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INTERNATIONAL LABOUR OFFICE

STUDIES AND REPORTS
Series M (Social Insurance) No. 13

INTERNATIONAL SURVEY
OF

SOCIAL SERVICES
1933
VOLUME I

GENEVA
1936
Published in the United Kingdom
For

the

INTERNATIONAL LABOUB O Ï F I C E (LEAGUE OP NATIONS)

B y P . S. K I N G & SON, Ltd.
OrchardiHouse, 14 Great Smith Street, Westminster, London, S.W.I

oWMf
f t » 4 "4 n IT\

JC.M.I3.!
. • ' \

Printed in Great Britain b y E Y H E AND SPOTTISWOODE LIMITED

His Majesty's Printers
East Harding Street, London, E.C.4

INTERNATIONAL

SURVEY

OF
SOCIAL

SERVICES
1933

CONTENTS
PAGE

INTRODUCTION

vii

LIST OF NATIONAL MONOGRAPH« :
AUSTRALIA

BELGIUM

6'J

BULGARIA

CANADA

CHILE

FINLAND

.
.
.

127

141

183

203

FRANCE
GERMANY

219
-

GREAT BRITAIN AND NORTHERN IRELAND

-311
353

INDIA

403

I R I S H F R E E STATE

415

ITALY

439

JAPAN

499

NETHERLANDS

NORWAY

513

541

SWEDEN
U N I O N OF SOUTH AFRICA

571
-

603

U N I O N OF SOVIET SOCIALIST REPUBLICS
U N I T E D STATES OE AMERICA

.
-

623

663

A List of Social Services is given at the beginning of each National
Monograph.

G 12U73

INTRODUCTION

Towards the end of 1933, the International Labour Office
published an " International Survey of Social Services ' : 1 containing studies of the working, in 1930, of the social services of t h e
following twenty-four countries :
Australia
Belgium
Bulgaria
Canada
Czechoslovakia
Denmark
Finland
France
Germany

Great Britain and
Northern Ireland
Hungary
India
Irish Free State
Italy
Japan
Luxemburg
Netherlands

Poland
Rumania
Spain
Sweden
Switzerland
Union of South Africa
Yugoslavia

At its Session in October 1933, the Governing Body, on the
proposal of the Committee on Social Charges, requested the
Office to prepare a second edition of this survey, to deal with the
working of social services in 1933.

The first edition having had a very favourable reception, t h e
Office thought it would be advisable to enlarge the second edition
considerably in respect of the number of countries covered.
Between April 1934 and June 1935, it prepared national monographs on the social services of the following thirty-eight countries:
Argentina
Australia
Austria
Belgium
Brazil
Bulgaria
Canada
Chilo
Czechoslovakia
Denmark
Estonia
Finland
France
Germany

Great Britain and
Northern Ireland
Greece
Hungary
India
Irish Free State
Italy
Japan
Latvia
Luxemburg
Mexico
Netherlands
New Zealand
Norway

Poland
Portugal
Rumania
Spain
Sweden
Switzerland
Union of South Africa
Union of Soviet Socialist
Republics
United States of America
Uruguay
Yugoslavia

The plan for the second edition is the same as t h a t for t h e
first, since the members of the Committee on Social Charges were
of opinion t h a t the original plan should be retained.
1

INTERNATIONAL LABOUR OFFICE : International Survey of Social Services.

Studies and Reports, Series M (Social Insurance), No. 11, Geneva, 1933,
xxiv + 688 pp.

viii

INTRODUCTION

I n accordance with the procedure adopted for the first edition,
the monographs were sent to the national administrative departments with a request that they should be checked and completed,
particularly in respect of the statistics for 1933, which in the case
of several of the social services of a number of countries had not
yet been published officially.
B y 15 September 1935, the Office was in a position to undertake the final revision of the monographs for the following nineteen
countries :
Australia
Belgium
Bulgaria
Canada
Chilo
Finland
France

Germany
Great Britain and
Northern Ireland
India
Irish Free State
Italy
Japan

Netherlands
Norway
Sweden
Union of South Africa
Union of Soviet Socialist
Republics
United States of America.

These monographs were examined b y the Committee on
Social Charges at its Fifth Session, held at Geneva on 18 October
1935. The Committee found t h a t on the whole the plan adopted
by the Governing Body had been correctly carried out. Nevertheless, for some countries certain social services were included
which seemed to go beyond the limits of t h e plan. This observation applied in the case of one country to a service apparently
designed chiefly for the assistance of persons disabled during the
war, in t h a t of a few other countries to voluntary social insurance
institutions subsidised neither by the State nor by the employers,
and in t h a t of some countries to expenditure on public works
undertaken with a view to providing work for the unemployed.
On the proposal of the Committee on Social Charges, the
Governing Body authorised the Office to publish the national
monographs relating to the nineteen countries mentioned above.
These monographs will form the first volume of the " International
Survey of Social Services, 1933."
The monographs dealing with the other countries will form the
second volume of the Survey, and will probably be published
towards the end of the first half of 1936.
PLAN OF T H E SURVEY
The plan for the second edition is the same as for the first.
I t s text, describing the scope and method of presentation of the
national monographs on the various social services, is reproduced
in the following pages.

INTRODUCTION

FIRST

PART

STATISTICS OF POPULATION
I n order to enable the reader of the Survey to appreciate the scope of
the social services, the principal population figures as they result from
the latest census are given for each country as follows :
Total population ;
Occupied population ;
Number of wage earners and salaried persons employed, excluding
employers and persons working on their own account;
Distribution of employed persons by branch of economic activity or by
occupational group :
Agriculture, forestry, etc. ;
Mining and quarrying ;
Manufacturing Industry and Construction ;
Commerce and Banking ;
Transport and Communications (including postal, telegraph and
telephone services) ;
Personal services, hotels and restaurants.
Others.
As the national censuses employ different classifications of branch
of economic activity and occupational groups, the essential features of
the national statistics are reproduced without endeavouring to adopt
a uniform presentation for all countries.

SECOND P A R T

SOCIAL INSURANCE
A.—LIST or SOCIAL INSTTRANCE SCHEMES

1. Workmen's compensation for industrial accidents and occupational
diseases.
2. Sickness and maternity insurance.
3. Invalidity, old-age, and widows' and orphans' insurance.
4. Unemployment insurance.
5. Voluntary social insurance.
Account is taken of institutions (funds or societies) which
carry on voluntary social insurance against one or more
risks and are approved, recognised or registered by the public
authorities and subsidised by the State or by employers.
6. Subsidised benefit schemes for staffs of certain State, municipal
and other public utility undertakings, e.g. railways, post office, municipal
gas, water, electricity, etc., services.
These charges are taken into account even if the risks are
not covered by a real system of insurance. Thus, account
is taken of the sums included in the budgets of the State,
public bodies or undertakings, e.g. for invalidity or old-age or
survivors' pensions, medical aid, sick'leave with pay, etc. On

INTRODUCTION

the other hand, no account is taken of the charges involved
in covering the risks of public officials in the employment of the
State, provinces, departments, communes, etc.
B.—MODEL PLAN or THE MONOGRAPHS ON SOCIAL INSURANCE SCHEMES

All monographs are prepared on as uniform lines as possible.
The analysis of the legislation is extremely brief and indicates schematically the principal features of each insurance scheme as follows :
1.—Legal Basis.
The dates of the principal texts (laws and regulations) in force
in 1933 are given.
2.—Scope.
The persons liable to insurance ¡ire briefly defined, the only
exceptions mentioned being those which afíecfc important groups
of workers.
3.—A dmii i istnittori.
The essential features of the institutions which administer the
insurance scheme are stated briefly and no details of administration
are given.
4.—Financial Resources.
The source of funds and the rate of contributions (insured
persons' contributions, employers' contributions, subsidies from
public authorities) are stated, but not the method of collecting
contributions.
5.—Benefits.
This section conforms with the following plan
(a) definition of the risks covered ;
(6) benefits in kind ;
(c) cash benefits.
Under heading (c), the subdivisions of course vary with the
nature of the insurance scheme.
For workmen's compensation, the subdivisions are generally
as follows :
1. temporary incapacity ;
2. permanent incapacity ;
3. death.
For sickness insurance,
follows :
1. sickness benefit ;
2. funeral expenses.

the

subdivisions

are

generally

INTRODUCTION

For invalidity, old-age and widows' and orphans' insurance,
the subdivisions aro generally as follows :
1. invalidity pensions ;
2. old-age pensions ;
3. survivors' pensions or lump sum at death.
6.—Statistics for 1933.
(1) Number of insured persons :
When possible, it is stated whether the number is for a given
date or an annual average, etc.
(2) Number of beneficiaries :
When possible, the number of beneficiaries for each class of
benefit is shown.
(3) Income and expenditure.
INCOME

EXFKNDITUKE

(in thousands of currency units)
Contributions of insured ...
Contributions of employers
Public subsidies
Revenue from investments

Benefits in kind
Cash benefits
Cost of administration
Other expenditure
Total ...

Total

When possible, further details of expenditure are given.
Under workmen's compensation it is interesting, for example, to distinguish between expenditure for temporary incapacity, permanent
incapacity and survivors' pensions.
Similarly, as regards invalidity, old age and death it is useful to show
separately the expenditure for invalidity pensions, old-age pensions and
survivors' pensions.
(4) Balance sheet or assets at end of 1933.
For insurance schemes financed on the assessment system, there is a
statement of the assets : situation of the reserve or contingencies funds,
value of property, etc.
For insurance schemes financed on the accumulative system, the chief
assets and liabilities are shown as they appear in the annual reports of the
insurance institutions or supervisory authorities.

THIRD

PAKT

SOCIAL ASSISTANCE
A . — L I S T OF SOCIAL ASSISTANCE SERVICES

1. Non-contributory invalidity, old-age and widows' and orphans' pensions
(except war pensions).
2. Unemployment assistance.
3. Assistance for aged, blind and infirm persons of insufficient means.

rNTEODUCTION

4. Medical assistance for persons of insufficient means (including both
domiciliary and hospital treatment).
5. Maternity assistance (including medical treatment and other assistance
for women in case of confinement, assistance for nursing mothers,
treatment of infants, etc.).
6. Assistance for children and young persons : medical assistance,
orphanages, special establishments for children who are delicate,
blind, deaf and dumb, etc. An attempt is made, so far as possible,
to distinguish the cost of education from the cost of maintenance.
7. Assistance for large families.
8. Assistance at employer's expense in the case of inj my, sickness or
death of his staff.
This entails a study of the obligations imposed on employers
either by law or b y collective agreement.
Under this general heading a special study is included of shipowners' liability towards sick or injured seamen.

B . — M O D E L PLAN or THE MONOGBAPHS ON ¡SOCIAL ASSISTANCE SEKVICES

All monographs are prepared on as uniform lines as possible.
The analysis of the legislation is extremely brief and indicates schematically the principal features of each assistance service as follows :
1.—Legal Basis.
The dates of the principal texts (laws and regulations) in force
in 1933 are given.
2.—Beneficiaries.
The conditions which persons must fulfil in order to obtain
assistance are briefly stated.
3.—Administration.
The essential features of the assistance institutions are briefly
indicated.
4.—Financial Resources.
The source and, if possible, the amount of revenue : subsidies
from State, provinces, departments, communes, etc., special taxes,
contribution from assisted persons or their families are stated.
5.—Benefits.
The risks covered and the different kinds of benefits with, if
possible, the rate of each, are enumerated :
(a) definition of the risks covered ;
(6) benefits in kind ;
(c) cash benefits.
The method of establishing and the rate of each kind of benefit
are indicated.

INTRODUCTION

XÜÍ

-Statistics for 1933.
( 1 ) N u m b e r of p e r s o n s assisted ;
(2) I n c o m e a n d e x p e n d i t u r e :
EXPENDITURE

INCOME

State subsidy
Subsidies
from
departments, communes, etc.
Contributions from persons assisted or their
families ...
Revenue from investments
Other income

Benefits in kind
Cash benefits
Cost of administration
Other expenditure

Total

W h e n possible, details of t h e different k i n d s of benefits are given.
W h e r e a p p r o p r i a t e , a t a b l e is a d d e d showing t h e a s s e t s of
assistance services or i n s t i t u t i o n s a t t h e e n d of t h e
financial
y e a r 1933 : s i t u a t i o n of funds, v a l u e of p r o p e r t y , e t c .

FOURTH

PART

HOUSING
Basis.
A list of t h e principal t e x t s (laws a n d regulations) in force i n
1933 is given.

1.—Legal

2.—Beneficiaries.
3.—Authorities and Undertakings concerned in
Building.
T h e i n s t i t u t i o n s , a u t h o r i t i e s or c o m m u n i t i e s w h i c h m a y
p a r t in t h e building of c h e a p dwellings a r e e n u m e r a t e d :

take

(a) S t a t e ;
(6) provinces, counties, m u n i c i p a l i t i e s ;
(c) building societies (co-operative societies, c o m p a n i e s , p r o v i d e n t societies, c r e d i t societies).
4.—Financing by Public
Authorities.
U n d e r this h e a d a r e s t a t e d briefly t h e conditions u n d e r w h i c h
p u b l i c a u t h o r i t i e s finance t h e building, of c h e a p dwellings, a n d
w h e t h e r t h e a u t h o r i t i e s u n d e r t a k e t h e building t h e m s e l v e s or a c t
indirectly b y encouraging building.
I n t h e case of indirect action it is explained w h e t h e r t h e encouragem e n t t a k e s t h e f o r m of :
(a) subsidies ( l u m p s u m s or i n s t a l m e n t s ) ;
(b) credit facilities ( g u a r a n t e e i n g m o r t g a g e p a y m e n t s , aid in
t h e p a y m e n t of r e d e m p t i o n charges, provision of credit
a t a low r a t o of interest) ;

INTRODUCTION

XIV

(c) fiscal relief;
(d) provision of land at a low price ;
(e) other measures.
5.—Statistics for 1933.
When possible, the following statistics are given :
(a) number of dwellings built with the aid of public authorities ;
(b) number of persons to be accommodated in these dwellings ;
(c) amount allocated by public authorities to financing cheap
dwellings (distinguishing when possible between repayable and non-repayable expenditure) by way of :
(i) building of dwellings by public authorities
themselves ;
(ii) encouragement of building.

F u r o PAKT
FAMILY ALLOWANCES
1.—Basis of Schemes.
I t is stated whether the schemes are governed by special laws
and regvilations, provisions of collective agreements, or staff
regulations, etc.
2.—Beneficiaries.
3.—Persons or Institutions Undertaking Payment of Allowances.
Equalisation funds, individual employers, etc.
4.—Conditions under which Allowances are Payable.
5.—Rales of Allowances.
6.—Statistics for 1933.
When possible, the following statistics are given :
(a) number of persons employed in undertakings paying family
allowances ;
(ò) number of workers who received allowances ;
(c) amount of expenditure for family allowances.

INTRODUCTION
SIXTH

PART

HOLIDAYS W I T H PAY
1.—Basis of Schemes.
I t is stated whether the schemes are governed by special
legislation, hours of work legislation, provisions of collective
agreements, arbitration awards, staff regulations, or custom, etc.
2.—Beneficiaries.
3.—Ceruditions under which Holidays are Chanted.
4.—Length of Holidays.
5.—Rate of Remuneration during Holidays.
6.—Statistics for 1933.
When possible, the following statistics are given :
(a) number of persons employed in undertakings granting
holidays with pay ;
(6) number of workers who received holidays with pay ;
(c) total number of days' holiday with pay ;
(d) amount of expenditure for holidays with pay.

AUSTRALIA
SUMMARY
PAGE

F I R S T PART :

Statistics of Population

2
2

SECOND P A S T : Social Insurance

I.—Workmen's Compensation...

2
38

II.—Unemployment Insurance in Queensland

III.—Voluntary Social Insurance
THIRD PART :

Social Assistance

I.—Invalidity and Old-Age Pensions in the
Commonwealth ...

II.—Unemployment Relief

III.—Maternity Allowances

IV.—Widows' Pensions in New South Wales .

V.—Assistance for Families

VI.—Other Social Assistance Services ...
VII.—Shipowners' Liability towards Sick and
Injured Seamen
FOURTH

PART

FIFTH PART :

G 12973

Housing

64
66

Holidays with Pay

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

FIRST PART

STATISTICS OF POPULATION
PROVISIONAL F I G U H E S (CENSUS OF 30 J U N E

Gainfully occupied population

classified by industrial

Industrial status
(grade of employment)

groups and industrial

status

Industrial groups

Employer
207,680
Working on own account
369,375
Wage or salary earner ... 1,618,504
Unemployed
... 481,044
Helper not receiving salary
or wages
...
...
46,016
Grade not applicable 1 ...3,901,562
Not stated
5,658
Total population

1933)

...6,629,839

Fishing, agriculture, forestry
588,477
Mining and quarrying
...
68,354
Industrial
866,171
Transport and communication
223,893
Commerce and finance ...
451,392
Public administration and
professional
232,212
Entertainment,
sports,
recreation
...
...
24,250
Personal
and
domestic
service
242,378
No industry or industry n o t
stated
195,430
Pensioners
263,064
Total breadwinners
... 3,155,621
Dependants
3,474,218
Total population

...6,629,839

1
Includes pensioners, persons of private means not in business, persons engaged in home
duties, scholars and other dependants.

SECOND PART

SOCIAL INSURANCE
I.—Workmen's Compensation
A.—COMMONWEALTH

Compensation for Injuries by Accident and Industrial Diseases acquired
by Employees of the Commonwealth
1.—Legal Basis.
An Act relating to compensation to employees of the Commonwealth
for injuries suffered in the course of their employment ; No. 24, assented
to 14 August 1930, proclaimed to commence on 10 November 1930.
2.—Scope.
The scheme applies to persons employed by the Commonwealth
with the exception of outworkers and members of the naval, military
or air forces of Australia. I t extends to employees of certain
prescribed authorities under the Commonwealth.

AUSTRALIA

3.—Administration.
There is no compulsory insurance and the Commonwealth carries
its own insurance. All matters and questions arising under the Act
are determined by the Commissioner for Employees' Compensation
(The Secretary to the Treasury). Appeal against his decisions lies to
a county court.
4.—Financial Resources.
The funds of the scheme are supplied entirely by the Commonwealth.
5.—Benefits.
(a) Definition of risks.
The scheme covers :
(1) personal injury by accidents arising out of and in the course of
employment ;
(2) industrial diseases specified in a schedule to the Act, provided
the disease was caused within twelve months prior to the date
of the incapacity by employment in which the employee was
engaged.
(b) Benefits in kind.
The cost of reasonably necessary medical, surgical and hospital
treatment not exceeding £100.
(c) Cash benefits.
Compensation for incapacity shall not in the aggregate exceed
£750 plus the cost of medical, etc., expenses, except in cases of permanent and total incapacity.
During incapacity for work a weekly benefit is payable and where
this has been continued for not less than six months, the liability, at
the option of the Commissioner and with the consent of the employee,
may be redeemed by the payment of a lump sum, except in cases of
permanent and total incapacity.
The amount of such lump sum is determined by the Commissioner,
having regard to the injury, age and occupation of the employee at the
time of injury.
1. Temporary incapacity.
During total incapacity, the weekly benefit consists of :
(a) an amount not exceeding two-thirds of the employee's
weekly pay at the time of the injury, such amount not to
exceed £3 10s. The rate may be increased to 100 per cent, in
the case of an employee under 21 years of age earning less
than 30s., but shall not exceed £1 ;
(6) a supplement of 7s. 6d. for each dependent child under 14
years of age, in case of total incapacity ; payable until the child
attains the age of 16.
During partial incapacity, the weekly payment shall be appropriate
to the degree of incapacity but shall not exceed the difference between
A2

INTEBNATIONAIi SUTtVEY OF SOCIA1 SERVICES, 1933

the amount of the weekly pay before the accident and the weekly
amount the employee is earning or able to earn in some suitable employment or business after the accident. The rate shall bear such relation
to the amount of that difference as the Commissioner thinks proper.
2. Permanent incapacity.
For certain injuries of a permanent nature, when resulting in total
or partial incapacity, such as loss of specified parts of the body, the
amounts payable as compensation are fixed by the Act. Any amount
received by way of weekly payments during total incapacity shall be
deducted from the lump sum payable in respect of a specified injury.
For other injuries of a permanent nature no special provisions are
contained in the Act. In cases of total and permanent incapacity,
weekly payments are continued indefinitely. Lump sum payments are
not made in such cases and the total amount is not limited.
3. Death.
In case of death of an employee leaving dependants, who were
wholly dependent on his earnings, the latter shall receive either
(a) a sum equal to 156 times his weekly pay at the time of the
injury, or
(6) £400,

whichever is the greater amount, but not more than £750.
Any weekly payments and lump sum in redemption thereof shall
be deducted from such amount, but the sum payable shall not be less
than £200.
Partial dependants receive an amount considered by the Commissioner reasonable and proportionate to the injury to the dependants.
In case of a worker leaving no dependants, reasonable expenses for
burial not exceeding £25 are paid.
6.—Statistics tor 1933.
EXPENDITURE

£
2,505
9,209
393
3,562

Medical, hospital and funeral expenses
1st Schedule (general) ...
2nd Schedule (industrial diseases)
3rd Schedule (specified injuries)
Total
Number of Injuries

15,669
...

...

580

Seamen's Compensation for Industrial Accidents
1.—Legal Basis.
An Act relating to compensation to seamen for injuries suffered in
the course of their employment; No. 13, assented to 18 December
1911.

ATJSTBAUA

2.—Scope.
The Act applies to all members of the crews of vessels trading interState or foreign-going, as follows :
(a) seamen employed in ships registered in Australia ;
(6) seamen shipped in Australia, employed in British or foreign
ships, during such time as those ships are in Australian waters.
The legislation does not apply to the following vessels :
(a) boats normally propelled by oars ;
(b) ships employed in the naval or military services of the
Commonwealth.
3.—Administration.
The employer carries his own insurance. He may, however,
insure with an insurance company, charging fixed premiums, or with a
mutual accident insurance association. In case of the insolvency of
the employer, his claims on the insurance company are transferred to
the injured worker.
Any question as to the liability to pay compensation or as to the
amount or duration of compensation, or as to who is a dependant, if
not settled by agreement, is settled by arbitration, or by a Court. If
both parties consent, the matter is brought before a joint committee
competent to deal with questions arising under the Seamen's Compensation Act. If there is no such committee, or if either party objects to
such settlement, or if the committee refers the matter to arbitration or
fails to settle the question within six months, the matter is brought
before a single arbitrator agreed on by the parties or appointed by a
county court.
4.—Financial Resources.
The funds are supplied entirely by the employers.
5.—Benefits.
(a) Definition of risks.
The scheme covers personal injury by accident arising out of and
in the course of employment, provided the injury disables the seaman
for a period of at least one week from earning full wages.
(b) Cash benefits.
If incapacity lasts less than two weeks, no compensation is payable
in respect of the first week.
If incapacity lasts two weeks or more, weekly benefit is payable,
except where the shipowner is liable under any other Act to defray
the expenses of maintenance.
1. Temporary incapacity.
In case of total incapacity, weekly benefit consists in an amount of
50 per cent, of the seaman's average weekly earnings but not more than

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

30s. (including old-age pension, if any) ; the rate may be increased to
100 per cent, of the earnings if the worker is under 21 years of age and
his earnings are less than 20s., but shall not exceed 10s. in such ease.
In the case of partial incapacity, the weekly payment shall not
exceed the difference between the average weekly earnings before the
accident and the average amount the worker is earning or able to earn
in some suitable employment or business after the accident; it shall
bear such relation to the amount of that difference as appears proper
under the circumstances.
2. Permanent incapacity.
Other than as to the redemption of liability for weekly payments by
a lump sum payment (mentioned below), there are no special provisions
relating to permanent incapacity.
The liability for weekly payments may at any time be redeemed,
by agreement between the parties (but subject to official approval) by
a lump sum payment.
Where weekly payment has been continued for not less than six
months, the habüity therefor may, at the option of the employer be
redeemed by a lump sum payment :
(a) in any case where incapacity is permanent, of such amount as
would, if invested in a fife annuity, provide for an annual payment equal to seventy-five per cent, of the annual value of the
weekly payments ; or
(6) in any other case, of such amount as is settled by arbitration or
by a Court.
3. Death.
In case of death of a worker leaving total dependants the latte r
receive :
(a) an amount equal to the worker's earnings during the last three
years, or
(6) £200, whichever is the greater,
but not, in any case, more than £500.
Any weekly payment or lump sum in redemption thereof shall be
deducted from such amount.
In case of partial dependants, the latter receive an amount agreed
upon or determined by arbitration or proceedings under the Act and
deemed to be reasonable and proportionate to the loss suffered by the
dependants.
Where the worker leaves no dependants, reasonable expenses for
medical attendance and burial not exceeding £30 are paid, except
where the shipowner is liable under any other Act to pay burial
expenses.
6.—Statistics.
Payments made by shipowners during the year 1932-1933 amounted
to the sum of £1,988. 8s. 4d.
Compensation to injured seamen employed on intra-State ships is
payable under State Compensation Acts, and not under the Commonwealth Seamen's Compensation Act.

AUSTRALIA

Insurance against Industrial Accidents and Occupational Diseases in the
Northern Territory of Australia
1.—Legal Basis.
Workers' Compensation Ordinance, No. 6, assented to 29 July
1931, as amended by Ordinance No. 9 of 19311.
2.—Scope.
The insurance covers all persons employed under contract of service
or apprenticeship on manual labour, clerical work or otherwise.
The following are excluded :
(a) persons whose annual remuneration exceeds £550 ;
(b) persons whose employment is casual and who are employed
otherwise than for the purposes of the employer's trade or
business ;
(c) outworkers;
(d) members of the employer's family dwelling in his house ;
(e) persons in the service of the Commonwealth ;
(/) Australian aborigines.
3.—Administration.
Insurance is compulsory with an insurance institution approved by
the Minister for the Interior, subject to certain exceptions which may
be granted by the Minister under given conditions. Any question as
to the liability to pay compensation, or as to the amount or duration
of compensation is settled by arbitration. If both parties agree, the
matter shall be settled by a joint committee competent for this purpose.
If any party objects, or if there is no such committee, or if the committee fails to settle the matter within six months, the question shall be
settled by a single arbitrator agreed on by the parties. In the absence
of agreement, a local court is competent.
4.—Financial Resources.
The funds are provided entirely by the employers. The employer
is directly liable for payment in respect of compensation and is liable
to be prosecuted if he fails to insure with an approved society.
5.—Benefits.
(a) Definition of risks.
The risks covered are the same as under the Commonwealth
Employees' Compensation Act.
(b) Benefits in kind.
The benefits are the same as those granted under the New South
Wales Workers' Compensation Act.2
1
The scheme was amended by Ordinance No. 5 of 1934, assented to on
14 March 1934 and t h e compensation provisions applying in Queensland were
substituted for those set out below.
2
By Ordinance No. 5 of 1934, the provision of medical benefits was abolished.

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(c) Cash benefits1.
Cash benefits are the same as for Commonwealth employees, except
that in case of partial and temporary incapacity the maximum is £750,
while in case of total and permanent incapacity the maximum is £1,000.
Moreover, the supplement for each child is paid up to the age of 14
years only.
6.—Statistics.
No statistics available.
Insurance against Industrial Accidents and Diseases in the Territory for
the Seat of the Government
1.—Legal Basis.
Workers' Compensation Ordinance No. 22, dated 6 November
1931, as amended by Ordinances Nos. 18 and 19 of 1933.
The scheme is the same as that for the Northern Territory of
Australia (as amended by Ordinance No. 5 of 1934, see footnote p. 7).
2.—Statistics.
No statistics available.
B.—~NEW SOUTH WALES

General Insurance against Industrial Injury—i.e., Accidents and
Occupational Diseases (other than Diseases caused by Silica Dust)
1.—Legal Basis.
Workers' Compensation Act, 1926; No. 15, assented to 18 March
1926, as amended by Acts No. 32, 1927, and No. 36, 1929. This is the
general compensation statute of New South Wales.
2.—Scope.
The statute provides compensation benefits for any person employed
under a contract of service or apprenticeship on manual labour,
clerical work or otherwise, who receives injury.
The following are excluded from the compensation benefits of the
Act:
(a) persons whose remuneration exceeds £550 a year ;
(6) outworkers ;
(c) members of the police force ;
(d) persons whose employment is casual and who are employed
otherwise than for the purpose of the employer's trade or
business.
3.—Insurance and Administration.
Insurance of liability by employers is compulsory with any one
insurance company licensed by the Workers' Compensation Commission
1
The scheme was amended b y Ordinance No. 5 of 1934, assented to on
14 March 1934 and the compensation provisions applying in Queensland were
substituted for those set out above.

AUSTRALIA

of New South Wales. There were 56 licensed insurers on 30 J u n e 1934.
The Commission, however, is empowered to authorise a n employer
whose financial situation is sufficiently sound t o bear the risk himself,
provided t h a t he deposits with the Government a sum fixed by t h e
Commission. On 30 J u n e 1934 there were 56 employers who h a d been
granted such permission to self-insure.
For the determination of all matters a n d questions arising under the
Act, t h e Workers' Compensation Commission is exclusively competent.
I t s action or decision is final on questions of fact. There is an appeal
by way of case stated on questions of law from the decision of the
Commission t o the Supreme Court of New South Wales, and then to the
High Court of Australia. The Commission consists of a legal chairman
(barrister-at-law, whom the Statute gives the same rank, status a n d
precedence and salary and rights as a J u d g e of the District Court) a n d
two other members appointed by the Governor in Council. The Chairm a n holds office until he reaches 70 years of age ; the other two members
are appointed for 7 years and are eligible for re-appointment.
The medical examination work of the Commission is carried out b y
Medical Boards, the personnel of which are appointed by the Commission and constitute legally qualified medical practitioners who speciaUse
in the various branches of medicine, surgery, radiography, etc. The
certificate of a medical board is conclusive evidence in so far as it
complies with the Commission's Order of Reference. The Commission
has 174 medical referees, who constitute medical boards, on its
register.
The Commission encourages conciliation and has constituted a
Conciliation and Information Bureau where free legal advice and
assistance are rendered t h e public without charge.
4.—Financial Resources.
Compensation is a charge on the employer, who m u s t insure for the
full amount of his liability under the Act, if not authorised t o selfinsure.
The funds of the Commission are provided entirely by levy on the
licensed insurers, and self-insurers.
5.—Benefits.
(a) Definition of risks.
The statute covers :
(1) personal " injury " arising out of a n d in the course of a
worker's employment, whether away from the place of employment or not, provided the worker is prevented for a t least
seven days from earning full wages a t the work a t which he
was employed.
(2) " Injury " is denned by the statute t o include " any disease
arising out of and in t h e course of the employment whether of
sudden onset or of such a n a t u r e as to be contracted by a
gradual process other t h a n disease caused by silica dust ", for
which special legislative provision has been made only in

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

certain cases—i.e., Broken Hill metalliferous miners and
stonemasons, quarrymen, rockchoppers and sewer miners
working in sandstone in the County of Cumberland.
(b) Benefits in kind.
Costs of medical treatment, hospital treatment or ambulance
services, including the supply of artificial members and similar appliances ; medicines ; medical and surgical supplies or curative apparatus.
Liability for hospital treatment shall not exceed 63s. per week and
£25 in all ; for medical treatment, the maximum liability is £25 ; the
sum to be reasonably appropriate. For ambulance services, the
maximum is 42s., except in particular cases.
(c) Cash benefits.
Compensation for incapacity may not in the aggregate exceed
£1,000, excluding medical and hospital benefits.
During incapacity, weekly benefit is payable as from the first day ;
the liability for weekly payments may, with the consent of the worker,
be redeemed in whole or part by a lump sum payment, determined by
the Commission. The latter shall have regard to the injury, the age
and occupation of the worker at the time of the injury and to his
diminished ability to compete in the open labour market.
1. Temporary incapacity.
In the case of total incapacity, weekly benefit consists in :
(a) an amount of 66f per cent, of the worker's average weekly
earnings, but not more than £3. The rate is increased to 100
per cent, of the earnings (i) where these are less than £3 (the
rate not to exceed £2) or (ii) where a worker under 21 years of
age earns less than 45s. (the rate not to exceed 30s.) ;
(b) a supplement of :
(i) £1 for a dependent wife or for a dependent adult female
caring for any child or being a member of the family and over
14 years of age ;
(ii) 8s. 6d. for each dependent child under 14 years of age,
or if there is no such child, for each dependent brother or
sister under 14 years of age.
The total weekly benefit shall not exceed the average weekly earnings or £5, whichever is the smaller amount.
In case of partial incapacity, the weekly payment shall in no case
exceed the difference between the average weekly earnings before the
injury and the average amount the worker is earning or able to earn in
some suitable employment or business after the injury; it shall bear
such relation to the amount of that difference as appears appropriate
under the circumstances.
2. Permanent injury involving physical loss.
For certain kinds of injuries of a permanent nature—such as loss
of members, of sight of one eye, etc.—the Act fixes the lump sum

AUSTRALIA

compensation which, if the worker so elects, may be taken in lieu of
weekly payments during incapacity.
As long as the worker does not elect to take lump sum compensation
according to the scale, weekly compensation payable during incapacity
is not limited, but it does not exceed a total of £1,000.
When the worker elects to be paid a scheduled lump sum any
payment, salary, etc., which the worker has received or may receive
in respect of the period of incapacity is deducted therefrom.
3. Death.
In case of death of a worker leaving total dependants, the latter
receive :
(a) an amount equal to the earnings of the last four years, or
(6) £400,
whichever is the greater amount, but not more than £800. Any
weekly payments or lump sum in redemption thereof shall be deducted,
but the amount shall not be less than £200.
A supplement of £25 is granted for each dependent child under
16 years of age.
Partial dependants receive a sum agreed upon or determined
by the Commission and deemed to be reasonable and appropriate to
the injury to the dependants.
Where a minor worker has no dependants but has contributed to
the maintenance of the members of his family, the latter are deemed
to be dependants and shall receive an amount not exceeding £400.
In case of a worker leaving no dependants, reasonable funeral
expenses not exceeding £30 are paid.
6.—Statistics.
The total estimated wages paid to workers covered by the Act
was £107,563,366 in the period 1 July 1933 to 30 June 1934.
The total estimated cost of insurance premiums under the Workers'
Compensation Act, 1926-1929, was £1,168,498 for the period 1 July
1933 to 30 June 1934.
The cost of administration of the Act by the Workers' Compensation
Commission amounted to £16,500 for the same period.
The number of injuries received by workers during the 12 months
1933-1934 was 45,989; 98-3 per cent, of the claims for compensation
arising therefrom were settled by the parties without litigation, and
1-7 per cent, were determined by the Workers' Compensation
Commission at public hearings.
As to compensation paid to injured workers, returns by insurers are
incomplete, the statistics hereunder relating to 74 per cent, of the total
number of cases only. For these cases the compensation paid was
distributed as follows :
Fatal cases
Disablement cases

...

£
68,484
563,881

£
632,365

This sum was paid out in the form of
weekly payments, lump suma and for
medical treatment.

INTERNATIONAL SUKVEY OF SOCIAL SERVICES, 1933
Weekly payments to :
Workers
Dependants of workers
L u m p sums to workers
Medical treatment ...
To dependants of deceased workers

£
268,397
74,364
128,358
92,762
68,484
• 632,365

Diseases caused by Silica Dust
Compensation for Incapacity due to Pneumoconiosis and Tuberculosis
contracted by the Miners of Broken Hill
1.—Legal Basis.
Workers' Compensation Broken Hill Act, No. 36, assented to
31 December 1920, as amended by Acts No. 22 of 1927 and Nos. 36
and 43 of 1929. This is a special measure of limited application1.
2.—Scope.
The scheme covers persons employed in the metalliferous mines
of Broken Hill situated in the County of Yancowinna in the State of
New South Wales.
3.—Administration.
The Broken Hill Mines (pneumoconiosis—tuberculosis) Compensation
Fund is administered by a joint committee at Broken Hill consisting
of two representatives of the employers, two representatives of
the miners and an independent chairman. The joint committee
makes the awards of compensation on the basis of certificates of
the medical authority. Appeal from its decisions on questions of
fact and law lies to the Workers' Compensation Commission.
4.—Financial Resources.
Half the resources of the Fund are provided by the employers and
the other half by the Government of the State of New South Wales.
The amount of the contribution is fixed by the joint committee.
There is no limit on the aggregate amount of compensation payable to
persons entitled to the benefits of the scheme.
5.—Benefits.
(a) Definition of risks.
Compensation is payable to a " mine worker " suffering from
pneumoconiosis and (or) tuberculosis to such a degree that he should
not be re-engaged or should be withdrawn from employment in
Broken Hill Mines. Compensation is also payable to his widow in case
of his death from these diseases.
(b) Benefits in kind.
Medical, surgical and hospital treatment, including nursing,
medicines, medical and surgical supplies and other apparatus. The
1

F u r t h e r amended by Act No. 55 of 28 December 1934.

ATJSTKALIA

total cost shall not exceed £50 unless the joint committee otherwise
decides, and in no case £125.
(c) Gash benefits.
Benefits consist in weekly payments at the rates fixed in the Act
or, with the agreement of the beneficiary and with the approval of the
joint committee, in a lump sum in redemption of all weekly payments.
1. Incapacity.
In case of total incapacity, the weekly rate of benefit is £3.
Additional payments are granted to workmen for dependants as
follows, but in no case is the total weekly payment to exceed £5 :
(a) in case of a single man or widower, £1 each for father and
mother, or any dependent housekeeper for a widower with
family under 14 years ; 8s. Qd. each for sister, brother or child
under 14 years of age. The total supplements shall not exceed
£1 17s. Od.;
(b) in case of a married man, £1 for the wife ; 8s. 6d. for each child
under 14 years of age.
In case of partially dependent relatives the amounts are fixed by
the joint committee.
During partial incapacity, the weekly payment shall not exceed
the difference between the hving or basic wage for the locality and
the average weekly wage the worker is earning or able to earn in some
suitable employment or business.
2. Death.
(a) An allowance of £2 10s. for the widow until remarriage ; .
(6) reasonable funeral expenses not exceeding £20.
3. Removal Expenses.
A beneficiary who is compelled, in order to obtain suitable
employment, to remove from the County of Yancowinna may
receive removal expenses.
6.—Statistics.
Number of persons covered by scheme as at 30 June 1934 : 699
INCOME AND E X P E N D I T U R E F O R 1933-1934.

Broken Hill (Pneumoconiosis-Tuberculosis) Compensation Fund.
EXPENDITURE

INCOME

£
Contributions
by
Broken Hill Mine
owners
Contributions by t h e
Government
from
consolidated revenue

Total

s. d.

56,666 10

113,333

£
s. d.
Compensation paid out
of Fund
110,159 16 2
Funeral expenses
79 12 6
Cost of administration
by joint committee
(including fees to
medical authority)
2.929 10 5
Special expenses
165 1 0
Total

113,333

HOTE.—Compensation to workers employed at the mines after 31 December 1920 is payable
direct b y the mine owner, and is not a charge on the above Bund. Statistics regarding the
compensation paid to the 54 "mine employees" are not available.

INTERNATIONAL SITRVEY OF SOCIAL SERVICES, 1933

Diseases caused by Silica Dust
Compensation for Certain Workmen suffering from Silicosis
or Other Diseases due to Silica Dust in the
County of Cumberland
1—Legal Basis.
Workers' Compensation (Silicosis) Act No. 13. Assented to
19 November 1920, as amended by Act No. 15 of 1926. Workers'
Compensation (Silicosis) Scheme, No. 1, 16 September 1927, amended
on 7 June 1929, 14 March 1930 and 20 February 1933. This is a
special measure providing for the promulgation of schemes throughout the State for compensating workmen disabled by diseases caused
by silica dust.
2.—Scope.
Only one scheme has been promulgated under this Act. The
scheme applies to workmen employed in the working on sandstone, as
stonemasons, quarrymen, rockchoppers or sewer miners in the
County of Cumberland.
3.—Administration.
The scheme and compensation fund are administered by a Joint
Committee in Sydney consisting of one representative of the Crown
as an employer, one representative of the other employers, two of
the employees and an independent presiding officer. The medical
aspect is controlled by a medical board and the Workers' Compensation
Commission of New South Wales is vested with certain administrative
authority.
4.—Financial Resources.
The scheme is financed by levies on wages payable by employers
and Government subsidies.
5.—Benefits.
(a) Definition of risks.
The scheme covers :
(1) Death from silicosis of the lungs or from silicosis accompanied
by tuberculosis, and total disablement from these diseases
or from any other diseases of the pulmonar}7 or respiratory
organs caused by exposure to silica dust.
(2) Suspension from employment in sandstone working of
workers suffering from the above diseases to such a degree
as to render work dangerous in that industry.
In order to be entitled to compensation the worker must have been
continuously resident in New South Wales during 5 years preceding
death or incapacity, and employed in the industry for not less than
300 days during the five years, or he must have been resident during

AUSTBALIA

5 years out of 7 preceding the death or incapacity and employed for
not less than 500 days during the period of 7 years.
(b) Benefits in kind.

None.

(c) Gash benefits.
The compensation for incapacity may not in the aggregate exceed
£750. A lump sum not exceeding £50 may be paid in addition to
weekly benefit which is regarded as redeeming in part the weekly
payments, the latter being reduced accordingly.
1. Temporary incapacity.
In case of total incapacity the weekly payment consists in an
amount not exceeding 6 6 | per cent, of the average weekly earnings
of the worker before the accident and not higher than £3.
For a worker under 21 years of age earning less than 20s. the rate
shall be increased to 100 per cent, of the wages subject to a maximum
of 15s. a week.
In case of partial incapacity entailing suspension of employment
in industry—as under (a) (2)—compensation is as follows :
(a) Where the worker is unable immediately to find other suitable
employment at the same or a higher rate of wages, payment of full
wages during two weeks ;
(6) After two weeks, compensation is as follows :
( i) where the worker's general physical capacity for employment
is not impaired but he is still unable to obtain employment
under the above conditions, 66f per cent, of the average
weekly earnings but not more than £3, payable for a period of
not more than 26 weeks;
(ii) if the worker's physical capacity for employment is impaired,
a proportion of the full pension appropriate to the circumstances which shall not exceed the difference between the
average earnings before the disablement and those the worker
is earning or able to earn in some suitable employment or
business when disabled ; such benefit is payable while impairment continues.
(c) Where the worker removes to another district in order to find
suitable employment reasonable expenses for removal are paid.
2. Permanent incapacity.
No special provisions.
3. Death.
In case of death of a worker leaving total dependants the latter
receive either :
(a) an amount equal to the worker's earnings during the last
three years, or
(6) £300.
but not more than £500.
Any weekly payments or lump sum in redemption thereof are
deducted from the amount payable, but the latter shall not be less

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

than £200, provided that the employer's total liability shall not exceed
£750.
Partial dependants receive an amount agreed upon or determined
by the Joint Committee and deemed to be reasonable and proportionate
to the loss suffered by the dependants.
In the case of death of a worker leaving no dependants, expenses
for burial and medical attendance not exceeding £20 are paid.
6.—Statistics.
Number of persons covered by scheme and receiving compensation
as at 30 June 1934
73.
Stonemasons
Quarrymen ...
Rockchoppers and sewer miners ...
Dependants of deceased workmen

22
10
31
10
73

Of these 73 cases, 69 continuing awards had been made by the
Joint Committee in previous years, and 4 new awards were made in
the year under review.
INCOME AUD E X P E N D I T U R E FOB 1933-1934
EXPENDITURE

INCOME

B y contributions of employers
2,909 11
Government subsidies ... 7,350 0
Revenue from invest51 5
ments ...

