49 101 12 23 6 68 51 47 5 4 511 not employed Others .. .. .. 1 8 4 4 1 1 .. .. 5 4 3 .. .. 31 Total .. .. 7 16 295 108 382 37 46 2 48 216 149 88 5 10 1,4-09 Net movement „ —1 +13 \+274+67 +138 .. +8 -209-11 +110+119+19 -506 —21

H. —11A

Table 13. —Inflow and Outflow of Labour through Government Youth Centres during Three-monthly Period from 1st December, 1942, to 28th February, 1943

Note. —The total inflow to Youth Centres from schools during the above period—i.e., 1,156 males plus 1,274 females —may be compared with the corresponding total outflow from all schools throughout the Dominion at the end of the school year, of some 11,000 males plus 11,000 females, roughly one-third of whom are located in the four main centres.

SECTION V.—INDUSTRIAL ABSENTEEISM Table 14.—Table showing Results of Application of Industrial Absenteeism Regulations

Note. —There have been 16 appeals lodged against the imposition of fines —i.e., 4 per cent, of these cases. Of these appeals, 6 were dismissed, 7 were successful, and in 3 cases the fine was reduced.

58

Inflow to Centre from — Outflow from Centre. p , Total Industries, . " Primary Inflow. Temporary Permanent Centre. School?' Schools. Placings. Placings. i M. F. | M. F. M. F. M. F. M. F. M. F. Auckland .. 217 182 532 550 89 74 838 806 302 169 352 405 Wellington .. 157 221 130 166 38 36 325 423 10 14 295 379 Christchurch .. 74 94 109 138 63 70 246 302 2 3 258 298 Dunedin .. 32 84 148 187 47 53 227 324 116 37 87 211 Totals .. 480 581 919 1,041 237 233 1,636 1,855 430 223 992 1,293

(Position as at 31st March, 1943) Total Number of Complaints of Absenteeism received by Man-power Officers up to 31st 7,564 March, 1943 Number. Percentage. Analysis of these complaints — (а) Complaints relating to male workers employed in—• (i) Mines and sawmills .. .. .. • • 1,931 25 • 5 (ii) Construction .. .. .. .. • • 430 5 • 7 (iii) Transport and power-supply . . .. . . 183 2 • 4 (iv) Engineering and munitions .. . . .. 558 7 • 4 (v) Food-manufacture .. .. .. .. 574 7-6 (vi) Other occupations.. .. .. . • • • 1,152 15 • 2 Total complaints relating to male workers .. 4,828 63 • 8 (б) Complaints relating to female workers .. .. .. 2,736 36-2 Total of all complaints .. .. .. .. 7,564 100-0 Results of investigations by Man-power Officers — Allegation of offence not substantiated .. .. .. 1,427 20 • 5 Warning given to worker concerned .. .. .. .. 5,109 73-4 Pine imposed .. .. .. •. • • • • 424 6 • 1 Total dealt with by 31st March, 1943 .. .. .. 6,960 100-0 Action not complete at 31st March, 1943 .. .. .. 604 Total .. •• 7,564

H.—ll a

I I ' • I I Labour Inspeetors^t^oughou^th^^ominio^^ 6^ -rates applicable to ordinary time, and excludes any reference to overtime. The data was collected in the first instance from wage - books by (ii) The figures in bold type are unweighted averages covering the whole group of occupations.

SECTION VI.—SURVEY OF WAGE RATES AND TRENDS Table 15.-Relation between Award Rates, Ruling Rates, and Highest Rates on 30th September, 1939, 1941, and 1942, respectively

