INTERNATIONAL LABOUR
OFFICE
GENEVA

Studies and Reports
Series A
Xo. 9

October 22 th, i(j2t>.

The International Congress of Metal Workers.

The International Federation of Metal Workers held its
eighth congress at Copenhagen from August 20th to 26th.
This Federation, which is one of the most important of the
organisations affiliated to the International Federation of
Trade Unions at Amsterdam, has seen its membership increase
from 1,100,000 members in 1914 to 2,500,000 at the .end of 1919.
It publishes a monthly bulletin, "The International Metal
Workers' Review " in three languages, the circulation of
which was maintained during the war by the help of the Swiss
and Danish Trade Unions.
The Copenhagen Congress, which was the first held
since 1913, had, as its principal object, the reorganisation of
the International Federation. The Secretariat had continued
in Germany during the war but the activity of the Federation
had been interrupted by the refusal of the British organisations to continue relations with the German and Austrian
organisations, even through neutrals.
Although the date of the Congress had been twice postponed not all of the affiliated organisations were present.
Consequently the Congress was not as representative as might
have been wished. Discussion was, however, carried on with
interest, and important resolutions were adopted.
The most difficult question, that of the transfer of the seat
of the Federation to a neutral country and the appointment
of fresh officers, gave rise during the opening days to long
discussions both in committee and in plenary session. There
were times when agreement on these essential points seemed
doubtful.
A resolution on international relations which was to mark
out a clear course for the future gave rise to a long discussion
at the end of which the various points of view were so harmonised that a unanimous vote was secured.

ILO -SR/A9
COP. 2

I HI II IN m H II 1 1 J!

— 2 —

A motion on the eight hour day, demanding the ratification
of the Washington Conventions, was unanimously adopted
without discussion.
Although the points of view and the nationalities seemed,
especially at the beginning, to be in rather sharp conflict, the
sessions presided over by Messrs. Hansen (Denmark), Solau
(Belgium), and Reichel (Germany) were quite calm and the
discussion was conciliatory and courteous.
The very hearty reception given by the Danish Federation
to those attending the Congress and the visits to the remarkable institutions set up in the country by the trade union organisation, labour halls, co-operative societies, printing works,
etc., contributed to bring the various delegations together and
ïhe Congress closed in a spirit of very marked solidarity.
Representation. — The following countries were represented at the Congress : Germany, Austria, Hungary, Norway,
Sweden, Switzerland, Czecho-Slovakia, Belgium, France, Denmark, Holland.
The report on the examination of credentials showed 49
delegates present, representing 11 countries, 16 organisations
and 2,168,307 members.
The International Labour Office was represented by a
delegate sent from Geneva to attend the Congress.
Agenda of the Congress. — The agenda of the Congress
included the following questions :—
1. Constitution of the Congress.
2. Report of the Secretary and discussion.
3. International Relations.
4. Discussion of the Constitution.
5. Choice of the seat of the Federation and of the Secretary.
Proposals regarding the re-organisation of the Federation
and the revision of the Constitution had been sent by the
English and Belgian Federations. The International Secretary,
moreover, presented a detailed report.

T H E OPENING

SESSION.

The First Session opened under the presidency of Mr. J. A.
Hansen, the President of the Metal Workers' Union of Denmark. Welcoming the delegates he drew attention to the interest presented by this reconstitution of the Trade Union International immediately following on the war.
After nominating Committees responsible for presenting
draft resolutions on the principal questions on the Agenda, the

— 3—
President informed the Congress of the reasons which had
prevented several countries from sending representatives.
The affiliated organisation in Great Britain had not been
able to send delegates because of the important meetings which
were taking place in England in connection with events in
Poland, and had asked that the Congress be postponed until
1921.
The Italian affiliated organisation was not represented
because of a conflict imminent in the metal industry.
The Luxemburg Federation also regretted that it found
it impossible to attend.
Finally, the Russian Delegation, led by Mr. Schlapnikoff1,
had not been able to reach Copenhagen, as the Norwegian
Government had refused to endorse their passports.

THE GENERAL REPORT.