... 10,310 16

Total

To compensation paid
Medical expenses, etc.
Cost of administration
Other expenditure
Total

£
8,630
442
1,208
29
10,310 16

d.
7
4
8

Compensation for Certain Miners suffering from Lead-poisoning
contracted in the Broken Hill Mines
1.—Legal Basis.
Workers' Compensation (Lead-poisoning—Broken Hill) Act
No. 31, assented to 24 November 1922, as amended by Act No. 26 of
1924. This is a special measure dealing with a particular group of
Broken Hill metalliferous miners.
2.—Scope.
The scheme applies to certain workmen who have been employed
in Broken Hill Mines in the County of Yancowinna. Only 8 cases
were dealt with under this Act during the 12 months ended 30 June
1934, and all claims were refused on medical grounds.
3.—Administration.
The medical work is carried out at Broken Hill by a medical
board, consisting of two legally qualified medical practitioners
appointed by the Governor and a chairman who is the medical officer
in charge of the Bureau of Medical Inspection at Broken Hill (or may
be a legally qualified medical practitioner nominated by the Minister),
which issues certificates as to fitness for work or incapacity from

AUSTRALIA

lead-poisoning. One of the medical practitioners is nominated by
the mine owners and one by their workmen. Otherwise the provisions
of the Workers' Compensation Act 1916 apply.
4.—Financial Resources.
Compensation is paid direct to workmen coming within this Act
by the mine owner to whom such liability attaches.
5.—Benefits.
(a) Definition of risks.
The Board may certify that a worker should bo removed from
further exposure to lead-poisoning and therefore from employment
in Broken Hill Mines if the worker has previously been certified as
suffering from lead-poisoning and has recovered therefrom, and if in
the opinion of the Board he is susceptible to the action of lead.
The worker is then entitled to special compensation under the Act.
The same applies if he is certified by the Board as fit to return to
work and the mine owner refuses to re-employ him or to continue to
employ him or dismisses him for the reason that he has been disabled
by lead-poisoning.
Moreover, a workman who was in the employment of a mine
owner during a prescribed period and who is certified to be suffering
from lead-poisoning and of being disabled from earning full wages at
the work on which he was employed, or dies from lead-poisoning, is
entitled to compensation under the Workers' Compensation Act, 1916.
(Broken Hill miners also have rights under the General Compensation
Act of 1926 which prescribes greater benefits in certain respects.)
(b) Benefits in kind.
A workman in receipt of compensation for disablement by leadpoisoning receives treatment by a medical practitioner or in hospital.
(c) Cash benefits.
Benefits under Workers' Compensation Act 1916.
1. Incapacity.
Same as under Silicosis Scheme for the County of Cumberland
see p. 14.
2. Death.
Same as under Silicosis Scheme for Cumberland, except for
minimum limit of £200 and maximum limit of £750.
The special benefits provided by the Act in the case of withdrawal
or exclusion are intended as compensation for the worker's withdrawal
from the industry and to enable him to obtain a new occupation.
The maxima are as follow :
Period of service
Not more than 10 years
Over 10 years to 20 years
Over 20 to 30 years
Over 30 years
G 12973

...

Maximum amount
£
...
50
200
300
400
B

INTERNATIONAL SURVJÎY OK SOCIAL S13RV1C1ÍS, 1033

Failing agreement, the amount payable is settled by an industrial
magistrate.
6.—Statistics.
No statistics other than the results of medical examination are
available.
C.—QUEENSLAND

Insurance against Industrial Accidents and Occupational Diseases
1.—Legal Basis.
Workers' Compensation Acts, 1916 to 19291.
2.—Scope.
Insurance applies to any person (including a domestic servant)
who has entered into or works under a contract of service or apprenticeship or otherwise with an employer, whether by way of manual labour,
clerical work or otherwise.
The following are excluded :
(a) persons whose annual remuneration exceeds £520 ;
(6) persons whose employment is casual and who are employed
otherwise than for the purposes of the employer's trade or
business ;
(c) members of the police force ;
(d) members of the employer's family dwelling in his house.
3.—Administration.
The insurance is administered by a single inter-occupational institution, the State Insurance Office, which is managed by an official
appointed by the Governor in Council, the Insurance Commissioner.
Applications for compensation are in the first instance allowed or
rejected by the Insurance Commissioner. Appeal lies to the Industrial
Magistrate; the Commissioner may also require the matter to be
heard and determined by an Industrial Magistrate.
4.—Financial Resources.
The insurance funds are provided by the employers' contributions.
In 1916 the State granted out of consolidated revenue a sum of £20,000
to bring the Act into operation. This amount was repaid to the
Treasury in the first year of operation.
5.—Benefits.
(a) Definition of risks.
The insurance covers :
(1) Injuries resulting from an accident occurring in the workplace or during the worker's journey to or from the workplace
or outside the workplace at a time when the worker is in the
service of his employer.
1

The Act was further amended ou 20 Decomber 1934.

AUSTBAilA

(2) The occupational diseases specified in the schedule to the
Act, provided the worker has resided in Queensland for at
least one year, and was employed in any employment mentioned
in the schedule.
(b) Benefits in kind.
None.
(c) Cash benefits.
Compensation may not in the aggregate exceed £750.
During incapacity for work, weekly benefit is payable as from the
first day of incapacity.
1. Temporary incapacity.
In case of total incapacity, the weekly benefit consists in :
(a) an amount of 6 6 | per cent, of the average weekly earnings ;
the rate may be increased to 100 per cent, where such earnings
are less than £2 15s., but shall not in any case exceed £2 15s.
a week, nor be less than £1 (10s. in case of old-age or invalidity
pensioners). The minimum rate is £2 15s. for a worker with
dependants ;
(6) a supplement equal to one-third of the difference between
£2 15s. and the basic wage paid in the State for each dependent
child under 14 years of age1. This supplement is payable
during the disablement unless the child reaches the age of
141 during period of incapacity, when such allowance ceases.
The total amount of supplements may not exceed the
difference between the basic wage and £2 15s.
The total weekly amount of compensation shall not in the
aggregate exceed the basic wage.
In case of partial incapacity, a corresponding portion of the full
pension is paid.
2. Permanent incapacity.
For certain kinds of injuries of a permanent nature—such as loss
of sight, of members, of hearing, of mental powers, etc.—the amount
payable as compensation is fixed in the Act (maximum=£750).
During total incapacity resulting from such injuries, the compensation payable shall not be limited by the above provision, but any sum
thus paid shall be deducted from the lump sum.
For other injuries of a permanent nature no special provisions are
laid down in the Act.
3. Death.
In case of death of a worker leaving relatives totally dependent on
his earnings (total dependants) the latter shall receive :
(a) a sum equal to the victim's earnings during the last three
years, or
Amendment 1U34 : 16 years of age.

INTERNATIONAL.SURVEY OF SOCIAL SERVICES, 1933

(6) £300, whichever is the greater amount, but not more than
fßOO1.
Any weekly payments and lump sum in redemption thereof shall
be deducted from such amount.
If the worker leaves dependants partly dependent upon his
earnings (partial dependants) a reasonable sum proportionate to the
injury to the dependants shall be paid.
In case of a worker leaving no dependants, expenses for medical
attendance and funeral expenses not exceeding £50 are paid.
6.—Statistics.
See under (6) of the following part.
Compensation for Diseases contracted in Mining, Quarrying or
Stone-crushing and Cutting, Baking and Flour Making
1.—Legal Basis.
Workers' Compensation Acts, Section 14 B.
2.—Scope.
Workers employed in the above-named occupations are entitled
to special benefits under the Workers' Compensation Acts, provided
they have:
(a) resided in Queensland during the five years preceding the
date of death or incapacity and have been employed in any
employment of the above-named kind for not less than 300 days
during this period of five years, or
(ö) resided in Queensland for not less than 5 years within the
last 7 years and been employed for not less than 500 days in
the said employment during the period of 7 years.
Half the compensation, as set out below (except that it shall not
in the aggregate exceed £200), is paid if the worker has performed
300 shifts at any time, provided that not more than 15 years have
elapsed since the cessation of such employment.
3.—Administration.
Same as under general scheme.
4.—Financial Resources.
Same as under general scheme.
5.—Benefits.
(a) Definition of risks.
The scheme covers :
(1) Silicosis of lungs, miners' phthisis, pneumoconiosis, ankylostomiasis, nystagmus, subcutaneous cellulitis of the hand
and over the patella, acute bursitis over the elbow, inflammation of the synovial lining, miners' itch, copper itch, dermatitis
1

Amendment 1934 : the compensation payable in case of death is £600.

AUSTRALIA

and caisson disease, in mining, quarrying, stone-crushing or
cutting ;
(2) bakers' phthisis;
(3) millers' phthisis.
(b) Benefits in kind.
Such necessary medical assistance and medicines as the Commissioner considers reasonable are granted in case of incapacity. Where
a medical practitioner certifies that the worker is capable of cure or
mitigation by special hospital or sanatorium treatment the Commissioner may arrange for the worker to be removed to a hospital or
sanatorium instead of receiving weekly benefit and medical treatment.
(c) Cash benefits.
Compensation for incapacity shall not in the aggregate exceed £450.
1. Incapacity.
In the case of temporary or permanent incapacity weekly benefit
is granted consisting in :
(a) an amount of £1 or less according to the degree of incapacity ;
(6) a supplement for each child under 14 years of age not exceeding
10s. payable during incapacity or until the age of 14.x
The total amount of weekly payments shall not exceed £2 10s.
2. Death.
In case of death the compensation consists in :
(a) an allowance to the widow of £1 per week :
(6) 10s. per week for each child under 14 years of age 1 until
that age is reached;
(c) funeral expenses not exceeding £20.
The total amount of benefits shall not exceed £2 10s. per week
or £450 in all, less any compensation paid during incapacity within
ten years prior to the death.
6.—Statistics.
INCOME AND E X P E N D I T U R E FOR 1933-1934

General Scheme
INCOME

£
s. d.
Balance brought forward
196 14 10
Contributions to cover
workmen's compensation for accidents
and
industrial
diseases
350,187 2 7
Reserves a t 30 J u n e
1932
143,512 5 5
Interest
23,885 14 4
Miscellaneous
...
2,774 0 11
Total
... 520,555 18 1
1

EXPENDITURE

£
s. d.
Claims paid
309,408 13 7
Incidental expenses ...
529 10 0
Bad debts
1,910 17 0
Reserves
128,168 18 7
Administrative
expenses
56,938 11 3
Discount and advertisements
1,527 19 9
Balance
22,071 1 11

Amendment 1934 : 1C years of age.

Total

... 520,555 18

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

Compensation for Mining, Quarrying, Stone-crushing or Cutting,
Baking and Flour-milling Diseases
£
s. d.
£ s. d.
Contributions
27,138 14 10
Claims paid
28,823 10 6
Compensation paid on account of Claims reported in 1933-1934
(Excluding Claims made on account of Industrial and Mining Diseases)
£ s. d.
Fatal
37,394 8 0
Permanent
37,109 17 0
Temporary
187,677 2 5
Total
262,181 7 11
Compensation for Lead-poisoning to Miners in Mount Isa Mines
1.—Legal Basis.
The Workers' Compensation (Lead-poisoning, Mount Isa) Acts,
No. 34, assented to 21 December 1933.
2. Scope.
The scheme applies to workers (as defined under the principal Act)
employed in or upon the works of the mining company working the
Mount Isa Mines.
3.—Administration.
A medical board consisting of three qualified medical practitioners
appointed by the Governor in Council, one nominated by the Mount
Isa Mines Company, one by the workers and the chairman by the
Minister, issues certificates as to fitness for work or incapacity from
lead-poisoning. Otherwise the provisions of the Workers' Compensation Act apply.
4.—Financial Resources.
(i) Same as under general scheme for incapacity due to leadpoisoning.
(ii) The Mount Isa Mines Company provides the funds for
compensation to workers withdrawn or excluded from employment.
5.—Benefits.
(a) Definition of risks.
(1) Incapacity resulting from lead-poisoning.
(2) The Board may certify that a worker should be withdrawn
from further exposure to lead-poisoning if he was previously certified
as incapacitated by lead-poisoning and has recovered therefrom and
is certified as susceptible to lead-poisoning. In the case of a new
worker a period of probation of not less than four months at the mine
is provided for, after which he may be certified as susceptible to
lead-poisoning and removed from further exposure.

AUSTRALIA

The worker thus excluded is entitled to compensation. The same
applies if the mining company refuses to employ or to continue to
employ a worker who has been incapacitated and subsequently certified
as fit to return to employment, or dismisses a worker who has been
employed or continued in employment after disablement and subsequent
certification of fitness to return.
(b) Benefits in kind.
None.
(c) Gash benefits.
1. Same as under general scheme for incapacity due to leadpoisoning.
2. Compensation payable to workers withdrawn or excluded from
the industry, consisting of the following amounts :
Period of service
N o t more t h a n 10 years
Over 10 years to 20 years
Over 20 years

...

Maximum amount
...
£50
£200
£300

In default of agreement the amount payable is settled by an Industrial Magistrate.
6.—Statistics.
Number of insured persons : 1,316
Income and Expenditure for 1933-1934
No additional premium has been charged under Mount Isa Mines
Ltd. to provide cash benefits for incapacity for lead-poisoning. Such
claims are paid from the accident fund provided by the employers'
contributions generally. Cash benefits amounted to £1,056 6s. lid.
D.—SOUTH AUSTRALIA

Insurance against Industrial Accidents and Diseases
1.—Legal Basis.
Act to consolidate certain Statutes relating to compensation to
workmen for injuries suffered in the course of their employment,
No. 2103, assented to 30 November 1932.
2.—Scope.
Insurance covers all persons (including domestic servants) employed
under a contract of service or apprenticeship on manual labour, clerical
work or otherwise.
The following are excluded :
(a) persons whose average weekly wage exceeds £10 ;
(6) outworkers;
(c) members of the employer's family dwelling in his house;
(d) persons whose employment is casual and is not connected
with the purposes of the employer's trade or business ;

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(e) seamen, when the accident causing the injury occurred outside
the territorial waters of South Australia ;
(/) members of crew of fishing vessels sharing in profits or gross
earnings.
3.—Administration.
Every employer is obliged to obtain from an insurance company a
policy for the total amount of his liability to pay compensation to all
his workers. Exemption from this obligation is granted to employers
who, under certain conditions, have become their own insurers. Moreover, any employer who proves that his resources are adequate to pay all
the compensation for which he might become hable may be released
from the obligation to be insured. The Crown and the South
Australian Railways Commissioner are not obliged to insure.
Any question as to liability to pay compensation or as to the
amount or duration of compensation, if not settled by agreement, is
settled by a single arbitrator agreed on by the parties, or by the special
Magistrate. Appeal lies to the Supreme Court.
4.—Financial Resources.
The resources of the scheme are supplied entirely by the employers.
5.—Benefits.
(a) Definition of risks.
The scheme covers :
(a) personal injury by accident arising out of and in the course of
employment, provided the injury disables the workman for at
least one day from earning full wages at the work at which he
was employed ;
(6) occupational diseases specified in a schedule to the Act, if due
to the nature of any employment in which the worker was
employed at any time within twelve months previous to the date
of disablement, or if he was employed in a process mentioned
in the schedule opposite the disease.
(b) Benefits in kind.
None.
(c) Cash benefits.
Compensation for incapacity may not in the aggregate exceed £700.
During incapacity, weekly benefit is payable as from the first day of
incapacity. After not less than six months of weekly payments, the
liability may, on application by the worker or employer, be redeemed
by the payment of a lump sum, which, failing agreement, is settled by
arbitration.
1. Temporary incapacity.
In the case of total incapacity the weekly payment shall consist in :
(a) an amount of 50 per cent, of the average weekly earnings ;
(b) a supplement of 7s. 6d. for each dependent child under 14
years of age.

AUSTRALIA

The minimum rates payable are :
(a) £2 for a married man, and 7s. Qd. for each child ; the same for
a widower with children ;
(6) 30s. for a single man or a widower without children.
The total weekly payment shall not exceed £5, or the average
weekly earnings.
Where the earnings, however, of a workman 21 years of age and
over are not more than 35s. in the ease of a married man or of a widower
with dependent children, and 25s. in the case of a single man or a
widower without children, the compensation shall be 35s. or 25s.
respectively.
For infirm workers who have obtained a certificate of incapacity
from the Medical Referee, or aged workers over 60 years of age, a
maximum amount of compensation may be fixed by written agreement
between worker and employer, but the compensation shall not be less
than 20s. per week during incapacity and the total liability not less than
£100.
In case of partial incapacity, the weekly payment shall in no case
exceed the difference between the average weekly earnings before
the accident and the average amount the worker is earning or able to
earn in some suitable employment or business. It shall be such a
proportion of the amount of this difference as appears proper under the
circumstances.
2. Permanent incapacity.
For certain kinds of injuries of a permanent nature—such as loss
of sight, of members, of hearing, of mental powers, etc.—the degree of
incapacity is fixed in the Act (100 per cent. = £700).
During total incapacity resulting from such injuries, the compensation payable shall not be limited by the above provision, but any sum
thus paid shall be deducted from the compensation payable according
to the schedule.
For other injuries of a permanent nature, no special rules or rates
are laid down.
A worker under 21 years of age or an apprentice who is permanently
disabled shall receive compensation assessed on the basis of the weekly
sum he would probably have been able to earn if he had then attained
the age of 21 or completed his apprenticeship; the amount shall not
be less than £3 per week.
3. Death.
In case of a worker leaving total dependants, the latter shall receive
either :
(a) a sum equal to the victim's earnings during the last three years
preceding the injury, or
(6) £400,
whichever is the greater amount, but not more than £600.
Dependants who were only partly dependent on the earnings of
the victim receive an amount agreed upon or determined by arbitration

INTERNATIONAL SURVEY OÏ SOCIAL SERVICES, 1933

and deemed to be reasonable and proportionate to the loss, maximum
£600.
Any weekly payments during incapacity and any lump sum in
redemption thereof shall be deducted from such amounts.
In case of a worker leaving no dependants, expenses for medical
attendance and funeral expenses not exceeding £20 are paid.
6.—Statistics.
INCOME AND E X P E N D I T U R E FOB 1932-1933
INCOME

Contributions of employers

Total

EXPENDITURE

£
95,895

Cash benefits
Cost of administration
Other expenditure ...

95,895

Total

!::}

£
50,108
42,295
92,463

E.—TASMANIA

Compensation for Industrial Accidents
1.—Legal Basis.
The Workers' Compensation Act, No. 82, assented to on 22 December 1927, as amended by No. 72 of 1929.1
2.—Scope.
The legislation applies to all persons employed under a contract of
service or apprenticeship on manual labour, clerical work or otherwise.
The following are excluded :
(a) persons whose average weekly wage exceeds £6 ;
(b) persons whose employment is casual and who are employed
otherwise than for the purposes of the employer's trade or
business ;
(c) members of the police force ;
(d) outworkers;
(e) domestic servants whose continual service with one and the
same employer is less than 27 days at the time of injury ;
(/) members of the employer's family dwelling in his house ;
(g) members of the crew of a fishing boat who share in the profits.
3.—Administration.
The employers are directly liable for compensation to their workers,
salaried employees and apprentices who are victims of accidents. They
may transfer their liability to an insurance company charging fixed
premiums or to an employer's mutual insurance association.2
Claims for compensation under the Act and questions connected
therewith are settled by agreement or by proceedings before a judge of
the Supreme Court. Appeal lies to the Supreme Court.
1
Amended by Act Ko. 42 of 1933, dated 10 J a n u a r y 1934, and Act No. 67
of 13 December 1934.
2
Insurance was made compulsory by Act Xo. 42 of 1933, Rubject to exemption
in certain cases.

AUSTRALIA

4.—Financial Resources.
The resources of the scheme are provided entirely by the employers.
5.—Benefits.
(a) Definition of risks.
The scheme covers personal injury by accident arising out of and
in the course of employment, provided the worker is disabled for at
least three days from earning full wages at the work at which he was
employed when the accident occurred.
(b) Benefits in kind.1
None.
(c) Cash benefits.
Compensation for incapacity may not in the aggregate exceed £600.
During incapacity, weekly benefit is payable, but if the incapacity
lasts less than four weeks no compensation is payable for the first three
days. 2
Where payment has been continued for not less than three months,
the liability may be redeemed by a lump sum payment determined by
agreement or by a judge.
1. Temporary incapacity.
In case of total incapacity, weekly benefit consists in a sum not
exceeding 50 per cent, of the average weekly earnings and not less
than £2 for adult male workers or 30s. in any case, but the rate shall
be 100 per cent, of the earnings where these are less than the minimum
rates (30s. or £2 respectively)3; maximum £3.
In case oí partial incapacity, the weekly rate shall be calculated upon
and not exceed one-half the difference between the weekly earnings
before the accident, and the amount the worker is earning or able to
earn in some suitable employment or business after the injury.
For aged or infirm workers, the maximum compensation may be
agreed upon in writing between the employer and worker beforehand,
but shall not be less than £1 per week and not more than £100 in all.
2. Permanent incapacity.
For certain kinds of injuries of a permanent nature, such as loss of
sight, of members, of hearing, of mental powers, the percentage degree
of incapacity is fixed in the Act (100 per cent. = £600).
During total incapacity resulting from such injury, compensation is
not limited by the above provisions, but any such payments shall be
taken into account in assessing compensation according to the scale.
For other injuries of a permanent nature no special provisions are
contained in the Act.
1
B y Act No. 42 of 1933 the employer was made liable to pay medical benefits
not exceeding £25 in any one case.
* The waiting period was abolished by Act No. 42 of 1933.
3
Act No. 42 of 1933 restricts this exception to minors earning less than 30s.

INTERNATIONAL SURVEY OP SOCIAL SERVICES, 1933

3. Death.
In case of death of a worker leaving total dependants, the latter
receive either :
(a) a sum equal to the earnings during the last three years, or
(6) £300,
whichever is the greater amount, but not more than £500.
Any weekly payments or lump sum in redemption thereof received
by the worker before his death shall be deducted from the sum payable,
but the amount paid shall not be less than £300.
Partial dependants shall receive a sum agreed upon or determined by
a judge as reasonable and appropriate to the injury to the dependants.
In case of a worker leaving no dependants, expenses for medical
attendance and burial not exceeding £25 are paid.
In case of an aged or infirm worker, the amount which was agreed
upon in writing between the employer and worker is payable, but not
less than £100 if the worker leaves dependants.
6.—Statistics.
Number of insured persons : Not known.
INCOME AND E X P E N D I T U R E FOB 1932-1933
INCOME

Contributions of employers...

EXPENDITURE

£
17,957

Cash benefits ...

...

£
8,724

Insurance against Occupational Diseases for Miners
1.—Legal Basis.
The Workers' (Occupational Diseases) Relief Fund Act, assented
to on 15 January 1929, as amended by Act No. 40 of 1929.*
S.—Scope.
Insurance covers all persons employed in mines or allied industries,
not including coal or shale mines, under a contract of service or
apprenticeship provided they have been engaged in mining operations
in Tasmania for five years prior to the commencement of the Act,
or have been certified free from disease upon medical examination.
Persons engaged in mining work and whose remuneration exceeds
£365 a year are excluded.
3.—Administration.
Insurance is compulsory with the Workers' Relief Fund managed
by a Board of three persons appointed for two years by the Government,
and consisting of one representative of the employers, one worker and an
independent chairman. Companies whose financial position warrants
such measure may be exempted from insurance by the Board.
1

Amended by Act No. 47 of 1933.

AUSTRALIA

4.—Financial Resources.
The financial resources of the Workers' Relief Fund are constituted
as follows :
(a) A weekly contribution from the employer fixed by the Board
and not exceeding Is. for every employee;
(6) A weekly contribution by the worker not exceeding 6d. ;
(c) A contribution from the Treasurer not exceeding Is.
The contributions of the employers and the Treasurer must be
the same, and the worker's contribution must be half the employer's
contribution.
Companies exempted from contributions to the fund meet any
compensation out of their own resources ; no contribution is paid by
the Treasurer in respect of the employees of such companies.
5.—Benefits.
(a) Definition of risks.
The scheme covers the following occupational diseases : silicosis ;
pneumoconiosis ; fibrosis ; poisoning by arsenic lead, carbon-monoxide ;
ankylostomiasis and nystagmus.
Compensation is payable when the worker is certified by a medical
practitioner to be suffering from a disease covered by the Act and
thereby incapacitated from continuing his work as a mine employee.
(b) Benefits in kind.
None.
(c) Cash benefits.
Compensation may not in the aggregate exceed £600.
1. Temporary incapacity.
The rates of weekly benefit during temporary incapacity are :
(a) £1 15s. for an unmarried employee and £2 5s. for a married
employee ;
(6) 5s. for each child under 14 years of age.
The employer may provide the worker with other suitable work at
wages not less than those he received when the incapacity arose.
2. Permanent incapacity.
In case of permanent incapacity for work, the worker may agree to a
redemption of the weekly sums by a lump sum.
3. Death.
In case of death due to a disease covered by the Act and occurring
during employment or payment of benefit for incapacity, dependants
receive a sum of £400 less any payments received by the victim during
his illness.

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

6.—Statistics.
INCOME AND E X P E N D I T U R E F O B 1932-1933
EXPENDITURE

INCOME

Contributions of insured
Contributions of employers
Public subsidies
Other contributions 1 ...
...
Revenue from investments
Total

£
309
618
607
2,009
87

Cash benefits ...
Cost of administration
Other expenditure

3,630 I

ToUl

£
3,112
428
2

3,542

1
Refunds from companies exempted from contributions under the Act for compensation
paid on their behalf by tho Board.

F.—VICTORIA

Insurance against Industrial Accidents and Occupational Diseases
1.—Legal Basis.
Act to consolidate the law relating to compensation for injuries
occurring in the course of employment, No. 380G, assented to on
12 February 1929.
2.—Scope.
The insurance covers all persons (including domestic servants)
employed under a contract of service or apprenticeship on manual
labour, clerical work, or otherwise.
The following are excluded from the scope of the legislation :
(a) persons whose annual remuneration exceeds £360 ;
(b) persons whose employment is casual and who are employed
otherwise than for the purposes of the employer's trade or
business ;
(c) members of the police force ;
(d) outworkers;
(e) members of the employer's family dwelling in his house3.—Administration.
Insurance may be entered into with the State Insurance Office,
which is managed by an official appointed by the Governor in Council,
or with another insurance institution approved by the Government.
Although insurance is compulsory the employer is always considered
as being the responsible party and is left to obtain a refund from the
insurance institutions of the sums which he has to pay to a worker or
his representative in the event of an accident.
Any question as to liability to pay compensation or as to the amount
or duration of compensation, if not settled by agreement, is settled by
arbitration before a judge of county courts or police magistrate.
4.—Financial Resources.
The resources are supplied entirely by the employers.

AUSTRALIA

5.—Benefits.
(a) Definition of risks.
The scheme covers :
(1) personal injury by accident arising out of and in the course of
employment, provided the worker is disabled for at least one
week from earning full wages at the work at which he was
employed ;
(2) occupational diseases specified in the schedule to the Act,
provided the disease is due to the nature of any employment in
which the worker was employed within twelve months preceding
the date of disablement or if the worker was employed in a
process mentioned in the schedule opposite the disease.
(b) Benefits in kind.
None.
(c) Gash benefits.
Compensation for incapacity shall not in the aggregate exceed
£600, or £680 in case of totally dependent children.
Compensation consists either in weekly payments or in a lump
sum; failing agreement as to the form of compensation, the judge of a
county court or police magistrate decides. Where a weekly benefit has
been continued to be paid for not less than six months, the liability
may, on appUcation by the employer, be redeemed by payment of a
lump sum to be settled by arbitration.
1. Temporary incapacity.
In case of total incapacity for work, weekly benefit consists in :
(a) an amount of 66-| per cent, of the worker's weekly earnings ;
the rate may be increased to 100 per cent, where the worker is
under 21 years of age and his earnings are less than 20s. (the
rate not to exceed 15s. while he is under 21 years and 20s. when
he attains that age) ;
(b) a supplement of 5s. for each child under 14 years of age
during disablement or until redemption by a lump sum, or
until the age of 14, whichever occurs first. The total amount
shall not exceed £1 per week.
The total amount of payments per week shall not exceed £2 where
there are no dependent children, and £3 where there are dependent
children, and shall in no case exceed the worker's average weekly
earnings ; the minimum rate is 20s. for a worker over 21 years of age.
In case of partial incapacity, the rate is 6 6 | per cent, of the difference
between the amount of the average weekly earnings before the accident
and the average amount the worker is earning or able to earn in some
suitable employment or business after the accident ; the maximum rate
is £2. No supplements for children are paid.
For aged and infirm workers, the maximum amount of compensation
payable in case of accident may be agreed upon in writing between the
worker and the employer beforehand, but such maximum shall not be

INTERNATIONAL SURVEiT OF SOCIAL SERVICES, 1933

less than 20s. a week or one-quarter of the average wage ; and the total
liability not less than £100.
2. Permanent incapacity.
For certain kinds of injuries of a permanent nature, such as loss of
sight, of members, of hearing, mental powers, etc., the ratio of compensation (100 per cent. = £600 or £680) is fixed in a schedule to the Act.
Payment of compensation during total incapacity resulting from
such injuries shall not be limited by the above provisions, but shall
be taken into account in estimating the compensation payable in
accordance Avith the schedule.
For other injuries of a permanent nature no special provisions
are contained in the Act.
3. Death.
In case of death of a worker leaving total dependants, the latter
receive either :
(a) a sum equal to the worker's earnings during the last three
years, or
(6) £200,
whichever is the greater amount, but not more than £680.
Any weekly payments made during incapacity or a lump sum in
redemption thereof shall be deducted from such sum.
Partial dependants receive a sum agreed on or determined by
arbitration as reasonable and proportionate to the loss.
I n case of a worker leaving no dependants, reasonable expenses for
medical attendance and burial not exceeding £75 are paid.
6.—Statistics for 1933.
.Number of insured persons
Number of accidents
„
„ fatal accidents

...
...
...

Not available
... 14,373
...
69

INCOME AND E X P E N D I T U R E

1'remiums received
...
...
Amount paid as compensation ...
Legal costs, etc
...
Total payments
(7.—WESTERN

...
...
...

£
253,840
160,905
4,917
165,822

AUSTBALIA

Insurance against Industrial Accidents and Occupational Diseases
1.—Legal Basis.
Workers' Compensation Act, 1912-1924, as amended by the Acts
Nos. 14 of 1925 and 34 of 1927.1
2.—Scope.
Insurance covers all persons engaged under a contract of service
or apprenticeship on manual labour, clerical work or otherwise.
1

Amended by Act of 4 January 1935 (No. 36 of 1934).

AUSTBALIA

The following are excluded :
(a) persons whose remuneration exceeds £400 a year;
(b) persons whose employment is of a casual nature and who
are employed otherwise than for the purposes of the employer's
trade or business;
(c) members of the police force;
(d) outworkers;
(e) members of the employer's family dwelling in his house ;
(/) pearl fishers and members of crews of fishing vessels sharing
in profits or gross earnings.
3.—Administration.
Insurance is compulsory, but the choice of an insurer is free. The
insurance may be contracted with any insurance institution approved
by the Minister. An exception is made to the rule of compulsion
when the employer has become his own insurer and has paid to the
State a deposit sufficient to cover the benefits which he might be called
upon to pay. Any question as to liability to pay compensation or as to
the amount or duration of compensation shall, if not settled by agreament, be heard and determined by the local courts.
4.—Financial Resources.
The resources of the scheme are provided entirely by the
employers.
5.—Benefits.
(a) Definition of risks.
The scheme covers :
(1) personal injury by accident arising out of or in the course of
employment, or while the worker is under the employer's
instructions :
(2) occupational diseases specified in the third schedule to the Act,
provided that the disease is due to the nature of any employment in which the worker was employed at any time during
the twelve months previous to the date of the disablement, or
that the worker was employed in any process mentioned in the
schedule opposite the disease.
(b) Benefits in kind.
Reasonable expenses for medicines, medical and surgical requisites ;
medical or surgical attendance, including first-aid and ambulance
services ; hospital charges for treatment and maintenance not exceeding
10s. 6d. per day, specialist's services if necessary, and provision of
artificial limbs. The aggregate medical benefit may not exceed £100.
(c) Cash benefits.
Compensation for incapacity may not in the aggregate exceed
£750. The liability may be redeemed by a lump sum payment where
such weekly payment has been continued for not less than six
months, on application by the employer or worker. Failing agreement,
the sum is fixed by the local court.
x

G 12973

loi.vÁ'ljjS

INTERNATIONAL SURVEY O í SOCIAL SERVICES, 1 9 3 3

1. Temporary incapacity.
In case of total incapacity, the weekly benefit consists in :
(a) an amount of 50 per cent, of the worker's average weekly
earnings; the rate may be increased to 100 per cent, where
such earnings are not more than 30s. ; otherwise the minimum
rate is 30s.
(b) a supplement of 7s. 6d. for each child under 16 years of age.
The total weekly amount may not exceed £3 10s.
In case of partial incapacity, the weekly payment shall not exceed
the difference between the worker's average weekly earnings before
the accident and the average weekly amount he is earning or able to
earn in some suitable employment or business after the accident. I t
shall bear such relation to the amount of that difference as appears
appropriate in the circumstances.
2. Permanent incapacity.
For certain kinds of injuries of a permanent nature, such as loss
of sight, of hearing, of members, of mental powers, etc., the amount
of compensation payable is fixed in a schedule to the Act ; the maximum
is £750.
During total incapacity resulting from such injuries, the compensation payable shall not be limited by the above provisions but any
sum thus paid shall be deducted from the amount payable according
to the schedule.
For other injuries of a permanent nature, no special provisions
are contained in the Act.
3. Death.
In case of death of a worker leaving total dependants, the latter
receive either :
(a) a sum equal to the victim's earnings during the three years
preceding the injury, or
(Ò) £400,
whichever is the greater amount, but not more than £600. Partial
dependants receive an amount agreed upon or determined by proceedings under the Act and deemed reasonable and in proportion to
the loss.
In case of a worker leaving no dependants, reasonable expenses
for medical attendance and burial not exceeding £100 are paid.
6.—Statistics.

Workers' Compensation Act (General).1
INCOME AND E X P E N D I T U R E FOB 1932-1933
INCOME

EXPENDITURE

£
Contributions of employers ... 199,489

Total
1

199,489

£
Benefits in kind and cash
benefits
152,577
Cost of administration and
other expenditure ...
...
50,669
Total
209,246

Particulars in respect of occupational diseases (3rd Schedule) are given
under " Insurance against Miners' Diseases."

AUSTRALIA

Insurance against Miners' Diseases
1.—Legal Basis.
Mine Workers' Belief Act, 1932, No. 37, assented to on 30
December 1932, as amended by Act No. 34 of 1933.
Under these Acts persons suffering from tuberculosis with silicosis,
or tuberculosis, are prohibited from working in mines and receive
compensation; persons suffering from silicosis in an advanced stage
are entitled to compensation if they abandon employment in mines.
2.—Scope.
The scheme covers persons employed under a contract of service
on, m or about a mine, and performing manual or other labour on
the surface or underground. Mines do not include coal mines.
3.—Administration.
The Mine Workers' Relief Fund is administered by the Mine
Workers' Relief Board, consisting of four members elected in equal
numbers by employers and mine workers and a chairman appointed
by the Governor.
4.—Financial Resources.
The resources of the fund are obtained from contributions'by mine
workers and employers and contributions by the Treasury.
5.—Benefits.
(a) Definition of risks.
1. (a) Tuberculosis and silicosis combined : workers suffering from
these diseases are prohibited from employment as mine workers and
are deemed to be permanently and totally incapacitated for work as
the result of personal injury by accident within the meaning of the
Workers' Compensation Act.
(£>) Silicosis in an advanced stage : the worker is notified of his
condition by the medical officer or practitioner, and deemed to be
permanently and totally incapacitated for work as above, provided
he ceases work in the mine within twelve months of the notification.
2. Tuberculosis without silicosis : the worker thus suffering is
prohibited from employment as a mine worker and entitled to the
special benefits under the scheme, provided he is found to be suffering
from tuberculosis while at work underground, or within a year after
he ceases underground work, or that he had not been suffering from
tuberculosis at a previous examination.
3. Incapacity or material prejudice to the earning power by any
other disease not covered by the Workers' Compensation Act and
legitimately attributed to the nature of employment as a mine worker.
(b) Benefits in kind.
None.
o2

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(c) Cash benefits.
1. Incapacity.
Ad (a) 1. Tuberculosis and silicosis, or silicosis in an advanced
stage : workers suffering from these diseases are entitled to benefits
under the Workers' Compensation Act. In case of extreme hardship the Board may grant an additional allowance where 50 per cent.
of the average weekly earnings, together with the children's bonuses,
exceed the maximum weekly compensation of £3 10s. The additional
allowance shall not exceed the difference between £3 10s. and the
basic wage ruling in the district.
After having received full compensation under the Workers'
Compensation Act the worker or his dependants are entitled to special
benefits provided for under the Miners' Relief Act Regulations, provided the worker has contributed to the fund as if still employed
until the total amount of workmen's compensation has been paid or
until his death, whichever occurs first.
Ad (a) 2. Tuberculosis without silicosis : a mine worker suffering
from tuberculosis receives benefits under the Aline Workers' Relief
Act as follows :
(a) a weekly payment not exceeding 50 per cent, of the weekly rate
of pay the worker received as a mine worker at the date of prohibition,
if he was so employed a t that date ; otherwise the rate of pay ruling
at that date for the class of work in which he was last employed as a
mine worker is substituted.
(6) a supplement of 7s. Gd. for each child under sixteen years of
age.
The weekly benefit may not in the aggregate exceed £3 10s.
Such weekly payments are to be continued until a total sum of
£750 has been paid.
In cases of extreme hardship the Board may grant an additional
weekly allowance where the weekly sum calculated in the manner set
out above would exceed the maximum of £3 10s. This allowance,
however, may not exceed the difference between the sum of £3 10s. and
the basic wage ruling in the district.
After having received £750 by way of weekly allowances, the
worker is entitled to the special benefits under the scheme provided
he has continued to contribute to the fund as if he were still employed.
Ad (a) 3. Other diseases : workers suffering from other mining
diseases are entitled to the special benefits under the Mine Workers'
Relief Act Regulations.
Special benefits : weekly benefit : single man 25s., married couple
and widower 25s., and 5s. for each child under 16 years.
The maximum benefit is £2 5s. per week.
2. Death.
Ad (a) 1. Tuberculosis with silicosis, or silicosis in an advanced
stage. If a prohibited or notified mine worker suffering from silicosis
with tuberculosis, or silicosis in an advanced stage dies before he has
exhausted his compensation under the Workers' Compensation Act his

ATJSTBALIA

dependants receive the special benefits for dependants under the
Mine Workers' Relief Act Regulations.
Ad (a) 2. Tuberculosis without silicosis. When a prohibited
mine worker suffering from tuberculosis without silicosis dies before
he has received £750 under the Mine Workers' Relief Act and has
regularly contributed to the fund up to his death, his dependants are
entitled to receive the balance of £750 at the following rates :
Weekly benefits : £2 for the widow ; £1 each for father, mother,
grandfather, grandmother, stepfather or stepmother; 7s. 6c?. each for
a son, daughter, grandson, granddaughter, stepson, stepdaughter,
brother, sister, half-brother or half-sister under 16 years of age.
The maximum weekly benefit is £3 10s.
Payment to the widow ceases upon re-marriage. Where the total
amount of benefits to dependants, according to the above scale, would
exceed £3 10s. per week owing to the great number of dependants, the
dependants shall be paid on a pro rata basis.
When the dependants have thus received an amount making up the
difference between £750 and the sum received by the deceased worker
before his death, they are entitled to the special benefits for the
dependants of notified or prohibited mine workers under the Mine
Workers' Relief Act Regulations.
Ad (a) 3. Other diseases. The dependants of the worker are,
upon his death, entitled to the special benefits under the Mine Workers'
Relief Act Regulations.
Special benefits : Widows : Benefits to widows vary accordine to
the age of the widow and the number of children under 16 years of age,
if any ; mother dependent on son 10s. per week.
The maximum benefit is £2 5s. per week.
6.—Statistics.
Mine Workers' Belief Act
Number of insured persons : 4,955.
INCOME AND E X P E N D I T U R E F O R 1932-1933
INCOME

Contributions of insured
...
Contributions of employers ...
Public subsidies
Total

EXPENDITURE

£
8,921 Cash benefits ...
8,845 Cost of administration
8,867
26,633

Total

£
12,808
1,343
14,151

Workers' Compensation Act, 3rd Schedule
(Tuberculosis and silicosis and advanced silicosis)
INCOME AND E X P E N D I T U R E FOR 1932-1933
INCOME

EXPENDITURE

£
Contributions of employers ... 49,679 Claims and medical expenses
Interest, etc. ...
...
...
438 Administration
Total

50,117

Total

£
27,751
1,333
29,084

INTERNATIONAL SURVEY OF SOCIAL SERVICES,

1933

n.—Unemployment Insurance in Queensland
1.—Legal Basis.
Compulsory unemployment insurance was established in Queensland by the Unemployed Workers' Insurance Act of 1922, assented to on
18 October 1922, and brought into operation by Proclamation of the
Governor on 1 March 1923. The original Act was amended by Acts
of 26 November 1927, 24 December 1930, and 7 December 1933.
2.—Scope.
The insurance covers every worker over eighteen years of age
employed within the State of Queensland whose rate of wages or
salary is fixed by award or industrial agreement.
The principal groups of workers excluded are rural workers (with
the exception of those employed in the sugar and pastoral industries),
employees of the Commonwealth Government, and certain small
groups of workers employed under Commonwealth arbitration awards.
The Governor in Council has power to bring under the Acts any class
of workers as determined.
3.—Administration.
The administration of the unemployment insurance scheme is in
the hands of the Minister for Labour and Industry, and is supervised
by an Unemployment Council of which the Minister is chairman and
which includes a representative of the workers and a representative of
the employers.
The Act provides for the maintenance of labour exchanges in all
towns throughout Queensland. These exchanges are authorised to
sell unemployment stamps, accept applications for benefits and make
benefit payments.
4.—Financial Resources. ^
The Unemployment Insurance Fund is constituted by contributions
from workers, employers and the State, the contribution from each
source being at the rate of Qd. a week for each week of employment.
5.—Benefits.
The amount of weekly benefits is fixed as follows :
Unmarried workers,
widowers and widows
14s. t o 17«.

Married
workers
24s. t o 29s. Gel.

Supplements for entirely
dependent children under
10 years payable for not
more than four children
4s. t o 5s.