59

(The figures shown in this table are index numbers based in each case on an award rate of 100-0 on 30th September of the year under review.) 1939. 1941. 1942. ; Number of Occupation. Employers j j—; j Inspected. Award Ruling Highest Award ; Ruling Highest Award Ruling Highest Rate. Rate. Rate. | Rate. | Rate. j Rate. Rate. Rate. Rate. Adult Men — Truck driver 6 ' " 31 10 °'° 100 ' 3 101-4 100-0 100-7 101-6 100-0 101-4 l 03-0 Mechanic (A Grade! 57 100-0 100-9 104 '° 100 '° 102-5 105-7 100-0 102-6 106-8 Electric wireman 78 100-0 102-1 108-6 100-0 102-0 111-6 100-0 102-6 112-4 StAewXkZlhM 55 100-0 101-5 109-8 100-0 102-2 110-8 100-0 103-4 113-8 Fitter 42 100-0 101-7 101-7 100 -0 100-8 100-8 100-0 101-5 101-5 Carnnnter " " " " " " " 59 100 ' 0 100 ' 8 109-9 100 '° 100-7 I 10 ' 1 100-0 101-4 112-4 Buifdine labourer " " " " "" "" 77 100-0 100-7 107-4 100-0 102-1 107 " 7 1°°"° 106 '1 112 ' 2 Baker 69 100-0 100 ' 9 107-1 100-0 101*7 105-9 100-0 106-5 112-1 Buttermaker (first assistant! 62 100-0 102-0 105-1 100-0 102-2 106-2 100-0 102-7 109-1 hand fbutttr r In ! 32 100 -° 100-8 102-2 100-0 100-9 101-9 100-0 100-8 101-6 SerSiitf J 39 100-0 100-0 100-1 100-0 100-2 100-2 100-0 100-6 100-7 Boot operadve toakir,;! 24 100 '° 101-0 110-8 100-0 104-5 112-9 100-0 106-5 117-8 Wood-sawver (first breast he hY " " " 24 100-0 101-6 109-8 100-0 103-9 110-1 l 00 " 0 105-2 115-6 Boxmaker - (wood) bench ) •• ■■ .. .. 44 100-0 104-5 111-9 100-0 106-3 113-4 100-0 108-1 116-2 Compositor " 27 100-0 100-9 103-4 100-0 101-6 104-1 100-0 101-6 106-3 Oil-store employee " " " " " " 53 100 0 101 ' 7 105-8 10 °' 0 101-9 107-1 100-0 103-4 109-9 onncta\ " " " " " 37 100-0 101-7 103-2 100 ' 0 100-7 104-7 100-0 100-4 1° 5 ' 5 labourer " 25 100-0 102-1 118-8 100-0 101-3 116-1 100- 0 103-7 119-3 Hairdresser 40 100-0 100-6 102-0 100-0 101-6 104-5 100-0 101-1 103-6 Picture-proiectionist " " " " 45 100 ' 0 100-3 102-7 100-0 100-3 105 ' 5 100-0 100-3 102-2 Barman-Wet pav " 51 100 ' 0 101-0 101-5 100 -° 101-9 102-5 ' 1° 0-0 101-8 102- 9 Barman Dry my 31 10 °-° 103-0 126-1 100-0 111-3 130-4 100-0 111-2 138-6 Whole erann " " " " "" •' 27 100 0 102-2 105-4 100-0 102 '° 107-5 100-0 1°1 -9 H0-1 g p • •• •• • j 100-0 101-4 106-9 I 100 0 102-3 107-9 100-0 103-3 110-2 Adult Women — I j" ' - ' Shop-assistant (chafnTt rM " " "" " 75 100-0 101-1 134-1 100-0 102-2 139 1 100-0 102-3 132-2 Shorthand tvpist " " " " 33 100 '° 100-0 104-1 100 '° 100-6 111-0 100-0 101-6 110-9 Machinist (battle dress/' " " " -- " 69 100 ' 0 101-2 121-0 100-0 103-7 123-7 100- ° 105-2 134-0 Machinist (froeksi 20 100 ' 0 101-5 114-1 100-0 100-5 134-5 100- 0 103-8 147-0 Machinist footwear) " -- 15 100-0 100-4 113-6 100-0 100-0 109-5 100-0 102-8 133-3 Machnat 21 100-0 103-7 110-3 100-0 103-6 114-1 100- 0 104-8 115-1 '• 11 100 '° 103-0 116-7 100-0 109-8 136-2 100-0 111-6 I 39-0 Factory hand chocolate or c f" f V -- -- 15 100-0 103-3 123-3 100-0 103-0 124-2 100- 0 106-7 124-0 ctionery) 12 i 00 -0 100-5 127-9 100-0 101-0 134-5 100-0 103-3 143-8 P •• • •• i •• 100 0 101-6 118-3 100-0 102-7 125-2 100-0 104-7 131 0 Youths aged 16-17 commencing as — ~ K?s r asdsW nt (n0t apprentice) 23 100 -0 102-5 108-9 100-0 104-7 114-6 100-0 112- 1 - 125-2 Junior storeman and ™ r 'w " " -- "" -- 55 100-0 100-8 103-5 10 0 -0 109-7 104-3 100-0 100-9 102-9 Whole™ P 35 100- ° 111-1 127-2 100-0 112-3 148-2 iOO'O 120-9 183-3 b "* p • •• 100-0 104-8 113-2 100 0 108-9 122-4 100-0 111-3 137-1 Girls aged 16—17 commencing as — 7 Shop-assistant " " " -- " 65 100 '° 101-2 107-0 100-0 103-1 113-7 100 -0 103-8 115-7 Machinist frocks) store) .. .. 31 100 . 0 10Q . 4 100 . 0 1Q1 . 6 Whole ermin " " " -- - " 100-0 114-7 121-2 100-0 116-4 122-4 100-0 119-4 126-2 ° P 100-0 106-0 112-5 100 0 107 0 115-7 100 0 108-8 118-2