Mr. A. Schlicke-', the President of the Metal Workers'
Federation of Germany and Secretary of the International
Federation, presented the report.
He reminded the meeting that, at the Berlin Congress in
1913, precise and definite agreements were come to for the
first time between the continental unions and the English
unions. The latter had drawn up in this connection a complete constitution which was adopted by the Congress and
which was to have been submitted to a referendum of the affiliated trade unions in the spring of 1914, but negotiations were
interrupted by the war.
A detailed statement was then made concerning the intelligence and propaganda sections, the establishment of a translation office, representation at Congress, administration, membership, and numerical strength. This last showed that at the
end of 1919 Germany had 1,349,583 out of a total membership
of 2,500,000.
With regard to the removal of the seat of the International,
the reporter stated that the first steps were taken in August
1915 by the British section, which asked that the seat should
be established in Great Britain, but the secretariat, considering
that the question could be settled only by a Congress, refused
to /proceed with this request. Immediately after the Armistice
efforts were made by the secretariat to call an international
congress, but without success. They were resumed after the
1
Mr. Schlapnikoff, a delegate of the workers' organisation and people's
commissary.
2
Mr. Alexandre Schlicke, who in 1918 was deputy adviser on labour
questions at the Economic Office of War, became Labour Minister in t h e
Scheidemann Cabinet in Xov. 1918. He left the Government at the same
time as the Müller Cabinet in the summer of 1920.

_ 4 signature oí peace. Originally fixed for the 1st June, 1920, the
Congress had been postponed to the 20th July because of the
elections in Germany, then, a% a result of English counterproposals, till August 20th.
Concluding Mr. Schlicke declared himself in favour of a
transfer of the seat from Germany to a neutral country, events
having made such a course necessary.
At the beginning of the discussion on the General Report it
was understood that the question of war responsibility should
be let alone and that only the future should be considered.
Some criticisms were voiced, mainly by the German delegate Mr. Dissmann 1, regarding the inactivity of the secretariat.
Mr. Eeclers (Belgium), Mr. Kummer (Germany) and Mr. Stein
(Austria) remarked- on the absence of the British. Definite
questions were also raised by M. Merrheim (France) with
regard to the relations with the Russian organisations.
Mr. Schlicke, after having read the letter from the English
Federation explaining its absence, stated that the Russian delegate, Mr. Schlapnikoff, had asked that the Congress should be
adjourned, against which the English had protested. Mr.
Schlapnikoff had then telegraphed to all the various countries
that the International Secretariat was mismanaging the
Congress.
Mr. Merrheim demanded very strongly that the Congress
should be informed of the controversy which took place in
the press between Mr. Hansen (Denmark), responsible for the
organisation of the Congress, and the Russian delegation, in
order that all the delegates might be able to explain in their
own countries the absence of the Russians.
Mr. Hansen (Denmark) stated that in 1918 he went to Finland and to Switzerland, where he met Mr. Schlapnikoff, with
whom he came to no understanding and had no dealings until
June 1920. At that date h e received1 a telegram accusing Mr.
Schlicke of mismanaging the Congress. Mr. Schlapnikoff came
and asked him to call a Congress independently of Mr. Schlicke,
which he refused to do. The representatives from Stockholm
and Christiania, called to Copenhagen, met Mr. Schlapnikoff,
who made a speech on the Russian Revolution. As a result of
this meeting, Mr. Schlapnikoff agreed that the Congress should
be fixed for the 20th August, in accordance with the British
proposals.
Mr. Merrheim wished to be able to reply to the reproaches
which had been brought against the Federation of having
1

Mr. Dissmann is the delegate of the Solingen District Metal Workers. In the Reichstag he belongs to the Independent Group which is opposed
to Herr Schlicke, especially since the latter (the first of all the Majority
Socialists to do so) accepted a Government post created to control the results
of the law relating to civil mobilisation.
Mr. Dissmann, although he belongs to the Left of the Metal Workers'
Federation, has declared himself very strongly against joining the Moscow
International.