The rate of benefit payable in respect of individual workers or
married workers shall in no case exceed one-half of the amount of
wages payable weekly under any award.
No person shall be entitled to receive benefit whose earnings during
the twelve months preceding the date of his application exceeded £300.
When bis earnings come down to this amount (or below), he is then
entitled to the benefits of the Act. A worker to become entitled to
the full maximum period of benefit must have contributed to the Fund

AUSTRALIA

for a period of not less than twenty-six weeks within the preceding
twelve months from the date of his application. If he has contributed
for a lesser period, he is only entitled to claim for a pro rata period.
The maximum benefit period is fifteen weeks in any twelve months.
6.—Statistics.
Estimated number of insured persons May-July 1934, 180,000
INCOME AND E X P E N D I T U K E FOR Y E A E E N D E D 30 J U N E
INCOME

£
79,619
Balance, 1 July 1933
Contributions by workers and
employers (one-half each)
300,440
Contributions b y State
142,764
Sundry receipts
104

Total

1934

EXPENDITURE

522,927

£
Sustenance payments
330,763
Administrative expenses
22,875
Fees to members of "Unemployment Council ...
31
Furniture, fittings a n d office
equipment ...
94
Balance at 30 J u n e 1934
163,164
Total

522,927

On 30 June 1934, the Unemployment Insurance Fund had a credit
balance of £163,164.
HI.—Voluntary Social Insurance
1.—Legal Basis.
Voluntary social insurance against the risks of sickness, invalidity
and death is governed in the various Australian States by the
following Acts :
New South Wales
Friendly Societies Act, 1912-1932.
Queensland
Act to consolidate and amend the law relating to Friendly Societies.
Assented to 29 October 1913.
Act to amend the Friendly Societies Act of 1913 in certain particulars. Assented to 2 November 1914.
Act further to amend the Friendly Societies Act of 1913. Assented
to 30 October 1924.
South Australia
Friendly Societies Act, 1919-1931, consolidating Acts No. 1387 of
1919, No. 1482 of 1921, No. 1680 of 1925 and No. 2018 of 1931.
Tasmania
Friendly Societies Act, 1888.
Friendly Societies Amendment Act, 1888.
Act to consolidate enactments and amend the law relating to
trustees, 1898.
Victoria
Act to consolidate the law relating to Friendly Societies. Assented
to 12 February 1929, No. 3686.

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

Western Australia
Friendly Societies Act, 189-1-1923, as amended by Act No. 38 of
1930.
2.—Scope.
The conditions of admission are laid down by the rules of each
friendly society. These conditions may refer to the occupations,
religion, nationality, diet, sex, age or health of the applicant.
In some States the age of entrance is limited by law (at three years
in the States of New South Wales, Queensland and Victoria) and the
maximum age is, as a rule, 45 years.
3.—Administration.
The insurance is administered by friendly societies set up by the
parties concerned.
These societies are registered by a special official appointed by the
Government of each State, who sees that the constitution of the
societies is in accordance with the legislation. Registration is not
compulsory in South Australia, Tasmania and Western Australia.
Registration is subject to a number of conditions concerning the
purpose of the society, its constitution and the minimum number of
members (7 members in New South Wales and Queensland and 10 in
Tasmania, Victoria and Western Australia).
4.—Financial Resources.
The insurance funds are obtained by contributions from the members
and from other sources, such as special contributions, interest on
investments, gifts, etc.
The contributions, which vary in amount from Is. to 2s. a week
for adults, are generally paid into two separate funds :
(a) a fund for sickness and funeral benefit ;
(6) a fund for medical and administrative expenses.
The fraction of the contributions paid into the first of these two
funds varies according to the age of the insured persons and may be
from Qd. to Is. a week. The fraction paid into the second fund generally
remains the same during the whole lifetime of the insured person,
the usual rate being from 6d. to lOd. per week.
No State subsidies are paid except in New South Wales, where they
are intended to meet the cost of sickness benefit, medical attendance
and funeral benefit to insured men of over 65 years of age and insured
women of over 60 years of age. These subsidies are granted only in
respect of insured persons who belonged to the society on 30 June 1932
and had been insured for at least 15 years.
5.—Benefits.
Voluntary insurance covers the risks of sickness, invalidity and
death.
(a)

Sickness and invalidity benefits.
These benefits are granted on production of a medical certificate of
incapacity signed by the doctor of the society after a qualifying period

AUSTRALIA

varying from three to twelve months with different societies. In some
societies no qualifying period is prescribed, benefit being payable
immediately on joining.
The maximum weekly rate of benefits is fixed as follows :
Tasmania ...
...
Queensland
...
New South Wales...

...
...
...

£1 Is.
£2
£2 2s.

South Australia ...
Victoria ...
...
Western Australia

...
...
...

£3
£3
£3

The rates actually paid by the friendly societies, however, are
generally lower than these maximum figures. Benefits are paid during
the whole period of incapacity in most societies.
(b)

Medical benefits.

The societies provide medical attendance and drugs for insured
persons and members of their family. In Victoria some of the societies
provide also for an allowance, usually of 21s. per week, towards the
cost of treatment and maintenance when the member or his wife is
confined to hospital. A special contribution is paid for this benefit.
No medical benefits are granted when the insured person, on becoming a member of the society, had an annual income exceeding the
following figures :
New South Wales
Queensland ...
...

...

South Australia
Tasmania
Victoria

...

Western Australia ...

...

£260.
£208 for unmarried men.
£312 for married men.
£364.
£208.
£260 for unmarried men without dependants.
£312 for married men with a further £26 per
annum for each additional dependant.
These limits apply only to members who
joined after 1 Marcii 1920.
£312 for unmarried men.
£400 for married men.

Insured persons whose income fell below these figures when they
became members retain the right to medical benefits as long as their
annual earnings do not exceed the following amounts.
New South Wales
Queensland ...
...
South Australia
...

...
...

Tasmania ...
...
Western Australia
Victoria
...
...

...
...
...

£364.
£416.
£450 plus £26 p.a. for each child over the
number of three.
£312.
£500 l .
The amounts specified in the original, limits
where they applied.

(c) Benefits in case of death.
Each friendly society is free to determine the amount of these
benefits.
The legislation prescribes the following maximum figures for the
1
This figure relates to married and unmarried men with dependants. For
insured persons who joined the society before 1 July 1921 the maximum is £750.

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

benefits paid in compensation for the economic loss due to death of the
breadwinner :
New South Wales
Queensland ...
South Australia
Tasmania ...
Victoria
Western Australia

£200.
£200.
£100.
£100.
£100. Less in the ease of a male member by
the amount payable at death of a wife.
£300.

The amount of the funeral benefit varies to a great extent according
to the society in question. The minimum is £10 for men, and the
maximum, which is reached in only a few societies, is £200. In Western
Austraha it is possible to insure for the maximum of £300 at death or
£280 at a specified age or previous death.
Some societies also provide for the payment of funeral benefit,
varying from £10 to £15 (£17 10s. in Queensland), on the death of a
member's wife.
In South Austraha, in case of a female member, a benefit of £10 is, in
some societies, paid on the death of such member's husband.
6.—Statistics.
Number of insured persons in 1932-1933 :
New South Wales
Queensland
South Australia
Tasmania
Victoria ...
Western Australia

211,567
65,220
71,275 males and females.
24,661
158,516
22,233

INCOME FOR 1932-1933

New South Wales ...
Queensland ...
S. Australia
Tasmania (1933)
Victoria
W . Australia

Contributions of
insured
persons,
entrance
lees

Income
from
investments

£
706,755
223,867
223,883
86,270
542,450
82,325

£
154,759
79,617
98,006
18,511
233,054
22,812

Other
receipts

Total

£
77,852

£
939,366
303,484
361,877
118,117
826.183 1
110,679

—

39,988
13,336
50.679 1
5,542

1
Including receipts of funds other than sick and funeral, medical and management funds, for
which details are not given.

AUSTRALIA
E X P E N D I T U R E FOR 1932-1933

Sickness
benefits

New South Wales
Queensland
S. Australia
Tasmania (1933)
Victoria ...
W. Australia

AllowMedical ances
on
assistdeath Pensions
ance
allowand
and
ances
funeral
drugs benefits

£
£
£
259,351 276,515 83,648
87,649 91,203 31,657
107,196 90,853 33,700
33,658 27,582 21,653
249,489 222,227 40,471
29,850 29.901 10,387

1,121

Cost oí
Other
adminis- expendtration
iture

Total

£
£
157,175 71,952
54,427
48,008 38,507
17,986 10,011
120,238 117.7411
19,352
7,768

£
848,641
264,936
318,204
110,890
751,287!
97,258

1
Including expenditure of funds other than sick and funeral, medical and management funds,
for which details are not given.

THIRD

PART

SOCIAL ASSISTANCE
I.—Invalidity and Old-Age Pensions in the Commonwealth
1.—Legal Basis.
Commonwealth Invalid and Old-Age Pensions Act, 1908-1933.1
2.—Beneficiaries.
I n order to be entitled to an old-age or invalidity pension, the
claimant :
(1) must be resident in Australia at the time of his application.
(2) may not possess property of a value, excluding his home,
exceeding £400, or be in receipt of an income of £78 or more (£221
in the case of a blind person) ;
(3) may not be adequately maintained by his relatives, namely,
husband, wife, father, mother or children ; and .
(4) may not have deprived himself of property or income in order
to obtain a pension, nor unreasonably have transferred property
exceeding £100 otherwise than bona fide for value in any of the
previous five years.
(5) aliens and Asiatics (except those born in Australia and Indians
born in British India) and aboriginal natives of Australia, Africa,
the islands of the Pacific and New Zealand, are excluded from
the benefits of the Act.
(a) Old-age pension.
The claimant must have resided in Australia for 20 years, when
attaining the pensionable age ; he must be of good character, and may
not have deserted his wife or children.
1

Further amended by Act No. 1 of 1935.

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(b) Invalidity pension.
An invalidity pension may be claimed by any person over 16 years
of age who is not in receipt of an old-age pension.
The claimant must have resided in Australia for at least five years,
and have become permanently incapacitated or blind whilst in
Australia. The accident or invalidity may not be self-induced. The
claimant may have no other claim to adequate maintenance or compensation on account of accident or invalidity.
3.—Administration.
The legislation governing non-contributory pensions is administered,
subject to Government control, by a Commissioner of Pensions, who
may delegate all or any of his powers to an Assistant Commissioner.
The pensions scheme is administered in each State by a Deputy
Commissioner who performs his duties under the supervision of the
Commonwealth Commissioner.
4.—Financial Resources.
The funds for the scheme are provided by the Public Treasury.
The amounts required to cover the cost of old-age and invalidity
pensions are voted from time to time by Parliament.
Relatives of the pensioner who are in a position to do so may be
called upon to contribute to the costs of the pension.1
The pensioner who becomes owner of property, not including his
home, of more than £400 must repay to the Commonwealth the amount
of pension paid after 31 December 1932, to the extent by which the
property exceeds £400, after deduction of any contributions by relatives.
Upon the death of the pensioner or a person who ceased to be a
pensioner after December 1932, the amount of pension paid after that
date and not already repaid according to the preceding provisions is a
debt due to the Commonwealth and is recoverable out of the estate of
the pensioner, all other debts and funeral expenses having been paid
first. From the realisation of the property for this repayment are
exempted : Personal effects of a value not exceeding £50 ; property
left by will to the widow, widower, father, mother, child, sister or
brother of the pensioner, provided the beneficiary is also a pensioner
or in necessitous circumstances, or resided in the home of the pensioner
as a member of his family ; and funeral and mortuary benefits paid by
friendly societies. Special provision is made to meet cases of hardship. 1
5.—Benefits.
(a) Definition of risks.
The scheme covers the risks of old age and invalidity.
An old-age pension may be claimed by any person who has attained
the age of 65 years, or is permanently incapacitated for work and has
attained the age of 60 years ; women may claim an old-age pension at
60 years.
1
B y Act No. 1 of 1935, the provisions concerning the repayment of pensions
paid upon the death of the pensioner, as well as those concerning contributions
by relatives, were repealed.

AUSTBALIA

An invalidity pension may be claimed by any person who has attained
the age of 16 years, who is permanently incapacitated for work by
reason of an accident or of his being an invalid and who is not in
receipt of an old-age pension. The invahdity must be permanent and
total.
(b) Benefits in kind.
None.
(c) Cash benefits.
Pensions are granted in every case at a rate considered reasonable
and sufficient, taking into account all the circumstances of the case, by
the Commissioner or Deputy Commissioner investigating the claim.
The pension shall not exceed £45 10s. per annum, nor the total
income (including pension) of the pensioner £78. The pension is
reduced by the amount by which the private income of the pensioner
exceeds £32 10s. The maximum pension is reviewed annually by the
Commissioner according to a sliding scale based on the price index
number, the maximum rate being increased by 6d. per week for every
increase of 100 points in the index. The rate of £45 10s. fixed in the
Act is payable as long as the index is under 1,400 points ; it rises up to
£52 per year for an index of 1,800 points and over. I t cannot exceed
£52 per year or fall below £45 10s. per year.
In the case of a blind person, the amount of his own income and
that of his wife, together with pension, may not exceed £221 a year.
If the claimant owns property, the pension is reduced by £1 for
each complete £10 by which the net capital value of such property,
other than the home, exceeds £50. If husband and wife are both
entitled to pensions, the reduction amounts to £1 for each complete
£10 by which the net capital value of the property, other than the
home, exceeds £25.
Income is meant to include any income earned, derived or received
by any person for his own use or benefit by any means from any source,
including personal earnings. It does not include, however, friendly
society benefits, payments during illness, infirmity or old age from any
trade union, provident or other society and gifts and allowances from
husband, wife, father, mother or children.
Pensions at a rate calculated in accordance with the Act but not
in any case exceeding 5s. per week may be granted in the following
cases :
(a) if the magistrate considers that the claimant, although otherwise qualified, is unfit to be entrusted with a pension until he has become
an inmate of an institution ;
(6) if the claimant has been in hospital for 28 days, on the expiry of
this period and for as long as he remains in hospital ;
(c) if the claimant is an inmate of a charitable institution, for the
duration of his maintenance therein.
The pensions due to persons in charitable institutions may be paid
to the authorities of the institutions concerned for the benefit of the
pensioner.

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

6.—Statistics.
Number of pensioners at 30 June 1933 : 249,167
E X P E N D I T U R E FOB Y B A B ENDED 30 J U N E

Pensions
Payments to homes and hospitals
Cost of administration...
...

...
...

Total

1933

£
10,643,196
127,865
92,305
10,863,366

H.—Unemployment Relief
Unemployment relief is provided by the individual States and is of
three main types : (1) sustenance or rations; (2) emergency or intermittent relief work ; and (3) employment on public relief works. In
the majority of States unemployment relief funds are raised by special
taxation; in some cases part of the funds is also obtained from
Commonwealth grants and loans. In South and Western Austraha
special taxation is not imposed, moneys for the relief of unemployment
being voted by Parliament. Relief funds are used primarily for
ration relief, for emergency relief works, and for stimulating industry.
As public works in the strict sense are excluded from this report, these
works are not described below, but it is not always possible to distinguish clearly between expenditure on such works and expenditure on
other relief measures. The figures given below therefore include in
certain cases expenditure on public relief works. With the exception
of Victoria, legislation in the States is confined to imposing taxes to
provide funds for relief and creating a skeleton organisation to grapple
with the problem. In New South Wales, for example, there is still
no statutory provision authorising either the scales of food relief or
the rates of pay for emergency relief works. The whole system rests
on Ministerial Order.
New South Wales.
Assistance for the unemployed is governed by the Prevention and
Relief of Unemployment Act, 1930-1934, the Housing of the Unemployed, and the Housing of the Unemployed (Grant) Acts, 1934, the
Special Income and Wages Tax (Management) Act, 1933-1934, and the
Special Income and Wages Tax Act, 1934.
The principal measures for the relief of unemployment in New South
Wales are (1) sustenance or food relief ; (2) emergency or intermittent
relief work; (3) employment on public relief works; (4) grants and
advances to landholders for the improvement of their holdings and
advances to property owners for repairs, additions, etc., to their
buildings, to prospectors seeking gold and other minerals, and for other
purposes which tend to promote employment; (5) advances to assist
unemployed persons to acquire homes.
Food relief is issued under a system by which the recipient receives
an order for food of a certain value, which varies according to the size
of the family to be provided for. He selects from a list of approved
persons the suppliers from whom he wishes to obtain the food and

AUSTEALIA

indicates the proportion of the total value of the order which he wishes
to be allotted to a particular supplier, e.g., grocer, butcher, baker, milk
vendor. Then the orders to supply food to the specified value are issued
direct to the suppliers.
Persons who have been registered at a State Labour Exchange for
at least seven days and have been unemployed for at least fourteen
days are eligible for food relief. If the family income of the applicant
during the fortnight preceding his application exceeded a certain limit,
which is fixed in relation to the number of persons dependent upon him,
he is not eligible for food relief.
The limit of income ranges from £1 5s. per fortnight for a single
adult to £3 15s. for a married couple with 5 children and rises by 10s.
for each additional child. The corresponding values of the food relief
orders range from 13s. per fortnight to £2 17s. 6d. with 6s. for each
additional child. In the metropolis and larger industrial areas food
relief depots staffed by Government officials distribute the relief, and
in other places the work is done by the police.
A scheme of " emergency relief work " was commenced in May
1933, with the object of providing intermittent work with the payment
of wages in cash, as a substitute for food relief. Certain works are
undertaken by the councils of local governing areas or by the Department of Public Works. Wages are paid from relief moneys and the
councils usually pay a share of the cost of materials and other expenses.
Persons registered at the State Labour Exchanges whose family income
is less than a specified amount are given work according to a scale of
hours which varies—as in the case of food relief—with the size of the
family. The permissible income varies from £1 5s. during the fortnight preceding application for a single man to £5 15s. for a man, wife
and 9 children. The scale of hours and earnings per fortnight ranges
from 14 hours for which £1 Is lOd. is paid in the case of a single adult
to 60 hours and £4 13s. 5d. for a man with a wife and nine children
under 15 years of age.
A Trust, consisting of the Minister and eight members, has been
constituted to assist necessitous persons in purchasing or leasing homes.
The Trust may purchase or lease land or may give assistance by supplying building materials or advancing money therefor ; by paying rates,
taxes,etc., on homes or rent or interest on mortgage, or by repaying the
principal. The Trust may erect buildings and let them and may acquire
property by gift or bequest for the purposes of the Act. Its funds
consist of Parliamentary appropriations and advances from the
Treasury. The sum of £200,000 was appropriated in June 1934.
Relief funds are raised partly by special taxation, partly by loans,
and the funds provided by the State Government are supplemented
by grants and loans from the Commonwealth.
The Unemployment Relief Tax was replaced by the Special Income
and Wages Tax in October 1933.
The Special Income Tax is levied on income, other than income
from employment. Residents are exempt where the total income from
all sources does not exceed £100 per annum. The rate is 6d. in the £
on the first £100 ; 8d. in the £ on the second £100, and lOd. in the £ on

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

the excess over £200. Where income is derived partly from wages and
partly from other sources, the rate is calculated on the basis of total
income.
The Wages Tax is levied on income from employment if the rate of
pay is not less than 40s. per week, or the equivalent daily or hourly
rate. Where weekly earnings do not exceed 705. the tax is as follows :
Weekly earnings
40s. to 50s
Over 50s. to 60s
Over 60s. to 70s

Tax
d.
9
15
21

Where earnings exceed 70s. per week, the rate of tax is 6d. in the £
on first £2 ; Id. on each 2s. of second £2, and Id. on each 2s. of excess
over £4. Wages paid in respect of relief works are exempt.
The proceeds of the tax are payable into the Consolidated Revenue
Fund, and the expenditure of relief moneys is subject to Parliamentary
appropriation.
Receipts from the special income and wages tax in the year ended
30 June 1934 amounted to £5,248,286. Expenditure on unemployment
relief amounted to £7,297,221, viz., £1,946,279 from revenue and
£5,350,942 from loans.
At 30 June 1934, the number of persons (including dependants)
receiving food relief was 62,300. The number of men engaged on
emergency relief work was 63,500, representing with dependants
188,200 persons, and the number engaged on other relief works was
18,800.
Queensland.
Assistance to the unemployed is governed by the Income (Unemployment Relief) Tax Act, 1930-32.
Relief may be granted in the following forms : (a) ration relief ;
in cases where no kind of work can be provided, rations are granted up
to a value ranging between 10s. a week for a single person and 42s. 6d.
for a man, wife and 8 children : (b) rotational relief work ; unemployed men, preference being given to married men, are provided with
work for a period of 12 weeks, at the end of which time they are drafted
back to food relief; pay is at award rates : (e) intermittent relief work
as an alternative to rations without work or the rotational system of
relief work ; the intermittent relief work scheme was introduced in
March 1931. To obtain work applicants must lodge a form giving
full particulars of their circumstances with the local police, who
investigate their statements. Applicants are then classified by the
police and the Labour Exchanges according to their family responsibilities, and the number of days' work for which they are eligible and
the amount of pay are then determined. The scale of payment is the
basic rate prescribed by the local authorities' award, and varies
according to locality and class of work. These three schemes are so
co-ordinated that rations can be drawn if work is not available.
The administration of relief is in the hands of a special department
of the Ministry of Labour and Industry assisted by the Unemployment
Relief Administration Board, the latter being composed of public

AUSTBALIA

servants. Rehef is also provided by the Social Service League, a
private organisation with local branches throughout the State, and by
the Charity Organisation Society.
The Income (Unemployment Relief) Tax Act provides for the
establishment of an Unemployment Rehef Fund and for the imposition
of a special income and wages tax to be paid into the fund. The rate
of tax varies from 3d. in the £ on incomes over £104 a year to Is. in
the £ on incomes over £499 a year.
INCOME AND E X P E N D I T U R E FOP. Y E A K ENDING 30 J U N E

Total income
Debit balance of fund
30 J u n e 1934

Total

1934

EXPENDITURE

INCOME

£
1,967,942
at
9,548

1,977,490

£
On intermittent relief work 1,481,262
On rotational relief work ...
36,760
On subsidies, ration relief,
etc.
312,163
On administrative expenses
73,703
Debit balance from year
1932-1933
73,602
Total

1,977,490

Victoria.
Assistance for the unemployed is governed by the Unemployment
Rehef (Administration) Act, 1932, the Unemployment Rehef Tax
(Rates) Act, 1934, and the Unemployment Rehef Loan and Application
Acts, 1932-33-34.
The Unemployment Relief (Administration) Act, 1932, comprises
a complete code dealing with relief work, sustenance payments, scales
of rations, and offences against the code, as well as with the regulation
of collections for unemployment and the co-ordination of charitable
activities.
The Unemployment Rehef Loan and Application Acts provide
for the expenditure of loans totalling £4,750,000, including £475,000
provided by the Commonwealth Government, for the provision of work
for the rehef of unemployment in Victoria.
Unemployment rehef is provided in one of three forms, i.e. rehef
work, sustenance rehef work, or sustenance. Applicants for relief
must register at the Government Labour Exchange, must be bona
fide unemployed, must have been resident in the State for 3 months,
and must be over 15 years of age. Rehef work and sustenance relief
work is paid for at award rates. Rehef work is provided for 44 hours
per week for married men and 24 hours per week for unmarried men.
When rehef work is not available unemployed persons may apply for
sustenance, provided their income does not exceed a specified scale,
fixed according to family responsibilities. The weekly sustenance
allowances where work is not performed in return are—Single
individual—6s.; Man and wife—9s.; Man, wife and eight or more
children—29s. Where work is performed in return, the allowances
are—Single individual—12s. ; Man and wife—20s. ; Man, wife and
eight or more children—42s. 6d. These rates include an allowance of
2s. Qd. for each dependent child. The maximum permissible incomes,
apart from sustenance, are—Single man—12s. ; Man and wife—20s. ;
12973

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

Man, wife and eight or more children—42s. 6d. The " work in return
for sustenance " scheme commenced in July 1932 ; the original rates
were increased in August 1933 to the amounts stated above. The
period of employment on sustenance work is such as to enable the
recipient to earn an amount equal to the amount of the prescribed
sustenance allowance.
Under the Unemployment Relief (Administration) Act an
Employment Council was established to consider and recommend
methods for the prevention and relief of unemployment and to administer the Unemployment Relief Funds. The Council is composed
of ten members comprised of two Ministers of the Crown, one each
representing rural industries, commerce, employees, metropolitan
municipalities and country municipalities, a member of the Charities
Board, and two representatives of the Commonwealth Government.
A public Assistance Committee is established in each municipality for
the distribution of relief.
The Unemployment Relief (Administration) Act also provides
for the creation of an Unemployment Fund into which is paid the
revenue from unemployment relief taxes, and out of which is drawn
expenditure on unemployment relief measures.
The Unemployment Relief Tax (Rates) Act 1934 imposes a special
tax on all incomes for the year 1933-1934 of £52 per annum and over ;
the rate is graduated, commencing at a minimum rate of 10s. per £100
of taxable income where such income is not less than £52 but does not
exceed £104 and ending at a maximum of £5 18s. 6d. per £100 where the
taxable income exceeds £3,000. The amount of tax is calculated
according to the prescribed rates above stated, and is then subject to a
reduction of 15 per cent.
The net receipts from special unemployment relief taxation for
the year ending 30 June 1934 amounted to £1,615,371. Expenditure
on unemployment relief amounted to £3,432,787 (including the
amount expended out of loan moneys). The approximate number of
units in receipt of relief on 30 June 1934 was 31,208 ; inclusive of their
dependants, approximately 75,000, the approximate number of persons
in receipt of relief on that date was 106,000.
South Australia.
Assistance for the unemployed is governed by the Unemployment
Relief Council Act, 1930.
Relief is provided in the form of sustenance. The scale of rations
varies between 5s. 3d. a week for an adult and 19s. lOd. for a man,
wife and 3 children, and increases proportionately with the number
of dependent children.
All homeless single unemployed men who received sustenance
were drafted into relief work camps. They were engaged on onethird time at award rates clearing land for afforestation purposes.
Much casual relief work was undertaken in conjunction with
Government Departments and local governing authorities. £390,000
was made available for this purpose from Commonwealth and State
Funds.

AUSTRALIA

The administration of relief is in the hands of an Unemployment
Relief Council consisting of 5 persons appointed by the Governor of
the State.
Expenditure on unemployment relief for the year ending 30 June
1933 amounted to £797,310 (£622,331 ordinary expenditure, £174,979
loan expenditure). The approximate number of persons (including
dependants) in receipt of relief on 30 June 1933 was 46,787.
Tasmania.
Relief work is provided in the form of sustenance or of emergency
rehef works. The value of the sustenance varies between 10s. a week
for an adult and 27s. 9d. for a man, wife and 3 children. In June
1933 the system of work in return for sustenance came into operation
and approximately 33 per cent, is added to these rates when work is
performed.
Funds for relief are derived from a special unemployment relief
tax at the following rates : 4d. in the £ on the first £312 of income, 5d.
on incomes between £313 and £520, 9d. on incomes between £520
and £1,500 and Is. on incomes over £1,500.
Expenditure on unemployment relief for the year ending 30 June
1934 was £224,456 (£168,350 ordinary expenditure of which £83,639
was spent on relief works and £84,711 for sustenance (wages and
provisions) and £56,106 loan expenditure). The approximate number
of persons (excluding dependants) in receipt of rehef on 30 June 1934
was 1,703.
Western Australia.
The Financial Emergency Tax Assessment Act, 1932, enables
provision to be made for unemployment rehef out of the ordinary
budget. It provides for the imposition of a tax of 4§cZ. in the £ on
all incomes, wages and salaries (with certain exceptions), the money
so collected to be used among other things to assist in dealing with
unemployment.
Rehef is provided in the form of employment on pubhc relief
works and of a sustenance allowance. A portion of the sustenance
allowance is distributed in cash, the ration unit being 7s., of which 2s.
is paid in cash. A man and wife receive an order and 4s. in cash; a
man, wife and child an order and 6s. in cash, and this scale is continued
up to a maximum of 7 units or 49s., in which case 14s. is paid in cash.
In August 1933 provision was made for periods of regular employment on fuU wages for workers engaged on public rehef works, followed
by periods on sustenance. The length of time on full work and on
sustenance varied from four weeks on full time followed by seven weeks
on sustenance for a man and wife, to four weeks on full time followed by
three weeks on sustenance for a man, wife and four children and over.
An extension of this scheme in respect of the periods of sustenance, to
which the men reverted after four weeks' full time work, enables them
to continue at full-time work until the respective amounts of sustenance
are earned. The men then stand down without further work or
sustenance until the allotted periods are completed, when further
employment is provided.
B2

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

Expenditure on unemployment relief for the year ending 30 June
1933 was £1,935,130 (£346,956 ordinary expenditure, £1,328,864 loan
expenditure). The approximate number of persons (including
dependants) in receipt of ration relief on 30 June 1933 was 44,345.
IH.—Maternity Allowances
1.—Legal Basis.
Maternity Allowance Act No. 8, 1912, as amended by No. 48,
1926, No. 34, 1927, No. 10, 1931 and No. 35, 19321.
2.—Beneficiaries.
An allowance is granted to every woman who gives birth to a
child in Australia or on board a vessel in transit between two
Australian ports. In order to claim the allowance, a woman must
be resident in Australia or must intend to settle there.
The scheme does not cover aliens and the aboriginal natives of
Australia, Papua and the Islands of the Pacific.
3.—Administration.
The scheme is administered by a Commissioner, who may delegate
all or any of his powers to an Assistant Commissioner or a Deputy
Commissioner.
4.—Financial Resources.
The allowances are paid out of the Consolidated Revenue Fund,
formed by amounts voted by the Commonwealth Parliament.
5.—Benefits.
Allowances are granted on the birth of a child born alive or viable.
The allowance amounts to £4 for each birth 2 . Only one allowance
is payable in the case of multiple births. In order to claim the
allowance the woman must prove that her income, together with that
of her husband, did not exceed £208 for the preceding twelve months.
The income limit was £260 in 1931-1932, no such limit existing prior
to 193P.
6.—Statistics.
Number of beneficiaries during year ended 30 June 1933 : 80,311.
E X P E N D I T U R E FOR Y E A H ENDED 30 J U N E

Allowances
Cost of administration
Total
1

...

1933

£
320,986
12,420
333,406

The law was further amended by Act No. 16 of 1934.
Under Act No. 16 of 1934, an additional 5s. is paid in respect of each
previous child under 14 years of age living at the date of the birth, b u t the maxim u m amount payable in any case is £5.
3
By Act No. 16 of 1934, an additional amount of £13 per annum is allowed
for each previous child under 14 years of age living a t the date of the birth, the
maximum income limit being £299.
2

AUSTRALIA

IV.—Widows' Pensions in New South Wales
1.—Legal Basis.
Widows' Pensions Act, No. 23, assented to 24 December 1925,
as amended by Acts No. 23 and No. 42 of 1929, No. 24 of 1930, and
Part IV of No. 27 of 1932.
2.—Beneficiaries.
A pension may be claimed by any widow resident in the State of
New South Wales who fulfils the following conditions :
(a) husband having been domiciled in the State at date of' his
decease ;
(6) being domiciled in the State when making application for the
pension and having been domiciled there continuously for three
years;
(c) having at the moment of making the claim a child under 14
years of age entirely or mainly dependent on her;
(d) good moral character.
(e) not owning property exceeding £1,000 (excluding value of
home and personal effects).
The pension may not be granted to a widow who is an alien.
A widow who has no child under 14 years of age may, nevertheless,
receive a pension if she is 50 years of age and is in destitute circumstances, or if she has a child under the age of 16 suffering
from physical or mental disability or a child under 16 years of age
with special scholastic ability. A pension may also be granted for a
period of six months after her husband's death to a widow without
dependent child if she was left unprovided for.
Eligibility to receive an old-age or invalidity pension under any
Act of the Parliament of the Commonwealth of Australia disqualifies
a person from receiving a widow's pension.
3.—Administration.
The Widows' Pension Scheme is administered by the Minister of
Public Instruction, and the Secretary of the Child Welfare Department,
as Registrar of widows' pensions, is the chief executive officer. Other
officials are appointed by the Governor on the recommendation of
the Public Service Board.
The Governor may also appoint an advisory committee of three
persons to assist the Registrar.
The Governor may appoint the clerks of ordinary courts in the
various districts to act as deputy registrars.
4.—Financial Resources.
The funds are provided entirely out of the Public Treasury.
5.—Benefits.
The amount of the widow's pension is 17s. 6d. a week with a
supplement of 8s. 9<Z. a week for each child under 14 years of age
entirely or mainly dependent on her.

INTERNATIONAL SURVEY Or SOCIAL SERVICES, 1933

A deduction of £1 is made from the annual pension in respect of
each £1 of net annual income exceeding £39. In reckoning the annual
income, account is taken of pensions other than those provided for
under the Widows' Pensions Act, the earnings of the widow and of her
children under 14 years of age, 5 per cent, of the value of real or
personal property belonging to the widow or her children (excluding
the value of their dwellings, furniture and other personal effects) when
this property bears interest at less than 5 per cent, in the year ; 50 per
cent, of the wages (in excess of £1 per week) of unmarried children
over 14 years of age living with their mother, 25 per cent, of the wages
of children over 14 years of age who are not married and do not live
with their mother, interest on capital, etc.
6.—Statistics.
In 1933-1934 the cost of the Widows' Pensions Scheme borne
entirely by the Public Treasury was £529,764. The number of
pensions current at 30 June 1934 was 6,300, the average amount per
widow being £2 15s. lid. a fortnight.

V.—Assistance for Families
1.—Regulation.
The only State which has a scheme of family allowance is that of
New South Wales1. This scheme came into force on 23 July 1927,
through the Family Endowment Act, 1927-1932.
The allowance, paid to the mother, is at a maximum rate of 5s.
per week for each child under the age of 14 years except one in a family.
The Industrial Commission set up by the Industrial Arbitration
Act, 1912, as amended in particular in 1926 and 1929, fixes a living
wage for adult male workers, the rates being subject to variation at
half-yearly intervals. Child allowances are payable only to the
extent by which the total family income falls short of the sum represented by the living wage plus children's allowances.
The allowances are not restricted to children of wage and salary
earners, but are also payable in respect of all families with more than
one dependent child where the family income is below the prescribed
limit.
The moneys for the payment of family allowances are provided
entirely out of the Public Treasury.
2.—Statistics.
At 30 June 1934, children's allowances were payable to 63,071
families, the average amount being £75,422 a fortnight, representing
£1 0s. 9d. per family per fortnight.
The total cost for the year ending 30 June 1934 was £2,056,227.
1
There is another form of child endowment scheme in t h e Commonwealth
Public Service, which has been in operation since 1 November 1920, and whicli
was modified somewhat by the Commonwealth Public Service Arbitrator in 1923.
This scheme is financed by the emplos'ees themselves.

AUSTBALIA

VI.—Other Social Assistance Services
The following summary gives particulars of the principal kinds
of social assistance, namely, hospital services, assistance for the aged,
maternity and child welfare services, lunacy services, etc.
1.—Hospital Services.
Medical assistance for persons of insufficient means is provided
in the capital and chief towns of the Australian States by hospitals
and special institutions, such as tuberculosis sanatoria, etc., which
are financed by State subsidies and by fees paid by the patients.
Number of patients treated during year 1932-1933 :
New South Wales ...
Queensland...
...

154,083
73,523

South Australia (1933)
Western Australia
...

28,502
33,322

INCOME AND E X P E N D I T U R E POP. 1932-1933

New South Wales.
INCOME

EXPENDITURE

Subsidies from States
Patients' fees and systematic
contributions
...
...
Other income

Total

£
792,506
412,853
263,979

.. 1,469,338

£
Wages and salaries and
maintenance of patients... 1,147,095
Buildings and other expenditure
190,711
Total

1,337,806

Queensland.
INCOME

Subsidies from State
Patients' fees
Other income
Total

EXPENDITURE

£
... 420,606
... 150,648
... 103,221
...

674,475

£
Wages and salaries and maintenance of patients
... 580,498
Buildings and other expenditure
77,978
Total

658,476

South Australia.
EXPENDITURE

INCOME

Subsidies from States
Patients' fees
Other income
Total

£
... 202,738
...
64,571
...
71,545
...

338,854

...
...
...

£
135,483
80,849
30,942

£
Wages and salaries and maintenance of patients
... 266,649
Buildings and other expenditure
65,694
Total

332,343

Western Australia.
EXPENDITURE

INCOME

Subsidies from State...
Patients' fees
Other income
Total

247,274

£
Wages and salaries and maintenance of patients
... 232,120
Buildings and other expenditure
11,926
Total

244,046

INTERNATIONAL, SURVEY OF SOCIAL SERVICES, 1 9 3 3

2.—Assistance for the Aged.
There are a number of homes and institutions for destitute or
homeless old persons, supported by subsidies from the States and
municipalities, collections, etc. These institutions are conducted by
the public authorities or by private persons.
New South Wales.
There are 14 benevolent asylums and homes for the aged and
infirm of which 5 are controlled by the State.
The number of inmates at 31 December 1933 was 3,511.
INCOME AND E X P E N D I T U B E FOR 1933
INCOME

EXPENDITURE

Subsidies from State...
Public subscriptions and receipts from entertainments
Contributions of inmates
Other income

£
103,078
2,942
1,836
30,192
138,048

Total

Buildings
Salaries and wages ...
Maintenance ...
Other expenditure ...
Total

...
...

£
3,401
66,123
68,041
980
138,545

Queensland.
INCOME AND E X P E N D I T U R E POR 1932-1933
INCOME

E X P E N D IT ORE

£
27,620

Subsidies from States
Bequests and other grants
Contributions of inmates
Other income
Total

27,662

Buildings
Maintenance of inmates
Other expenditure ...

55,282

Total

£
170

:} 54,654
54,824

South Australia.
INCOME AND E X P E N D I T U R E FOR 1933
INCOME

Subsidies from States
Municipal subsidies
Bequests and other grants
Contributions of inmates
Other income ...

EXPENDITURE

£
9,200
..

420
12,062
2,592
24,274

Total

Buildings
Maintenance of inmates
Other expenditure

Total

£
504
.. 23,837
.. , 125

24,466

Western Australia.
INCOME AND E X P E N D I T U R E FOR 1932-1933
INCOME

Subsidies from State ...
Contributions of inmates
Other income ...
Total

EXPENDITURE

...
...

£
6,040
13,340
273
19,653

Buildings
Maintenance of inmates
Total

£
235
.. 19,418
19,653

AUSTRALIA

3.—Maternity and Child Welîare.
Assistance for mothers and children is provided by the individual
States. It is governed by legislation in New South Wales, Queensland,
South Australia, Tasmania, Victoria and Western Australia.
New South Wales.
Assistance for destitute or neglected children is governed by the
Child Welfare Act, 1923, and amendments.
Assistance is granted in the form of allowances to mothers not
eligible for widows' pensions, or by boarding the children out with
approved families or in special institutions.
The usual rate of payment for children living with their mothers
or boarded out with relatives is 8s. Qd. a week and for children boarded
out with other persons 10s. to 15s. a week, according to the child's
age.
In the year ended 30 June 1934, State expenditure on this form of
assistance amounted to £324,000.
Queensland.
The State of Queensland provides assistance for mothers and babies,
and also for orphans and helpless children.
(a) Maternity and infant welfare.—Assistance for mothers and
babies is provided in four public maternity hospitals and in the
maternity wards of the 80 hospitals governed by the Hospitals Act,
1923-1929. There are also baby health centres and prenatal clinics
in most large towns.
The funds are provided out of State subsidies, the proceeds of
State lotteries, donations and patients' fees.
In 1932-1933 the number of women admitted to maternity hospitals
was 6,890 and of those who attended health centres 17,671. The
number of infants attending clinics was 107,478. The cost of this
assistance was £10,790. (Clinics only; maternity hospitals, etc.,
included in hospital services.)
(b) Assistance for orphans and helpless children.—The assistance
is governed by the State Children Act, 1911-1928, and the Infant Life
Protection Act, 1905-1927.
There is a special State Children Department responsible for
providing assistance and exercising supervision over the various
institutions established for orphans and helpless children, such as
orphanages, industrial schools, private homes, etc.
An amount is voted annually by Parliament to cover the various
grants made to institutions (6s. to 10s. a week for each child) and
payments to persons having the care of children (9s. a week).
The number of children assisted in 1933 was 9,674. The total
cost of assistance and education was £198,865, including £190,760
contributed by the State.
Assistance is also provided for children in need of shelter and help
who are not covered by the Acts of 1911-1928 and 1905-1927. In
1932-1933 such children numbered approximately 2,500 and the cost

INTERNATIONAL SURVEY OF SOCIA! SERVICES, 1933

of assisting them amounted to £46,685, including £37,267 contributed
by the State.
South Australia.
Under the Maintenance Act, 1926, and other legislation, the State
provides assistance out of public funds in the form of help and maintenance for necessitous, neglected, destitute and convicted children
committed to the State. Assistance to indigent mothers is also granted
in public hospitals. In 1933, 574 children were committed to the
public authorities.
STATISTICS OF THE W O R K I N G OF CHILD W E L F A R E LEGISLATION OF
SOUTH AUSTRALIA, 1933

Number of neglected, etc., children assisted during year by the State or by
State-assisted Homes, 3,067.
Total expenditure on assistance for neglected children by State, £44,408,
augmented by fees, subscriptions, etc., £3,586.
I n addition there are a number of denominational homes for orphan and
neglected children—not assisted by the State—in which 644 children were inmates
during the year, the total expenditure being £12,340.

Tasmania.
Assistance to mothers and children is granted in the State public
hospitals, in twelve child-welfare clinics providing free attendance, in
a special home, and by 16 health centres in the rural districts.
Victoria.
Assistance for indigent children is governed by the Children's
Welfare Act, 1928, No. 3645, and the Maintenance Act, 1928, No. 3722.
Under this legislation the Children's Welfare Department contributes to the maintenance of the children of indigent parents by the
payment of 6s. to 12s. a week.
At the end of 1933 the number of children so assisted was 14,572.
The cost of assistance amounted to £286,254.
Western Australia.
Provision for neglected children is governed by the Child Welfare
Act, 1907-1927.
Under this Act children are boarded-out with foster-parents or in
subsidised institutions conducted by religious bodies. The State pays
a weekly subsidy for children boarded out as shown hereunder :
Under 12 months—10s. per week per child.1
Under 2 years—9s. per week per child.
Over 2 years and up to 14 years—8s. per week per child.
Children in institutions are paid for at 7s. to 8s. per head. Deaf
and dumb children are placed in a Deaf and Dumb School and treated
as boarded-out children. In addition, annual subsidies totalling £1,180
are granted to certain Child Welfare Institutions.
Industrial School cases and also those of backward children are
paid for at special rates under arrangements with the Governing
Authorities of the institutions.
1

Infants are usually paid for a t the rate of 12«. 6d. per week.

AUSTRALIA

Apart from children dealt with under the Child Welfare Act, about
3,000 children whose fathers are dead, sick, in prison, or who have
deserted their families, are provided by the State with a weekly
allowance varying from 7s. to 9s. per head. Each case is, however,
dealt with on its merits, and if there is other income into the home
(these children are with their own mothers), it does not necessarily
follow that the full rates as quoted are paid.
STATISTICS OF CHILD W E L F A R E

Number of neglected and destitute children assisted
a t 30 J u n e 1933
Estimated expenditure on institutions
...
...
Total expenditure (inclusive of t h a t on institutions)
on assistance for neglected and destitute children
(including nil provided out of State subsidies and
£4,009 provided by relatives, etc.)

1,294
£17,657

£37,147

4.—Lunacy Services.
New South Wales.
There are 13 mental institutions in New South Wales, 11 of which
are public and 2 private. The funds are provided mainly out of State
subsidies and patients' fees.
Number under care during year ended 30 June 1934 : 11,644.
State Mental Hospitals
INCOME AND E X P E N D I T U R E F O E Y E A R E N D E D 30 J U N E

Subsidies from State...
Patients' fees
Other income
Total

1934

EXPENDITURE

INCOME

£
... 452,134
...
98,105
2,484
552,723

Wages and salaries
Maintenance ...
Buildings
Other expenditure

...
...