H.—llA

X- • • 1 " 1 " 1 » I » I X I lao u I IUU'U lIU'O 1 L6\) • O Notes.—(i) This table is based on wage-rates applicable to ordinary time, and excludes any reference to overtime. The data was collected in the first instance from wage - books by Labour Inspectors throughout the Dominion. (ii) The figures in bold type are unweighted averages covering the whole group of occupations. a Approximate Cost of Paper.—Preparation, not given; printing (1,153 copies), £145.

Price Is. 3d.\ By Authority: E. V. Paul, Government Printer, Wellington.— 1943. i ) i '-J*

SECTION VI.—SURVEY OF WAGE RATES AND TRENDS— continued Table 16.—Movements in Award Rates, Ruling Rates, and Highest Rates since 30th September, 1939

60

(The figures shown in this table are index numbers based on 1000 as at 30th September, 1939.) Award Rate (including cost-of-living Ruling Rate paid for Good Average -j, , . , lr , Number of Allowance) applicable on 30th September Worker on 30th September in the Highest Rate paid for best Workers Occupational Type. Employers in the Year — Year on September m the year — inspected. —— , 1939. j 1941. | 1942. 1939. , 1941. 1942. 1939. j 1941. j 1942. Adult Men — Motor-service driver .. .. .. .. .. .. 31 100-0 105-0 109-5 100-0 105-3 110-7 100-0 105-0 110-7 Track-driver ton) .. .. .. .. .. 57 100-0 107-1 111-8 100-0 109-1 114-2 100-0 109-3 115-7 Mechanic, A Grade .. .. .. .. .. .. 78 100-0 105-0 109-3 100-0 104-9 109-8 100-0 107-9 113-2 Electric wiremau .. .. .. .. .. .. 55 100-0 105-3 109-8 100-0 106-8 112-8 100-0 106-2 113-8 Striker (blacksmith's) .. .. .. .. .. .. 42 100-0 106-6 111-6 100-0 105-7 111-4 100-0 105-7 111-4 Fitter .. .. .. .. .. .. .. 59 100-0 106-1 110-7 100-0 106-1 111-4 100-0 106-3 113-2 Carpenter .. .. .. .. .. .. .. 77 100-0 105-2 109-6 100-0 106-6 115-4 100-0 105-5 114-5 Building labourer .. .. .. .. .. .. 69 100-0 105-4 110-7 100-0 106-2 116-8 100-0 104-2 115-8 Baker .. .. .. .. .. .. .. 62 100-0 105-0 109-3 100-0 105-2 110-1 100-0 105-9 113-3 Buttermaker (first assistant) .. .. .. .. .. 32 100-0 105-2 109-6 100-0 105-3 109-5 100-0 104-6 108-2 General hand (butter or cheese).. .. .. .. .. 39 100-0 105-0 110-4 100-0 105-2 111-1 100-0 105-0 110-8 Presser (clothing) .. .. .. .. .. .. 24 100-0 112-7 118-1 100-0 114-8 123-6 100-0 113-9 124-5 Boot operative (making) .. .. .. .. .. 24 100-0 104-9 109-8 100-0 107-2 113-6 100-0 105-2 115-6 Wood-sawyer (first breast bench) .. .. .. .. 44 100-0 106-0 110-4 100-0 107-9 114-3 100-0 106-7 113-3 Boxmaker (wood) .. .. .. .. .. .. 27 100-0 105-2 110-3 100-0 106-0 111-1 100-0 106-7 113-3 Compositor .. .. .. .. .. .. .. 