— 5—
ignored the Russians because they were communists, and he
insisted that the Congress should obtain all necessary information and documents. Mr. Hansen stated that there was no
record of Mr. Schlapnikoff's speech.
The discussion was closed by the following vote on the
Agenda sent in by Mr. Merrheim (France) :—
" The Eighth Congress of the International Federation of Metal
Workers approves the General Report presented by the secretariat, and
decides to pass to the discussion of the questions on the Agenda. "

The Financial Report was afterwards adopted without discussion.
INTERNATIONAL

RELATIONS.

This item dealt with the practical means of bringing about
international reciprocity and of laying down the lines to be
followed by the Federation in the future.
The secretary, Mr. Schlicke, blamed the English organisations, who had made no reply to his overtures, for the failure
to maintain international relations during the war. He was
of opinion that the International Labour Office at Geneva
would be able to help the International Federation in resuming
relations and generally in the study of social questions.
Mr. Schlicke made a statement regarding the alterations to
be brought about in the constitution, and declared himself
opposed to a centralised organisation. The Secretariat must
not direct the Federation. Conferences of the Central Committee should be convened and these Conferences should be held
in different places. Political questions should be decided by
the national organisations.
Mr. V. Stein (Austria) declared himself in favour of close
co-operation between the political and trade union organisations. Mr. F. Kummer (Germany), after some criticism of
the Secretariat considered that it was essential that the International spirit, which is insufficiently " alive " in the English
and Americans, should be developed. Propaganda in official
newspapers was not enough ; it must be carried on increasingly throughout the labour press. A permanent Secretariat
must, moreover, be established, and a Secretary chosen. The
Belgians and the French asked that the seat sho.uld be transferred to a neutral country, and that an Executive Committee
should be set up. This proposal was absolutely justifiable.
Only Holland and Switzerland were available, but, as it had
not been possible to come to an agreement in Committee, a
temporary secretariat might be established and the question
postponed to a future Congress.
As the Belgian and French delegates were opposed to postponement, the Central Committee was asked to meet again in
order to draw up a resolution which would be unanimously
accepted by the Congress.

— 6—
This resolution was submitted to the Congress by Mr.
Dissmann, and gave rise to an important discussion in which
the different ,points of view were developed.
Mr. Dissmann (Germany) wras of the opinion that the Congress should express its agreement with the officers of the
International Trade Union Bureau of Amsterdam, especially
with regard to the aggressive policy of Poland.
The Central Committee had appointed a commission to
draw up a resolution which would apply not only to the past
war and to the Russo-Polish war, but to war generally. The
army and the munition workers were the two factors in war.
All war should be condemned as it can never solve economic
and social questions.
Brute force was responsible for hindering the development
of civilisation. Right had always been violated by might. In
the past, neutrality had been violated in the name of right. In
the same way the right of peoples to self-determination had
been violated. The treaties of Brest-Litovsk, Versailles and
St. Germain had not respected the rights of the workers. The
statesmen had been guided by the interests of capitalists. At
this moment the international situation was becoming complicated in every country.
Changes had occurred since the war, monarchies had fallen, but capitalism continued to govern the world. We were
not in a position to judge the Russian system, but the proletariat was fighting for socialism and, if it was defeated, socialism also would be defeated. For that reason it was necessary
to defend the Russian revolution. An appeal should be addressed to the Metal Workers engaged in the manufacture of
munitions and the manufacture of war material should be prevented.
Mr. Richard Müller (Germany) was not satisfied with the
result of this Congress. The absence of the Russian comrades
showed the weakness of the labour movement. The Congress should be an example of increasing activity to the various
sections of the International and should show them the road
to follow.
Germany, like all the countries affected by the war, would
shortly be in a revolutionary condition. They must prepare
for direct action. The boycott of Hungary showed that the
workers were ready.
It was not possible to give in a resolution all the forms of
action, but it must be pointed out that the International should
prevent the manufacture of munitions.
Although he was not in agreement with the majority of
the Central Committee as to the methods of action, he gave
his support in order to obtain a unanimous vote.
Mr. Merrheim (France) agreed with the resolution drawn
up by the Central Committee, but thought Mr. Müller was
going outside the subject in discussing the tactics of the International. In view of the International's programme of action,