Total

£
. 365,164
.. 157,518
..
12,289
..
17,752
552,723

Queensland.
There are 4 mental institutions in Queensland, all of which are
public. The funds are provided mainly out of State subsidies and
patients' fees.
Number of beneficiaries : 3,201.
INCOME AND E X P E N D I T U R E FOR 1932-1933.
EXPENDITURE

INCOME

Subsidies from State...
Patients' fees
Other income

£
174,514
22,795
370

Total

197,679

Wages and salaries
Buildings
Other expenditure
Total

£
116,26G
50,738
28,449
195,453

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

South Australia.
There are 4 mental institutions in South Australia, 3 of which are
Government and 1 private.
Number of beneficiaries : 2.076.
INCOME AND E X P E N D I T U R E FOR
INCOME

1933

EXPENDITURE

£
98,705
23,868
8,144

Subsidies from States
Patients' fees
Other income
Total

130,717

Wages and salaries ...
Maintenance of patients
Buildings
Other expenditure ...

£
57,099
46,588
24,325
2,369

Total

130,981

Western Australia.
There are 6 mental institutions in Western Australia, 5 of which
are public and 1 private. The funds are provided mainly out of State
subsidies and patients' fees.
Number of beneficiaries : 1,396.
INCOME AND E X P E N D I T U R E FOR 1932-1933
EXPENDITURE

INCOME

£
71,401
17,606
1,992

Subsidies from State...
Patients' fees
Other income
Total

90,999

£
57,299

Wages and salaries ...
Maintenance of patients \
Other expenditure
j

33,700

Total

90,999

5.—Deaî, Dumb and Blind.
New South Wales.
There are 4 institutions for the care and training of the deaf,
dumb and blind in New South Wales, all privately controlled. The
number of inmates at 31 December 1933 was 413.
INCOME AND E X P E N D I T U R E FOR Y E A R ENDED 31 D E C E M B E R
INCOME

Subsidies from State...
Patients'feos
Other income
Total

1933

EXPENDITURE

...

£
2,087
3,166
49,372
54,625

Wages and salaries
Maintenance ...
Buildings
Other expenditure
Total

...
...

£
22,042
20,584
3,066
3,527
49,219

There is also an association for the advancement of the blind the
expenditure of which amounted to £404.
South Australia.
Blind, deaf and dumb institutions, 1933 : Inmates 259. Total
expenditure £33,502. Income : Government aid £3,100, fees £964
subscriptions, legacies, etc., £11,028, balance from sale of goods, etc.

AUSTRALIA

6.—Other Charitable and Benevolent Institutions.
New South Wales.
Under this head there are 123 institutions which include 2 lying-in
homes, 34 orphan asylums, 44 neglected children's homes, 5 infants'
homes, 1 crèche, 5 refuge and night shelters and 32 miscellaneous
charitable institutions.
The number of inmates at 31 December 1933 was 6,343.
INCOME AND E X P E N D I T U R E FOR
INCOME

Subsidy from the State
Fees ...
Other income
Total

1933

EXPENDITURE

£
... 529,876
... 55,902
... 117,621
... 703,399

Salaries and wages
Maintenance ...
Buildings
Other expenditure
Total

...
...

£
. 122,133
. 561,900
.
13,544
.
21,435
.

719,012

Charitable and Benevolent Societies : There were 174 societies dispensing charitable relief of approximately £100,000 for the year 1933. The
total receipts, including £115,692 State aid, amounted to £314,014;
expenditure amounted to £307,965.
South Australia.
There are also lying-in homes, a crèche, convalescent homes, refuges
and night shelters, and other charitable institutions and societies, the
total expenditure on same in 1933, including £20,000 by the State,
being approximately £110,000 apart from expenditure from temporary
relief funds.

Vu.—Shipowners' Liability towards Sick and Injured Seamen
1.—Legal Basis.
Navigation Act, assented to 24 October 1913, No. 4, of 19131;
relevant provisions amended by No. 1 of 1921.
2.—Beneficiaries.
The provisions of the Act respecting shipowners' liability in case of
sickness, injury or death cover masters, seamen and apprentices on
British ships ; the Act does not apply to ships belonging to the Navy,
nor to Australian trade ships, limited coast-trade ships or river and
bay ships, unless these ships are engaged in trade with other countries
or among the States or Territories under the authority of the Commonwealth, or are on the high seas or in waters used by ships engaged in
such trade, or are in the territorial waters of any Territory under the
authority of the Commonwealth.
1
The section relating to medical treatment and maintenance of seamen in
case of illness (section 127) and to wages on board (section 86) were proclaimed
to commence on 1 March 1922; section 132 relating to wages payable in case of
illness on shore was proclaimed to commence on 1 J u l y 1921.

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

3.—Administration.
A mercantile marine office may be established in each such port
as the Minister thinks fit; at each office a superintendent and deputy
superintendents are appointed.
4.—Financial Resources.
The shipowner is hable for the payment of benefits as provided
for in the Act.
5.—Benefits.
(a) Definition of risks.
Provision is made for sick masters, seamen and apprentices on
board ship in any case, and on shore in certain defined cases of illness
or injury and in case of death resulting from such illness, etc.
1. Illness on board ship.
The shipowner is liable for the provision of medical treatment and
maintenance and wages in case of any illness while the master,
seaman or apprentice is on board ship, without any deduction from
Wages.
2. Injury or illness on shore.
Medical treatment and maintenance, etc. : the shipowner is liable
for the expense of providing for medical treatment and maintenance
and of conveyance to the proper return port :
(a) where the master, seaman or apprentice is disembarked elsewhere than at the proper return port, in case of any hurt or
injury received or disease contracted in the service of the ship,
or any illness other than venereal disease or illness due to his own
wilful act or default or misbehaviour ; the proper return port is
the port where in accordance with his agreement he is entitled
to be discharged, or such other port as is mutually agreed upon
with the approval of the proper authority.
(b) where the master, seaman or apprentice is temporarily removed
from the ship for the purpose of preventing infection or otherwise
for the convenience of the ship, in case of any illness or disease.
Wages : The shipowner is liable for the payment of wages to the
extent set out below, where a seaman or apprentice belonging to a ship
registered in Australia is left on shore at any place in Australia by reason
of an illness contracted on board the ship or in the service of the ship
or her owner, or a hurt or injury sustained in the service of the ship
or her owner, provided the seaman or apprentice is wholly incapacitated
from the performance of his duty and likely to require medical treatment for not less than 14 days. No wages are payable if the illness
is due to the wilful act or default or misdemeanour of the seaman
or apprentice, or is a venereal disease.

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3. Death.
Where the master, seaman or apprentice dies ashore from any
hurt or injury received or disease contracted in the service of the ship,
or any illness which is not venereal disease nor due to the -wilful
act, default or misbehaviour of the master, seaman or apprentice, the
expense of burial is to be defrayed by the shipowner.
(b) Benefits in kind.
1. Medical treatment and maintenance.
Medical treatment includes the necessary surgical and medical
advice, attendance and medicine to be provided by the owner together
with maintenance (1) in any case of illness while the master, seaman or
apprentice is on board ship ; (2) (a) on shore in the cases defined until
the master, seaman or apprentice is cured, dies or is brought back, if
shipped in the King's Dominions, to the proper return port ; and (2) (b)
on shore in case of temporary removal, while the master, seaman or
apprentice is away from the ship.
2. Accommodation.
A supply of medicines and medical and surgical stores and appliances
must be kept on board of every foreign-going ship.
A duly qualified medical practitioner must be carried on board
foreign-going ships or Australian trade ships on a voyage exceeding a
prescribed distance and (in both cases) having 100 or more persons on
board. Where on any such ship there are more than 10 but less than
100 persons and no medical practitioner, a person qualified to render
first-aid must be carried by the ship.
(c) Cash benefits.
Where a seaman or apprentice belonging to a ship registered in
Australia is left on shore in any place in Australia in the cases defined
under (a) (2) (Wages), he is entitled :
(a) where landed at his home port, to receive wages up to the
expiration of one Week after the date of his recovery but for not
more than one month from the date he was left on shore if his
engagement expires within one month from that date, or three
months in other cases ; or
(6) where landed at a port other than his home port, to receive,
after recovery, free passage to his home port and wages until
arrival, or until he rejoins his ship or takes other employment,
or refuses employment on some other vessel proceeding to his
home port at the same rate of wages as he received prior to his
being left on shore.
Generally, wages are payable in case of illness on board ship
except where the illness is due to the wilful act, default or misbehaviour of the seaman or apprentice. The cost of conveyance to
the proper return port and (or) burial expenses are also at the charge
of the shipowner where the master, seaman or apprentice is left on shore
at a port other than the proper return port, for reason of illness or
injury as defined under par. 2 (a) of subsection 5 (a).

INTERNATIONAL SURVEY" OF SOCIAL SERVICES, 1933

FOURTH PART
HOUSING
1.—Legal Basis.
The Government of the Commonwealth of Australia controls the
provision of homes to ex-members of the Australian Imperial Forces.
The legislation under which this is done is contained in the War Service
Homes Act 1918, as amended.
Federal legislation provides for the establishment of housing
funds at the savings banks by an Act of 22 December 1927.
Legislation on housing was enacted in the various States of the
Commonwealth.
In Queensland the Workers' Dwelling Act 1909 and the Workers'
Homes Act 1919; in New South Wales the Act of 1912; in South
Australia the Act of 1910 providing for advances to persons of small
means; in Tasmania the Act of 1919 assisting necessitous persons in
the construction of dwellings ; in Victoria the Act of 1914 on workers'
dwellings and that of 1920 providing for assistance towards the
erection of dwellings in favour of persons of small means; and in
Western Australia the Workers' Homes Act 1912.
2.—Beneficiaries.
For ex-members of the Australian Imperial Forces, a necessary
condition is that the applicant must be married, about to marry, or
must have dependants for whom it is necessary to provide a home.
The widows and widowed mothers of ex-service men are also eligible.
In Queensland under the State Advances Act of 1916 the income
of the applicant may not exceed £416 per annum. The Workers'
Homes Act of 1919 provides that an applicant must not have an
income exceeding £260 a year.
In Western Australia the income of the applicant may not exceed
£400 per year and neither he nor his wife may own a dwelling-house.
In Tasmania the income limit is £400 a year for persons with less
than three dependants, and £500 for those with three or more dependants. Moreover, not more than £25 of such yearly income may be
income from property. Persons eligible must be married, about to
marry or have dependants for whom it is necessary to provide a home.
In Victoria, the income limit is £400.
In New South Wales, the income limit is in certain cases £12 a week.
3.—Authorities and Undertakings concerned in Building.
The Commonwealth War Service Homes Act is administered by a
Federal Commissioner who has branches of his office in the States
of New South Wales, Victoria, Queensland and Tasmania. In
Western Australia, the Workers' Homes Board acts as agent for the
Commissioner; in South Australia the State Bank acts in a similar
capacity.
In Queensland, the State Advances Corporation is the department
charged with administering the provisions of cheap dwellings. In
Western Australia the scheme is administered by the State Workers'

AUSTRALIA

Homes Board. Workers' dwellings schemes are administered by the
Board of Management of the Agricultural Department in Tasmania,
the Commissioners of the State Savings Bank in Victoria, the Commissioners of the Advances for Homes Department of the Government
Savings Bank in New Smith Wales.
4.—Financing by Public Authority.
Under the War Service Homes Act, the maximum advance which
may be made available by the Commission is £800, in special cases
£950. Homes are provided on a minimum deposit of £10, rising to
not more than 5 per cent, of the capital cost of the home. The interest
rate is 4 per cent.
The applicant is moreover given an opportunity to pay with his
instalment in any month a sum not less than £1, which is placed to
the credit of the applicant's sinking fund ; such fund is credited with
compound interest at 4 per cent.
Funds for the purpose of the War Service Homes Act are
appropriated by the Commonwealth Parliament.
Under the other schemes, the maximum advances are £800 in
Queensland, Victoria and Western Australia; £1,000 in Tasmania and
£1,800 in New South Wales. The amount of these subsidies may not
exceed a certain percentage of the value of the dwelling : 80 per cent.
in Queensland, and 90 per cent, in the other States. The interest rate
is fixed as a rule at 5 per cent. ; in some cases periodical payments
are provided for. The period of amortisation varies between 20 and
35 years, according to the nature of the case.
5.—Statistics for 1930 (figures not available for 1933).
In 1930 no houses were constructed for ex-members of the
Imperial Forces.
In the State of New South Wales, 1,140 advances amounting to
£982,000 were granted during 1930. In Queensland the number of
houses built in 1930-1931 was 60 and the number of dwellings 450.
Advances amounted to £240,624 and repayments £183,211.
In Western Australia 115 houses were built and £35,772 advanced
under the Workers' Homes Act. Under the Housing Trust Act 38
cottages were erected, for which £9,842 was advanced.
In Tasmania advances were temporarily suspended in 1930
owing to financial difficulties.
In Victoria the number of houses constructed in 1930 was 1,373;
the advances amounted to £1,183,441.

X G 12073

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

FIFTH PART
HOLIDAYS W I T H

PAY

COMMONWEALTH

1.—Salaried Employees.

The majority of salaried employees receive an annual holiday with
pay in virtue either of a Federal, State or district arbitration award,
or of a collective agreement.
Federal awards have been given for the employees of banks in the
States of Victoria and Tasmania and of insurance undertakings in all
States except Queensland. The awards referring to office and shop
employees, on the other hand, cover very small areas and are very
few in number. The length of service entitling the employee to a
holiday is usually one year; not infrequently holidays pro rata are
allowed in respect of shorter periods of service. The duration of the
holiday is generally one week for shop assistants, two weeks for office
employees and three weeks for journalists. Ordinary pay is granted
during the holiday period.
The awards in respect of particular avocations usually restrict
the granting of holidays to callings in which work on Sundays and on
public holidays is unavoidable. On this basis annual leave with pay
is granted to hotel employees, retail milk carters and tramway and
railway employees.
2.—Manual Workers.

Holidays with pay for manual workers are less frequently met with
than for salaried employees, but the situation varies considerably from
one State to another. Where awards of the Federal Arbitration
Court prescribe annual holidays with pay the grant is usually made
in consideration of the circumstance that the worker's calling necessitates work on Sundays and on days enjoyed as holidays by other
wage earners.
A few particulars are given below concerning the position in the
individual States.
NEW SOUTH WALES

l.--Salaried Employees.

Practically all New South Wales State awards covering salaried
employees prescribe annual leave on full pay for the employees
covered thereby—the duration of such leave being usually three weeks.
Government railway and tramway employees and Crown employees
under the Public Service Act receive holidays with pay under the
provisions of the Railways Act and the Public Service Act, respectively.
2.—Manual Workers.

About 40 per cent, of the New South Wales State awards covering
manual workers prescribe annual holidays on full pay. In one case
only may the holiday be given without pay. The holiday is due after
12 months' service and ranges from one to three weeks. In some of
the awards, e.g., those for hotel and restaurant workers, a holiday is

AUSTRALIA

given after each period of six months as compensation for work
performed on public holidays.
VICTORIA

The wages and conditions of employment of workers in the State
of Victoria are subject to two forms of regulation :
(1) By awards of the Commonwealth Arbitration Court.
(2) By determinations of State Wages Boards.
In industries where neither Commonwealth awards nor State
Wages Board Determinations apply, conditions of employment are
the subject of arrangement between the parties.
So far as employed persons are subject to Determinations of
State Wages Boards, annual leave is prescribed in only a small
percentage of industries. Out of 180 Determinations in force at the
present time only 8 provide for an annual holiday. In four of these
the provision respecting annual holidays has been made since 1930.
The eight Determinations provide for periods of leave varying from 6
to 14 days on full pay after 12 months' service. In many other
industries a provision is included in the Determination which secures
payment for individual days (such as public holidays) when no work
is performed by the employee. In fact, however, many employers do
grant annual leave with pay to their employees (clerks, shop assistants,
etc.), although no provision is made in the Determination requiring
them to do so.
No information is available concerning persons employed in
trades not subject to the Determination of a Wages Board.
WESTERN AUSTRALIA

All the awards in force with the exception of six make provision
for an annual holiday varying from one to three weeks. In the case
of the Coal Mining award only no payment is made for the holiday
period.
The length of service required is usually one year, but if the
employment is terminated before a year has elapsed, a holiday proportionate to the length of service is generally allowed.

E 2

BELGIUM
SUMMARY
PAGE

FIRST PART :

Statistics of Population

SECOND PAKT :

Social Insurance
I.—Compensation for Industrial Accidents
II.—Compensation for Occupational Diseases
III.—Workers' Old-Age and Widows' and
Orphans' Insurance ...
IV.—Salaried Employees' Old-Age and
Widows' and Orphans' Insurance ...
V.—Miners' Invalidity, Old-Age and Widows'
and Orphans' Insurance
VI.—Seamen's Insurance
VII.—Voluntary Social Insurance
VIII.—Subsidised Benefit Schemes for Staffs of
Public Undertakings ...

70
70
73

Social Assistance
I.—Assistance for the Indigent (including
free medical attendance, treatment at
home and in curative institutions) ...
II.—Assistance for the Mentally Diseased ...
III.—Assistance for the Blind, the Deaf and
Dumb, Mentally Deficient Children,
and the Crippled and Infirm
IV.—Other Assistance Institutions
V.—Shipowners' Liability for Sick
Injured Seamen

112

T H I R D PART :

FOURTH P A B T :

76
79
82
87
91
97

112
114
116
117
119
121

Housing

FIFTH PABT :

Family

Allowances

123

SIXTH PART :

Holidays with Pay

125

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

FIRST PART
STATISTICS

POPULATION

CENSUS OF 31 DECEMBER

1930

Gainfully occupied population in industry and commerce, classified by
industrial status.
Branch of
Economic Activity
Industry
Commerce ...
Unclassified.
Total

Employers

Assisting
Family
Members.

Salaried
Employees

Workers

Total

222,535
217,317

49,980
164,456

184,850
118,986
1,059

1,480,753
63,818
806

1,938,118
564,577
1,865

439,852

214,436

304,895

1,545,377

2,504,560

1
According to the census taken by the Ministry of Agriculture, the number of persons employed permanently in agricultural undertakings was 662.3S2 on 31 December 1929. SOURCE:
Industrial and Commercial Census of 31 December 1930. Revue du Travail, June 1934.

SECOND PART

SOCIAL INSURANCE
I.—Compensation for Industrial Accidents
1.—Legal Basis.
Workmen's compensation for industrial accidents is regulated by
the Acts of 24 December 1903, 3 August 1926,15 May 1929, 30 December
1929, 18 June 1930, and the Royal Order of 28 December 1931
consolidating previous legislation. Insurance is optional.
2.—Scope.
AH workers engaged by a public or private undertaking under a
contract of employment governed by the Act of 10 March 1900 are
legally entitled to compensation for industrial accidents.
Apprentices, even when not remunerated, and salaried employees
covered by the Act of 7 August 1922 respecting contracts-of employment, whose agreed remuneration does not exceed 24,000 francs a
year, are placed on the same footing as manual workers.
Present legislation applies to commercial and agricultural undertakings which habitually employ one or more workers during at least
two months in the year (Act of 18 June 1930).
3.—Administration.
Fixed premium insurance companies and insurance funds formed
by employers on a mutual basis are alone authorised, after being duly
approved by the Government, to carry on industrial accident insurance
in Belgium. Such authorisation may be limited to accident insurance

BELGIUM

in the strict sense of the term, in which case the insurance carrier is
required to deposit the capital value of the pensions payable by it with
a specially approved establishment ; or again it may be extended to cover
pension insurance resulting from accidents, in which case the insurance
carrier itself pays the pensions for which it is liable.
4.—Resources.
Employers who are not insured are personally responsible for the
payment of the legal compensation in case of industrial accidents.
Insured employers pay to the insurance carriers an annual premium or
contribution based on the risks covered.
A Guarantee Fund intervenes when an employer who is not insured
is unable to meet his liability. This fund is constituted from annual
contributions paid by heads of undertakings who are not insured. For
undertakings employing workers, these contributions are composed of
an assessment of 60 francs per undertaking and a varying contribution
at the rate of 50 francs per worker and 5 francs per employee. For
undertakings which employ only salaried employees the assessment is
reduced to 10 francs.
Private undertakings habitually employing at least 500 workers,
or 500 workers and salaried employees, or 250 salaried employees, as
the case may be, which provide special guarantees may be exempted
from the duty of contributing to the Guarantee Fund.
5.—Benefits.
Insurance covers accidents which occur during and in consequence
of the carrying out of a contract of work or a contract of employment.
An accident is defined as an abnormal occurrence beyond the control of
the victim which presupposes the sudden intervention of an external
circumstance. Insured persons injured as the result of an accident are
entitled to benefits in kind and cash benefits.
(a) Benefits in hind.
Persons injured as the result of an industrial accident are entitled
to medical treatment and medicaments including the necessary artificial limbs and orthopaedic appliances.
(b) Benefits in case of incapacity.
1. In case of temporary incapacity.
If the accident causes temporary incapacity for work, the employer
or his insurance carrier is required to pay the injured person daily
compensation equal to 50 per cent, of his average daily wage. If
temporary total incapacity continues beyond four weeks, the rate of
daily compensation is increased to two-thirds of the average daily
wage from the twenty-ninth day after the accident.
2. In case of permanent partial incapacity.
In case of permanent partial incapacity for work the compensation is
equal to two-thirds of the loss of wages resulting from the accident.

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

3. In case of permanent total incapacity.
If the accident causes permanent total incapacity for work the
pension granted to the injured person is equal to two-thirds of his
annual wage (the maximum wage taken into consideration is 20,000
francs). In the case of seriously injured persons whose condition
necessitates the regular assistance of another person, the pension may
be increased up to 80 per cent, of the loss of wages.
(c) In case of death.
Benefits in case of death consist of a sum of 750 francs for funeral
expenses and pensions for survivors.
Pensions are payable to the widows, orphans, and brothers and
sisters dependent on the deceased person and, in the absence of orphans,
to relatives in the ascending line.
1. Widow.
The capital required to provide the widow's pension is equal to
the present value at the time of death of a joint life annuity based on
two Uves of respectively the same ages as the deceased person and
his survivor. This hypothetical annuity, payable until the death of
one of the two persons, has to be equal to 30 per cent, of the wage
of the deceased person.
2. Orphans.
Orphans under eighteen years of age dependent on the deceased
person are entitled to a temporary pension equal to a fraction of the
deceased person's wages. This fraction is fixed at 15 per cent, for each
fatherless child, subject to a maximum of 45 per cent., when there are
more than three orphans, and at 20 per cent, for each child which has
lost both parents, subject to a maximum of 60 per cent, when there are
more than three orphans.
3. Other dependants.
Parents may claim compensation only in the absence of orphans.
The capital required to provide the pensions for parents is equal to
the present value at the time of death of a joint life annuity based on
two Uves of respectively the same ages as the deceased person and his
survivor. This hypothetical annuity, payable until the death of one
of the two persons, has to be equal to 20 per cent, of the deceased
person's wages for each parent.
When the deceased person leaves a childless widow and parents,
the fraction of the wage on which the pension is computed is reduced to
15 per cent, for each parent.
(d) Additional compensation for accidents occurring before 16 September
1919.
Supplementary compensation, paid partly from public funds and
partly from a Welfare and Relief Fund, is granted to persons injured in
industrial accidents incurred before 16 September 1919. For this
purpose the Fund levies a special tax on employers.

BELGIUM

6.—Statistics.
The available statistics for 1933 are given below.
A P P R O V E D INSURANCE INSTITUTIONS

Institutions

1. Fixed-premium companies
2. Mutual coal-mining funds
3. Other mutual funds

Premiums and
contributions for
current year

Cost of accidents
(statutory
expenditure)

Francs
137,500,000
33,642,271
59,452.231

Francs
105,927,050
41,125,070
43,708,180

UNDERTAKINGS AUTHORISED NOT TO CONTRIBUTE TO THE
GUARANTEE F U N D

Number of undertakings...
Average number of workers
Probable cost of accidents (statutory expenditure)
Total wages bill ...
Ratio of statutory expenditure to wages

19
40,500
Frs
5,038,100
Frs 605,612,520
0.832%

H.—Compensation for Occupational Diseases
1.—Legal Basis.
Insurance against occupational diseases is compulsory under the
Act of 24 July 1927 and the Royal and Ministerial Orders issued
under the Act.
2.—Scope.
The Act respecting the compensation for occupational diseases
covers all workers and apprentices employed in industries in which
they are exposed to the risk of occupational disease.
Salaried employees and craftsmen who by reason of their direct
or indirect participation in the work run the same risks as workers
and whose annual remuneration does not exceed 18,000 francs are
deemed to be workers as regards compensation for occupational
diseases.
3.—Administration.
Compensation for occupational diseases is entrusted to the Welfare
Fund for victims of occupational diseases, which is attached to the
Ministry of Labour and Social Welfare. This Fund is administered by
a governing body consisting of five members appointed by the Crown.
At least one of these members must be chosen from among the most
representative organisations of employers in the industries concerned
and at least one from the most representative organisations of workers
in these industries.
In addition, a technical committee, consisting of three groups
comprising medical practitioners, employers, and workers respectively,
is empowered to make recommendations to the Minist^ of Labour and

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

Social Welfare respecting the enumeration of the diseases giving rise
to compensation and the assessment of the contributions to be paid
by the heads of undertakings, and to give its opinion on the claims to
compensation which the Welfare Fund thinks fit to submit to it, as
well as on all other matters connected with occupational diseases
which may be referred to it by the Ministry of Labour and Social
Welfare or by the governing body of the Fund.
4.—Financial Resources.
The financial resources of the Fund are derived from : (a) an
initial Government grant of 300,000 francs ; (6) contributions levied
on heads of undertakings covered by the Act ; (c) special grants from
the State in the event of a deficit.
For 1933, the contributions payable by heads of undertakings
covered by the Act were fixed by the Royal Order of 17 July 1933 in
accordance with the risks in the various classes of undertakings.
Their rate varied from 5 to 600 francs per worker, or person treated
as a worker, exposed to the risk of occupational disease. I t was, for
example, 600 francs in cast-iron enamelling works using lead enamels
and 10 francs in printing works.
5.—Benefits.
Insurance covers all wage-earning employees affected by one of
the occupational diseases included in the list sanctioned by the Act
of 22 July 1927 and completed by later legislation (this list includes
poisoning by lead and its alloys, mercury and its amalgams, phosphorus,
arsenic, carbon disulphide, benzene, and hydrocarbons, as well as
anthrax and pathological affections due to radium and other radioactive substances).
(a) Benefits in kind.
Belgian legislation makes no direct provision for medical treatment,
but all grants are increased by a special allowance, according to a
fixed scale, to cover the cost of curative treatment.
(b) Cash benefits.
1. In case of temporary incapacity.
In the event of temporary total incapacity for work lasting at
least a fortnight, the patient is entitled to daily compensation equal
to 50 per cent, of his average daily wage, from the day incapacity
for work began.
If the temporary incapacity is total at the end of the first six
months following the beginning of incapacity, the daily compensation
from the beginning of the seventh month is equal to two-thirds of the
average daily wage.
If temporary total incapacity lasting more than a fortnight subsequently becomes partial, the compensation is equal to the difference
between the wage now earned by the patient and two-thirds of his
average daily wage before the illness.

BELGIUM

2. In case of permanent partial incapacity.
In the event of permanent partial incapacity the compensation is
a pension equal to the difference between the wage that the patient is
able to earn and two-thirds of his average daily wage before the illness.
3. In case of permanent total incapacity.
In case of permanent total incapacity a pension is substituted for
temporary compensation as from the day on which the incapacity
assumes a permanent character. This allowance is equal to two-thirds
of the average daily wage.
In the case of permanent incapacity such as absolutely necessitates
the help of another person, the pension may be raised to a rate above
two-thirds, but not exceeding the whole, of the wage previously earned.
(c) In case of death.
Benefits in case of death consist of a fixed sum of 750 francs for
funeral expenses and compensation to survivors.
The following persons are entitled to claim compensation : the
widow, orphans, and, in the absence of a widow and orphans, the
other classes of dependants mentioned below.
1. Widow.
The husband or wife, if neither divorced nor separated, provided
that the marriage had taken place prior to the disease which has been
recognised as occupational, is entitled to a capital sum equivalent to
the present value, calculated on the basis of the age of the victim at
the time of death, of a life annuity equal to 25 per cent, of the annual
wage.
2. Orphans.
Legitimate and recognised illegitimate children under 18, who
have lost either parent, are entitled to a capital sum equivalent to the
present value, calculated on the basis of the age of the victim at the
time of death, of a life annuity equal to 10 per cent, of the annual
wage for each child, provided that the total of the annuities does not
exceed 30 per cent, of the wage.
The life annuity in question is increased to 15 per cent, of the wage
for legitimate children who have lost both parents and for illegitimate
children not recognised by the mother if she is the victim of an
occupational disease, provided that the total of the annuities does not
exceed 45 per cent, of the wage.
3. Other dependants.
Fatherless grandchildren under 18 are entitled, if the deceased
person leaves neither widow nor children as beneficiaries, to a capital
sum equivalent to the value, calculated on the basis of the age of the
victim at the time of death, of a life annuity equal to 10 per cent, of
the annual wage for each grandchild, provided that the total of the
annuities does not exceed 30 per cent, of the wage.
The father and mother of the victim, if he or she was a legitimate
or recognised child and leaves neither wife (husband) nor child as

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

beneficiaries, are entitled to a capital sum equivalent to the present
value, calculated on the basis of the age of the victim at the time of
death, of a life annuity equal to 15 per cent, of the annual wage for
one beneficiary, and to 25 per cent, if there are two beneficiaries.
The brothers and sisters of the victim who are under 18 are entitled,
if the victim leaves neither wife (husband), child, father, mother, nor
dependent grandchildren, to a capital sum equivalent to the present
value, calculated on the basis of the age of the victim at the time of
death, of a life annuity equal to 10 per cent, of the annual wage for
each person, provided that the total of the annuities does not exceed
30 per cent, of the wage.
6.—Statistics.
Number of cases of occupational disease notified
during 1933
Number of new cases for which compensation was
granted during 1933
Total number of cases for which compensation was
granted during 1933

118
48
159

INCOME AND EXPENDITURE OF THE FUND IN 1933

(in francs)
INCOME

Contributions due from
heads of undertakings
for current year
Interest on invested capital
Supplementary contributions for previous years
Total

EXPENDITURE

937,239.00
17,440.40
138,661.60

Compensation for temporary incapacity
Compensation for permanent incapacity
Life a n d temporary annuities for fatal cases,
a n d funeral expenses
Administrative expenses

184,972.05
152,832.98
113,708.85
83,074.17
534,588.05

Total

... 1,093,341.00

BALANCE S H E E T OP T H E F U N D AT 31 D E C E M B E B

1933

(in francs)
LIABILITIES

ASSETS

Outstanding
contributions for previous years
Cash a t bank
Securities
Total

269,272.21
773,630.24
198,733.90
1,241,636.35

State loans
Capital of the F u n d
Sundry creditors
Special F u n d 1 ...
Total ...

291,107.30
1,988,835.00
51,382.34
1,615.00
.. 2,332,939.64

Excess of Liabilities ... 1,091,303.29
1
This Fund was set up to help aged workers suffering from an occupational disease who are
not entitled to assistance from the Welfare Fund.

HI.—Workers' Old-Age and Widows' and Orphans' Insurance
1.—Legal Basis.
Workers' compulsory old-age and widows' and orphans' insurance
is regulated by the Act of 14 July 1930, which amended the Acts of
10 December 1924 and 20 July 1927 and was itself amended by the
Act of 23 July 1932 and by the Royal Orders of 31 May 1933 and
14 July 1933 issued in pursuance of the Act of 17 May 1933.

BELGIUM

2.—Scope.
Insurance is compulsory for :
(a) wage-earning workers of both sexes employed in Belgium or
abroad in the service of an employer and in the employment
of an undertaking with its head office established in Belgium ;
(b) independent workers whose income from their occupation
does not exceed 18,000 francs a year.
Insurance is not compulsory for :
Workers in occupations covered by special insurance schemes and
persons employed in the service of the State, provinces, communes,
public institutions and public utility undertakings, provided that they
are covered against the risks of old-age and death by an Act or
regulations.
Voluntary insurance is open to any person not covered by the Act
who is over six years of age.
3.—Administration.
The General Savings and Pension Fund is responsible for the
management of the capital and the constitution and payment of
pensions under both compulsory and voluntary insurance. Recognised
mutual benefit societies may act as intermediaries between the
insured persons and the General Savings and Pension Fund for the
transmission of insurance cards to the Fund.
4.—Financial Resources.
The financial resources of the scheme are derived from the
contributions payable by the insured persons and their employers,
subsidies from the public authorities, and income from capital.
The amount of the contribution and the method of fixing it are
different for the three groups : compulsorily insured wage-earning
workers, compulsorily insured independent workers, and voluntarily
insured persons. Insured wage-earning workers are divided for this
purpose into eight wage classes, and the total monthly contribution
ranges from 5 to 25 francs, one half being paid by the insured person
and one half by the employer.
The contribution for independent workers is based on earnings for
the previous year, and ranges from a minimum of 120 francs a year
for men and 60 francs for women to a maximum of 180 francs for both
sexes.
Voluntarily insured persons fix the rate of their contribution
themselves, but in order to be entitled to the State contribution1
women must pay at least 60 francs a year and men 120 francs.
The State contributes towards old-age and survivors' pensions in
accordance with the conditions mentioned below (see below under
" Benefits ").
1
This right is reserved for insured persons whose earnings do not exceed
24,000 francs a year.

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

5.—Benefits.
Insurance covers the risk of old age and* death.
(a) Oíd age.
The pensionable age is 65 for men and women alike, but a
proportionately reduced pension may be paid on demand to men at 60
and to women at 55 years. In unhealthy industries a reduced pension
may be claimed at 55 years by men and at 50 by women.
The old-age pension, for which no qualifying period is imposed,
consists of two parts :
(1) The accumulation in a personal account of the contributions
of the insured person and his employer ;
(2) A State subsidy which increases by 50 per cent, the pension
acquired by accumulation in the personal account, up to a
maximum of 1,200 francs a year.
For insured persons of Belgian nationality born between 1867 and
1884 the State subsidy is increased, subject to the maximum of 1,200
francs, to 60 per cent, (persons born between 1880 and 1884), 75 per
cent, (persons born between 1875 and 1879), and to 100 per cent.
(persons born between 1867 and 1874).
The State also grants to insured persons born between 1867 and
1907 a bonus on the old-age pension which varies from 100 to 3,200
francs a year according to the date of birth and the situation of the
family. The grant of this bonus is subject to certain conditions of
need and to the regular payment of insurance contributions.
(b) Death.
The widow's pension, for which no qualifying period is imposed,
is equal to a percentage of the old-age pension to which the insured
person would have been entitled if at the date of his death he had
attained the pensionable age. This percentage varies with the age of
the insured person at the date of death and with the difference between
the ages of the husband and wife. If they are of the same age, the
fraction of the pension payable to the widow varies between 35 per
cent, if the husband dies before the age of 41, and 50 per cent, if he
dies at the age of 55 or over.
The widow of an insured person born between 1867 and 1907
receives a bonus on her pension at the expense of the State; this
bonus varies from 120 to 540 francs a year according to the date of
birth of the insured person.
Children are entitled until the completion of their sixteenth year
to a pension of 240 francs a year if they have lost either parent and
420 francs a year if they have lost both parents. These pensions are
paid by the State.
The bonuses on widows' pensions and orphans' pensions are
granted only if all statutory annual payments have been made with
regularity.
The only survivors entitled to pensions are the widow and children.
Nevertheless, the law allows insured women to assign a part of their
old-age insurance contributions for the purpose of ensuring the payment
of benefit to the survivors they designate.

BELGIUM

6.—Statistics.
Number of insured persons in 1933

1,772,769

INCOME AND E X P E N D I T U R E FOB

1933

(in francs)
EXPENDITURE

INCOME

Contributions of insured
persons
136,727,000
Contributions of employers 101,209,000
1
Income from capital
...
—

Old-age pensions (workers)
Administrative expenses 2

16,009,764
—

STATE S U B S I D I E S 3

francs
A. Contribution to old-age and widows' pensions
(workers)
3,465,000
B . Bonuses on old-age pensions (workers and
salaried employees)
710,000,000
C. Bonuses on widows' pensions (workers and")
salaried employees)
...
...
...
... I
D . Orphans' pensions (workers and salaried em- ( 20,601,000
ployees)
...
...
...
...
...
... J
Total
734,066,000
1
The General Savings and Pension Fund, which is responsible for the management of the
capital accumulated from insured persons' and employers' contributions, publishes only the
amount of interest yielded yearly by the total reserves held by its pension section. These
reserves are common to all the employed persons insured with this section, viz. workers, salaried
employees and miners.
* Administrative expenses include the following items :
(a) Expenses of the General Savings and Pension Fund in connection with the management
of the capital and the constitution and payment of pensions : Frs. 17,747.469.70;
(6) Expenses of the Ministry of Labour and Social Welfare in connection with the organisation,
application and supervision of the compulsory insurance scheme, and enquiries into applications for bonuses on old-age pensions and the payment of the bonuses;
(e) Expenses of the Widows and Orphans' Fund in connection with enquiries into applications
for bonuses on widows' pensions and for orphans' pensions and the payment of these
3 bonuses and pensions.
Including any subsidies made to salaried employees' insurance.

IV.—Salaried Employees' Old-Age and Widows' and Orphans'
Insurance
1.—Legal Basis.
Salaried employees compulsory old-age and widows' and orphans'
insurance is regulated by the Act of 18 June 1930, as amended by the
Act of 3 March 1933, amending the Act of 10 March 1925.
2.—Scope.
Insurance is compulsory for :
(a) Salaried employees of both sexes, of Belgian nationality,
who are employed in Belgium or abroad by a Belgian firm
established in Belgium, or a branch established in Belgium by a
foreign firm, and whose salaries are paid by the said Belgian
firm or branch, whatever the amount of the salary ;
(b) Salaried employees of both sexes, of foreign nationality, who
are employed in Belgium on account of a Belgian firm established in Belgium, or a branch established in Belgium by a
foreign firm, and whose salaries are paid by the said Belgian
firm or branch;
(c) Salaried employees of both sexes in the service of the State,
provinces and communes, and also those of public institutions

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

and public utility undertakings who are not covered by staff
regulations granting them benefits similar to those set forth in
the Act.
Subject to certain conditions the Act treats as salaried employees
liable to insurance professional journalists, members of the teaching
staff of private educational establishments, lyric or dramatic artistes,
and instrumental musicians employed in Belgium under a contract of
at least one month. Salaried employees of both sexes of Belgian
nationality employed in Belgium in the service of an employer established abroad1 may insure voluntarily if they fulfil the other legal
requirements. Similarly, former salaried employees who have contributed to compulsory insurance for a certain number of years may,
if they desire, continue in insurance.
3.—Administration.
The insurance carriers are required either to accumulate in a
personal account the contributions of the insured persons or to distribute the funds for increasing the pensions paid during the transitional period or constituting invalidity and orphans' pensions.
The insured person may pay his contribution to any one of the
following institutions :
(a) The National Salaried Employees Pension Fund ;
(6) The General Savings and Pension Fund ;
(c) The approved insurance institutions, that is to say, the funds
set up in industrial, commercial or financial undertakings, joint
funds covering several undertakings, and legally formed insurance
companies.
The institutions mentioned in (a) and (6) above are under State
guarantee and supervision; those mentioned in (c) are merely supervised by the State, which does not guarantee their operations. Except
in the case of legally-formed insurance companies, the interests of
insured persons and their employers are directly represented.
The Salaried Employees Grants Fund, which is the distributive
organisation, is managed by the governing body of the National
Salaried Employees Pension Fund.
4.—Financial Resources.
The resources of the insurance scheme are derived from contributions
payable by the insured persons and their employers, State subsidies,
and income from invested capital.
The amount of the contributions to be accumulated is fixed in
proportion to salaries, the maximum remuneration taken into account
for this purpose being 18,000 francs a year. Insured salaried employees
and their employers may, however, pay contributions in excess of the
legal maximum. The Act of 18 June 1930 fixed the rate of the
insurance contribution for the salaried employee at 3 per cent, of his
salary and for the employer at 4 per cent.
* The Act covers only salaried employees of Belgian firms or of branches
established in Belgium by foreign firms.

BELGIUM

The Grants Fund is derived from :
(a) A personal contribution payable by salaried employees born
before 1 January 1895, which varies from 90 to 30 francs,
according to the date of birth of the insured person;
(b) An employer's contribution fixed at 120 francs a year for
each employee until 1960, 80 francs for the period 1961-1975,
and 40 francs for the period 1976-1990.
The State contributes to old-age pensions for compulsorily insured
persons by granting an annual subsidy equal as a rule to 50 per cent.
of the pension, but not exceeding 1,200 francs a year.
5.—Benefits.
Insurance covers the risks of old age, invahdity and death.
(a) Old age.
The pensionable age is 65 for men and 60 for women. The old-age
pension, for which no qualifying period is imposed, is constituted by the
accumulation in a personal account of the contributions of the insured
person and his employer, and by a State subsidy which increases by 50
per cent, the pension acquired by accumulation, but is subject to a
maximum of 1,200 francs a year.
In addition, insured persons born before 1 January 1895 and after
31 December 1861 (men) or 31 December 1866 (women) receive in
addition to the pension acquired by accumulation, an old-age bonus at
the expense of the Allowances Fund ; the annual amount of this bonus
varies from 200 to 1,500 francs for men and from 130 to 770 francs
for women, according to the insured person's date of birth.
The law allows a proportionately smaller pension to be drawn at the
age of 60 for men and 55 for women.
The old-age bonus, usually payable at 65 years for men and at 60
years for women, may also be drawn earlier at a reduced rate.
(b) Death.
The widow's pension, for which no qualifying period is imposed, is
equal to a percentage of the old-age pension to which the insured person
would have been entitled if at the date of his death he had attained the
pensionable age. This percentage varies wdth the age of the insured
person at the date of death and with the difference between the ages of
the husband and wife. If they are of the same age, the pension payable
to the widow varies between 35 per cent, if the husband dies before the
age of 41, and 50 per cent, if he dies at the age of 55 or over.
In addition, the Salaried Employees' Grants Fund is required to :
1. Grant to widows of insured persons born before 1 January
1895 and after 31 December 1861, a widow's allowance the annual
amount of which is fixed at 35-50 per cent, of the old-age pension
which the husband would have received at 65 years ;
2. To pay to the surviving husband or wife of the person liable to
insurance an annual allowance of 300 francs in respect of every child
under 18 years of age.
G 12073

INTERNATIONAL SURVEY OE SOCIAL SERVICES, 1 9 3 3

(c) Invalidity.
Persons Hable to insurance who have become totally and permanently incapable of work receive an annual allowance of 1,500 francs
from the Grants Fund, increased by 300 francs in respect of every child
under 18 years of age dependent on them.
*
*
*
It is to be noted that persons covered by the Act of 18 June 1930
receive under the same conditions as those fixed for manual workers
the free old-age bonus provided for by the Act of 14 July 1930.
In addition, their widows receive a widow's bonus and, when
necessary, orphans' allowances from the Widows' and Orphans' Fund
established in pursuance of the latter Act.
6.—Statistics.
Number of insured persons in 1933 ...
approx.
235,000
Contributions of insured persons for 1933
89,400,000 frs.
Contributions of employers for 1933
119,200,000 frs.