53 100-0 105-0 109-7 100-0 104-8 111-1 100-0 106-2 113-9 Oil-store employee .. .. .. .. .. .. 37 100-0 109-7 114-8 100-0 108-7 113-0 100-0 111-4 117-2 Warehouseman (soft-goods) .. .. .. .. .. 25 100-0 110-1 115-0 100-0 109-1 116-4 100-0 107-6 115-7 Wool-store labourer .. .. .. .. .. .. 40 100-0 108-9 115-2 100-0 109-9 115-8 100-0 111-6 117-0 Hairdresser .. .. .. .. .. .. .. 45 100-0 105-3 110-9 100-0 105-2 110-8 100-0 108-1 110-5 Picture-projectionist .. .. .. .. .. .. 51 100-0 105-0 109-5 100-0 105-8 110-2 100-0 106-0 111-2 Barman—Wet pay .. .. .. .. .. .. 31 100 0 105-0 110-2 100-0 113-5 119-0 100-0 108-6 121-2 Barman— Dry pay .. .. .. .. .. .. 27 100 0 106-5 111-4 100-0 106-4 111-1 100-0 108-7 116-4 Whole group .. .. .. .. .. .. 100 0 106-3 111-2 100-0 107-2 113-2 100-0 107-2 114-4 Adult Women — Shop-assistant (drapery) .. .. .. .. .. 75 100-0 105-2 126-3 100-0 106-3 127-7 100-0 109-1 124-5 Shop-assistant (chain store) .. .. .. .. .. 33 100-0 105-0 125-9 100-0 105-7 127-9 100-0 112-0 134-2 Shorthand typist .. .. .. .. .. .. 69 100-0 106-1 111-1 100-0 108-3 115-4 100-0 107-6 122-6 Machinist (battle-dress) .. .. .. .. .. 20 100-0 109-4 114-4 100-0 109-8 118-8 100-0 129-2 149-0 Machinist (frocks) .. .. .. .. .. .. 15 100-0 109-5 114-6 100-0 108-6 117-6 100-0 106-7 134-3 Machinist (footwear) .. .. .. .. .. .. 21 100-0 105-2 109-6 100-0 105-0 110-6 100-0 108-6 114-2 Machinist (leather gloves) .. .. .. .. .. 11 100-0 111-4 116-7 100-0 118-7 126-5 100-0 130-0 139-0 Factory hand (woollen) .. .. .. .. .. 15 100-0 110-0 125-0 100-0 109-7 129-0 100-0 110-8 125-7 Factory hand (chocolate or confectionery) .. .. .. 12 100-0 107-0 112-2 100-0 107-4 115-4 100-0 112-4 126-2 Whole group .. .. .. .. .. .. 100-0 107-6 117-3 100-0 108-8 121-0 100-0 114-0 130 0 Youths aged 16-17 commencing as — ' Metalwork assistant (not apprentice) .. .. .. .. 23 100-0 113-1 118-7 100-0 115-8 129-8 100-0 120-9 136-6 Grocer's assistant .. .. .. .. .. .. 55 100-0 105-5 134-4 100-0 106-2 133-5 100-0 106-4 123-7 Junior storeman and packer .. .. .. .. .. 35 100-0 114-7 122-7 100-0 109-4 130-8 100-0 131-9 150-3 Whole group .. .. .. .. .. .. .. 100-0 111-1 125-3 100-0 110-5 131-4 100-0 119 7 136-9 Girls aged 16-17 commencing as — Shop-assistant (drapery) .. .. .. .. .. 65 100-0 106-1 129-0 100-0 106-9 129-7 100-0 111-6 135-8 Shop-assistant (chain store) .. .. .. .. .. 31 100-0 105-1 132-0 100-0 104-0 133-7 100-0 106-4 131-4 Machinist (frocks) .. .. .. .. .. .. 19 100-0 112-4 118-5 100-0 113-4 122-3 100-0 ll'-9 192-3 Whole group ■ ■ ■ • 100 0 107-9 126-5 100 0 108-1 128-6 100 0 110-3 129-8