— 7 —

it was not possible to discuss it thoroughly at this unrepresentative Congress.
He rejoiced to see that the Germans were exhibiting a more
revolutionary spirit than before the war, and that they were
to-day condemning methods which they formerly excused. As
for adopting the Russian method, that meant civil war in
every country. He refused to accept this. In France there
Avere ten million peasants to be taken into account.
In Russia there was not at present any trade union movement. A Central Committee had militarised the trade unionists, who came under army discipline in case of infringement
of the law. At Moscow the creation of a new Trade Union.
International had been decided upon. It was said that the
Russian revolution proclaimed the bankruptcy of Socialism ;
this was false : on the contrary he throught that Communism
led to militarism.
It was necessary to seek out all means of strengthening the
Trade Union International, but no one was entitled to decide
for Russian methods unless he was prepared to let loose civil
war in his own country. In Germany, moreover, as in the
other countries, it must not be forgotten that the state of mind
of the masses had not undergone such a great change, for the
development of the strength of the trade unions since the
war was due above all to material interests.
Mr. Hass (Germany) did not approve of Russian methods
which were dominated by the militarism of Rrussiloff. They
were all against capitalism, and for socialism ; but each country should be allowed to choose its own tactics.
Mr. Stein (Austra), said that he and Mr. Dissmann had
asked for a resolution relating only to the war against Russia,
for war in itself might be necessary for the defence of socialism.
The French and the Belgians had asked for a resolution
against war in general, and against all wars. Methods of action
were not under discussion ; moreover, there was not sufficient
information concerning the Bolshevist methods. In the interest
of the workers it was essential that they should remain united
and not split up the Trade Union International of Amsterdam.
After a fresh appeal by Mr. Dissmann for the adoption of
the resolution prepared by the Central Committee, the latter
was voted unanimously. This resolution condemned all war,
" any occupation of a country and any intervention or interference open or disguised, by any Government whatsoever, in
the free right of peoples freely to determine the form of their
constitution or of their Government ", as well as " any past or
future violation of the neutrality or the independence of a
nation, whatever pretext be put forward to justify such violation."
The resolution stigmatised the powerlessness of Governments to bring about peace and attacked the intervention in
Russia. It confirmed the agreement of the International Federation of Metal Workers with the Trade Union International
of Amsterdam.

— 8 -

THE EIGHT HOUR DAY.

The following motion, proposed by Mr. Merrheim (France),
was adopted unanimously by the Congress without discussion :
" T h e Eighth International Congress of Metal Workers takes cognizance
of the fact that in all the countries represented a t the Congress, the Eight
Hour Day insofar as it is in force has been obtained by Trade Union pressure
and afterwards ratified by conventions and laws. I t declares, therefore, that
the duty of the organisations affiliated to the International Federation of
Metal Workers is to secure t h a t the principles contained in the International
Labour Convention of Washington shall be introduced before the 1st July
1921 in the legal system of each country, and to oppose by all possible means
any exemptions which have for their object the indefinite prolongation of
the eight-hour day in violation of the principle of this reform. "

THE RE-ORGANISATION OF THE FEDERATION.

The Headquarters of the Federation.
Before discussion by the Congress, the following motion
was adopted by the Central Committee fixing the new seat of
the International Federation and at the same time its new
administration.
(1) The seat of the International Federation shall be transferred t o
Switzerland. The Swiss Federation of Metal Workers and Watchmakers is requested to make itself responsible for the Secretariat
and the necessary preparations for the transfer of the seat.
(2) The International Federation shall be administered by Executive
officials including an International Secretary and three members
elected by the Congress, account being taken of the three official
languages at the Congress.
(3) The Central Committee shall be maintained with the same powers
as at present in accordance with the Constitution of the International Metalworkers' Federation.
(4) The International Congress and its powers shall remain as at present.