V.—Miners' Invalidity, Old-Age and Widows' and Orphans'
Insurance
1.—Legal Basis.
Compulsory insurance for miners was introduced by the Act of
5 June 1911 respecting miners' pensions, which was amended and
supplemented by the Acts of 26 May 1914, 25 October 1919, 20 August
1920, 9 April 1922, 27 December 1923, 30 December 1924, 10 August
1925, 3 August 1926, 20 July 1927, and 12 May 1929. This body of
legislation was amended and consolidated by the Act of 1 August 1930,
the main object of which was to adapt miners' insurance to the new
conditions introduced by the general old-age pension regulations for
workers.
A number of small amendments to the Act of 1 August 1930 were
introduced by the Act of 22 July 1931.1
2.—Scope.
All workers employed in a Belgian coal-mining undertaking are
liable to compulsory insurance, irrespective of their age and sex.
Workmen's inspectors of mines, the workers employed in metalliferous mines worked under a concession, underground works such as
slate, clay or phosphate and oilstone quarries and workers employed in
coal by-product undertakings or undertakings engaged in the boring
and sinking of pits are put on the same footing as coal-miners.
3.—Administration.
The administration of insurance is entrusted to the National
Miners' Pension Fund, the regional provident funds and the General
Savings and Pension Fund.
The National Fund is the central organisation, the provident funds
are responsible for the administration of the scheme in their respective
1
I n addition, important amendments to the transitional system of benefits
and the accumulation of financial resources were introduced by the Orders of
22 December 1934, 30 January, 9 and 26 February 1935.

BELGIUM

areas, while the activities of the General Savings and Pension Fund
are restricted to the accumulation of the part of the contributions paid
into personal accounts.
4.—Financial Resources.
The resources of the insurance scheme are derived from contributions payable by the insured persons and their employers, State
subsidies, and income from invested capital.
During 1933, the amount of the joint contribution for insured
persons and employers remained fixed at 7 per cent, of the workers'
wages, 4 per cent, being paid by the undertaking and 3 per cent, by the
workers.1 The contribution is calculated on the basis of the cash
remuneration paid to the worker, any remuneration in kind which he
may receive being left out of account.
The State contribution towards the cost of insurance takes the
form of a subsidy towards the constitution of pensions which is
proportionate to the value acquired by the sums entered in the personal
account of each insured person.
The State also pays one-third of the orphans' allowances and onefifth of the invalidity allowances. During the transitional period,
it also grants old-age bonuses and widows' bonuses, the amount of
which varies with the date of birth of the insured person, his family
responsibilities and the nature of his work in the mine (surface or
underground work) (see under " Benefits ").
5.—Benefits.
Insurance covers the risks of invalidity, old age and death.
(a) Invalidity.
The right to an invalidity pension is subject to the completion of a
qualifying period and to the condition that the applicant was an
employed contributor during the period immediately preceding the
occurrence of the event insured against.
The length of the qualifying period varies with the age of the insured
person at the time the event insured against took place, being fixed at
the following number of years of niining work : 10, if the insured
person is under 40 years of age; 12, if he is between 40 and 44; 15, if he
is between 45 and 50 ; 18, if he is between 50 and 55 ; and 20, if he is
over 55.
The invalidity pension comprises an allowance fixed at 90 francs
for each year's service if the beneficiary is unmarried, widowed or
divorced, and at 120 francs if he is married, subject to a noinimum of
1,800 francs and to a maximum of, as a rule, 2,700 francs for the former
and 3,600 francs for the latter. Nevertheless, the total allowance is
increased to 3,708 and 4,800 francs respectively if the beneficiary has
been employed in underground work in mines for 30 years. The
disabled miner is also entitled to a free coal allowance of 113-3 kg.
for each year of service, subject to a maximum of 3,400 kg. a year.
Throughout the period of invalidity, the National Miners' Pension
Fund pays to the General Savings and Pension Fund on behalf of
disabled miners the minimum contributions fixed by the Act of
'These rates were increased to 4£ and 3£ per cent., or to a total oí 8 per
cent, of wages, as from 3 March 1935.
F2

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

14 July 1930 respecting workers' insurance, with the result that the
disabled miner becomes entitled at 65 years to the old-age pension
guaranteed to persons insured voluntarily under the general scheme.
(b) Old age.
The old-age pension is acquired at 60 years by surface workers and
at 55 years by underground workers. It includes :
(a) a personal pension to the miner;
(b) a supplement granted when the wife of the pensioner reaches .
the age of 65.
The personal pension consists of :
(1) an annuity derived from the accumulation in a personal
account of the contributions paid to the General Savings and
Pension Fund. These contributions vary from 25 to 175 francs
a year according to the wage class to which the worker belongs
(there are six wage classes ranging from less than 16 francs
a day or 4,800 francs a year to more than 56 francs a day
or 16,800 francs a year) ;
(2) a supplement equal to 188 per cent, of the basic pension
payable by the National Miners' Pension Fund ;
(3) A State subsidy, equal as a rule to 50 per cent, of the total
amount of the pensions paid by the General Savings and
Pension Fund and the National Miners' Pension Fund, but
not exceeding 1,200 francs a year. This subsidy is increased
by one-third for underground workers pensioned at the age
of 55.
In addition to these benefits, a worker who has worked 30 years
in the mines and who has been employed in an undertaking liable to
insurance until the legal pensionable age is entitled to a supplementary
pension intended to bring the benefits due to him up to the minimum
annual amounts mentioned below :
4,800 francs for married miners who are no longer employed ;
3,708 francs for unmarried, widowed or divorced miners who are
no longer employed ;
3,504 francs for married miners who are still employed ;
2,400 francs for unmarried, widowed or divorced miners who are
still employed.
The obligation to work until a pensionable age in an undertaking
hable to insurance is nevertheless not enforced in the case of workers
who have left the mining industry after 30 years' service as a result
of the economic depression or an industrial accident, or to take up a
position in a trade union organisation.
The pensions paid during the transitional period are constituted
as a rule in the same way as the pensions under the ordinary system,
special minimum rates in proportion to the time spent in the mine
being provided for workers born before 1889 (underground workers)
or before 1884 (surface workers) who can show at least 20 years'
service in the undertakings liable to insurance.
In addition, the State contribution is increased from 50 to 60 per
cent, for insured persons born between 1880 and 1884, to 75 per cent.
for those born between 1875 and 1879, and to 100 per cent, for those

BELGIUM

born between 1867 and 1874 (men) or between 1872 and 1874 (women).
This contribution is increased by a supplement intended to make up
for any inadequacy in the payment of old-age insurance contributions,
such supplement varying with age, family responsibilities and the
miner's working conditions. It varies from 100 francs a year for an
unmarried, widowed or divorced surface worker born in 1902 to
3,200 francs a year for an underground worker born in 1879.
For underground workers born before 18801 who are no longer
employed, the guaranteed minimum is fixed at 6,000 francs1 a year
for married workers and at 4,002 francs for unmarried, widowed or
divorced workers.
The pension is increased by 1,080 francs a year when the wife of the
pensioned miner reaches the age of 651.
Further, an old-age pensioner is entitled to 3,400 kg. of coal,
a year.
(c) Death.
Benefits in case of death include :
(1) A coal allowance of 3,400 kg. a year from the National
Miners' Pension Fund to the widow if her husband was in
receipt of an old-age pension or fulfilled the conditions
necessary to obtain such a pension ;
(2) A minimum pension varying with the age of the beneficiary.
The guaranteed minimum is fixed at 840 francs a year when the
widow is under 60 years, 2,400 francs when she reaches 60 years, and
2,940 francs at the age of 65.
Pensions of 2,400 francs and 2,940 francs are granted only to
widows whose husbands were in receipt of an old-age pension or fulfilled
the conditions necessary to obtain such a pension.
Legitimate children of the insured person or children for whom he
had assumed responsibility are entitled to an allowance up to the age
of 16 years. This allowance, which is paid to the mother, amounts to
360 francs for the first child, and is increased by 90 francs for each
additional child up to a maximum of 990 francs for 8 or more children.
For each child that has lost both parents, an annual allowance of
720 francs is paid to the person or institution assuming responsibility
for the children.
6.—Statistics.
Number of insured persons in 19331
...
... 180,645
Numbsr of beneficiaries and amount of cash benefits in 1933 :
Average number of Amount, paid
beneficiaries2
(francs)
Old-age pensions
32,675
165,708,184
I n v a l i d i t y allowances ...
...
...
4,728
16,145,54.5
W i d o w s ' p e n s i o n s (old-age a n d survivors')
17,599
33,412,953
Orphans'allowances
4,140
2,239,838
1
Number of current accounts into which payments were made in 1933. The number of
workers employed on 31 December 1933 was about 132,500 as compared with 140.025 on 1 January
1933.
2
Average calculated according to number employed on 1 .January and on 31 December 1933.
1
T h e s e p r o v i s i o n s w e r e a m e n d e d b y t h e O r d e r s of 22 D e c e m b e r
3 0 J a n u a r y a n d 26 F e b r u a r y 1935.

1934.

I N T E R N A T I O N A L S U R V E Y O F SOCIAL S E R V I C E S ,

1933

INCOME AND ExnäNDITUBB FOE 1 9 3 3
(in francs)
INCOJIK

EXPENDITURE

Income ol National Fund :
Workers* and employers' contributions
.. 101,807,416-871
Sundry Income :
10,643,541 • 81'
Surplus on Estimated Expenditure
for—
(a) payments to Salaried Employees' Insurance Fund in respect
of wages in 1932
31,3S3
(b) payments corresponding to
above contributions, due to the
Additional Pension Fund
57,996
89,379-00
Additional Pension Fund :
Charges to cover additional pensions and
the commutation of pensions
349,015-83
General Savings and Pension Fund :
Charges made on the Pension Fund to cover
pensions paid on its behalf
3,541,237-50
Belgian Government :
Charges made on the State to cover pensions
paid on its behalf
134,692,050 01
Autonomous Fund of France :
Charges made on the autonomous Miners'
Insurance Fund of France to cover
1,886,007 • 91
pensions paid on its behalf

Cash benefits
...
Benefits in kind
Constitution of Pensions :
To the Pension Fund
To additional Pension Fund
(capital and interest)
Administrative expenses
Depreciation :
Furniture, equipment, etc. ...
Securities

219,539,300'
16,721,100
13,310,400
20,824,760
3,031,870
10,898
941,029

253,008,648-93
27,420,708-41

Excess of Expenditure

280,429,357-34

Total Expenditure

Including 43,631,750 1rs. of workers' contributions.
• Including 9,412,392 frs. interest and dividend.

BALANCE

SHEET

A T 31

280,429,357

Value of benefits in accordance with details
previously given :
217,506,518 frs. plus
2,032,776 frs. to cover payments to the French
Pension Fund and the cost of commutation of
supplementary pensions which, in the absence
of the necessary statistics, cannot be classified
according to the categories of pensioners.

DECEMBEB

1933

(in francs)
ASSETS
3,740,000 00
I. Real property
10,898 15 (mentioned for
I I . Furniture and equipment
10,898 • 15 record purposes)
Amortisation
I I I . Debtors :
General Savings and Pension Fund
168,287-77
Autonomous
Fund of
France
... 471,218-50
... 7,958,805-70
Affiliated funds ...
Sundry
... 1,460,794-60

LIABILITIES

I. Reserve Fund
114,385,421-54
I I . Additional Pension Fund
(actuarial reserves)
85,790,434-05
III. Pension Fund
2,965,523 00
IV. Sundry creditors
2,316,803 06
V. Special account :
2,662,510-29
Deposits (securities)

10,059,106-57
]V Financial Department :
Cash
Securities

16,642,582 18
. 147,595,784-49'
— 164,238,360-67

V Special account :
Deposits (securities)
VI. Income and expenditure £ ccount :
Deficit

2,662.510-29
180,699,983-53
27,420,708-41
208,120,691-94

BELGIUM

VI.—Seamen's Insurance
A.—ACCIDENT

INSURANCE

1.—Legal Basis.
Compensation for injuries resulting from accidents sustained by
seamen is regulated bv the Act of 30 December 1929, as amended on
6 January 1934.
2.—Scope.
The Act applies to all seamen and fishermen injured as the result
of an accident on board ship, or elsewhere than in port.
3.—Administration.
The administration of insurance is entrusted to :
(a) the General Fund for the Mercantile Marine ;
(6) the General Fund for the Sea-Fishing Service.
Membership of one of these two Funds is compulsory for shipowners.
4.—Financial Resources.
The two General Funds are financed out of shipowners' contributions
and donations and legacies. If the expenditure on pensions and allowances payable by either exceeds its income, the deficit is made up by
the State by means of loans repayable within not more than ten years.
5.—Benefits.
Insurance covers the risk of occupational accidents. I t guarantees
pensions or allowances and benefits in kind to injured seamen, and
cash benefits to their survivors.
(a) Temporary incapacity.
When the provisions governing seamen's agreements cease to
apply (shipowner's liability towards an injured seaman), the injured
seaman is entitled to daily compensation equal to 50 per cent, of his
average daily wage or profits. The daily compensation is increased to
two-thirds of the daily wage as from the twenty-ninth day.
(b) Permanent incapacity.
The pension granted in case of permanent total incapacity is
equal to two-thirds of the wage. I t may, however, be increased up to
80 per cent, in the case of seriously disabled persons whose condition
renders the regular assistance of another person absolutely necessary.
In case of permanent partial incapacity, the pension is equal to
two-thirds of the loss of earnings resulting from the accident.
(c) Benefits in kind.
The injured person is entitled in all cases to the necessary medical
and surgical attendance, pharmaceutical requisites and hospital
treatment, as well as to artificial hmbs and orthopaedic appliances the
use of which is recognised as necessary.

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

(d) Death.
The benefits payable in case of death include :
(a) an allowance of 750 francs for funeral expenses ;
(6) compensation for survivors (husband or wife, orphans and,
in the absence of orphans, relatives in the ascending line).
The compensation granted to the husband or wife is equal to the
value of a life annuity of 30 per cent, of the annual wage, calculated on
the basis of the victim's age at the time of death.
The compensation granted to orphans is calculated on the same
basis, but is limited to 15 per cent, of the annual wage for each orphan,
or 20 per cent, for orphans who have lost both parents, subject to a
maximum of 45 per cent, in the first case and 60 per cent, in the second.
The wage taken as a basis for calculation may not be less than
2,500 francs a year or more than 20,000 francs a year.
6.—Statistics.
I . — T H E G E N E R A I F U N D FOR THE MERCANTILE M A R I N E I N

(in francs)

INCOME

Total amount of
contributions
paid b y ship owners ...
1,369,156.41

Total

1933

EXPENDITURE

Compensation for loss of wages,
pharmaceutical expenses, hospital expenses, funeral ex98,384.04
penses ...
Constitution of capital for :
(1) permanent invalidity pen11,051.47
sions
41,857.83
(2) survivors'pensions
Actuarial reserves a n d reserve
for outstanding cases, including 53 cases of incapacity a n d
649,320.13
4 cases of death
Total

1,369,156.41

800,613.47

I I . — T H E GENERAL F U N D FOR T H E S E A - F I S H I N G SERVICE I N

1933

(in francs)
INCOME

Total contributions
Other income

Total

EXPENDITURE

564,663 43
2,834 17

567,497 60

Compensation for loss of wages,
medical and pharmaceutical
expenses, hospital expenses,
funeral expenses
Constitution of capital for :
(1) pensions ...
(2) survivors' pensions in
three cases of death ...
Sundry expenses
Actuarial reserves for current
risks :
Incapacity : constitution of
capital in 1936
Death : capital constituted
in 1934
Total

360,513 10

80,003 13
59,537 40

179,387 39
135,867 55
815,308 57

BELGIUM

B.—SICKNESS,

INVALIDITY, OI-D-AGB AND WIDOWS' AND ORPHANS'
INSUBANCE

1.—Legal Basis.
The social insurance of seamen is based on the Act of 21 July 1884,
and was recast by the Royal Order of 6 July 1931 (amended by the
Royal Order of 27 April 1933) which was issued in pursuance of the
Act of 6 July 1931 with a view to bringing its provisions into line with
the regulations applicable to salaried employees and workers in general
(Acts of 18 June 1930 and 14 July 1930).
2.—Scope.
Insurance is compulsory for all persons of either sex who are entered
in any capacity in the list of crew of a vessel of the Belgian mercantile
marine, with the exception of seamen taken on without wages or
for a nominal wage, and coloured seamen engaged under special
conditions.
3.—Administration.
The administration of insurance is entrusted to the " Relief and
Provident Fund for Seamen sailing under the Belgian Flag ", the
rules of which were established by the Royal Order of 6 July 1931 as
amended by the Royal Order of 27 April 1933.
4.—Financial Resources.
The financial resources of the insurance scheme are derived
from :
(a) Compulsory contributions from the insured persons, equal to
4 per cent, of wages for lower ratings and 5 per cent, for ships'
officers and seamen classed with officers ;
(6) Compulsory contributions from shipowners, equal to 2-5 per
cent, of wages in the case of lower ratings and 6 per cent, in the
case of ships' officers and seamen classed with officers, but not
exceeding 72 francs a month in respect of ships" officers and seamen classed with officers, and 24 francs a month in respect of
lower ratings ;
(c) State subsidies and contributions;
(eZ) Income from capital.
I n addition to these main sources of income, the Seamen's Relief
and Provident Fund has other sources of income of minor importance.
5.—Benefits.
The Seamen's Relief and Provident Fund coverB the risks of
sickness, invalidity, old age and death.
Benefits include medical attendance, pharmaceutical requisites and
hospital treatment for sick or disabled seamen, and cash allowances
granted in the form of periodical benefit to sick insured persons and
of pensions to disabled and aged seamen and the dependants of deceased
members of the Fund.

INTERNATIONAL SUKVEY OF SOCIAL SERVICES, 1933

(a) Sickness.
(1) Benefits in kind.
Sick seamen are entitled to medical attendance, pharmaceutical
requisites and hospital treatment at the expense of the Fund, in
accordance with conditions laid down by the medical rules.
(2) Cash benefit.
Sick seamen are entitled to a daily allowance which varies with
their wages, their marital condition, and the nature of the medical
treatment (the benefit granted to sick seamen treated in hospital
being 4 to 7-50 francs a day less than that granted to those treated
at home).
The right to cash benefits is acquired after one year's membership
of the Fund.
(b) Invalidity.
Disabled seamen are entitled to a pension, equal to the old-age
pension, including the State subsidy, which the insured person would
have obtained if he had reached the pensionable age. The invalidity
pension is paid until the insured person is entitled to an old-age pension.
(c) Old age.
Insured persons who reach the age of 55 are entitled to an old-age
pension based on the amount of the contributions paid by themselves
and the shipowner into their personal account.
The old-age pension is increased by an annual State subsidy equal
to 50 per cent, of the amount of the pension acquired by accumulation.
The State subsidy is fixed at 100 per cent, for insured persons born
before 1874, 75 per cent, for those born between 1875 and 1879, and
60 per cent, for those born between 1880 and 1884. The maximum
State subsidy is fixed at 780 francs a year when the old-age pension is
granted at the age of 55 years, and it is increased progressively when
the old-age pension begins after 55 years, up to a maximum of 1,200
francs at 60 years.
(d) Death.
The widow of the insured person is entitled to a fraction of the
old-age pension acquired by her husband, or to which he would have
had the right at 55 years. This fraction varies with the difference
between the ages of the husband and wife ; when they are of the same
age, it is as a rule equal to 50 per cent, of the old-age pension.
When necessary the widow's pension is, however, increased up to
a guaranteed minimum; when the husband and wife are of the
same age, the guaranteed minimum is obtained by multiplying the
average amount of the contributions paid by the insured person
during his last five working years by a coefficient which varies from
0-148 for insured persons aged 51 at the beginning of the five-year
period in question to 1 • 800 for insured persons aged 15 at the beginning
of the said period. If the husband and wife are of different ages, the
guaranteed minimum is reduced or increased according as the husband
was older or younger than the widow.

BELGIUM

If a deceased seaman leaves children, the widow's pension is
increased by 15 per cent, for each child under 18 years of age, subject
to a maximum of 60 per cent. The State also grants a subsidy equal
to 50 per cent, of the pension, but not exceeding 600 francs.
Children of an insured person who have lost both parents and are
under 18 years of age are entitled to a pension equal to that which
would have been granted to the insured person's widow.
If their claim is based on the death of a female member of the
Fund, they are entitled to a pension equal to 50 per cent, of that which
she received or would have been entitled to receive. This pension is
increased by the State up to a maximum of 50 per cent, of the pension
which the deceased woman received or would have been entitled to,
but the State subsidy may not exceed 600 francs.
6.—Statistics.
Average number of contributing members in 1933 : 2,953.
INCOME AND E X P E N D I T U R E FOK

1933

(in francs)
INCOME

EXPENDITURE

Sickness and Invalidili/ Benefits
Contributions of insured
Benefits in kind and cash
persons
313,348.81
benefits
345,043.90
Public subsidies
85,574.13 Administrative expenses
34,405.11
Old-Age and Survivors' Benefits
Contributions of insured
Pensions
and
relief
persons
granted under the sys1,108,667.94
Contributions of employ
tem in force prior to
1,045,442.80
U u l y 1931
ers
1,093,358.20
Miscellaneous income
15,375.01 Annuities granted under
the new system, includIncome from capital
963,855.00
ing State subsidies ... 340,700.35
Public subsidies...
103,519.45
21,533.74
Administrative expenses
Total ...

... 3,635,783.14

Total ...

1,835,041.30

Vu.—Voluntary Social Insurance
A.—SICKNESS,

MATERNITY, TUBERCULOSIS, INVALIDITY, OLD-AGE
W I D O W S ' AND O R P H A N S ' INSURANCE

AND

1.—Legal Basis.
The legal status of mutual benefit societies is based on the Act of
23 June 1894, which revised and amended the Act of 3 April 1851
respecting mutual benefit societies, and on the Act of 30 July 1923
authorising these societies to amalgamate. The Act of 23 June 1894,
has itself been amended, for instance, by the Acts of 19 March 1898,
27 December 1923, 3 August 1924 and 30 March 1926.
Further, the Act of 5 May 1912 authorises the payment of annual
subsidies to approved mutual invalidity funds.
The rules governing the payment of subsidies to sickness insurance
funds were fixed by the Royal Orders of 22 December 1931, 1 June
1932 and 26 May 1933.

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

2.—Scope.
Membership of a recognised mutual benefit society is open to :
(a) Persons of 18 years of age or possessing legal capacit}',
irrespective of nationality ;
(b) Minors under 18 years of age and not possessing legal
capacity, subject to the consent of the person exercising
parental authority over them or of their guardian ;
(c) Married women, unless the husband objects in writing to the
president of the society or a member of the management.
The husband's consent may be waived by a justice of the
peace after the parties have been heard or summoned to appear
before him.
3.—Administration.
Mutual benefit societies may be set up as occupational or nonoccupational funds, or works funds, or associations of persons belonging
to a political or other group. They act as free or as recognised funds
subsidised by the State, according as they agree or do not agree to
conform with certain legal provisions.
Under the voluntary old-age insurance system, the mutual benefit
societies and their federations work in conjunction with the General
Savings and Pension Fund, which is responsible for the management
of the moneys.
4.—Financial Resources.
The financial liabilities of the mutual benefit societies are covered
by the insured persons' contributions and public subsidies. As a rule,
the societies which take the form of works funds receive contributions
from employers. The recognised societies which satisfy the conditions
as to organisation and working laid down in the Act or in special
regulations may receive subsidies from public authorities. The State
subsidy is based on membership and the amount of contributions
received (in respect of medical and pharmaceutical benefits), or only
on the amount of contributions (sickness and invalidity benefits).
The subsidy to maternity funds consists of a fixed sum for every case
assisted and a sum varying with the total amount of contributions
received. In addition to these main sources of income, the societies'
resources include contributions from honorary members, donations
and legacies, and interest on investments.
5.—Benefits.
Mutual benefit societies may, in accordance with the size of their
membership, undertake insurance against sickness, maternity, tuberculosis, invalidity, old-age and death. The nature, rate and duration
of benefits granted to members are fixed by the rules of each society.
Special regulations fix minimum benefit rates for recognised societies
in receipt of subsidies which insure against sickness, maternity and
tuberculosis.
The minimum sickness benefit includes a daily allowance of not
less than 6 francs for men of 18 years or over, 4 francs for women of

BELGIUM

18 years or over, and 2 francs for persons under 18 years. Recognised
societies in receipt of the State subsidy which organise a medical and
pharmaceutical service for members and their families must guarantee
medical and pharmaceutical benefits to members and their families
for a minimum period of 2 years.
Maternity benefit consists of a lump sum of at least 125 francs
for each birth, and daily benefit of at least 3 francs during six weeks.
Tuberculosis benefit includes free treatment in a sanatorium for at
least three months.
The so-called invalidity benefits are divided into benefits paid by
the principal service and those paid by the special service. Benefits
paid by the principal service are intended to allow sick members to
continue to receive full or partial benefit until their complete restoration
to health or up to the age of 65, after exhaustion of their right to
benefit from a primary mutual benefit society. Any benefit granted
to members of 65 or over is paid by the special service.
Old-age benefits consist of a pension based on the contributions of
the insured person plus a State subsidy.
6.—Statistics.
(a) Primary sickness insurance in 1032.
Number of recognised funds...
...
Number of insured persons ...
...

...
...

FINANCIAL STATEMENT TOR

...
...

General income
...
...
...
General expenditure
General assets
(b) Family medical and pharmaceutical benefit in 1932.
Number of persons entitled to family medical
pharmaceutical benefit
...
...
...
...

3,408
1,289,398

...

83,175,400
67,002,668
81,917,007

and
...

3,001,227

...

183,564,247
185,447,705

...

1,163,620

1932

(in francs)
General income
General expenditure ...
...
...
...
(c) Invalidity insurance in 1932.
.
„.
.
/principal service
Number of insured per
s | s p e c i a l servicei
FINANCIAL STATEMENT FOR

1932

(in francs)
...
...

FINANCIAL STATEMENT TOR

...
...

19>694

1932

(in francs)
Principal service
General income
General expenditure ...
General assets

...

29,468,428
28,167,585
29,094,628

...

2,240,183
2,176,888
1,879,509

Special service1
General income
General expenditure ...
...
...
...
General assets
(d) Old-age and widows' and orphans' insurance-. .
1
a

Service providing benefits for persons aged 65 and over.
Statistics for 1932 are not available.

9á

INTEBNATIONAL SURVEY OE SOCIAL SEEVICES, 1933
B.—UNEMPLOYMENT

INSURANCE

1.—Legal Basis.
The system of voluntary unemployment insurance subsidised by
the public authorities is based on the Royal Orders of 30 and 31
December 1920, the Royal Order of 25 October 1930, the Act of 26
December 1930 (the application of which was regulated by the Royal
Order of 10 February 1931), and the Royal Orders of 13 March and
24 December 1931, 2 July 1932, 23 March, 29 March, 25 April and
12 May 1933, as amended subsequently by the two Royal Orders of
31 May 1933 amended and supplemented in their turn by those of
14 and 15 July, 7, 8, 11, and 20 September 1933.1 A number of Orders
and Ministerial Circulars have been issued to explain and regulate the
application of these Royal Orders.
2.—Scope.
Voluntary insurance is as a rule open to all wage-earning employees
of 15 to 65 years provided they have been regularly employed for at
least one year in industry or commerce as workers or salaried employees.
For workers under 18 years exceptions are allowed to this condition.
Persons whose unemployment cannot, on account of the nature of their
work, be regularly supervised, e.g., domestic servants, agricultural
workers, theatrical and music-hall artistes, are excluded from insurance.
The admission of foreign workers is conditional on reciprocity.2
3.—Administration.
The administration of insurance is entrusted to :
(a) The primary funds approved by the competent Ministry,
including private funds (which are practically all trade union
funds), and an official fund with a section attached to each
unemployment fund ;
(ò) The communal and inter-communal funds, which exercise
supervision over the primary funds and their unemployed
members ;
(c) The cantonal supervisory committees set up to supervise the
application of the Royal Orders and to bring infringement and
abuses to the notice of the Minister of Labour and Social
Welfare and the Minister of Finance ;
(d) The claims committees and provincial appeal committees
set up on a joint basis to deal with disputes, subject to final
appeal before the governing body of the National Emergency
Fund.
The claims committees are also called upon to fix the average
wage rates on which the maximum unemployment benefits are
based ;
1
The whole system, as again amended by an Order of 27 July 1934, was
completely reorganised b y an Order of 26 J u l y 1935 which established a National
Employment Office. The provisions described in the text are those in force in
1933.
2
Those who were already members of an unemployment fund before 31 May
1933 may, however, continue to receive benefits under the rules of the F u n d .

BELGIUM

(e) The National Emergency Fund, a special institution entrusted
with the collection and administration of sums put at its
disposal by the public authorities for the assistance, under
certain conditions, of unemployed persons belonging to the
above-mentioned primary funds.
4.—Financial Resources.
The financial resources are derived from :
(a) Contributions paid by insured persons to the primary funds,
varying according to the occupational class of the insured
person. These rates have been doubled by order. 1 When the
doubling of the rate makes the contribution too high, the
Ministry of Industry and Labour may adopt a lower rate,
which may not, however, be less than 2-50 francs a week;
(6) Contributions paid by the provinces and communes to the
National Emergency Fund. The amounts contributed by
the whole of the provinces and by the whole of the communes are
each equivalent to one-fourth of the State contribution to the
Fund, but neither may exceed 150 million francs a year;
(c) State subsidies, including :
(1) sums granted to primary funds, equal to two-thirds of the
total contributions received from their members ; these
sums are used mainly to cover amounts due by the unemployment funds to the National Emergency Fund in repayment
of 15 per cent, of the amount of the principal benefits and
family allowances paid by that body to their members ;
(2) variable grants to cover the cost of action taken by the
National Emergency Fund in accordance with provisions
laid down in Eoyal Orders.
5.—Benefits.
(a) Insurance covers the risk of involuntary unemployment for
workers physically able to work.
During the benefit period fixed by the rules of the fund persons
working short time have the same right to benefit as persons totally
unemployed, full days and half days of unemployment being added
and one-half of the normal benefit being paid for a half day's
unemployment when the rules of the fund permit. On the other hand,
the daily emergency allowances are granted only at the rate of 6, 5 or
4 allowances for 6, 5 or 4 days' unemployment a week, and 2, 1 or no
allowance for 3, 2 or 1 day's unemployment a week. The first three
days of unemployment in each benefit period do not give rise to the
payment of benefit, irrespective of any waiting period imposed by the
primary funds. Seasonal workers who, during the time they are
1

Section 14 of the Royal Order of 14 J u l y 1933.
I n calculating this subsidy no account is taken of the supplementary contributions for which provision is made in t h e Koyal Orders of 31 May and
14 J u l y 1933.
2

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

normally unemployed, usually obtain employment in non-seasonal
industries may be granted benefit in case of unemployment in such
industries, but they must complete a special waiting period, which
varies with the length of the previous seasonal work.
No benefit of any kind is granted to married women who are
wholly unemployed, workers affected by a lock-out, those whose
unemployment is a direct consequence of a strike to which they have
given their support, those who, having been dismissed from their
previous employment, refuse to accept new employment for which
they are suited, if the conditions offered correspond to those customary
in the district, and wholly unemployed insured persons who have not
registered as applicants for work with a public employment exchange.
(6) The rate of unemployment benefit granted by the primary funds
varies with the fund and the occupational class of the insured person,
but may not exceed the basic daily benefit which would be paid to the
person concerned by the National Emergency Fund if he exhausts his
claim to benefit under the rules.1 The benefit period may not exceed
60 days per calendar vear. The above-mentioned benefits are increased
by:
(1) A supplementary daily allowance, payable by the National
Emergency Fund, to unemployed persons who are heads of
families, unemployed persons who are unmarried, widowed or
divorced and without children, and to married women who are
partially unemployed and are not heads of families. This
allowance amounts to 4.50 francs in Brussels and Antwerp;
4 francs in other industrial and commercial centres with a
population of over 50,000 ; 3 francs in industrial and commercial
centres with a population of under 50,000; 2 francs in
semi-industrial and semi-commercial communes ; and 1 franc
in agricultural communes. In the case of unemployed persons
aged between 16 and 18 the supplementary daily allowance is
fixed at 2 francs in industrial and commercial communes and
1 franc in semi-industrial and semi-commercial communes ;
(2) A family allowance, also payable by the National Emergency
Fund, to unemployed persons who are heads of families and who
are in a " state of want ", the rate of this allowance being 4 francs
a day for the housewife and 3 francs a day for each child under
15 (unless the child is bound by a contract of employment or
apprenticeship), or between 15 and 16 if continuing education
in an approved establishment or physically incapable of work.
In addition to the above-mentioned supplementary daily benefit
and family allowances, unemployed persons who have exhausted their
right to benefits from their fund, and are in a " state of want " are
entitled to receive from the National Emergency Fund for 30 days a
year or, if they belong to an industry in a particularly depressed state,
1
When an approved unemployment fund is unable to meet the obligations
which it has contracted in respect of its members, the National Emergency F u n d
may take over the payment of benefits under the rules.

BELGIUM

for a period which may extend to about 250 working days a year, a
basic daily grant amounting to not more than 9 francs for heads of
families and unmarried, widowed or divorced persons over 25 years of
age and without children ; 7 francs for unmarried, widowed or divorced
unemployed persons under 25 years of age and without children and
for partially unemployed married women who are not heads of families ;
6 francs for unemployed persons between 16 and 18 years of age.
The total amount received in benefit and allowances of all sorts
by the unemployed person both during the benefit period fixed by
the rules of the fund and during the period he is assisted by the
National Emergency Fund may not exceed two-thirds of the average
remuneration paid in the district during the benefit period to workers
belonging to the same occupational class as the unemployed person.
This limit is increased to three-quarters if the unemployed person is
head of a family and has at least three dependent children. In the
case of unemployed persons who are in a " state of want ", but who,
nevertheless, dispose of certain resources, the allowances paid by the
National Emergency Fund are reduced proportionately to the amount
of these resources. Unemployed persons assisted by the Fund may
be required to attend courses of vocational training or, if they are
over 21, to take part in relief work organised by the provinces,
communes or public undertakings. In the latter case the authority
or undertaking concerned must add a supplement of not more than
10 per cent, to the allowance paid to the unemployed persons it employs.
6.—Statistics.
Average number of insured persons...
...
...
... 982,642
Number of days of unemployment for which benefit was
paid
67,629,100
INCOME AND E X P E N D I T U R E F O E 1933

(in francs)
EXPENDITURE

INCOME

Contributions of insured
persons
40,1+7,226
National Emergency F u n d 723,870,935
Provincial and communal
subsidies
189,739,311
Refunds to communes for
benefits paid
25,506,537
State subsidies to primary
funds (66 per cent, of
contributions)
...
26,764,817
Total
7,006,034,826
1

Benefits paid b y primary
funds ...
...
...

—

National Emergency F u n d 723,876,935
Provincial and communal
subsidies

189,739,311

Administrative expenses
Total

642,265
914,258,511

Data not available.

Vm.—Subsidised Benefit Schemes for Staffs of Public
Undertakings
A.—RAILWAYS

(a) Industrial Accidents and Occupational Diseases
1.—Legal Basis.
The provisions of the consolidated Acts of 24 December 1903,
3 August 1926, 15 May 1929, 30 December 1929 and 18 June 1930
a:

G 1297H

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

respectmg the compensation for injuries resulting from industrial
accidents apply to the staff of the Belgian National Railway Company,
as do the provisions of the Act of 24 July 1927 respecting occupational
diseases.
2.—Scope.
All railway workers are entitled to compensation for injuries
resulting from industrial accidents occurring in the course of and
arising out of the carrying out of a contract of employment, or who
suffer from an occupational disease within the meaning of the Act of
24 July 1927.
Apprentices, even if not in receipt of wages, and salaried employees
whose annual remuneration does not exceed 24,000 francs at the time
of the accident, are deemed to be workers for the purposes of accident
compensation. As regards compensation for occupational diseases,
salaried employees are deemed to be workers only if their annual
remuneration does not exceed 18,000 francs and if on account of the
nature of their work they incur the same risks as those run by workers.
3.—Administration.
The Company is its own insurance carrier. The capital representing
the annuities payable in accordance with the law is accumulated with
the General Savings and Pension Fund, which is responsible for the
payment of pensions.
4.—Financial Resources.
The cost of accident compensation and compensation for industrial
diseases under the Acts is borne entirely by the Company.
5.—Benefits.
Accident compensation and compensation for industrial diseases
are paid in accordance with the provisions of the general legislation
respecting the compensation of industrial accidents and industrial
diseases. In addition to the legal compensation, permanent and
probationary railway staff receive supplementary compensation equal
to the difference between their wages or salary and the legal compensation, for a period of 6 to 12 months according to circumstances.
In all cases they are also entitled to free medical attendance,
medicaments, and hospital and other necessary treatment.
6.—Statistics.
INCOME

AND E X P E N D I T U B E

FOR

1933

(in franca)
EXPENDITURE1

INCOME

S u b s i d y of t h o B e l g i a n
National Railway Co....

Total expenditure

...

12,300,000

12,300,000
12,300,000

12,300,000

1
This item only represents the amount of capital constituting accident pensions and pensions
for occupational diseases. The cost of treatment or of wages granted during treatment, as well as
medical, pharmaceutical and other expenses, are included in the expenditure of the social insurance
fund responsible for the payment of sickness benefits.

BELGIUM

(b) Sickness
1.—Legal Basis.
Sickness insurance is regulated by the rules of the social insurance
fund of the Belgian National Railway Company.
2.—Scope.
Sickness insurance covers all members of the permanent and
probationary staff, with the exception of temporary workers and
substitutes.
3.—Administration.
The application of the rules respecting sickness is entrusted to the
social insurance fund of the Company and to its district branches.
The fund and its district branches are managed by joint committees
composed of equal numbers of Company delegates and representatives
of the insured persons appointed by the staff organisations in proportion
to their membership.
4.—Financial Resources.
The resources of the social insurance fund are derived from :
(a) a subsidy granted by the Company, equal to 3 per cent, of
the total salaries and wages bill ;
(b) interest on the capital of the fund ;
(c) proceeds of disciplinary fines, etc.
No contribution is demanded from railwaymen covered by the
scheme. They are, however, required to pay 25 per cent, of the cost
of their treatment, except the cost of authorised treatment in approved
surgeries and hospitals, special treatment, the purchase of artificial
limbs, and in general all expenditure other than that on doctor's fees
and the supply of medicaments.
5.—Benefits.
In case of sickness, permanent and probationary workers are
entitled to :
(a) An allowance equal to 75 per cent, of their usual pay, for a
period of 6 to 12 months ; as occasion arises, the family allowance,
housing allowance, and district bonus are paid in full.
Established officials, salaried employees and workers taken
over from the former State railways continue in case of sickness
to be entitled to the privileges granted to public servants, that
is to say, they receive full pay during 6, 9 or 12 months, according
to the length of their service. Those recruited by the Company
become subject, after the 30 days' full pay provided by the
Act respecting contracts of employment, to the same regulations
as apply to the workers.1
1
From 1 J u n e 1933 onwards the period of full pay was reduced uniformly
to 6 months whatever the length of service, except in t h e case of disabled exservice men, who continue to be entitled to the former periods of 6, 9 or 12 months
according to circumstances.

100

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(b) Medical attendance and medicaments, subject to the payment of
25 per cent, of the cost entailed.
(c) Subject to prior authorisation and free of charge : treatment
in approved hospitals and surgeries and in general all benefits
other than those mentioned under (6) above.
6.—Statistics.
Number òf persons covered on 31 December 1933
Number of pensioners and beneficiaries in 1933
INCOME AND E X P E N D I T U B E FOR

87,393
42,745

1933

(in francs)
INCOME

Subsidy of the Belgian
National Railway Co.
(3 per cent, of total
wages bill)
Subsidy to cover deficit...
Total

EXPENDITUBE

Total expenditure

...

40,800,000

40,400,000
400,000
40,800,000

Total

40,800,000

(c) Invalidity, Old-Age and Widows' and Orphans' Pensions
1.—Legal Basis.
For permanent and probationary staff the right to benefit under
invalidity, old-age, and widows' and orphans' insurance is regulated
by the pension regulations, and for temporary staff by the general
laws respecting the insurance of workers and salaried employees
against old age and premature death.
2.—Scope.
The pension regulations for the staff of the Belgian National
Railway Company apply only to permanent staff and persons on a
similar footing, temporary staff and substitutes (workers or salaried
employees) being covered by the general laws respecting the insurance
of workers and salaried employees.
3.—Administration.
The application of invalidity, old-age and widows' and orphans'
insurance is in the hands of the Company, which in order to deal with
such matters has set up a pension fund administered by the staff
branch and the accountancy branch of the Company.
The balance sheets are drawn up by the Governing Body of the
Company. They are communicated to the staff and are accompanied
by an income and expenditure account audited by the National
Social Insurance Committee.
Invalidity pension claims are dealt with by the regional joint
committees of the social insurance fund, but an appeal against awards
given by these committees may be lodged either with the national
joint committee or with an arbitration board.

BELGIUM

101

4.—Financial Resources.
The cost of old-age and invalidity pensions and of benefit payable
to disabled railwaymen transferred to the provisional pension list
pending the final award of a pension is borne entirely by the pension
fund of the Company.
The cost of widows' pensions is borne by the widows' fund, which
derives its income from :
(a) deductions from the earnings of the married permanent and
probationary staff, amounting to 5 per cent, of salaries or wages
under 20,000 francs a year and 6 per cent, of salaries or wages of
20,000 francs or over;
(6) interest on invested capital and other resources.
The old-age and survivors' pensions for temporary staff and substitutes are paid in accordance with the general insurance schemes by the
General Savings and Pension Fund guaranteed by the State or the
insurance institutions recognised by the State, their cost being
covered by contributions payable by the insured persons and their
employers and by State subsidies.
5.—Benefits.
(a) Invalidity pensums.
As soon as they have exhausted their rights under sickness
insurance, disabled members are transferred to the provisional pension
list and receive benefit equivalent to 75 per cent, of their previous
earnings. (As occasion arises the family allowance, housing allowance
and district bonus are paid in full.) They remain on the provisional
pension list as long as there is a hope of cure, provided that their
absence from work does not exceed 3 years, including all previous
periods of absence on account of sickness or injury.
Permanent and probationary staff certified as definitely unable to
perform their work are entitled to an invalidity pension after at least
5 years' service. When a railwayman is granted an invalidity pension,
it is equal to - ^ (or T'8- as the case may be) of his latest salary or wages
while still at work for each year of service.
(b) Old-age pensions.
Every railwayman may claim a retiring pension if he has completed
30 years' actual service, provided he has attained the age of 55 if he
belongs to the train staff and 60 years in other cases.
At 65 years of age all railwaymen are obliged to leave the service
of the Company, and they then receive a pension if they have completed
at least 5 years' actual service.
This amounts to -X of their last salary or wage, multiplied by the
number of years of service. Each year of service as a member of the
train staff, however, is calculated at -4^ of the same salary or wage.
Family allowances continue to be paid to pensioners in respect of
children under 21 years of age, under the same conditions as during
the period of actual employment with the Company. They are also

102

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

paid to pensioners in respect of children over 21 years who are unable
to support themselves owing to serious mental or physical infirmity.
(c) Widows' pensions.
The right to a widow's pension is acquired after 5 years' service
and one year of married life. The right to a pension is not affected by
a judicial separation.
The basic widow's pension amounts to 20 per cent, of the last
salary or wage received by her deceased husband. It is increased by
1 per cent, for every year of service in excess of 10, up to a maximum
of 60 per cent, of the last salary or wage.
Family allowances are granted under the same conditions as those
specified in connection with old-age pensions.
A widow who does not fulfil the conditions for the grant of a
pension is entitled to the repayment of the deductions made from her
husband's pay plus 4 per cent, compound interest.
(d) Orphans' pensions.
Legitimate and legitimised children who have lost both parents
are entitled to a temporary pension until they reach the age of 21,
provided that the deceased fulfilled the conditions concerning length
of service and married life. Recognised illegitimate children are
placed on the same footing.
An orphan's pension is equal to 40 per cent, of the pension which
the widow would have obtained had she lived. I t is increased by 20
per cent, for each child under 21 years, up to a maximum of 100 per
cent.
In addition, family allowances continue to be paid in respect of
children under 21 years of age under the same conditions as during
the period of service of the deceased.
The temporary pension continues to be paid to orphans after they
have attained the age of 21 years if they are unable to support themselves owing to serious mental or physical infirmity.
6.—Statistics.
1.

StaS a t the end of 1933 : 85,098.

2. Number of pensioners on 31 Decembor 1933 :
Old-age and invalidity pensioners ...
...
Widows
Children having lost both parents ...
...
3.

...

INCOME AND E X P E N D I T U R E FOR

26,593
15,761
391

1933

(in francs)
Invalidity
INCOME

Subsidy of the Belgian
National Railway Company

Insurance
EXPENDITURE

Total expenditure

...

99,000,000

99,000,000
99,000,000

99,000,000

103

BELGIUM
Old-Age

Insurance

INCOME

E X P E N D ITUBE

Subsidy of t h e Belgian
National Railway Com.. 180,300,000
pany

Total expenditure

... 180,300,000

180,300,000

180,300,000
Widows' and Orphans'' Insurance
Widows' Pensions
INCOME

Contributions of insured
persons ...
Contributions of employer
(subsidy of t h e Belgian
National Railway Company)
Income from capital and
miscellaneous ...

EXPENDITURE

Total expenditure

...

96,300,00o 1

05,000,000

14,700,000
200,000
80,500,000 8

90,300,000

Orphans' Pensions
EXPENDITURE

INCOME

Subsidy of the Belgian
National Railway Company
Other income (transfers
from funds, etc.)

Total expenditure
190,000
850,000
1,040,000a

1
1

1,900,000

The administrative expenses are borne entirely by the Belgian National Railway Company
Methods of covering the deficit are under consideration.
B.—-TELEGRAPH

AND T E L E P H O N E D E P A R T M E N T

(a) Industrial Accidents
1.—Legal Basis.
(a) First Division Staff (officials and salaried employees).
There is no legislation concerning accident compensation for
members of the First Division staff when on duty, but the matter is
dealt with by administrative regulations.
(b) Second Division Staff (workers and supervisory staff).
Accident insurance is regulated by the Acts of 24 December 1903,
3 August 1926, 15 May 1929, 30 December 1929, and 18 June 1930.
2.—Scope.
The right to compensation is enjoyed by all workers and supervisory
staff, with the exception of telegraph messengers.
3.—Administration.
The telegraph and telephone department is its own insurance
carrier.

104

INTERNATIONAL SURVEY O ï SOCIAL SERVICES, 1 9 3 3

4.—Financial Resources.
The cost of accident compensation is borne entirely by the
department.
5.—Benefits.
(a) First Division Staff.
An accident is deemed to be attributable to service and to result
in liability for the department only (1) if it occurs during the carrying
out of a contract of employment, that is to say, if the person concerned
is on duty at the time of the accident, and (2) if it occurs as a result
of the carrying out of duties or any circumstances connected with
the service.
As a rule the official must prove that the accident occurred during
the carrying out of his contract of employment.
In addition to the refund of medical and pharmaceutical expenses
the official is entitled to his usual remuneration (salary, housing and
family allowances, increments, bonuses, etc.) :
(1) during the regulation period of sick leave (three to six months
according to length of service) ;
(2) during the period on the provisional pension list (two years).
On the expiry of the period on the provisional pension list, benefits
are fixed as follows :
If the official suffers from a curable ailment, he is kept on the provisional pension list with provisional remuneration equal to the pension
to which he might be entitled. If, on the other hand, he is certified as
incurable, he is granted a permanent pension irrespective of age and
length of service. If it is shown that the claim to a pension is the
direct result of injuries received or an accident incurred during the
carrying out of his duties, the pension is equal to one-fourth of the
beneficiary's last remuneration, increased by 5V> f° r each year of
service beyond five; further, if the beneficiary dies, his widow and
orphaned children, if any, become entitled to the pension irrespective
of his length of service or the number of years he had been married.
(b) Second Division Staff (workers and supervisory staff).
Compensation for injuries resulting from accident incurred by a
member of the Second Division staff in the course of and as a result of
the carrying out of a contract of employment is payable under the
same conditions as those applicable to employed persons generally.
Nevertheless, in practice, the department continues to pay the
injured person his full wages during two years in cases of incapacity,
whether permanent or temporary.
The basic wage taken for the computation of compensation is the
actual remuneration paid to the person concerned in virtue of the
regulations during the year preceding the accident.

105

BELGIUM

(b) Occupational Diseases
1.—Legal Basis.
Only a very small number of specialised workers come under the
Act of 24 July 1927 respecting compensation for occupational diseases
incurred by workers in private or public undertakings such as poisoning
by lead, its alloys and compounds (painters, plumbers, electric welders,
and workers employed on the maintenance of accumulators).
2.—Scope.
Specialised employees suffering from an occupational disease or
complaint are entitled to compensation.
3.—Administration.
The competent institution is the welfare fund attached to the
Ministry of Labour and Social Welfare.
4.—Financial Resources.
The department bears the entire cost of compensation granted to
members of the staff suffering from an occupational disease, for which
purpose it contributes to the above welfare fund an annual sum, fixed
according to the number of workers covered.
5.—Benefits.
The scheme covers the injuries due to diseases of occupational
origin. The benefits are the same as those provided under the general
scheme of compensation for occupational diseases.1
6.—Statistics.
WOEKEES AND SuPEEVISOBY STAFF IN 1933
Strength in 1U33

Xumber oí fativi
accidents

Number of accidents
entailing permanent
incapacity

Xumbcr of employees
affected by
occupational diseases

5,750*

* Telegraph messengers not included.

(c) Sickness
1.—Legal Basis.
The rights of the staff to sickness benefit are defined by the service
regulations.
2.—Scope.
All members of the staff of the department (officials, salaried
employees, supervisory staff and workers) are entitled to sickness
benefit.
1
Employees affected by sickness or an occupational disease continue, through
the goodwill of the department, to be entitled to their full remuneration during
two years of absence, whether or n o t tho disease is covered by the Act of 24 J u l y
1927.

106

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

3.—Administration.
The department is the competent insurance institution for a part of
the staff, while the workers' fund covers the rest.
4.—Financial Resources.
The department bears the entire cost of sick leave granted to
officials, salaried employees and supervisory staff. For the workers
there is a special workers' fund, which derives its income partly from
subsidies from the department, and partly from a contribution equal to
4 per cent, of the insured person's wages, which is deducted in advance.
This fund covers the risks of invahdity, old age and death in addition
to that of sickness.
5.—Benefits.
Sick leave for officials, salaried employees and supervisory staff
includes leave on full pay for a period varying from three to six months
with length of service, and transfer to the provisional pension fist.
For the workers, sickness benefit varies with length of service.
In addition to cash benefit, sick workers are entitled to free medical
and hospital treatment and the necessary medicaments.
6.—Statistics.
Annual avera^o
number of
employees

Total number
of days' sick
leave

Annual average
per employee
(days)

(a) Officials, salaried
employees and supervisory
staff:
All employees
Male employees
Female employees

6,139
3,922
2,217

92,997
45,109
47,888

15
11-5
21-5

( b ) Workers
messengers

6,907

45,623

and

telegraph
7-00

(d) Invalidity, Old-Age and Widows' and Orphans' Pensions
1.—Legal Basis.
Pensions to the staff of the telegraph and telephone department
and their dependants are payable, according to grade, length of service,
and risks covered, under the following schemes :
(a) Scheme for officials, salaried employees and supervisory staff :
The Act of 21 July 1844 and subsequent Acts respecting civil and
ecclesiastical pensions.
(b) Scheme for widows and orphans of employees who died after at least
five years' service, paid by the Treasury, subject to deductions, and
whose married life lasted at least one year :
Special institution (widows' and orphans' fund).

107

BELGIUM

(d) Scheme for staff not on the establishment (assistants, temporary
employees) :
The Act of 18 June 1930 respecting salaried employees' old-age and
widows' and orphans' insurance.
2.—Scope.
Taken as a whole, the various pension schemes for the staff of the
telegraph and telephone department apply to officials, salaried
employees, supervisory staff and workers, and to staff not on the
establishment (assistants, temporary employees).
3.—Administration.
(a) For officials, salaried employees and supervisory staff, the
competent institutions are the department and the widows' and
orphans' fund.
(b) For workers, the competent institution is the workers' fund.
(c) For assistants and temporary employees, the competent institutions are :
(1) The Salaried Employees' National Pension Fund ;
(2) The General Savings and Pension Fund ;
(3) The insurance institutions and companies specially recognised
for the purpose by the Ministry of Industry, Labour and
Social Welfare.
4.—Financial Resources.
Under the pension scheme for officials, salaried employees and
supervisory staff, the expenses are borne entirely by the department.
Under the scheme for widows and orphans of employees with at
least five years' service paid by the Treasury subject to deductions,
the expenses are borne partly by the department and partly by the
persons concerned, who pay a contribution to the fund in the shape
of a uniform deduction of 6 per cent, from their salary.
Under the scheme for workers with at least 10 years' service
(workers' fund), the expenses are divided between the department
and the workers, who pay a uniform contribution of 4 per cent, of
their wages.
Under the scheme for staff not on the establishment (Act of 18
June 1930), the expenses are divided between the insured persons
(4 per cent, of wages) and the department (3 per cent, of wages).
In addition, the department pays an annual contribution of 120
francs for each insured person to the Salaried Employees' Grants
Fund, an official institution.
»

Insured persons born before 1 January 1895 also pay to the Grants
Fund an annual contribution, which varies with their age.

108

IXTEBNATIONAL SURVEY OF SOCIAL SERVICES, 1933

5.—Benefits.
(a) Scheme for 'officials, salaried employees and supervisory staff.
Old age and invalidity :
A pension may be granted t o :
(1) Employees of 65 years of age with 30 years' service;
(2) Employees certified as unable to continue their duties as a
result of infirmity, irrespective of age, provided they have 10
years' service to their credit. This limit is reduced to 5 years
if the infirmity is a result of the performance of duty. In all
these cases, the pension is equal for each year of service paid
by the Treasury, to fa of the average salary received by the
insured persons during their last 5 years of activity, but may
not exceed three-quarters of the basic salary.
If a pension is granted on account of injuries received or an
accident incurred during the performance of duty, it is payable
in the same conditions as those laid down in respect of
industrial accidents. (See above VIIIB (a).)
Death :
The right to a pension is restricted to widows and orphans of
employees who die after at least five years' service paid by the Treasury
subject to deductions.
The widows' pension is payable only if the marriage has lasted
at least one year, and is equal to 20 per cent, of the average salary
received by the deceased husband during his last five years of service.
I t is increased by 1 per cent, for each year of insurance beyond 10.
It is further increased by 2 per cent, for each child under 18 years.
The orphans' pension for a single orphan is equivalent to 60 per
cent, of the pension to which the mother would have been entitled,
while for two and three orphans it is equal to 80 and 100 per cent.
respectively. For each orphan after the third it is increased by 2
per cent.
Orphans who are invalids continue to be entitled to a pension
after 18 years.
The dependants of an employee who dies as a result of injuries
received or an accident incurred during the performance or as a result
of the performance of duty, are entitled to a pension irrespective of
the length of service or the length of the married life of the deceased
person. In this case the pension is regulated according to the salary
last received by the deceased.
No widows' or orphans' pension may exceed one-half of the last
salary from which deductions were made. The widows' pension may
not exceed the pension received by her husband at the time of his
death.

BELGIUM

109

(b) Scheme for workers with at least 10 years' service.
Old age and invalidity :
A pension may be granted to :
(1) Workers on the permanent establishment with at least 10
years' valid service :
(a) who are recognised as unable to continue their work
owing to disablement;
(6) who have reached the age of 66 years ;
(c) who, having reached the age of 65 years, are retired on
the ground of ill-health or at their own request.
(2) Workers recognised as permanently incapacitated for work
of all kinds as a result of an industrial accident whatever their
length of service ;
(3) Workers placed on half-pay after ten years' valid service,
when they have been on half-pay for three years, or upon
reaching the age of 65 years.
In the cases mentioned under (1) and (3) above, life pensions to
workers are at the rate of 20 per cent, of the fixed average wage
received by the worker during the past three years, increased by 1 |
per cent, for each year's service in excess of 10, subject to a maximum
of 75 per cent, of the wage.
If the disablement on account of which the pension is awarded is
certified to be the result of an accident incurred in the course of service
(see (2) above) the minimum rate of the pension is 50 per cent, of the
wage received by the worker immediately before retirement.
The pension is increased by 3 per cent, of the wage for each year's
service in excess of 5 and up to 10 and by 1 per cent, for each year's
service in excess of 10, subject to the maximum of 75 per cent, which
may in no case be exceeded.
Death :
A widow is not entitled to a life pension from the workers' insurance
fund unless :
(1) the deceased had contributed to the fund for at least 10 years;
(2) the marriage had lasted at least one year.
A widow who is not entitled to a life pension may be granted a
temporary pension if the deceased had contributed to the fund for
the past three years.
The life pension payable to a widow is at the rate of 20 per cent.
of the average wage for the past three years if the deceased had contributed for 15 years or less, and is increased by 1 per cent, for each
contribution year in excess of 15.
The pension is increased by 2 per cent, of the wage for each legitimate or legitimised child under 16 years of age whether born of a
first or subsequent marriage.
The father and mother of the deceased and any child of 16 years of
age or over who is disabled are counted as children for the purpose of
calculating the pension if they were entirely dependent on the deceased.

110

INTERNATIONAL SURVEY OE SOCIA1 SERVICES, 1 9 3 3

The maximum widow's pension is 24,000 francs and the minimum
2,160 francs.
The temporary pension payable to the widow of a worker who
had contributed to the workers' fund for less than 10 and more than
3 years is at the rate of 15 per cent, of the wage last received by the
deceased, plus 1 per cent, for each child under 16 years of age and
subject to a maximum of 20 per cent, of the wage.
The following benefits are also granted :
One annuity for a contribution period of 5 years to 5 years and
6 months ;
Two annuities for a contribution period of 5 years and 6 months
to 6 years and 6 months ;
Three annuities for a contribution period of 6 years and 6 months
to 8 years and 6 months ;
Four annuities for a contribution period of 8 years and 6 months
to 10 years.
(c) Scheme for assistants and temporary employees.
See above under " Salaried Employees' Old-Age and Widows' and
Orphans' Insurance," p. 79.
3.—Statistics îor 1933.
1. Average annual number of insured persons :
Officials, salaried employees, supervisory staff
5,486
Workers and telegraph messengers ...
...
6,907
Assistants acting as temporary assistants and
employees
1,025
2. Number of beneficiaries :
Officials, salaried employees and supervisory
staff
680
Workers and telegraph messengers
369
{a) Pensions paid by Widows' and Orphans' Fund :
Number of members
5,289
Number of beneficiaries
...
...
...
471
Contributions of insured persons
...
... 6,259,596• 60 frs.
(6) Pensions paid by Workers' Fund :
Number of workers
...
...
...
...
6,907
Number of beneficiaries
...
...
...
312
Contributions of insured persons
2,583,084
frs.
(e) Belief
1.—Legal Basis.
The allocation of relief is regulated by the Royal Order of 31 May
1928 respecting the expenses of fatal illness and funeral expenses ; the
Royal Order of 16 December 1927 as completed by the Royal Orders
of 22 July 1929, 31 May 1933 and 15 July 1933 respecting family
allowances, and the Act of 4 August 1930 for the general extension of
family allowances, and also the administrative regulations concerning
the granting of free relief.

111

BELGIUM

2.—Scope.
The provisions respecting relief are applied to the whole staff;
nevertheless, the rehef provided in case of sickness, misfortune or
adversity is in principle granted only to employees of the department on
the permanent and active establishment who have not received such
allowances for at least one year and whose annual remuneration is less
than 25,000 francs plus 1,500 francs for each dependent child.
3.—Administration.
The competent body is the telegraph and telephone department
which includes in its estimates the sums necessary to cover all liabilities
arising out of its staff regulations.
4.—Financial Resources.
The cost of rehef (expenses of fatal illness and funeral benefit,
maternity allowances, family allowances, etc.) is borne entirely by the
department.
5.—Benefits.
In the case of death of a member of the permanent establishment
employed in a permanent or probationary capacity, his wife or direct
heirs are entitled to an allowance towards the expenses of the last illness
and funeral benefit equal to one month's wages or salary at the rate last
earned, plus the family, housing and local allowances last received by
the deceased.
The allowance for workers is equal to one month's wages, a month
being reckoned as 25 working days in the case of workers paid by the
hour or day.
If the deceased was on the provisional pension list at the date of
death, the allowance is calculated on the basis of the provisional wage
or salary received. All sums granted as relief during the three months
preceding death and the cost of medical attendance, medicaments and
hospital treatment given to the deceased during the three months
preceding death are deducted from the allowance made to his survivors.
The department also includes in its estimates provision for the
payment to its staff in general of maternity and family allowances and
of housing or local allowances in some large towns.
6.—Statistics.
E X P E N D I T U R E FOE

1933

Miscellaneous Relief to Servants of the Department
Expenses of fatal illness and funeral expenses ...
Maternity Allowances
Family Allowances...
Housing and Local Allowances ...
liei iof Proper
Total
...

Francs.
64,397
154,854
3,787,732
5,045,539
43,845
9,096,367

112

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

THIRD PART
SOCIAL

ASSISTANCE

I.—Assistance for the Indigent (including free medical attendance,
treatment at home and in curative institutions)
1.—Legal Basis.
Assistance to the indigent, except in special cases and where special
charitable institutions are concerned, is provided by the communal
authorities.
Assistance is organised under the basic Public Assistance Act of
10 March 1925 which provides for the setting up by the communal
council in each commune of a public assistance committee.
2.—Beneficiaries.
All indigent persons, i.e., those unable to support themselves,
irrespective of nationality, may receive relief from the local pubhc
assistance committee.
3.—Administration.
The public assistance committees are constituted as follows :
5 members in communes with a population of 5,000 or less:
6 members in communes with a population of 5,000 to 15,000 ;
8 members in communes with a population of 15,001 to 50,000 ;
10 members in communes with a population of 50,001 to 150,000 ;
12 members in communes with a population of over 150,000.
The members and deputy members of the public assistance
committees are appointed directly by the communal council for a
term of six years in accordance with the provisions of the Public
Assistance Act.
Two or more adjacent communes in the same province may form
an inter-communal union for the provision of pubhc assistance and may
set up an inter-communal committee for this purpose.
Wherever necessary, the public assistance committee must set up
special assistance committees to which it delegates the duty of visiting
the indigent and distributing relief.
A Higher Assistance Council is attached to the Ministry of Justice
and the Crown may if necessary set up an investigation office in any
commune or inter-communal union after hearing the public assistance
committees, the communal councils and the permanent delegations.
4.—Benefits.
(a) Cash relief and treatment in hospital.
The functions of the public assistance committees are to provide
relief for the indigent and to organise hospital treatment. They also
decide as to the granting of relief and the admission of indigent persons
to institutions and their discharge.

BELGIUM

113

The committees are further responsible for taking preventive
measures against destitution in cases specified by the Act and after
hearing the opinion of the Higher Assistance Council.
Relief is provided in the form and measure most likely to restore
the beneficiary to a position in which he can again support himself
and his dependants.
In the case of persons able to work, relief is given preferably in
the form of wages for work done.
The aged and disabled who cannot be provided with out-door
relief are placed, with their consent, in suitable public or private
institutions or in the care of private persons.
Any person who considers himself unfairly treated may lodge a
protest with a conciliation committee against the decisions taken.
The cost of relief to persons under 70 years of age is borne by the
commune in which the person concerned happens to be when recognised as indigent.
The cost of assistance to the aged over 70 years of age and to
children under 16 years of age who have lost both parents or are
fatherless, and to illegitimate children not recognised by the father,
is refunded to the commune which provided such relief if the beneficiary is domiciled for relief purposes in another commune or has no
domicile in Belgium. In the former case the commune of domicile is
liable for repayment, and in the latter the State.
The cost of the maintenance and treatment of indigent persons
admitted to hospital and of assistance to their family while they are in
hospital is also repayable by the commune of domicile or by the
State.
Only the cost of the relief granted during a beneficiary's stay in
hospital to his dependants living with him is repayable as assistance
to his family.
The domicile of indigent persons for the purposes of relief is
determined in accordance with the provisions of the Public Assistance
Act of 27 November 1891 (Domicile for Relief Purposes).
The cost of medical treatment for prostitutes suffering from venereal
diseases is borne by the commune in which they ply their trade.
In the case of a worker, apprentice or domestic servant admitted
to hospital in consequence of an accident incurred during work, the
cost of treatment is recoverable in accordance with the provisions of
the special legislation concerning industrial accidents.
(b) Free medical attendance.
In accordance with the provisions of the Public Assistance Act of
10 March 1925, the assistance committees are required to make provision
for medical attendance and medicaments for indigent persons, allowing
the beneficiary free choice of doctor and the supply of medicaments,
spectacles, bandages, orthopaedic appliances and artificial limbs.
The committees may set up out-patients' consulting centres
attached to the hospitals, or may make contracts with polyclinics or
pharmacies, but may not oblige the beneficiaries to have recourse to
these institutions instead of to a doctor or pharmacist of their own
choice.
x

G 12973

114

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

So far, however, not many public assistance committees have
complied with these provisions of the Act. In most communes,
owing to the large number of doctors recognised by the assistance committees, and particularly in communes with out-patients' consulting
centres attached to the hospitals, indigent persons are in effect
guaranteed a free choice of doctor.
5.—Financial Resources.
All expenditure on public assistance (out-door relief, hospital
treatment and medical and pharmaceutical service) is borne by the
public assistance committees. Some of this expenditure is recoverable
in accordance with the provisions of the Act of 27 November 1891
mentioned above.
The funds of the public assistance committees are derived from the
following sources :
(a) income from capital and endowments;
(6) gifts and bequests for the poor ;
(c) subsidies from the communes, where necessary.
Under the provisions of legislation, any deficit in the funds of the
bodies responsible for relief must be made up by the communes.
There is also a special public assistance fund in each province
administered by the permanent delegation. This board may grant
subsidies out of the fund to relief committees unable to meet their
expenditure, if the charges on the communes which would otherwise
have to make up the deficit are recognised as excessive.
LT.—Assistance for the Mentally Diseased
1.—Legal Basis.
The welfare of persons suffering from mental diseases and the
protection of those with whom they associate and of the community
against acts of insanity, are ensured by the Act of 18 June 1850
respecting provision for the mentally diseased as amended by the
Act of 28 December 1873.
The organisation of mental asylums is governed by a number of
Royal Decrees and by the basic Order of 16 December 1902.
The protection of the community against acts of insanity is secured
by the Social Defence Act of 9 April 1930.
2.—Beneficiaries.
Dangerous lunatics are confined in an asylum by order of the
communal council of their place of residence in accordance with
section 95 of the Communes Act. In the case of insane persons
voluntarily placed in an asylum by their family, the application for
admission, accompanied by a detailed medical certificate, must be
approved by the mayor of the place of residence.
Any person charged with a legal offence who appears to be insane,
mentally weak or seriously unbalanced, may be placed under observation in the psychiatrical department of a prison in accordance with the
Social Defence Act of 9 April 1930.

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115

Delinquents certified as insane are placed in special Government
institutions, the period of detention being 5, 10 or 15 years according
to the sentence.
It is not compulsory for all mentally diseased persons to be placed
in a public or private institution. Non-dangerous cases may be
confined at home, but only under the guardianship of a person who has
some family relationship to the patient or is legally authorised to act
as his guardian. The confinement of a mentally diseased person at
home takes place upon a reasoned decision issued by the Justice of
the Peace of the canton, which must be notified to the Governor of the
province.
3.—Administration.
Institutions for the mentally diseased are of three kinds :
(a) mental asylums proper, or closed asylums ;
(¿>) settlements for the mentally diseased ;
(c) temporary and transitional asylums.
To open a mental asylum a personal authorisation granted by
Royal Order is necessary, application being made to the Ministry of
Justice.
Apart from mental asylums proper, there are also dispensaries
axiministered by the Belgian League for Mental Health, which give
advice to families with a view to the prevention and cure of mental
disorders.
Accused or convicted prisoners found to be insane are placed in an
asylum on the recommendation of a board attached to the psychiatrical
department of the prison. This board is also responsible for selecting
the institution in which the patient is to be placed and deciding as
to his discharge on trial or permanently.
The board consists of an active or honorary magistrate appointed
by the first president of the Court of Appeal, a member of the Bar
chosen by the Minister of Justice from a double panel submitted by
the Attorney-Gene ral and the leader of the Bar, and a medical officer
of the psychiatrical department appointed by the Minister of Justice.
The proceedings of the board are held in camera. The social
welfare committees and the social rehabilitation boards may b$
represented by one of their members, acting in an advisory capacity
only. These organisations are responsible, as occasion arises, for
taking all the measures necessary for the discharge of the patient and
report regularly to the board to this effect.
4.—Financial Resources.
The cost of assistance to indigent persons suffering from mental
diseases is borne as to one-half by a Common Fund, as to one-eighth by
the province, and as to the remaining three-eighths by the State.
The cost of assistance to mentally diseased persons confined in their
own homes, whose families are indigent, is distributed in the same way
except that the contribution from the Common Fund is limited to a
daily maximum of 5 francs.
H2

116

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

Application for aid from the Fund must be made by the commune
in which the indigent person is domiciled for purposes of assistance.
In the case of persons with no domicile in Belgium the whole cost is
borne by the State.
The Common Fund mentioned above is formed in each province
by a levy on the share of the Communes Fund due to each municipality.
The latter fund is financed by a subsidy out of the general moneys of
•the Treasury plus the share of the yield of Government taxes earmarked
for the communes. The Common Fund is administered by the permanent delegation of the Provincial Council, which determines the
sum for which each commune in the province is liable year by year,
this sum being deducted in advance from the amounts due to the
municipality from the Communes Fund.
5.—Statistics.
EXPENDITURE
OF PUBLIC
AUTHORITIES
(COMMON F U N D ,
PROVINCES AND
STATES) FOR THE MAINTENANCE OF INDIGENT MENTALLY DISEASED PERSONS

I N 1934.1
(in francs).

—

Common Fund

Provinces

State

Total

Persons confined in asylums 32,878,407
Persons confined in their
1,720,240
own homes

8,219,602

24,658,805

65,756,814

430,060

1,290,180

3,440,480

34,598,647

8,649,662

25,948,985

69,197,294

1
These statistics relate only to mentally diseased persons having a domicile for purposes of
assistance in Belgium. The figures should be completed by the cost of maintaining mentally
diseased persons without such domicile, which is borne entirely by the State. This expenditure,
which is relatively small, is included in the total expenditure of t h e State for the maintenance of
indigent persons in hospitals.

in.—Assistance for the Blind, the Deaf and Dumb, Mentally Deficient
Children and the Crippled and Infirm
1.—Legal Basis.
Under the Act of 14 June 1920 the benefits of the Common Fund
set up by the Act of 27 November 1891 on behalf of the mentally
diseased, the deaf and dumb and the blind, were extended to mentally
deficient children and to the crippled and infirm admitted to special
institutions for instruction.
The Act of 1 December 1928 made provision for a special fund for
crippled, disabled, congenitally infirm, blind and deaf and dumb
persons cared for in their own homes.
2.—Beneficiaries.
The following persons are covered by the Act of 14 June 1920 :—
the blind, deaf and dumb, mentally deficient children, the crippled and
infirm, placed in special institutions by the competent authorities
with a view to their training and education.
The following persons are covered by the Act of 1 December 1928 :—
crippled, disabled, congenitally infirm, blind and deaf and dumb

BELGIUM

117

persons whose incapacity for work is estimated at not less than
40 per cent., who are between the ages of 14 and 40 years and are
indigent.
3.—Administration, Benefits and Financial Resources.
(a) Act of 14 June 1920.—The body responsible for the placing of
children in special institutions, as for securing admission to any other
institution in pursuance of the Public Assistance Act, is the local
authority.
Although the commune makes the application for admission,
however, the provincial board appointed by the permanent delegation
is responsible for selecting the most suitable institution for the person
concerned, who must first undergo an examination in a medicopedagogic clinic.
Applications for admission to an institution must be accompanied
by a detailed medical certificate. So far as possible the responsible
authority must respect the free choice of institution allowed to the
father in accordance with the law, which stipulates that the grant of
relief to the indigent may not be made conditional on the placing of
their children in specific institutions. For the same reason provision
is made for appeal against the decision of the permanent delegation
alike by the commune responsible for placing the child in the institution,
by the commune of domicile for purposes of relief, and by the individuals concerned.
The parents may at any time remove a child from the special
institution or apply for its transfer to another institution suitable to
its condition.
(b) Act of 1 December 1928.—This provides for the award of
allowances to cripples, the disabled, the congenitally infirm, the blind
and the deaf and dumb who are indigent and fulfil the conditions
specified by the Act.
The cost of these allowances is borne by the State. An office
responsible to the Government administers the special fund set up for
the purpose and distributes the allowances to the beneficiaries. The
amount of the allowance varies according to the degree of invahdity
and the means of the beneficiary, and is subject to a maximum of
2,250 francs.
During 1934 the fund spent a total sum of 31,504,819 francs on
the relief of the crippled and disabled.

IV.—Other Assistance Institutions
The work of the services the regulation of which is described above is
supplemented by that of certain welfare organisations which co-ordinate
private activities and complete the legal measures of assistance.
1.—Belgian National Institution for Protection against Tuberculosis.
This institution comprises the following three sections :
(a) The Belgian National Anti-Tuberculosis Association, the main
function of which is to organise and administer curative institutions
(sanatoria), isolation institutions (hospital-sanatoria), and institutions

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

for vocational rehabilitation (settlements attached to certain establishments) and to grant official subsidies to all curative establishments
approved by the Institution. Its work also includes the protection
of children directly threatened with tuberculosis by founding and
administering seaside preventive homes.
(b) The Belgian National Anti-Tuberculosis League, which is
primarily responsible for organising general prophylactic measures,
including the setting-up and administration of dispensaries, the
protection of children by vaccination with the Calmette-Guerin bacillus,
the founding and managing of preventive homes and the establishment
of fresh-air settlements. The League also organises the grant of
assistance of all kinds to tuberculous patients and their families who
are kept under preventive supervision by visiting nurses.
(c) The Child Protection Institution, which confines its activities
to removing healthy infants from infected homes and placing them
either in its own special settlements or in country families of good
physical and moral health. I t also organises vaccination with the
Calmette-Guerin bacillus in close conjunction with the section for
general prophylactic measures.
2.—National Institution for the Orphans of Victims of Industrial Accidents.
This Institution has set up in every commune in which there
are orphans of victims of industrial accidents a local committee which
places its services at the disposal of any families needing advice or
assistance. Some localities have united to form a regional committee.
The Institution does not intervene except where the family is
indigent. Each orphan assisted may be allowed the following
benefits :
(a) a monthly allowance distributed by the district visitor and
used for the orphan's general needs ;
(b) any grant necessary to enable the orphan to be trained for a
trade.
Generally speaking, the amount of the relief granted depends on the
means of the family.
3.—Institution for Orphans' Homes.
This institution, founded during the war, organises groups of
25-30 orphans in establishments known as orphans' homes.
Each home is managed by a male or female teacher who takes the
place of the absent or deceased parent of the child.
Children are admitted to the homes irrespective of religion or
opinion and their legal guardian is entitled to decide whether or not
they shall be brought up in a religious faith.
The children attend State schools and their abilities, aptitudes and
individual tendencies are specially studied with a view to their
vocational guidance.
4 . - Orphanages.
There are a number of private orphanages in the country administered either by individuals or by charitable organisations, principally
by religious communities forming non-commercial associations.

119

BELGIUM

5.—National Child Welfare Institution.
The National Child Welfare Institution is a self-governing public
body set up under Government supervision and endowed with legal
personality (Act of 5 September 1919). The aims of the institution are
as follows :
(1) to take any measures it considers expedient in the interests of
child welfare ;
(2) to give its opinion on questions relating to child welfare.
In every commune there is a local committee to supervise the
institution's activities.
The following institutions are inspected and subsidised : maternity
homes, maternity soup kitchens, infant welfare clinics and milk centres,
pre-natal clinics, day nurseries and settlements for delicate children.
The institution itself administers 7 settlements and 4 approved
settlements, 2 medico-pedagogic institutes and an establishment for
children suffering from closed tuberculosis.
The pre-natal maternity clinics keep expectant mothers under the
supervision of the medical officer of the institution from the fifth month
of pregnancy.
The purpose of the milk centres is to supply infants not nursed by
their mothers or reared on a mixed diet with milk and farinaceous food
rations as prescribed by the doctor of the clinic.
Day nurseries may be granted subsidies by the institution subject
to their compliance with the provisions governing the operation of
institutions for child nourishment.
The relief service of the institution assists over 8,000 families yearly.
Only families whose means do not exceed the following rates are
eligible for the benefits of the milk centres, day nurseries, allowances to
expectant mothers, and soup kitchens for delicate children.
For first member of household
Supplement for wife ...
Supplement for first child
Supplement for second child
Supplement for third child ...
Supplement for fourth child...
Supplement for fifth child ...
Supplement for sixth child ...

50
50
70
90
110
130
150

Francs
1,100
1,150
1,200
1,270
1,360
1,470
1,600
1,750

The National Institution also exercises supervision over children
boarded with private families, lends out incubators, and organises
child welfare work among negro children in the Congo. The Institution
has a central purchasing organisation with a turnover of over
10,000,000 francs, which furnishes the various associations with the
necessary supplies at moderate prices.
V.—Shipowners' Liability for Sick or Injured Seamen
1.—Legal Basis.
The shipowner's liability is regulated by the Act of 5 June 1928
respecting the regulations for seamen's agreements.

120

INTERNATIONAL STTBVEY OE SOCIAL SEEVICES, 1 9 3 3

2.—Scope.
The legislation regulating the shipowner's liability towards seamen
and their dependants covers all persons engaged for employment on
board a Belgian commercial or fishing vessel, irrespective of their
nationality.
3.—Administration.
Except as regards disputes between shipowners and masters of
commercial vessels and between fishing-boat owners and fishermen,
all claims respecting maritime work are settled by conciliation or,
failing conciliation, by judicial award in accordance with the rules
of competence and procedure laid down under Chapter I I I of the Act
of 5 June 1928 respecting the regulations for seamen's agreements
(joint conciliation boards for seamen).
4.—Financial Resources.
The cost of the measures required under the Act is borne entirely
by the shipowners.
5.—Benefits.
The shipowner's liability towards seamen covers the risks of sickness, injury and death, and entails the obligation to provide for
medical attendance, repatriation, the payment of wages and the
cost of burial.
(a) Medical attendance.
The shipowner must provide sick or injured seamen with medical
attendance and maintenance throughout the currency of their agreement, that is to say, until the return of the vessel to a Belgian port,
or until the expiry of the seaman's agreement, or his complete cure,
whichever takes place first, or finally, until the seamen's insurance
institution takes over the payment of benefit.
(b) Repatriation.
The shipowner must meet the cost of repatriating sick or injured
seamen put ashore in a port other than the Belgian port of embarkation.
(c) Wages.
Sick or injured seamen are entitled to full wages until the end of
the voyage for which their agreement was contracted, unless it can
be shown that they were completely cured before that date and could
have rejoined their ship or obtained other employment.
(d) Cost of burial.
Shipowners are required to pay the cost of burial.
6.—Statistics.
N U M B E R OF SEAMEN ASSISTED IN

Treated in foreign hospitals
Repatriated by another ship
Died in a foreign port ...

...
...
...

...
...

••.
...

1933

...
...
...

36
20
1

BELGIUM

121

FOURTH PART
HOUSING
1.—Legal Basis.
Housing legislation dates back to the Act of 8 August 1889 by
which the State authorised the General Savings and Pension Fund
to grant mortgage loans for the construction and purchase of workers'
dwellings. Later the National Society for Cheap Houses and Dwellings
was established by the Act of 11 October 1919. The Royal Order of
4 July 1928 as extended by the Order of 4 December 1930 introduced
a new system of building bonuses, which owing to financial stringency
was applied only to houses built prior to 31 December 1933. The
Royal Order of 5 February 1930 introduced compulsory rent reductions
for large families, while the Royal Order of 4 March 1930 established a
system of bonuses for the acquisition of flats. Lastly, the Act oi
20 April 1931 authorising the issue of a third loan enabled the National
Society to grant advances to the Co-operative Society of the Housing
Fund for large families.
2.—Beneficiaries.
Under the Act of 11 October 1919 cheap dwellings must be
reserved for persons with small means defined as, on the one hand, all
manual workers, day labourers and domestic servants, and on the
other, salaried employees, officials and other persons whose income
does not exceed certain maxima fixed by the Government. The
maxima have been changed on various occasions. According to the
Order of 30 October 1928 the maximum income varies from 13,000 to
17,000 francs a year excluding family allowances, which may amount
to not more than 50 per cent, of the basic maximum.
3.—Authorities and Undertakings concerned in Building.
The National Society promotes, supervises and finances building
operations. It approves local building societies which according to
the Act of 1919 may belong to one of the following categories :
(a) local or regional societies;
(b) tenants' co-operative societies;
(c) industrial societies formed by heads of undertakings ;
(d) societies formed by charitable institutions.
The National Society may also approve credit societies which
restrict their activities to granting loans to building societies or to
private individuals proposing to build cheap houses.
4.—Financing by Public Authorities.
Under the Act of 1889 the General Savings and Pension Fund may
grant loans for the construction of workers' dwellings. Loans are
not granted directly to the persons concerned but to the approved
building societies. The interest on such loans varies and was about
4-25 to 4-50 per cent, in 1930 and 4-25 per cent, in 1931.

122

INTERNATIONAL SURVEY OF SOCIAX SERVICES, 1933

5.—Benefits.
The National Society grants loans to the approved societies in
accordance with the regulations laid down in 1927. The State pays
the difference between the interest charged to the societies and the
interest due to the subscribers to the loans. In the case of the third
loan authorised by the Act of 20 April 1931, however, the National
Society itself is hable for all the charges.
The purchase bonuses introduced by the Order of 14 October 1922,
as amended subsequently, notably by the Order of 4 March 1930,
enable persons of small means to buy cheap houses already built by a
society approved by the National Society. The Order of 4 March
1930 extended these facilities to the purchase of flats. In addition
to the financial assistance given by the State, bonuses are also granted
by local authorities.
The Finance Act of 24 December 1923 authorised the grant of an
extra bonus to cover registration fees and the transfer of the ordinary
bonus to the beneficiaries. It has since been decided that these two
bonuses shall in future be granted only to purchasers of buildings which
were in a perfectly habitable condition at 1 January 1934.
The building bonuses were last regulated by an Order of 4 July
1928 fixing them at 2,000 to 3,500 francs plus an increase of 10 per
cent, for each of the first two dependent children and 20 per cent, for
each dependent child after the second.
Exemptions from taxation are granted under the Act of 1889 and
subsequent enactments to all persons of small means who purchase,
build, or improve cheap dwellings with a view to living in them. Local
tax regulations include provisions exempting all buildings constructed
with the help of the National Society from the indirect tax on house
property. The Act of 2 January 1926 exempts all building contracts for
workers' housing societies, approved local societies and individuals in
receipt of a State bonus from the two per cent, stamp duty. The total
exemption may not exceed 1,200 francs. The Act of 10 June 1928,
extended on 1 June 1931 and 26 April 1933, sanctioned temporary
exemption from land tax, under specified conditions and for a period of
ten years, in respect of dwelling-houses built after 31 December 1927
and occupied before 1 January 1931. This exemption has not since
been extended.
The Order of 5 February 1930 fixed compulsory rent reductions for
large families at twenty per cent, for families with at least three
dependent children under sixteen years of age, and at fifty per cent, for
families with six or more dependent children.
6.—Statistics.
(a) Dwellings built.—The total number of persons granted exemption from taxation in connection with the acquisition of land for
building purposes and the purchase of dwelling-houses was 54,832 in
1933. The National Society for Cheap Houses and Dwellings built 455
one-family houses and 282 flats in 1933.1
1
The corresponding figures for 1930 were 5,591 and 833. This substantial
drop is explained by the fact t h a t the loan approved in 1931 has n o t yet been
ssued.

BELGIUM

123

(b) Financial resources.—The bonuses granted for the purchase of
houses amounted to 2,187,000 francs in ordinary bonuses and 2,508,000
francs in supplementary bonuses for the purchase of 855 houses.
Exemptions from taxation in 1933 amounted to some 20,000,000
francs.
The amount of rent reductions for large families in 1933 was
2,384,000 francs.
FIFTH

PART

FAMILY ALLOWANCES
1.—Introduction.
A family allowance scheme was first applied by the public administrations to their staff. In 1933 the monthly rate of the allowances paid to
Government employees was 15 francs for the first child, 20 francs for
the second, 85 for the third, 125 for the fourth and 175 for the fifth and
every subsequent child.1
The adoption of a family allowance scheme in the public services in
1919 was soon followed by similar private schemes. In 1921 the first
equalisation funds were set up and the new institutions rapidly gained
ground.
The Act of 14 April 1928 provided that the specifications of public
works contractors must include a clause binding the contractor to
join an equalisation fund. This Act was subsequently replaced by
the Act of 4 August 1930 which was intended to ensure the complete
generalisation of the system of family allowances.
The latter Act, as amended by an Order of 14 August 1933, requires
all employers habitually employing one or more persons, excluding those
living in, in carrying on an industrial, commercial, agricultural or other
undertaking exercising a profession or in any other capacity, to join
an equalisation fund. Membership of an equalisation fund is not
necessary for State, provincial and communal administrative departments which pay allowances directly to their staffs. This privilege
may also be extended to public bodies and public utility institutions.
2.—Family Allowances provided by Equalisation Funds.
(a) Beneficiaries.
Allowances are payable for each child of a beneficiary or of his
wife (her husband), for his dependent grandchildren, for all children
for whom he has assumed responsibility in case of desertion or of the
death or disablement of the father and mother, and for young brothers
and sisters not covered by allowances in respect of the employment
of their own father or mother. As a rule allowances are granted up
to the school-leaving age, but are continued up to eighteen years in the
case of children attending a trade or general school but not exercising
a trade. The allowance is payable irrespective of age in the case of
children prevented from exercising a trade by physical or mental
incapacity.
1

Scale established by the Order of 31 May 1933.