Mr. Schlicke (Germany) enlarged upon the reasons justifying the transfer of the seat, a necessary step to overcome the
suspicions of labour. After having stated the geographical reasons for which the Central Committee had chosen the town of
Berne, Mr. Schlicke added that it was necessary to work for
a closer co-operation with the Trade Union International of
Amsterdam, in accordance with the mandate which had been
given to the Zurich Conference in 1913.
As for the International Labour Office at Geneva, he considered that it was impossible to see in this Office an authority superimposed on Trade Union organisation. It was in the
interests of the workers to support it, for it was developing
in a direction favourable and advantageous to them. The Germans ought to participate more in its work. They should

-

9—

collaborate in the same way as the representatives of other
countries in the International Labour Office.
After an interruption by Mr. J. O. Johansson (Sweden),
asking that the seat should be fixed at Copenhagen, the proposal of the Central Committe was put to the vote, and adopted. .
The seat of the International Federation of Metal Workers
will therefore be transferred tp_ Berne.
Mr. Ilg, the delegate of the Swiss Organisation, was then
appointed provisional International Secretary until the next
Congress, which will take place in April 1921.
Appointment

of the

Executive.

The appointment of the Executive occasioned brisk discussion.
Mr. Brandes (Germany) considered that the appointment
of the Executive should be referred back to the different countries. Mr. F. Donnes (Austria), asked, on the contrary, that
they should be elected by the Congress and that the Scandinavians should have a representative. Mr. Hg (Switzerland),
after having reminded the Congress that Switzerland had not
asked that the seat of the Federation should be established
there and that she would only accept it in order to be of service to the International, insisted that the election should be
carried out by the Congress, as the new Secretary could not
enter upon his functions without his Office. Mr. Dissmann (Germany) declared himself in favour of the postponement of the
appointment of the Executive until the Congress of 1921. In any
case the National Organisations should make these appointments. Mr. Merrheim (France) insisted, on the contrary, that
this nomination should be made by the Congress.
The principle of the nomination of the Executive by the
Congress was put to the vote and adopted.
The appointment of the members gave rise to further discussion of a lively nature. Mr. Dissmann (Germany) asked that
in appointing the Executive, the number of members whose
subscriptions were paid up to date should be taken into
account in accordance with the Constitution.
Mr. Merrheim (France) replied forcibly that during the
whole Congress the French delegation had endeavoured to
ignore the past, but that, since reference was now made to
the Statutes, he was obliged to call attention to the fact that
the International had remained in Germany during the war
contrary to the Constitution.
Mr. Kummer (Germany) reproached Mr. Dissmann with
trying to create a schism. The latter replied vigorously
to these criticisms, reminding the Congress that he was one of
those who had supported the International during the war.

-

10

-

After a short discussion with regard to the languages to be
represented on the Executive, it was unanimously agreed
that the following members should be appointed.
Switzerland
Mr. Ilg, Secretary.
Germany
Mr. Dissmann.
France
Mr. Merrheim.
Scandinavian Countries . . . .
Mr. Hansen.
Great Britain : The Committee would ask the British organisation to appoint its representative.
Revision of the

Constitution.

The Belgian Metal Workers proposed some modifications
to the Constitution. These aimed in particular at making the
International Federation a centre of action and of life, not
merly an office engaged in routine transmission of information ; also to make the Secretariat responsible to the International Central Committee instead of being under the control
of his own Organisation as heretofore.
These proposals, which met with the approval of the Congress were supported by the retiring Secretary, Mr Schlicke,
who proposed, moreover, to define the tasks' of the Federation
as follows :—
Exchange of reports; publication and discussion of the more
important events, in connection with the trade union movement, economic activity and labour legislation; and publication
of any documents making for international co-operation.
Improvement of the relations between the organisations of
the various countries on the following lines :—
(a) Defence of the rights of members of organisations affiliated to the Federation during their residence in
foreign countries, and the drawing up of regulations
concerning the transference of Trade Unionists belonging to the organisation of one country into that of
another country.
(b) Support of the efforts made in the interest of trade
union organisation in the countries where Metal Workers Unions do not yet exist or are still weak.
(c) Establishment and observation of the principles regulating moral and .pecuniary help in times of strikes and
lock-outs.
(d) Organisation of International Congress of Metal Workers.
Before the Congress the British section had formulated
proposals applying particularly to the relations between the
Secretariat, the Central Committee and the national sections,
to assistance in case of strikes, and to means of information,

— Itali of which would come up for discussion at the revision ol
the Constitution. One of them, which concerns the International Labour Office is as follows :—
" The Peace Treaty gives to the employers' and workers* organisations
of all the associated countries the power to discuss and to come to an understanding on questions relating to the industrial problems of the said countries, and further to regulate the relations between them with the object of
securing harmony, preventing unfair competition and securing uniformity
in the legislation relating to industry in the different countries and
in its application. The essential object of Lhe Treaty is to prevent
any conflict between national interests and to make misunderstandings
between the Nations improbable, and, in case such misunderstandings
should nevertheless arise, to provide means for conciliating the parties.
Associating itself with the views of the Peace Treaty, and considering that
the said object is in perfect harmony with the objects of the Federation, the
Congress decides that, whenever the occasion arises it shall be free to lend
assistance to, or to participate in the movements or conferences involved in.
or proceeding from, the said Peace Treaty. "
'

Other proposals were presented relating to increased subscriptions, to the constitution of the Executive Committee, its
powers and those of the Secretary, the jurisdiction of the
Federated Organisations and of the International Congress.
Certain of these, such as the creation of the Executive
Office, were decided, but in view of the fact that a further
Congress is to be held in April 1921 at which all the National
Organisations will be represented, the majority of these questions were only touched upon, and the general revision of the
Constitution was referred to the Central Committee to be
brought up at the next Congress.

Before the termination of the Congress, Mr. Merrheim, as
spokesman of the Delegates, thanked Mr. Schlicke for the
work which he had done for long years at the head of the
Federation. After stating that in removing the seat of the
Secretariat the sole aim of the Congress had been the reconstitution of the International, Mr. Merrheim appealed to all the
organisations to develop together, in a spirit of solidarity and
of mutual confidence, the power of the Trade Union International.

STUDIES AND REPORTS
already issued :
(1) — In English

and in

French.

PRODUCTION IN THE R U H R DISTRICT. Enquiry by the
International Labour Office, end of May 1920. (Series B No. 1,
issued on September 1st 1920.)
S T A F F REGULATION OF T H E F R E N C H RAILWAYS. (Series D No. 1.
issued on September 8th 1920.)
T H E CONSUMERS' CO-OPERATIVE SOCIETIES IN 1919. Denmark
and Sweden. (Series I I No. 1, issued on September 8th 1920.)
COAL

SEVENTH

CONGRESS

OF

THE

BELGIAN

CO-OPERATIVE

OFFICE.

(Series H No. 2, issued on September 25th 1920.)
T H E AGREEMENT B E T W E E N T H E SPANISH W O R K E R S ' ORGANISATIONS. (Series A No. 1, issued on September 25th 1920.)
INTERNATIONAL CONGRESS OF WORKERS IN THE FOOD AND DRINK
TRADES. (Series A No. 4, issued on October 11th 1920.)
T H E M I N E R S ' INTERNATIONAL.

(Series A No. 7, issued on October

19th 1920.)
THE

INTERNATIONAL

LABOUR

ORGANISATION

A

COMPARISON

(Series A No. 8, issued on October 21th 1920.)
(2) — In English
ANNUAL

MEETING

OF

THE

only.1

TRADES

UNION

CONGRESS

1920.

(Series A No. 3, issued on October 4th 1920.)
T H E BRITISH GOVERNMENT AND THE M I N E R S ' FEDERATION OF
GREAT BRITAIN. (Series A No. 5, issued on October 13th 1920.)

(3) — In French

only.1

L E CONFLIT DES MÉTALLURGISTES E N ITALIE. — L E CONTROLE
SYNDICAL DANS L ' I N D U S T R I E .
(Series A No. 2, issued on

September 25th 1920 )
DOCUMENTS RELATIFS AUX P R O J E T S D'ORGANISATION I N T E R NATIONALE POUR LA RÉPARTITION DES MATIÈRES P R E M I È R E S
ou DES D E N R É E S ALIMENTAIRES. (Series B No. 2, issued on

October 5th 1920.)
LE

CONGRÈS

D E L'IXTERXATIONALE

OUVRIÈRE E T

SOCIALISTE.

(Séries A No. 6, issued on October 14th 1920.)

1

In cases where the English or French text of a Report has not ye1been published, it will be issude at a later date.