124

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(b) Administration.
The institutions responsible for operating the scheme are : (1) the
equalisation funds set up by groups of employers and approved by
the Government; (2) the special equalisation funds set up for certain
occupations, in particular dock work, shipping, ship repairing, inland
navigation, hotels and restaurants, homework and commercial travellers
working for several employers, and the diamond industry; (3) the
State Auxiliary Equalisation Fund to which all employers who do not
belong to private or special funds are automatically affiliated; (4) the
National Equalisation Fund, a central body, the main object of which
is to organise a secondary equalisation system among the various
primary funds affiliated to it and to pay family allowances to certain
classes of persons enumerated in the Act. A Family Allowances Committee attached to the Ministry of Social Welfare and Health gives
its opinion in cases specified by the Act, in particular as regards the
grant and withdrawal of approval of the funds organised by groups of
employers.
(c) Conditions of award.
Allowances are calculated in proportion to the number of days
actually worked, no deductions being made for legitimate absence
from work on account of sickness, accident, involuntary unemployment, etc. Payment is made monthly or quarterly. Not more than
one allowance may be paid in respect of the same child. The beneficiaries must be Belgian nationals or assimilated to Belgian workers.
(d) Financial resources.
The primary funds are financed by contributions from the employers.
Every employer affiliated to an equalisation fund is legally liable for :
(1) a contribution of 65 centimes for every man and 35 centimes for
every woman employed in his service for each day of actual work1 ;
(2) a share in the cost of administering the fund ; (3) a contribution to
a contingencies fund at the rate of five per cent, of the total contribution, paid by him for the provision of allowances and supplementary
benefits. Provision is also made for a State subsidy of 30,000,000
francs to the National Equalisation Fund, but so far this subsidy has
not been paid.
(e) Scale of allowances.
The minimum monthly allowance is fixed at 15 francs for the first
child, 20 francs for the second, 40 francs for the third, 70 francs for
the fourth and 100 francs for the fifth and each subsequent child.1
The approved funds and special funds may grant higher allowances and
other benefits to improve the families' conditions provided that they
levy extra contributions from their members or assign half of any
surplus to this purpose.
1
An Order of 16 January 1935 has reduced the rate of these contributions
to 50 centimes for men and 25 centimes for women and the minimum monthly
allowance to 9 francs for the first child, 12 for the second, 32 for the third, 65 for
the fourth and 95 for the fifth and each subsequent child.

BELGIUM

125

3.--Statistics for 1933.
Number of equalisation funds ...
88
Number of employers affiliated t o funds
96,222
Number of workers employed b y employer members
1,277,674
of funds
Number of children for whom allowances were paid...
881,097
Cost of allowances
...
...
...
... francs 246,857,378

SIXTH

HOLIDAYS

PART

WITH

PAY

Public departments and provincial and communal administrations
grant annual holidays with pay to their employees. The same is true
of the railway companies and independent undertakings connected
with national defence.
On the other hand, in private industry holidays with pay are not
common; in fact they are confined to a few industries such as the
chemical, cement, brass ware, machine construction, fur, jewellery and
brewing trades.
As a general rule the majority of private salaried employees are
entitled to an annual holiday. The length of this holiday, which
generally depends on the length of service of the employee and sometimes on his regularity of attendance, varies from a minimum of three
days to a maximum of three weeks a year.

BULGARIA
SUMMARY
PAGE

FIRST PART :

Statistics

S E C O N D P A R T : Social

PART

FIFTH PART :

Sickness
Old-Age

Social
Assistance
I.—-General Social Assistance
I I . — S h i p o w n e r s ' L i a b i l i t y t o w a r d s Sick or I n j u r e d
Seamen

PART :

FOURTH

128

Insurance

I . — A c c i d e n t , O c c u p a t i o n a l Diseases,
Invalidity
Maternity,
and
Insurance
II.—Unemployment Insurance
THIRD

128

of Population

Housing
Holidays

with Pay

128
134
135
135
136
138
139

128

INTERNATIONAL SURVEY OF SOCIAL SERVICES,

1933

FIRST PART

STATISTICS OF POPULATION
C E N S U S O P 31 D E C E M B E R 1926 : G A I N F U L L Y O C C U P I E D P O P U L A T I O N
B Y OCCUPATIONAL GROUPS AND INDUSTBIAX STATUS

Agriculture, forestry, etc. ...
Mining...
Manufacturing Industries ...
Transport and communications
Commerce

639,470
211
88,501

Assistants1
and
salaried
employees
1,613,944
388
27,753

10,628
49,804

Total
Public forces ...
Public administration
Liberal professions ...
Domestic services
Employees, workers « n d labourers
not
otherwise
specified
Unknown occupations

788,614

Employers
and working
on own
account

Occupational groups

Gainfully occupied population 2
Total population ...

—
—
—
• — •

—
—

Workers

CLASSIFIED

Total

211,007
7,222
154,494

2,464,421
7,821
270,748

8,666
19,513

21,197
14,856

40,491
84,173

1,670,264

408,776

—
—.
—

—
—
—
—

2,867,654
34,670
34,278
57,501
19,655

—
—•

—
—

29,770
5,893
3,049,421

—

•

—

5,478,741 s

•2 Unpaid members of the employer's family who assist him in his business.
Excluding persons living principally on private means, housewives, sick, disabled persons, etc.,
in institutions and homes, etc., prisoners and students. Other pensioners appear to be included
among the dependants of workers.
3
The population of Bulgaria was 6,090,000 towards the end of 1934.

SECOND PART

SOCIAL INSURANCE
I.—Accident, Occupational Diseases, Sickness, Maternity, Invalidity
and Old-Age Insurance
1.—Legal Basis.
Compulsory insurance against the risks of accident, occupational
diseases, sickness, maternity, invalidity and old-age is governed by
the Social Insurance Act of 6 March 1924 as subsequently amended,
in particular by the Acts of 2 February 1929 and 4 April 1931.

BU IX! AMA

129

2.—Scope.
Compulsory insurance applies to all wage-earning and salaried
employees employed in State, public or private establishments, undertakings or estates.
Voluntary insurance is open to independent handicraft workers,
persons engaged in commerce, farmers and members of the liberal
professions whose annual income is not more t h a n 50,000 leva, and
also to officials of institutions belonging to the State or local authorities.
Certain classes of temporary workers such as mowers, reapers, etc.,
are exempt from compulsory insurance.
3.—Administration.
Insurance is administered by a single institution, the Social
Insurance Fund, attached t o the Directorate of Labour and Social
Insurance of the Ministry of Commerce Industry and Labour, which
since the middle of 1934 has been incorporated in the Ministry of
National Economy. The F u n d is administered by State officials, but
representatives of employers and insured persons sit on the pension
boards a n d on the auditing board of the F u n d .
The advisory body of the Ministry is the Superior Labour and
Workers' Insurance Council, consisting of forty-two members, of whom
sixteen represent the public authorities, eight the employers and eight
the insured persons, eight are specialists in insurance questions, and
two represent the medical profession.
The Insurance Act is administered locally by the labour inspectors
together with their assistants and secretary-treasurers.
4.—Financial Resources.
(a) Accidents and occupational diseases.
The cost of insurance against accidents and occupational diseases
is borne entirely by the employers, and is assessed year b y year in
proportion to the number of their wage-earning and salaried employees, the aggregate wages paid and the degree of occupational risk
in the different branches of production.
(b) Sickness and maternity.
The resources of sickness and maternity insurance consist of the
contributions of the insured persons, t h e employers and the State, the
amount varying as follows with the wage classes in which the insured
persons are classified.
Amount of week ly contribution
Wage Classes.

1.
2.
3.
4.
5.

U p t o 15 l e v a p e r d a y . . .
16 t o 30 l e v a p e r d a y
...
31 „ 45 „
46 „ 60 „
61 l e v a a n d o v e r p e r d a y
x

G 12973

Compulsory insurance

Voluntary insurance

Insured
person

Employer

State

Insured
person

State

leva
1-50
2-00
2-50
3-00
4-00

leva
1-50
2-00
2-50
300
4-00

leva
3-00
4-00
500
6-00
8-00

leva
1-50
2-00
2-50
300
4-00
I

130

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

For apprentices drawing less than the minimum wage provided for
in the Act the employer pays a weekly contribution of 3 leva.
(c) Invalidity and old-age.
The contributions for insurance against invalidity and old-age
are the same as those for sickness and maternity insurance.
5.—Benefits.
(a) Definition of the risks covered.
The risks covered are as follows :
(i) Accidents, i.e., every injury with which a worker meets in
connection with or in consequence of the work performed by
him and which results in incapacity or in death and a certain
number of occupational diseases, i.e., skin diseases, respiratory
diseases, circulatory and digestive diseases, eye diseases, ear
diseases, poisoning, microbio and parasitic diseases.
(ii) Sickness, i.e., every malady rendering a worker temporarily
unfit to perform his work.
(in) Maternity, i.e., a period of twelve M'eeks, six of which precede
the confinement and six follow it.
(iv) Invalidity, i.e., every incapacity for work caused by sickness
or premature exhaustion.
(v) Old-age, i.e., the attainment of the age of 60 years.
(b) Benefits.
The following benefits are provided for under Bulgarian legislation :
(i) Accidents and occupational diseases.
1. First aid and conveyance to the victim's home or to a hospital.
2. Medical assistance until the patient's recovery, including
hospital treatment, medical treatment, the provision of medicines and
dressings, surgical treatment and orthopaedic appliances if necessary.
3. Daily cash benefit during the period of medical attendance, at
a rate varying with the wage class to which the insured person
belongs.
Wage class
1
2
3
4
5

Home treatment
12 leva per day
16 „
„ „
20 „
„ „
9*

„

Hospital treatment
8 leva per day
12 „
„ „
15 „
„ „
18 „
„ ,,
22 „
„ „

In the case of hospital treatment the cash benefit is paid to the
insured person's family ; if he has none, no cash benefit is payable.
4. In case of permanent total incapacity for work, a pension equal
to the average daily wage for the twenty-five days on which the
worker last worked, or for a fraction thereof, multiplied by 300. If
the victim of the accident needs constant attendance, lie is granted
an additional pension of 800 leva a month.
In case of partial incapacity, a pension proportionate to the degree
of incapacity for work, calculated on the basis of the average daily

BULGAEIA

131

earnings of the worker concerned multiplied by 240. The pension
may not exceed 12,000 leva a year.
5. In case of death the following benefits are granted :
Survivors' pensions :
40 per cent, of the pension of the deceased to the widow, or
widower if incapable of work; 30 per cent, of the pension to
the children, or if they are full orphans 50 per cent.
30 per cent, to the parents of the deceased and his brothers and
sisters if they were maintained by him and he leaves no wife
or child.
The total amount of the survivors' pensions may not exceed the
pension due to the deceased.
Funeral benefit, amounting to 50 times the basic wage of the
deceased if he was under home treatment.
(ii) Sickness.
1. Medical, hospital and surgical treatment and provision of
medicine for nine months in a year if the insured person has paid his
contributions for eight consecutive weeks.
2. Daily cash benefit from the first day of sickness at the same rate
as the benefit payable in case of accident, if the insured person has
paid his contributions for at least eight weeks.
3. In case of death following sickness, funeral benefit amounting
to 50 times the daily basic wage of the deceased, if he was in receipt
of home treatment.
(iii) Maternity.
1. Services of a midwife and doctor.
2. Daily cash benefit for six weeks preceding and six weeks
following confinement.
Maternity benefit is granted if the insured woman has paid her
contributions for at least sixteen weeks before her confinement.
(iv) Invalidity.
Invalidity benefits are granted to an insured person who lias lost
more than 50 per cent, of his working capacity, provided that he has
paid at least 156 weekly contributions.
The invalidity pension consists of :
1. A basic amount varying with the insured person's wage class
as follows :
Class 1. 1,500 leva a year.
» 2. 2,400
„
„
„ 3. 3,600
„
„
„ 4. 4,800
„
„
„ 5. 6,000
„
„
2. A supplement of 2 leva for every paid-up weekly contribution
beyond the statutory minimum of 156.
I 2

132

INTERNATIONAL SURVEY 03? SOCIAL SERVICES, 1 9 3 3

(v) Old-Age.
Old-age benefits are granted to insured persons who have attained
the age of 60 years and have paid contributions for at least 1,040 weeks.
The old-age pension consists of the basic invalidity pension plus
1 leva for each week in excess of 156 for which the insured person has
paid contributions.
6.—Statistics.
Membership in 1933-1934

251,268

PENSIONS GRANTED I N 1933-1934

Accident
Invalidity
Old-Age

1,534
340
304
Total

2,178

INCOME AND E X P E N D I T U R E OF SOCIAL INSUBANCE F U N D F O B 1933-1934
INCOME

Leva
1. Accident insurance :
Contributions of employers
...
...
...
...
2. Sickness and maternity insurance :
Contributions of employers and insured persons
...
Contributions of State institutions and elected bodies
Contributions of the State 1
...
...
...
...
3. Invalidity and old-age insurance :
Contributions of employers and insured persons
...
Contributions of State institutions and elected bodies
State contribution 1
...
...
...
...
...
4. Fines and sundry revenue
...
...
...
...
6. Interest on capital Total ...
...
...
1

...

9,533,595

...
...
...

28,599,585
8,257,408
—

...
...
...
...
...

28,245,873
8,255,136
—
10,796,743
13,984,011
107,672,351

No contribution was paid by the State during this year.
ExPENDITUBE

Leva
1. Accident insurance :
Cash benefits and medical assistance ...
...
...
...
Pensions
2. Sickness and maternity insurance :
Cash benefits and medical assistance ...
...
...
...
3. Invalidity and old-age insurance :
Invalidity pensions
...
...
...
...
...
...
Old-age pensions
...
...
...
...
...
...
4. Cost of administration, etc.
5. Expenditure on movable property account (furniture of inspectors'offices, equipment of dispensaries, e t c . ) . . .
...
...
6. Expenditure on real property account (construction of workers'
hospital)
Total

1,590,128
13,855,387
35,663,712
1,324,513
422,521
20,293,894
370,633
10,542,820
84,063,608

133

BULGARIA
BALANCE S H E E T OF SOCIAL INSURANCE F U N D AT 31 MARCH

1932

ASSETS

I.—Cash assets
1. Balance of current accounts

...
...
...
II.—Investments

Leva
1,875,988.00

2. Fixed deposits
152,291,579.00
3. Securities
1,639,097.00
4. Loans to State and municipalities out of invalidity and
old-age funds
151,597,431.70
III.—Movable and Immovable Property
5. Movable property
3,626,825.00
6. immovable property
28,543,304.00
IV.—Debtors
7. Outstanding employers'contributions
...
...
... 61,951,016.37
8. Amount due from Industrial Bank on account of sale of
insurance stamps
20,340,081.00
9. Sundry debtors (provisional account) ...
...
...
...
4,796,862.00
10. Outstanding contributions of State institutions, municipalities, etc., for insured persons employed by them
...
2,770,000.00
11. Insurance contributions due from the State :
Sickness and maternity insurance contributions ...
... 109,264,002.00
Invalidity and old-age insurance contributions
...
... 99,711,978.00
Unemployment insurance contributions
...
...
... 31,782,196.00
V.—Sundries
12. Deficit of sickness and maternity branch for 1929-1930,
1930-1931 and 1931-1932 (debt of sickness insurance to
Social Insurance Fund)
54,532,053.98
724,722,414.05
LIABILITIES

I.—Creditors
Leva
1. Amount withdrawn from current account a t the Bulgarian
National Bank
2. Fees due to doctors, dentists, etc
II.-—Provisional Liabilities
3. Interest due from State and Industrial Bank
...
...
4.
5.
6.

7.
8.
9.

14,515,732.70
42,529,767.00
53,483,327.00

III.—Reserves
Balance of total revenue over total expenditure of invalidity
and old-age fund
288,556,187.62
Balance of total revenue over total expenditure of unemployment fund
55,862,955.08
Extraordinary revenue account (fines for infringement of
law, etc.)
29,016,268.65
IV.—Debt of Social Insurance Fund due to non-payment of State
contributions
Sickness and maternity insurance
...
...
...
... 109,264,002.00
Invalidity and old-age insurance
...
...
...
... 99,711,978.00
Unemployment insurance
...
...
...
...
... 31,782,196.00
724,722,414.05

134

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

n.—Unemployment Insurance
1.—Legal Basis.
Compulsory insurance against unemployment is governed by the
Act of 12 April 1925 respecting employment exchanges and unemployment insurance.1
2.—Scope.
The following persons are hable to insurance against involuntary
unemployment between the ages of 15 and 60 years :
(a) All wage-earning and salaried employees liable to social
insurance under the Social Insurance Act of 6 March 1924
except domestic servants;
(b) seamen, except in the case of unemployment due to loss of .
the vessel ;
(c) workers in State, departmental, communal and public departments and undertakings, if they are not entitled to public
servants' pensions.
Agricultural workers are liable to insurance if they are employed
in agricultural undertakings which, under the Act respecting agricultural holdings, are deemed to be conducted on modern lines.
3.—Administration.
The unemployment insurance fund forms part of the Social Insurance Fund administered by the Directorate of Labour and Social
Insurance attached to the Ministry of Commerce, Industry and Labour.
Benefit is paid out by the employment exchanges under the
supervision and direction of the Ministry of Commerce, Industry and
Labour which, since the middle of 1934, has been incorporated in the
Ministry of National Economy.
4.—Financial Resources.
The financial resources of the unemployment insurance fund are
derived from equal contributions of employers, insured persons and
the State, at the rate of 1 leva a week each for every insured worker
or employee.
5.—Benefits.
A worker or salaried employee is entitled to benefit in case of
involuntary unemployment if he has paid contributions to the unemployment insurance fund for not less than 52 weeks during a period
of two years. The insured person has a right to benefit for not more
than 12 weeks in the course of a year.
Benefit amounts to 16 leva a day for unemployed persons who have
a family dependent upon them, and to 10 leva for all other unemployed
persons. An Order of the Minister of Commerce, Industry and Labour
dated 1 March 1931 fixed the rate of benefit at 25 leva for family
breadwinners, and 15 leva for all other workers.
1
A decree-law respecting the employment of unemployed members of the
liberal professions in commercial and other establishments was promulgated
on 14 May 1935.

BULGABIA

6.—Statistics for 1933-1934.
Number of insured persons
...
...
...
...
... 200,35S
Number of unemployed persons to whom unemployment
benefit was paid
...
...
...
...
...
... 25,997
INCOME AND E X P E N D I T U R E FOK

1933

(in leva)
REVENUE

EXPENDITURE

Contributions of employers
and insured persons
... 10,125,530
Contributions of State institutions and elected
bodies
3,283,747
State contribution 1
...
—
Total

13,409,277
1

Benefits paid
...
Cost of administration

Total

... 16,839,270
... 2,741,150

19,580,420

No contribution was paid by the State.

THIRD

PART

SOCIAL ASSISTANCE
I.—General Social Assistance1
Social assistance is provided by a number of private bodies and by
the State and local authorities. The private organisations derive their
funds from contributions from their members, State and municipal
grants, and gifts from private individuals. The State and municipal
assistance institutions are maintained entirely by the State and
municipalities.
The following welfare institutions exist in Bulgaria :
(1) 2 day nurseries, owned by private organisations, with accommodation for 438 children;
(2) 84 nursery schools, with accommodation for 2,640 children, of
which two belong to the State, 44 to a municipality and 35 to private
organisations and persons.
(3) 31 orphanages for 3,596 orphans, of which 14 belong to the
State, one to a municipality, 15 to private organisations and one to a
private individual ;
(4) 231 popular kitchens which distribute food to 15,979 persons,
and of which 17 are owned by the State, 76 by municipalities, 129 by
private organisations, 3 by the Church and 6 by private persons.
There are also other popular kitchens which provide food for 146,890
persons ;
(5) 72 summer camps accommodating 5,672 persons;
(6) 1 school for the blind, owned by the State, accommodating
120 persons ;
(7) 3 schools for the deaf and dumb, owned by the State, accommodating 145 persons ;
1
By decree-law of 28 October 1934 a social assistance service has been
established.

136

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

(8) 20 rest camps for 1,089 persons ;
(9) 29 homes for 1,151 persons;
(10) 30 dispensaries ;
(11) 34 homes run by the State for 1,650 persons suffering from
occupational diseases;
(12) 84 infant welfare centres visited by 37,441 infants ;
(13) 3 sanatoria run by the State for 145 children;
(14) 2 reformatories run by private associations for 125 juvenile
criminals.
A Special Relief Fund administered by the Ministry of the Interior
has been set up under an Act concerning assistance to the victims of
earthquakes, floods, epidemics, etc. This fund has financed the
following work :
Popular kitchens, 1931 ...
1931-1932
Repair of flood damages, 1930
1931
1932
Campaign against epidemics 1934-1935

...
...
...
...

Leva
100,000
1,500,000
1,000,000
7,450,000
9,930,000
169,500

Further, under the Municipalities Act, all municipalities are bound
to provide in their budgets for various sums for social assistance
purposes.
The budget of the Social Insurance Fund for the financial year
1930-1931 made a grant of 80,000 leva to the Red Cross dispensaries
and the Child Welfare Union, and a further grant of 60,000 leva to
the " Nache Ognichté " Committee (hostels for apprentices).

II.—Shipowners' Liability towards Sick or Injured Seamen
1—Legal Basis.
The liabilities of shipowners towards their seamen in case of
accident, sickness or death are governed by the Act respecting
maritime trade of 8 January 1908, and the Regulations of 26 July 1923
for the crews of merchant ships belonging to the Bulgarian Navigation
Company.
2.—Scope.
The legislation in question covers all ships flying the Bulgarian
flag without distinction, and all members of their crews, i.e., the
captain or master, mates, seamen, pilots and workers on the ship's
pay-roll, engineers and stokers and all other engine-room crew of
steamships.
3.—Benefits.
The following risks are covered :
The risk of injury sustained in the performance of work on
board.
The Regulations for the crews of merchant ships
belonging to the Bulgarian Navigation Company give a wider

BULGARIA

137

definition of this risk, covering all injuries sustained in the
course of service, without specifying the place of the accident.
The risk of sickness contracted during the voyage.
The risk of death on the voyage.
The employer is liable for the following benefits :
(a) Medical treatment.
Medical treatment consists of medical attendance on board and
ashore, and hospital treatment. The cost is borne by the shipowner,
if the seaman falls ill during the voyage or is injured in the ship's
service, and is shared by the shipowner and freighter if the injury
occurs in the performance of service on behalf of the ship and cargo.
The cost of treatment is borne by the seaman himself if he is injured
while on unauthorised leave, or contracts an illness through his own
fault.
If a seaman is put ashore on account of sickness or injury, the
master is bound to deposit the sum necessary to cover his treatment
with the Bulgarian Consul. If there is no Bulgarian Consul at the
port concerned, the sick seaman must be placed in hospital or in
some other nursing institution, and the sum required to cover the
treatment deposited in advance.
Treatment is granted for a maximum of four months from the
date on which the seaman was put ashore.
(b) Payment of wages.
A seaman who is sick or has been injured in the ship's service is
entitled to receive his wages at the expense of the shipowner or, if
his injury was sustained in performing service required in the interests
of the ship and cargo, at the joint expense of the shipowner and
freighter.
This right covers a maximum period of four months from the
date on which the seaman was put ashore.
(c) Repatriation.
If the seaman is put ashore the amount deposited by the master
to cover the cost of medical treatment must also cover the cost of his
repatriation. Seamen employed by the Bulgarian Navigation Company
must be repatriated to their place of residence.
(d) Compensation on death.
Compensation on death is payable only in the case of seamen
employed by the Bulgarian Navigation Company. The amount of
the indemnity is fixed in each case by the Governing Body of the
Company. No special compensation is payable on the death of seamen
belonging to the crews of other vessels, but their dependants are
entitled to the payment of the wages due from the shipowner, in the
following proportions :
In the case of a seaman engaged by the month, his wages are
payable to his dependants up to the date of death ;

138

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

In the case of a seaman engaged for the voyage, half the amount
of his wages is due if he dies on the voyage out or on arrival, and the
whole amount if he dies on the return journey ;
In the case of a seaman engaged on a profit-sharing basis, the
whole amount of his wages is payable if he dies after the commencement of the voyage.
4.—Statistics.
Number of seamen granted benefits at shipowners' expense in
1930: 227.
Expenditure of shipowners in 1930 on assistance to seamen in
case of accident, sickness or death : 416,802 leva.

FOURTH PART

HOUSING
1.—Legal Basis.
The Act of 18 March 1929 respecting the allotment of municipal
land for dwellings for the homeless. Under the Act of 5 April 1917
on the health and safety of workers, section 10, the Ministry of Commerce,
Industry and Labour, after consulting the Superior Labour Council,
may require certain employers to build dwellings for the workers
employed in their undertakings.
2.—Beneficiaries.
The Act of 1929 defines a homeless person as one who has no
dwelling either in his own name or in that of a member of his family,
and who does not own real property assessed by the taxation authorities at more than 50,000 leva or pay income tax amounting to more
than 5 leva a year.
Railway and harbour officials may obtain accommodation for
themselves and their families provided they do not own a private
dwelling at the place where they are employed. Accommodation may
also be obtained by customs officials and workers in private and public
undertakings covered by section 10 of the Act of 1917 on the health
and safety of workers.
3.—Institutions.
The municipalities may advance loans for the building of dwellings
on municipal land.
The general Directorate of Ports and Railways has raised a special
fund for the building of dwellings for railway and harbour officials
and their families.
The Customs Department is also building dwellings for its officials.
Certain private and public undertakings may be required to build
dwellings for the workers they employ.
4.—Financing by Public Authorities.
Section 6 of the Act of 1929 provides that, in drawing up the official
deeds of ownership, the competent notary or justice of the peace must

BULGARIA

139

include provision for a mortgage in favour of the municipality, automatically and free of charge. This mortgage guarantees payment of
the amount due to the municipality for the building sites that it has
allotted and repayment of the loans advanced for the building of the
dwellings.
The amount representing the value of the building site granted is
repayable in annual instalments over a period of twenty years. No
interest is charged on money advanced to the homeless persons.
The Municipal Councils Act also provides for special easy terms of
payment for veterans of the Bulgarian War of Independence, exsoldiers disabled in the 1912-1918 Wars, widows and orphans, and
parents whose only sons were killed on national service. These
groups of beneficiaries are granted advantages in the form of a longer
period for repayment, and valuation of the building sites allotted at a
rate 70 per cent, lower than that used in assessing the value of land
allotted to other beneficiaries.
Railway and harbour officials and their families pay a low rent to
the general Directorate of Ports and Railways. The regulations for
the management of these buildings provide that, in allotting cheap
dwellings, account shall be taken of the length of the applicant's
service and the size of his family. Engine-drivers and firemen are
granted special privileges.
5.—Statistics.
Number of dwellings.
The Municipality of Sofia owns two buildings ; one consisting of
22 rooms and 14 kitchens and inhabited by 14 families of municipal
officials, and the other of 68 rooms and 34 kitchens inhabited by 50
families of municipal officials. The rents paid by these officials
amount to some 30 per cent, of the ordinary rates.
The special fund raised by the general Directorate of Ports and
Railways owns 101 buildings inhabited by 684 families.
The Customs Department owns 21 buildings which house 74
families.
Financial resources.
Out of a total credit of 600 million leva for the whole of Bulgaria,
the Municipality of Sofia has distributed 100 million leva.
The dwellings owned by the general Directorate of Ports and
Railways were built at a cost of 99,303,466 leva.

F I F T H PART

HOLIDAYS W I T H PAY
Holidays with pay are granted to State, municipal and local
officials, the crews of ships belonging to the Bulgarian Navigation
Company, and bank and commercial employees.
Under the State Employees Act, every State employee is entitled
to one month's leave a year, provided that he has completed six

140

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

months' uninterrupted service. An official who has not claimed this
right for three years is entitled to two months' leave with pa}r.
An official is further entitled to not more than three months' leave
with pay in the case of sickness attested by a medical certificate. If
he is suffering from a serious illness requiring a prolonged course of
treatment, he has the right to six months' sick leave with pay, provided
that he has completed three years' uninterrupted service. An official
who is injured in an accident or contracts tuberculosis in the performance of his duties is entitled to six months' sick leave with pay,
irrespective of the length of his service.
These provisions of the State Employees Act also apply to
municipal and local officials.
Under the regulations of the Bulgarian Navigation Company,
every member of the crew is entitled to an annual holiday of 15 days
with pay, provided that he has been employed for a year. Persons
who have been employed for three years are entitled to one month's
leave with pay. A member of the crew who sustains an injury or
contracts an illness on the voyage is entitled to four months' leave
with pay, dating from the day he left the ship, the cost of treatment
in such case being borne by the company.
Bank and commercial employees whose salary is paid monthly
are granted leave with pay, the length of such leave depending on the
length of service and the nature of the post occupied. The annual
leave of bank and commercial employees is regulated by custom and
not by legislation.
No statistics of working are available.

CANADA
SUMMARY
PAGE

F r a s i PABT :

Statistics of Population

SECOND P A B T : Social

142
143

Insurance

143
143
145

I.—Workmen's Compensation .
A.—Dominion
B.—Provinces
II.—Voluntary Social Insurance
A.—Miners' Relief Societies in
Scotia

161
Nova
162

B.—Works Benefit Funds
THIRD P A R T :

Social Assistance

I.—Non-contributory Pensions
A.—General : Old-Age Pensions
B.—Pensions of Government Railway
Employees

164
164
164
167

II.—Maternity Assistance in British Columbia

169

III.—Allowances in respect of Dependent
Children to Mothers or Other Persons
in charge of such Children

169

IV.—Institutional Assistance
Destitute ...

173

for Sick and

V.—Shipowners' Liability towards Sick and
Injured Seamen ...
VI.—Unemployment Relief
FOURTH P A B T :

161

Holidays with Pay

...

175
179
181

142

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933'

FIRST

PART

STATISTICS OF POPULATION
Seventh Census of Canada, 1931 l
GAINFULLY E M P L O Y E D POPULATION, 10 Y E A R S OF A G E AND OVEII CLASSIFIED
B Y OCCUPATIONAL GROUPS AND INDUSTRIAL STATUS

Occupational Groups
Agriculture, forestry, fishing
Mining, quarrying
Manufacturing, industry,
building, construction...
Transport,
communications (incl. P.T.T.)
Warehousing
Total
Commerce, finance, insurance
Service (hotel, domestic)
Clerical
...
Other labourers and unskilled (not agricultural,
mining, logging)
Unspecified

Owners, Foremen, Wage and
managers overseers salary earners Others

Total

695,540
1,255

3,970
2,002

521,171
50,213

32
5,110

1,220,713
58,580

46,281

24,237

571,876

35,950

678,344

15,027
960

15,974
389

233,230
33,846

1,637

265,868
35,195

759,063

46,572

1,410,336

42,729

2,258,700
350,749
637,489
238,883

437,032
103

106

1,471

437,032
1,680

Total gainfully employed,
10 years and over

—

3,924,533

Total population ...

—

10,362,833

Total
population,
10
years of age and over ...

—

8,159,059

1
The figures in this table relate to the nine Provinces, excluding the Yukon and Xorth-West
Territories oí which the total population in 1931 was 13,953.

" Gainfully employed " as understood in the census, includes all
persons engaged in occupation by means of which they earn money or
money equivalent. Children working at home merely on general household work or chores, or at odd times on other work, were not entered as
gainfully employed. Similarly, women doing housework in their own
homes without wages, and having no other employment, were not
included among the gainfully employed. Persons who happened to be
idle or unemployed at the date of the census were enumerated as
attached to the occupational group in which usually employed, or of
the occupational group in which last regularly employed.

143

CANADA

SECOND

PART

SOCIAL INSURANCE
I.—Workmen's Compensation
A.—DOMINION

Government Employees' Compensation for Industrial Accidents
1.—Legal Basis.
Government Employees' Compensation Act, Revised Statutes, of
Canada, 1927, Ch. 30.
2.—Scope.
The scheme covers employees in the service of His Majesty.
3.—Administration.
Employees of the Dominion receive compensation under the
compensation schemes of the provinces in which the accident occurred.
On Prince Edward Island, employees in the service of His Majesty
are treated as though they were employed by His Majesty in the
province of New Brunswick. The authority who determines the
liability and the amount of compensation is appointed by the Governor
in Council. Appeal lies to the Superior Court of the province of Prince
Edward Island.
4.—Financial Resources.
Costs of compensation are paid by the Münster of Finance out of any
unappropriated moneys in the Consolidated Revenue Fund of Canada,
or the Minister may from time to time deposit money from the Consolidated Revenue Fund with the Board or other authority administering
the compensation in the provinces.
In addition, a reasonable contribution to the general administrative
expenses of the scheme is paid to the province.
5.—Benefits.
Risks covered and benefits are those defined under and granted by
the compensation schemes of the provinces in which the employee was
injured.
6.—Statistics tor 1933-1934.
(1) Number of insured persons : All employees of Dominion
Government except military, naval and air forces.
(2) Number of beneficiaries : 1,539
(3) Expenditure.
EXPENDITURE

Cash benefits
Cost of administration
Total

...

S
172,874-73
12,976-03
185,850-76

(4) BALANCE S H E E T OR ASSETS ON 31 MARCH

Estimate of pensions liability

...

1934

S
698,872-53

144

INTERNATIONAL SURVEY OE SOCIAL SERVICES, 1933
YUKON

TERRITORY

1.—Legal Basis.
The Workmen's Compensation Ordinance, Ch. I., 1917.
2.—Scope.
(a) Categories of workers covered.
The scheme covers persons who have entered into or work under a
contract of service or apprenticeship, whether by way of manual
labour or otherwise.
The following persons are excluded from the scheme :
(1) Outworkers ; (2) persons whose employment is of a casual
nature, and who are employed otherwise than for the purposes
of the employers' trade or business ; (3) domestic servants.
(b) Industries and undertakings covered.
The scheme covers industry generally, but not agriculture.
Where less than five workers are employed in the same general
employment the employer is r ehe ved from liability under the ordinance.
3.—Administration.
Compensation is paid by the employer individually. Any question
under the Act, if not settled by agreement, is determined and settled
by a judge of the Territorial Court. The decision of the Court is final
and conclusive.
4.—Financial Resources.
The costs of compensation are borne by the employer.
5.—Benefits.
(a) Definition of risks :
The scheme covers personal injury by accident arising out of and in
the course of the employment, provided the workman is disabled for at
least 14 days from earning full wages at the work at which he was
employed.
(b) Benefits in kind :
None.
(c) Cash benefits :
Compensation is payable from the first day of incapacity.
1. Temporary incapacity : Weekly payments amounting to 50 per
cent, of the workman's average daily wages are granted during
incapacity, but not longer than six months.
2. Permanent incapacity :
(a) Total incapacity : In the case of total incapacity an amount
of §3,000 is paid.

CANADA

145

(6) Partial incapacity : Payment in the case of partial incapacity
is made according to the following schedule :
s
Loss of thumb
...
...
...
...
...
Loss of index
finger
...
...
...
...
Loss of any finger other t h a n the index finger or
thumb
Loss of great toe
...
...
...
...
...
Loss of any other toe t h a n the great toe
...
The loss of the first phalange of the t h u m b or of
any finger or toe shall be considered to be
equal to the loss of one-half of such thumb,
finger or toe, and the compensation to be
paid shall be one-half of the above amounts.
Loss of a hand
...
...
...
...
...
Loss of an a r m
...
...
...
...
...
Loss of a foot
...
...
...
...
...
Loss of a leg
Loss of an eye
...
...
...
...
...
Loss of an ear
...
...
...
...
...
Loss of the nose
...
...
...
...
...

500
300
200
300
150

1,500
2,000
1,500
2,000
1,500
250
600

Otherwise, a sum bearing the same relation to the amount the
workman would be entitled to if totally and permanently disabled that
the loss of earning capacity bears to the earning capacity he would have
had if not injured is payable ; maximum $3,000.
3. Death.
Where the workman leaves dependants, the dependants receive
an amount of £2,500.
Where there are no dependants, burial expenses, medical attendance, nursing, care and maintenance expenses not exceeding $500 are
paid, the burial expenses (not exceeding $150) to be a first charge on
this amount.
6.—Statistics for 1933.
No statistics available in Ottawa. A record of cases is kept by the
Clerk of the Territorial Court at Dawson City. There appear to be
very few cases under the Ordinance. Most of the mining, the chief
industry of the Yukon, is carried on by prospectors, etc., not by
employed persons.
B.—PBOVINCES

Compensation for industrial accidents in the Canadian provinces is
provided for according to the principle of workmen's compensation for
the majority of workers in industry, generally under Part I of the Act.
The principle of employer's liability applies to other workers, generally
under Part I I of the Act, with the exception of farm labourers and
domestic servants to whom the common law applies.
1. Workmen's Compensation
(a) Under the collective liability schemes the employers in the industries included contribute to an accident fund or accident funds, established for different risk classes, out of which compensation is paid. The
large body of industries are covered by such schemes in all the provinces.
x

G 12973

146

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(b) Under the individual liability schemes the employer is individually liable to pay the prescribed compensation. Such schemes exist
in Ontario, Quebec, Alberta and Saskatchewan.
The individual liability schemes in Ontario and Quebec, however,
are sharply distinguished from those in Alberta and Saskatchewan. In
the two former provinces certain large employers, for instance railway
companies, are made individually hable to pay their accident costs,
but the compensation is paid through the Provincial Workmen's
Compensation Board at the same rates as under the collective liability
schemes, and the Workmen's Compensation Board has jurisdiction to
determine matters affecting workmen employed by employers who are
individually Hable.
In Alberta and Saskatchewan on the other hand certain employers
not covered by the later Acts establishing collective liability schemes
are within the scope of the earlier Workmen's Compensation Acts
which are unrepealed to that extent. The Act of 1908 in Alberta and
the Act of 1910 in Saskatchewan made no provision for a provincial
board and compensation was recovered by action in the courts. In
both these provinces railway workers employed in the operation of
trains are practically the only persons now covered by the old statute,
their opposition to the later law having prevented the repeal of the
earlier Act1.
2. Employers' Liability
Workers in industries to which the Workmen's Compensation
Schemes (generally Part I of the Act) do not apply and workmen in
industries to which it does apply, but who are excluded from the
compensation scheme, shall have a right of action against the employer
where personal injury is caused by reason of a defect in the plant or
machinery, etc., or by reason of the negligence of the employer or of a
fellow workman or by some contributory negligence on the part of the
workman. Continuing in the employment with knowledge of such
defect or negligence does not prevent the workman or his dependants
from recovering damages for injury on the ground that he voluntarily
assumed the risk of injury.
The effect of these provisions is that the common law defences in
cases of employers' liability for accidents to workmen are removed for
the classes of workmen specified. The defences of " common employment," " assumption of risk," and " contributory negligence," are
declared not to apply, except to some extent in the case of contributory
negligence.
These provisions do not apply to farm labourers and domestic
servants.
1
I t is held by these workers that in view of the high proportion of fatal
accidents to railwaymen and the definite compensation fixed for fatal cases
under the collective liability system t h a t they are better protected by the earlier
statute where compensation may be 100 per cent, of their earnings.

CANADA

147

3. Common Law ami Fatal Accidents Act
The common law applies to those excluded from the scope of the
Workmen's Compensation Acts, that is, both from workmen's compensation and employers' liability provisions—generally farm labourers and
domestic servants—subject to such modifications as the Fatal Accidents Act provides.
1.—Legal Basis.
Alberta : (1) The Workmen's Compensation (Accident Fund) Act,
1918, Revised Statutes, 1922, Ch. 177, as amended by Ch. 33, 1924,
Ch. 24, 1925, Ch. 44, 1927, Ch. 38, 1928, Ch. 29, 1929, Ch. 48, 1932,
Ch. 56, 1933.
(2) Workmen's Compensation Act 1908, Revised Statutes, 1922, Ch.
176—Employer individually Hable.
British Columbia : Workmen's Compensation Act 1916, Revised
Statutes, 1924, Ch. 278, as amended by Ch. 64, 1925, Ch. 71, 1931, Ch.
62, 1932.
Manitoba : The Workmen's Compensation Act, 1920, Consolidated
Amendments 1924, Ch. 209 as amended by Ch. 66, 1925, Ch. 59, 1929,
Ch. 49, 1930, Ch. 56, 1932.
New Brunswick : An Act to amend and consolidate the Workmen's
Compensation Act, Ch. 36. 1932.
Nova Scotia : The Workmen's Compensation Act, Revised
Statutes, 1923, Ch. 129, with amendments to 1928, as amended by Ch.
44 and 45, 1929, Ch. 39, 1930, Ch. 40 and 41, 1931 and Ch. 36 and 37,
1932.1
Ontario : Workmen's Compensation Act, Revised Statutes, 1927,
Ch. 179, as amended by Ch. 26, 1928, Ch. 37, 1931, Ch. 21, 1932 and
Ch. 70, 1933. The Blind Workmen's Compensation Act, Ch. 38,1931.
Prince Edward Island : Canadian Government employees are
compensated under the provisions of the Dominion Government
Employees Compensation Act.
Quebec : Workmen's Compensation Act 1931, Ch. 100 as amended
by Ch. 98, 1933.2
Saskatchewan : (1) Workmen's Compensation (Accident Fund)
Act, Revised Statutes 1930, Ch. 253, as amended by Ch. 75, 1933.
(2) Workmen's Compensation Act—Employer individually hable.
Ch. 252, Revised Statutes 1930, as amended by Ch. 80, 1931.
2.—Scope.
(a) Categories of ivorkers covered.
Collective Liability Schemes
The collective liability schemes cover, for the industries included,
all persons under a contract of service or apprenticeship, whether
working by way of manual labour or otherwise. In Manitoba persons
engaged in purely clerical work are not covered.
1
A further amendment, Ch. 33, was passed a t the beginning of 1934 and
Ch. 32 in 1935.
2
A further amendment, Ch. 80, was passed in 1935.

¡v 2

l-tS

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

Certain categories of workers are excluded from the schemes in
some provinces as follows :
(1) Outworkers are outside the schemes in Manitoba, Ontario,
Quebec and Saskatchewan. In British Columbia, New Brunswick
and Nova Scotia, they are outside unless admitted by the Workmen's
Compensation Board on the application of the employer. In Alberta,
they may be brought under the scheme by the Board on the application
of the workers themselves with the consent of the employer.
(2) Persons in employment of a casual nature and who are employed
otherwise than for the employer's trade or business are outside the
schemes in Ontario and Quebec ; in British Columbia, New Brunswick,
Nova Scotia, Manitoba and Saskatchewan they may be admitted on
the application of the employer. In Alberta, the employer must
consent to their application for inclusion.
(3) Members of the employer's family are eligible for compensation
in Ontario, Quebec and Saskatchewan if they are on the employer's
payroll at the time of the accident. In Alberta and Manitoba, they are
within the schemes if admitted by the Board on the application of the
employer. In New Brunswick, and Nova Scotia, members of the family
of the employer residing with him are excluded but may be admitted
on the employer's application. In British Columbia, they are excluded.
(4) Domestic servants are outside the schemes in Alberta, British
Columbia, Ontario and Quebec. In Manitoba, New Brunswick, Nova
Scotia and Saskatchewan, they may be admitted by the Board on the
application of the employer.
(5) Farm labourers are outside the schemes in British Columbia,
New Brunswick, Nova Scotia, Ontario and Quebec. In Manitoba and
Saskatchewan, they may be admitted on application of the employer.
In Alberta, they may be admitted on the application of the employee
with the consent of the employer.
(6) Travelling salesmen not exposed to accident risks in the industry
are excluded from the schemes in British Columbia, New Brunswick
and Nova Scotia.
(7) Persons in industries of an itinerant nature assessments with
regard to whom it is impracticable or difficult to collect are excluded in
Alberta.
Individual Liability Schemes
Ontario and Quebec : Provisions are the same as under the collective liability scheme.
Alberta : The scheme covers persons under contract of service or
apprenticeship with an employer in any employment to which the Act
extends, whether by Avay of manual labour, clerical work or otherwise.
Persons employed otherwise than by way of manual labour, whose
remuneration exceeds $1,200 a year, and outworkers are excluded.
Saskatchewan : The scheme covers persons engaged in the employments to which the Act applies, whether by way of manual labour or
otherwise, under contract of service or apprenticeship or otherwise, and
every person in an industry excluded from the collective liability

CANADA

149

scheme (Workmen's Compensation Accident Fund Act, Ch. 253, Part
I). Persons employed otherwise than by way of manual labour, whose
remuneration exceeds $3,000 are excluded.
(b) Industries covered.
Collective Liability Schemes
The main groups of industries covered under these schemes are the
following :
Manufacturing ; lumbering and connected industries ; mining and
quarrying ; packing, carting, warehousing, etc. ; canning and connected
industries; building and construction (except for construction carried
on by transportation or communication companies in Quebec and
Ontario) ; printing ; engineering ; fishing ; transport and communications
including telephone, telegraph fines, etc. (except Ontario and Quebec) j 1
dyeing, cleaning and bleaching ; steam laundries ; scavenging and street
cleaning ; public utility works ; theatres and pictures ; hotels and
restaurants in Alberta and New Brunswick ; hospitals in New Brunswick ;
and retail stores in Alberta and New Brunswick.
The Workmen's Compensation Board may exclude or include any
industry from or within the application of the Act in Alberta, Manitoba,
New Brunswick (Board may recommend inclusion to Governor in
Council) ; Nova Scotia ; Ontario ; Quebec and Saskatchewan (Board may
recommend inclusion to Lieutenant-Governor in Council).
Any undertaking not within the scope of this scheme may be
admitted by the Board on application of the employer in Manitoba,
New Brunswick, Nova Scotia, Ontario,- Quebec and Saskatchewan.
In Alberta, an establishment, etc., may be included on application by
the majority of the workmen employed in the establishment or by any
one person, or on application by the employer or employers. In the
case of farming, casual employment, outworkers or itinerant employment, the consent of the employer is required.
In British Columbia the Board may include other industries ; an
undertaking may be admitted on application by the workmen or by
the employer.
Individual Liability Schemes
Quebec and Ontario : The individual liability schemes, established
under the same Acts as the collective schemes, cover employers operating
railways and railway shops, etc., telegraph and telephone lines and
works, express companies, navigation lines, towing and marine wrecking enterprises, and construction carried on by these companies; as
well as municipalities and other corporations carrying on a trade or
business within the scope of the Act.
Alberta and Saskatchewan : The individual schemes cover workers
employed by railways, in factories, mines, quarries, engineering works,
and buildings being constructed, repaired or demolished, as far as these
industries or workers have not been included under the collective
liability schemes established later on. In fact, most of the workers in
1
In Saskatchewan and Alberta, certain categories of railwayman are covered
by the individual liability schemes. In Saskatchewan fishing and navigation are
excluded among others.

150

INTERNATIONAL SURVEY OF SOCIAL SERVICES, li>33

the employments enumerated are now covered by the collective
liability schemes ; only certain categories of railwaymen are still
covered by the old Workmen's Compensation Act (individual liability),
and casual workers in Alberta.
(c) Undertakings covered.
In a number of provinces, undertakings employing less than a
certain number of workers are excluded from the collective liability
schemes.
In New Brunswick, Nova Scotia, Ontario, Quebec and Saskatchewan,
the Board may exclude any undertakings in which not more than a
stated number of workmen are usually employed. This number varies
according to provinces and according to classes of industries.
The employer, however, may elect to remain under the scheme or
any workman may desire such undertaking to be included in Ontario,
Quebec and Saskatchewan.
3.—Administration.
Collective Liability Schemes
Accident Funds are created under the collective liability schemes in
all provinces and administered by a Workmen's Compensation Board
or commission. The Board is a body corporate, and consists generally
of three members appointed by the Lieutenant-Governor in Council.
One of the commissioners is designated by the Lieutenant-Governor in
Council to hold the office of chairman.
The Board pays compensation out of the Fund or Funds {Alberta),
determines aU claims and settles all questions arising under that part of
the Act which refers to collective liability; its decisions are final and
conclusive on questions of fact. The Board may, however, reconsider,
alter, or amend its decisions or orders.
Appeal on questions of law and jurisdiction is allowed, to the
Supreme Court in New Brunswick and Nova Scotia. In Quebec the
Superior Court of the district of Quebec, may upon petition of the
commission or any interested party homologate the decision.
In Alberta and British Columbia the Board is entitled to contract
with doctors, nurses and hospitals or other institutions for any medical
aid required. In the other provinces, medical aid under the collective
liability scheme is furnished or arranged for by the Board.
Contributory plans for providing medical aid established by the
employer may be approved by the Board in Alberta and British
Columbia. In the other provinces, arrangements by the employer for
furnishing medical aid at least as favourable as that provided for by the
Act may be approved by the Board.
Individual Liability Schemes
Ontario and Quebec : Employers in certain industries considered
capable of bearing their own risks are excluded from the Accident
Fund and are rendered individually liable to pay compensation.
The schemes are administered by the Workmen's Compensation
Board (commission). As a rule, compensation is paid by the employer

CANADA

151

to the Eoard, which forwards the cheque, etc., to the workman or
dependants. The Board may require the employer to insure his
workers in a company approved by the Board.
Alberta : Any questions under the Workmen's Compensation Act,
1908, if not settled by agreement or a joint arbitrator, are settled by
arbitration before the ordinary courts. Appeal on questions of law lies
to the Appellate Division of the Supreme Court.
Saskatcheivan : Compensation may be recovered by action in the
district court. Appeal upon questions of law or mixed questions of
law and fact lies to the Court of Appeal1.
4.—Financial Resources.
Under the collective liability schemes, an Accident Fund, or several
Funds for different groups of industries (Alberta) is created, out of
which compensation is paid ; the funds are provided by contributions
of employers.
In Ontario, compensation in case of injury by accident to blind
workmen employed and coming within the scope of the Act is reimbursed
to the Board or the employer (where individually liable) out of the
Consolidated Revenue Fund, if it exceeds $50.
In Alberta and British Columbia, a contribution towards the cost of
medical aid may be retained from the moneys earned by the workman
of an employer, either under a plan for providing medical aid approved
by the Board, or as required from time to time by the Board paying
the cost of medical aid2.
Contributions to the expenses of the Board are paid out of the
Consolidated Revenue Fund in British Columbia (maximum $50,000)
Manitoba, Ontario (maximum $100,000), Quebec (maximum $100,000)
Saskatchewan (contribution not exceeding $25,000 to meet initial
expenses).
Employers individually hable for the payment of compensation pay
compensation either to the workman directly or to the Board.
5.—Benefits.
Collective Liability Schemes
(a) Definition of risks.
The collective liability schemes cover :
(1) personal injury by accident arising out of and in the course of
employment ;
(2) disablement or death caused by any of the industrial diseases
enumerated in the Act or by regulations, if due to the nature of any
employment in which the worker was engaged at any time within
twelve months previous to the date of his disablement. If the worker
suffering from such a disease was employed at or immediately before
the date of the disablement in any process set out opposite the disease
1
In Nova Scotia, compensation for workmen employed in fishing is governed
by special provisions.
2
A special medical fund is established in British Columbia. The workers'
contribution is 1 cent per day.

152

INTEBNATIONAL SUE VE Y OF SOCIAL SERVICES, 1933

in the schedule, the disease is deemed due to that employment unless
the contrary is proved, except in Manitoba and New Brunswick.
Compensation is payable for fatal cases or cases disabling the worker
from earning full wages at the work at which he was employed ; in most
provinces, minor cases are excluded from compensation in the form of
cash benefits and entitled to medical benefits only. The minor cases
excluded are those disabling for not more than :—three days in
Alberta, British Columbia and Manitoba; six days in New Brunswick,
Nova Scotia, Ontario, Saskatchewan and Prince Edward Island, and
seven days in Quebec.
In Alberta, New Brunswick and Prince Eduard Island temporary
reduction of earning capacity of 10 per cent, or less is not compensated.
(b) Benefits in kind.
(1) Medical benefits.—Medical benefits are granted in all cases of
disability, including those for which no cash benefit is payable.
Medical benefits include in all provinces medical and surgical treatment, hospital treatment, nursing and the supply of artificial members
and apparatus. Dental treatment is given in Ontario ; the provision of
medicines is explicitly included in Alberta, British Columbia, Manitoba
and Quebec.
All medical services necessary as a result of the injury are provided,
the necessity, character and sufficiency of the aid being determined by
the Board. Artificial members, etc., are to be kept in repair, usually
for one year.
In Nova Scotia medical benefits are granted for a period of not more
than 30 days, such period not to extend beyond 60 days from the date
of the disability.
(2) Rehabilitation.—The Board may take measures to aid in getting
the injured workman back to work and to assist in lessening or removing
any handicap resulting from the injury. The expenditure under this
heading shall not exceed §15,000 per year in New Brunswick, $20,000 in
Alberta and Nova Scotia and §100,000 in Ontario and Quebec.
(3) Accident Prevention.—In all provinces, the Board may grant a
contribiition towards expenses of accident associations created for the
purpose of accident prevention.
(c) Cash benefits.
In all cases of incapacity for which cash benefits are payable,
periodical payments are granted during incapacity.
A waiting period, however, is provided for in most provinces as
follows : three days in Alberta, Manitoba and British Columbia (where
incapacity lasts more than 14 days compensation is payable from the
first day in British Columbia) ; seven days in Quebec ; where the disability lasts at least three weeks,1 compensation is payable from the
first day ; no wailing period in New Brunswick, Nova Scotia, Ontario and
Saskatchewan.
A maximum rate is usually provided for by limiting the annual
amount of the average earnings taken into consideration for computing
the compensation; this limit is §2,000 in Alberta, British Columbia,
1

Ch. 80, 1935 : 7 days.

CANADA

153

Manitoba, Ontario, Quebec and Saskatchewan; §1,200' in Nova Scotia;
55 per cent, of $125 per month in New Brunswick and Prince Edward
Island (Government employees).
1. Temporary incapacity.
(a) Total incapacity.
In cases of total incapacity compensation consists in weekly payments equal to a certain percentage of the average earnings of the
workman before the accident. This percentage is : 55 in New
Brunswick and Prince Edward Island ; 60 in Nova Scotia ; 66£ in British
Columbia ; 6 6 | in Alberta, Manitoba, Ontario, Quebec and Saskatchewan.
A minimum rate of compensation is, however, guaranteed in all
provinces; where the workers' average earnings are less than the
minimum rate, an amount equal to the total earnings is paid. The
minimum rate per week is : $5 in British Columbia and Nova Scotia ;
$6 in New Brunswick and Prince Edward Island; $10 in Alberta and
Quebec,2 and $12-50 in Manitoba, Ontario and Saskatchewan.
(b) Partial incapacity.
In case of partial incapacity the corresponding percentage of the
difference between the average earnings before the accident and the
average amount which the worker is earning or able to earn in some
suitable employment or business after the accident is paid during
incapacity.
In New Brunswick and Prince Edward Island the rate may not be
more than 55 per cent, of $125.
(c) Commutation of weekly payments for lump sum payment.
In all provinces the Board may commute the weekly payments for
a lump sum payment. The consent of the worker is required in
Manitoba.
2. Permanent incapacity.
(a) Total incapacity.
In case of permanent total incapacity, the rate of compensation is
the same as for temporary total incapacity but payable during life-time.
In all provinces except Manitoba, the minimum rate is also the
same as for total temporary incapacity; in Manitoba, the minimum
rate is $15.
(b) Partial incapacity.
In case of permanent partial incapacity compensation is computed
in the same way as for temporary partial incapacity in all provinces
except New Brunswick. In New Brunswick, payments are made on a
scale computed by the Board and proportionate to the diminution of
earning capacity and the degree of disfigurement, the maximum amount
payable being $2,500.
1
By an Act of 2 May 1934 it is provided t h a t the average earnings shall not
be deemed to be less than §10 per week, the minimum rate for total incapacity
being $6, provided t h a t the worker's rate of remuneration is such t h a t if he had
worked 6 days his earnings would have been a t least $10 a week.
2
Ch. 80, 1935 : §12-50.

154

INTERNATIONAL SURVEY 01' SOCIAL SERVICES, 1933

111 Alberta, Manitoba, Neio Brunswick, Ontario, Quebec and
Saskatchewan a lump sum payment is made instead of periodical
payments where the impairment of earning capacity does not exceed
10 per cent., unless in the opinion of the Board this would not be to the
advantage of the workman.
The average weekly earnings before the accident are generally
taken to be the average earnings of the workman injured1 ; in Alberta,
however, the earnings of workmen employed at similar work in the
same occupation have been substituted for the individual earnings since
1932.
(c) Invalidity without diminution of earnings.
In Alberta, British Columbia, Manitoba and Nova Scotia the
Board may also grant compensation in cases where there is no substantial diminution of earnings, if the worker is seriously and permanently
disfigured about the face or head or otherwise permanently injured.
In Ontario, Quebec and Saskatchewan, the impairment of earning
capacity may be estimated from the nature of the injury having in view
the worker's fitness to continue the employment in which he was
injured or to adapt himself to some other suitable occupation.
In practice, all Boards have adopted rating schedules for certain
definite physical disabilities, such as amputation of different members
of the body at different joints and also loss of movement of different
joints, loss of eyesight, of hearing, loss of a definite organ such as kidney,
and for certain definite disabilities of this kind. In these cases, compensation is paid whether there is incapacity or lessened capacity or
not.
(d) Commutation for lump sum.
In New Brunswick, Nova Scotia, Quebec, Ontario, and Saskatchewan
the payments may be commuted for a lump sum payment by the
Board. Commutation may be made upon application of the workman
only in Alberta, British Columbia and Manitoba.
3. Death.
In case of death, compensation is granted to the dependants of
the deceased workman as follows :
(a) Burial expenses not exceeding : $100 in British Columbia,
New Brunswick, and Nova Scotia ; $125 in Alberta, Ontario, Quebec and
Saskatchewan; and §150 in Manitoba.
(b) The widow or invalid widower receive monthly payments of :
§30 in Neiv Brunswick and Nova Scotia; $35 in Alberta and British
Columbia; and $40 in Manitoba, Ontario, Quebec and Saskatchewan.
In Ontario, Quebec and Saskatchewan a lump sum of $100 is in
addition paid to the widow.
(c) For each child, monthly allowances are paid to the widow ;
the rate per child is : $7-50 in British Columbia, New Brunswick,
Nova Scotia, and Prince Edivard Island ; $10 in Ontario, Quebec and
1
I n Nova Scotia, the earning capacity before the accident shall, according
t o the new Act of 1934, in no case be deemed to be less t h a n S10 per week except
where the worker's earnings would, if he had worked six days per week, be
less t h a n $10.

CANADA

155

Saskatchewan; and $12 for the first, $10 for t h e second, $9 for the
third, a n d $8 for every other child in Alberta a n d Manitoba.
Payments to t h e widow or invalid widower and children m a y in
t h e aggregate not exceed $60 per month in Nova Scotia and $65 in
British Columbia.
(d) Orphans receive $15 a m o n t h each ; t h e aggregate amount
payable per m o n t h is, however, limited to $60 in British Columbia and
Nova Scotia.
Allowances for children are generally paid until the child reaches
t h e age of 16 years 1 (New Brunswick and Prince Edward Island 18 years
for girls) ; no age limit being fixed for invalid children.
I n Alberta, British Columbia and Manitoba the age limit m a y be
extended to 18 years where in the opinion of the Board further or better
education appears advisable.
A person acting as foster mother t o the orphans shall be entitled
t o compensation for herself and the children as if she were the widow
until the children have reached t h e age of 16 or died.
If a dependent widow remarries, the monthly payment (not
including allowances for children) ceases ; t h e widow receives, however,
a sum amounting t o : $400 in Alberta ; 24 monthly allowances in
British Columbia (maximum $480), Manitoba, Ontario, Quebec, and
Saskatchewan; 12 monthly payments in Neiu Brunswick; $500 in Nova
Scotia.
(e) Dependants other t h a n widow or children : I n
British
Columbia parents are entitled to a monthly payment not exceeding $30
where the deceased leaves no children or no widow.
Generally where there is no widow or children the other dependants
are entitled t o compensation ; the monthly payments under this
heading shall be reasonable and proportionate to the loss.
They
m a y n o t exceed : $30 to parents or $65 altogether in Alberta ; $30 to
parents or $45 altogether in British Columbia and Nova Scotia ; $20 per
dependant and $40 altogether in Manitoba ; and a sum reasonable and
proportionate to t h e loss in New Brunswick, Ontario, Prince Edward
Island, Quebec and Saskatchewan.
Where there are both total and partial dependants, the compensation m a y be allotted partly to t h e total and partly to the partial
dependants.
(/) Maximum amount of compensation (excluding burial expenses):
No maximum amount is fixed in Alberta. I n British Columbia payments t o widow and children m a y not exceed $65 a month, payments
t o orphans $60, payments to widow or children a n d parents $65. I n
Manitoba, Ontario, Quebec and Saskatchewan payments in the aggregate
shall not exceed 66f per cent, of the average earnings of the workman ;
in Nova Scotia 60 per cent. ; in Prince Edward Island 55 per cent. ; and
i n New Brunswick 55 per cent, of $125 per m o n t h including compensation for disability.
(g) Minimum amount of compensation : I n Manitoba a minimum
weekly payment of $12 • 50 is guaranteed to a widow or invalid widower
with one child, and $15 to a widow with two or more children. The
1

Quebec. Ch. 80, 1935 : 18 years.

156

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

minimum for a widow or invalid widower with one or more children is
$10 in Quebec1 and §12-50 in Ontario and Saskatchewan.
Individual Liability Schemes
(a) Definitimi of risks.
Ontario and Quebec : Risks covered are- the same as under the
collective liability scheme.
Alberta : The scheme covers personal injury by accident arising
out of and in the course of the employment provided the worker is
disabled from earning full wages at the work at which he was employed.
Saskatchewan : The scheme covers injury disabling the worker for
at least one week from earning wages at the work at which he was
employed.
(b) Benefits in kind.
Ontario and Quebec : Benefits are the same as under the collective
liability scheme.
Alberta and Saskatchewan : None.
(c) Cash benefits.
Ontario and Quebec : Same benefits as under the collective liability
scheme. Commutation of periodical payments by a lump sum is
allowed with the consent of the worker and the Commission (Quebec)
or Board.
In Ontario, the Board may on application of the employer allow
commutation where the periodical payment has been continued for not
less than six months.
Alberta.
1. Temporary incapacity.
In the case of total temporary incapacity, compensation amounting
to 50 per cent, of the average weekly earnings of the worker is payable
subject to a maximum of $10 per week. If the worker is under 21
years and earns less than $10 a week, the rate of compensation shall
be the full amount of his earnings subject to a maximum of $7.50.
In case of partial incapacity, weekly payments are granted, not
exceeding the difference between the amount the workman earned
before the accident and the amount he is earning or able to earn in some
suitable employment or business after the accident.
Redemption of weekly payments by a lump sum payment is allowed
after six months. The amount shall be such sum as the Court deems
just.
2. Permanent incapacity.
Same provisions as for temporary incapacity.
3. Death.
If the worker leaves total dependants, the dependants shall receive
a sum equal to the worker's earnings during the last three years, or
$1,000, but not more than $1,800.
Any weekly payment or lump sum paid shall be deducted from such
sum.
1

Ch. 80, 1935 : $50 ft month where one child; $54-16 if two or more children.

157

CANADA

Where the worker leaves partial dependants, an amount agreed
upon or determined by arbitration, reasonable and in proportion to the
loss to the dependants shall be paid.
Where there are no dependants, reasonable expenses of medical
attendance and burial not exceeding $200 are paid.
Saskatchewan : Compensation not exceeding an amount equivalent to the earnings during the last three years of persons employed in
the same grade in like employment, or a sum of $2,000 is payable,
but not more than $2,500.
6.—Statistics for 1933.
NUMBER OF INSURED PERSONS AND PAY ROLLS

Number of workers
covered

Province
Alberta
British Columbia
Manitoba ...
New Brunswick ..
Nova Scotia
Ontario ...

Total pay roll
S

56,921
110,000
45,000

60,254,750
102,000,000
44,194,872

'.'.'.

31,647,059
286,273,000
(Schedule I.)
'.'.'.
—
23,017,292
1
" Owing to seasonal industries in New Brunswick, it is impossible to estimate the number
of workers covered by the Compensation Act." (Statement from Board.)
Quebec
Saskatchewan

—
—

NUMBER OF BENEFICIARIES (ACCIDENTS AND DISEASES)

Province

Fatal
cases

Permanent
incapacity
Total

Alberta 1 ...
British Columbia
Manitoba...
New Brunswick
Nova Scotia
Ontario
Quebec
Saskatchewan

21
97
10
26
40
167
122
13

Partial
57

15
4
3
—

•

14
o

487
156
348
318
1,526
1,097

Temporary
incapacity

Medical
aid

8,082
7,575
10,100
2,680
2,655
3,606
2,700
3,430
1,387
15,489
16,5103
11,235
14,267
1,139
1,082'

Other
cases

_
1,103

—
318. s
—„

_
~

Total

8,160
18,274
6,608
6,683
5,493
33,706
26,723
2,256

Refers to number of cases reported in 1933; number of medical aid cases disposed of in
1933 was 2,242.
'3 Claims disallowed.
Does not include the large number of cases of medical aid only in industries in which employer
is individually liable. This cost is borne directly by the employer.
ALBERTA,
INCOME

Employers' contributions
Medical aid contributions from
workmen
Interest and investment earnings
Dominion Government pension
awards
Other income

Total

1933
EXPENDITURE

674,718-40
179,609-56
188,325 • 1!)
769-43
3,927-22

1.047,349-80

Benefits in kind :
Medical aid
Rehabilitation
Cash benefits :
Temporary incapacity, funeral,
etc
Less balance in reservo

$
143,674-74
1,117-96
291,405-68
35,452-00

255,953-68
Pensions (permanent incapacity
and death)
495,840-56
Reserve for contingencies
...
3,877-89
Cost of administration including
mine rescue cars and stations... 113,241-62
Reserve for disasters
15,028-65
... 1.028,735 10
Total

INTERNATIONAL SUEVEY OE SOCIAL SERVICES, 1 9 3 3
BALANCE SHEET AS AT 31 DECEMBER

1933

ASSETS

LIABILITIES

... 3,528,201-70
Investments
45,454-54
J nterest accrued
9,294-98
Debenture coupons past due ...
... 201,285-43
Cash in banks
47,869-79
Due from employers
Other assets :
Accounts receivable 1,520-68
Advances to employees secured by
mortgages
... 290 00
Court costs advanced 635 • 75
.Supplies on hand ... 1,900 • 00
Deferred expense ...2,000 00
6,346-43
Total

Pensions fund reserve
Accident fund reserve
Medical aid reserve
Reserve for disasters
Claims pending ...
Contingencies
Deferred income ...
Suspense

3,838,452-87

Total

B R I T I S H COLUMBIA,

1933

INCOME

9,269,871 • 65
171,467 14
52,878-33
152,587-32

Investments
Interest
Cash in banks
Due from employers

... 9,646,804-44

Total

Benefits in kind :
Medical aid
308,482-67
Cash benefits :
Temp, incapacity
591,153-46
Pensions paid (Perm, incapacity
and death)
1,130,923 02
Invested for pensions and cash... 162,492-67
Cost of administration
86,704-52
Loans to classes repaid
106,873-31
Balance :
Investments
865,00000
Cash Total
10,250-97
.. 3,353,852-82
Balance to credit of medical aid
31,972-20

BALANCE SHEET AS AT 31 DECEMBER
ASSETS

1933
LIABILITIES

8,530,265-41
Pensions liability
770,045-20
Compensation outstanding
Compensation
deferred
(un5,420-17
claimed cheques)
53,204-34
Contingent fund
Balance to credit of med. aid
31,972-20
255,897 12
fund
Balance to credit of classes ...
9,646,804-44
Total

MANITOBA,

1933

INCOME

EXPENDITURE

Employers' contributions
Dominion Government
Penalties
Interest
Investments sold, etc. ...
Cash in banks (Dec. 1932)
Other receipts

623,419-25
6,668-40
1,352-88
156476-84
827,422-11
146,046-68
12,385-89
1,773,472 05

Total

Benefits in kind—medical aid ... 138,296-69
Cash benefits :
Temp, incapacity
207,407-22
Pensions (perm. inc. and death) 293,665 • 65
Cost of administration
72,415-41
Investments
791,945-25
Cash in Banks (Dec. 1933)
... 263,820 • 94
Other expenditure
5,920-89
Total
1,773,472 05

BALANCE SHEET AS AT 31 DECEMBER
ASSETS

Investments
Cash in banks
Due from Dominion
ment
Due from employers
Other assets
Total

3,838,452-8-

EXPENDITURE

S
Employers'contributions
... 1,747,499-73
Employers'medical aid
... 189,038 10
Workers' contributions to cost
of medical aid
192,979-79
Interest
417,142-94
Contingent fund
32,352 18
Balance :
Investments
586,180-89
Cash
117,792-33
Medical aid
18,436-98
Pensions
52,429-88
... 3,353,852-82
Total

2,818,149-81
478,939 06
50,805-54
312,564 13
130,820-00
27,203-83
3,354-7"
16,615-73

3,012,258-23
263,820-94
Govern-

5,586-88
—
6,016-49
3,287,682-54

1933
LIABILITIES

Pensions'liability
2,765,749-33
Compensation (other) outstanding
298,385-65
Equalisation fund
223,547-56
Total

... 3,287,682-54

159

CANADA
N E W BBUNSWICK,

1933
EXPENDITURE

INCOME

Employers' contributions
Interest
Overdraft from bank ...
Cash in banks
Special fund
Total

389,864-71
31,203-07
19,776-60
11,40305
38,444-23

451,138-46

Benefits in kind—medical aid ...
Cash benefits :
Temporary incapacity
Pensions (permanent incapacity and death)
Burial awards
Cost of administration
Grants to safety associations ...
Total

S
151,876-33
145,063 04
20.6,238-59
2,126-15
61,891-39
2,250 00
569,445-50

BAI ANCE SHEET AS A T 31 DECEMBER 1933
ASSETS
LIABILITIES
S
.. 1,315,824-56
1,004,293-56
Pensions liability
Investments
21,194-54
32,372-61
Disaster reserve
Interest accrued
11,403-05
201,450 00
Other compensation outstanding
Cash in Banks
21,916-02
Medical
aid outstanding :
Due from employers
4,988-88
. 117,500-00
Due to employers
Estimated from employers
7,622-61
19,776-60
Bank savings special fund
Overdraft from bank
142,579 13
Balance
1,495,460-78
Total
.. 1,495,460-78
Total
NOVA S C OTiA, 1 9 3 3
INCOME

Employers' contributions
Interest
Investments
Cash in banks

.
..
..

Total

519,921 • 78
340,626-26
141,651-47
63,067-45

.. 1,145,266-96

EXPENDITURE

BALANCE SHEET AS AT 31 DECEMBER
ASSETS

Investments
Interest accrued
Cash in Banks
Due from employers
Other assets :
Deficit in fishing sub-class

..
..
..
..

S
7,854,255-58
121,941-18
112,38808
35,836-77
380,583-18

.. 8,505,004-79

Total

Benefits in kind—medical aid ...
68,532-90
Cash benefits :
399,947 • 97
Temporary incapacity
Pensions (permanent incapa386,168-30
city and death)
98,182-86
Cost of administration
112,388 08
Cash in banks
46-85
Other expenditure
1,145,266-96
Total

ONTAEIO,

1933
LIABILITIES

Pensions liability
Other compensation outstanding
Medical aid outstanding.
Other liabilities :
Due employers on account of
adjustments in assessments
Sundry accounts payable
Disaster reserve and reserve
for contingencies
Balance
Total

S
5,325,061-86
1,458,663 05
25,691-84
310,300-00
3,170 00
1,071,771-58
310,346-46
8,505,004 • 79

1933

Collective Liability Scheme (Schedule 1)
INCOME

EXPENDITURE

Employers' contributions (less
refunds)
... 2,470,185-80
Silicosis (contributions)
...
504,797-57
Dominion
Government and
Schedule 2 employers' contributions
64,657-34
Interest
... 1,131,02901
Investments
...
149,002-57
Cash in bank 1 Jan. 1933
11,370-20
Other receipts
18,668-09
Overdraft
...
419,17609
Total

... 4,828,887-57

S
Benefits in kind :
Medical aid
649,57104
Rehabilitation incl. clinic ...
11,581-66
Benefits :
Temp, incapacity
1,254,852-46
Pensions (perm. inc. & death) 1,889,130-25
Deferred compensation paid...
36,933-51
Silicosis benefits
109,201-59
Mine rescue work and safety
associations
149,330-97
Cost of administration
311,434-59
Investments
410,858-52
Cash in banks Total
(31 Dec. 33)
...
5,43106
Other expenditure
561-92
... 4,828,887-57

160

INTERNATIONAL SURVEY OE SOCIAL SERVICES, 1 9 3 3
BALANCE SHEET AS AT 31 DECEMBER

ASSETS

S
23,778,556-29
422,24700
5,43106

Investments
Interest accrued
Cash in banks •
Administration expenses :
Due from Dominion Government
15,888-89
Due from Province
22,065 • 72
Due from schedule 2 employers
25,860-86
Due from employers 1 (schedule
1)
-20,620-58
Short date
deposits
225,000-00
Total
...24,474,430-14

1933
LIABILITIES

Pensions liability
19,777,085-78
Compensation deferred
54,751-57
Compensation outstanding
... 1,179,875-98
Medical aid outstanding
266,838-12
Balance to credit of silicosis 715,508-89
amount
354-10
Balance to credit of rehabilita... 419,176-99
tion clinic amount
...
2,060,838-71
Overdraft
Balance
...24,474,43014
Total

74,375.00, less merit rating refunds.
94,995 • 58

Assessments due :

-20,620-58
Schedule 2 employers (individually liable) and Crown : Compensation (other than medical aid)
awarded in 1933 : S732.699.
PKLNCE E D W A B D I S L A N D ,

1933

The only workmen's compensation in Prince Edward Island is
payable under the Dominion Government Employees' Workmen's
Compensation Act which covers all employees of the Dominion Government including all railway workers in Prince Edward Island.
During the fiscal year, 1 April 1933, to 31 March 1934, the amount of
compensation paid in the Province of Prince Edward Island was
$178 -02. Of this, $73 • 73 was for two claims for compensation and one
for medical aid only by employees of the Department of Marine of the
Dominion Government. The balance $104-29 was for compensation
to an employee of the Department of Public Works of the Dominion
Government.
QUEBEC,

1933

Collective Liability Scheme (Schedule 1)
EXPENDITURE

INCOME

Employers' contributions and
other revenue
Interest
...
Cash in banks
Befunds to be made

2,580,414-42
67,793-25
403,679-13
29,790-71

3,081,677-51

Total

Schedule 2 employers (Individually liable)
in 1933: §405,830-58.

Benefits in kind :
430,555-29
Medical aid
Cash benefits :
786,940-81
Other than pensions
Pensions (permanent in130,290-18
capacity or death)
Cost of administration and
250,783-55
legal expenses
857,574-49
Investments ...
572,649-04
Cash in banks
484-13
Prepayments
52,400-02
Grants to Safety Associations 3,081,677-51
Total
: Compensation (other than medical aid) awarded

BAIANCE SHEET AS AT 31 DECEMBER
ASSETS

Investments ...
Interest accrued
Cash in banks
Due from
employers in
Schedule 2 for administration expenses
Accounts receivable
Balance a t debit of classes ...
Total

1933
LIABILITIES

1,792,150-47
22,065-84
572,649-04
38,490 01
121,499-83
83,199-49
2,630,054 • 68

Pensions liability
Compensation outstanding
Medical aid outstanding
Accounts payable
Disaster reserve

Total

..,

1,657,103-10
747,709-87
185,043-47
36,421-78
3,776-46

2,630,054-08

161

CANADA

SASKATCHEWAN,

1933

INCOME

Employers' contributions
Dept. of Pensions and National
Health
Interest
Investments sold
Cash in banks (1 Jan. 1933) ...
Other receipts ..
Total

S
315,560 14
253
45,115
69,425
131,597
1,874

40
51
52
44
90

563,826 91

EXPENDITURE

Benefits in kind—-medical aid
Cash benefits :
Temp, incapacity
..
Pensions (perm. inc. & death)
Cost of administration ...
Investments
...
Cash in banks (31 Dec. 1933) ..
Other expenditure
Total

BALANCE SHEET AS AT 31 DECEMBER

121,926
28,496
47,813
135,314
167,116
6,577

93
63
79
05
40
00

...

563,826-91

413,479
1,790
77,611
13,380
3,571
439,769
949,602

1933

ASSETS

LIABILITIES

Investments
Interest accrued..
Cash in banks ..
Other assets
Total

S
56,582 11

768,358 88
14,017-06
167,116 40
110 00
949,602 34

Pension liability
Compensation deferred ...
Compensation outstanding
Medical aid outstanding...
Assessments overpaid ...
Balance
Total

..
..

64
70
00
00
67
33
34

II.—Voluntary Social Insurance
A.—MINBBS'

RELIEF SOCIETIES IN NOVA SCOTIA

1.—Legal Basis.
Miners' Belief Societies Act, Ch. 186, Revised Statutes of Nova
Scotia, 1923, as amended by Ch. 49, 1928.
The Act provides that the Provincial Treasury may contribute to a
relief fund or society established either :
(1) by agreement between the employer and his workmen in coal
mines, or
(2) by the workmen in such a mine, or
(3) by the employer.
Where no such fund is established providing for sickness and death
benefits, a fund created by contributions of employers and workers,
and to be paid into the workmen's compensation board, may be
estabUshed by decision of the majority of the workers of the coal
mine.
2.—Scope.
The schemes cover all workmen employed by a coal mine. If
several mines decide to create a workmen's compensation relief society,
a common fund is established.
3.—Administration.
Miners' Voluntary Sickness and Death Benefit Societies
There are five miners' voluntary sickness and death benefit societies
in Nova Scotia. Each society has a committee representmg the
employees with a representative of the company an 1 a representative
of the Government of Nova Scotia.
x

G I2973

162

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

Workmen's Compensation Relief Societies
The funds established by a majority decision of t h e coal miners
under t h e Act are paid to the workmen's compensation board.
No societies exist under this p a r t of the Act. The following
information therefore refers to the voluntary benefit societies only.
4.—Financial Resources.
Contributions to the voluntary sickness funds are either furnished
by both employer a n d workmen or by t h e workers only, or by t h e
coal-mining company (employer) only. A contribution is paid by the
Treasury if t h e society conforms t o certain conditions.
The Government contributes to the funds of the five voluntary
benefit societies three-tenths of a cent per ton of sales from the
collieries with which the societies are concerned. I n case of death of
certain members of the societies, the Provincial Government grants $50.
5.—Benefits.
(a) Definition of risks.
I n order to obtain a contribution from the Treasury, the society
m u s t provide for benefits, in case of sickness, payable t o the workman,
a n d in case of death payable to the dependants. Benefits provided for
under the Workmen's Compensation Act are not taken into account.
(b) Benefits.
Pecuniary sickness a n d death benefits are paid.
6.—Statistics for 1933.
(1) Number of insured persons : 10,943.
(2) Number of beneficiaries : 378 of four societies. Number of
beneficiaries in fifth society not available.
Benefits are all cash
benefits.
(3) Income and expenditure of five societies, each handling their own
funds, for 1934 :
INCOME
S

EXPENDITURE
S

137,580-00
25,812-95
13,603-33
3,707-66
3,896-35
Total ... 184,600-29

111,797-00
25,001-23
10,899-23
3,213-72
4,907-79
Total ... 155,818-97

No details are available a t present as to proportion of income
received from employing companies and workers respectively. Governm e n t contribution is based on sales of coal with §50 additional in case
of death.
B.—WORKS

1.—Legal Basis.
N o legislation.

BENEFIT FUNDS

CANADA

163

2.—Scope.
A large number of Canadian firms have established some kind of
social insurance scheme for their employees ; for instance, the Canadian
National Railways, the Metropolitan Life Insurance Company, the
Imperial Oil Company, and other companies.
Generally all classes of permanent employees are admitted to the
benefit of the schemes. In some cases exceptions are made in respect of
the executive staff, onice employees and foremen, although these may
usually become members also under special conditions. Employees
receiving more than a stated salary are frequently excepted.
The employees must usually have been in the service of the company
for a certain period in order to qualify for benefits.
3.—Administration.
The benefit fund is usually administered by a board of trustees,
elected annually and composed of oificials of the company and representatives of the employees. The books are audited at regular intervals.
Many firms have adopted schemes of group insurance by arrangement with insurance companies.
4.—Financial Resources.
In a number of cases the entire cost of sickness insurance is borne
by the employing firm, and in many cases jointly by the employer and
the employees. Generally, however, the cost appears to be borne by
the employees alone.
The rate of contributions in the latter case is usually on a sliding
scale based on wages and ranging from 20 cents to $1 a month.
Where the cost is borne jointly by employers and employees, the
employer's contribution varies from one-third to the full amount
contributed by the employees. In some cases a certain percentage of
the monthly collections due is added by the firm, or the firm contributes
an annual lump sum to restore any deficit. In a great many cases the
employing firm merely furnishes the machinery for operating the
scheme.
The companies provide medical treatment at their own expense.
5.—Benefits.
(a) Risks covered.
The schemes generally cover non-occupational accidents and
sickness.
Benefit is as a rule payable for cases lasting over one week and not
compensable under the workmen's compensation acts, nor occasioned
by strong drink or immoral conduct, or participation in sports or
contests.
Cases of illness arising from chronic disease are usually excluded
from compensation.
(b) Benefits in kind.
1. Medical treatment.
Medical treatment is provided for, including in some cases the
supply of medicines.
L 2

164

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

I n m a n y cases employees are free to choose their own doctor, the
company paying the fee. The firms often have a yearly contract with
a doctor, paying a flat rate per employee, in return for which the
employees are guaranteed free medical attendance for themselves and
often their families, except in cases of confinement or larger operations.
Most of the larger concerns employ one or more doctors for medical
examinations and first-aid supervision.
The usual method of obtaining medical services is b y an order of
the employer or the benefit society.
2. Accommodation.
I n almost all establishments of any size a first-aid room or hospital
is maintained with a qualified m a n or nurses. These nurses, often
trained in social service work, also visit employees who are absent by
reason of sickness.
Rest rooms are maintained b y most firms.
Some have established dispensaries or equipped hospitals in remote
districts.
Two large plants have a special tuberculosis programme.
3. Prevention.
Health propaganda by pamphlets and conferences is made in a
number of cases. Regular medical examinations have also contributed
t o prevent sickness.
(c) Cash benefits.
Sickness benefits are generally graded according t o salaries or
scales of contributions.
Payments are as a rule restricted to 26 weeks ; sometimes they
extend to one year.

T H I R D PART

SOCIAL ASSISTANCE
I.—Non-contributory Pensions
A.—GENERAL

: OLD-AGE PENSIONS

1.—Legal Basis.
Dominion : Old Age Pensions Act, 1927, Ch. 35, assented t o
31 March 1927, as amended b y Ch. 40, 1931.
Alberta : Ch. 24, 1929, effective 1 August 1929, as amended by
Ch. 7, 1931.
British Columbia : Ch. 50, 1927, effective 1 September 1927, as
amended b y Ch. 47, 1931.
Manitoba : Ch. 44, 1928, effective 1 September 1928, as amended
by Ch. 37, 1929, Ch. 31, 1930, and Ch. 33, 1932.

CANADA

165

New Brunswick : Ch. 9, 1930, not yet effective, as amended by Ch.
15, 1931.
Nova Scotia: Ch. 2, 1931, effective 1 March 1934.
Ontario : Ch. 73, 1929, effective 1 November 1929, as amended by
Ch. 56, 1930, and Ch. 46, 1932.
Saskatchewan : Ch. 75, 1928, effective 1 May 1928, as amended by
Ch. 64, 1929, and Ch. 73, 1931.
Prince Edward Island : Ch. 7, 1931, effective 1 July 1933, as
amended by Ch. 18, 1934.
North-West Territories : Order in Council P.C. 114, 1929; effective
25 January 1928.
Yukon : Ordinance C.4, 1927, but no scheme for putting into
effect.
2.—Beneficiaries.
Old-age pensions legislation is within the competence of the
Dominion. The Old Age Pensions Act, 1927, lays down the main
conditions under which the Dominion Government grants subsidies to
old-age pensions provided for by Provincial legislation. The Provincial
schemes must be approved by the Governor, and no change may be
made without his consent.
In order to be entitled to an old-age pension, the claimant, at the
date of the proposed commencement of the pension,
(1) must have resided in Canada for twenty years immediately
preceding that date, and in the Province for the last five years ;
(2) must be a British subject, or, in the case of a widow, have been
such before marriage ; Indians are excluded ;
(3) may not be in receipt of an income of $365 or more a year;
(4) may not have made any voluntary transfer of property for the
purpose of qualifying for a pension.
Agreements with the Dominion Government had been made, and
were effective on 31 December 1933, by the Provinces of Alberta,
British Columbia, Manitoba, Ontario, Prince Edward Island and
Saskatchewan. The Act is in force also in the North-West Territories.
Old-age pensions Acts were, moreover, passed in New Brunswick in
1930, where the Act has not yet become effective and in Nova Scotia,
where it became effective on 1 March 1934.
3.—Administration.
In all the provinces, a member of the Executive Council, that is, of
the Government, is charged with the administration of the Act, but,
under him, a permanent board or official is in charge.
The pensions authorities are the following :
In Alberta and British Columbia, the Workmen's Compensation
Board ;

166

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

In Manitoba, applications for pensions are first submitted to a local
authority, which makes recommendations to the Workmen's Compensation Board.which administers the Act ;
In Nova Scotia, the Director of Child Welfare has charge of the Act.
In Ontario, the Old-Age Pensions Commission and local old-age
pensions boards have been established; applications for pensions are
made in the first instance to the local board, which makes its recommendations to the Commission ;
In Saskatchewan, a Commissioner of Old-Age Pensions is appointed ;
In the North-West Territories, the Dominion Department of Labour
administers the Act ;
In Prince Edward Island, an Old-Age Pensions Board is established ;
In Alberta, Nova Scotia and Prince Edward Island, doubtful cases
are referred to a Board of Review.
4.—Financial Resources.
The Dominion Government pays 75 per cent, of the net sum paid
for old-age pensions by any Province which has entered into agreement
with it under the Old-Age Pensions Act.
The pension burden is distributed among the Provinces where the
pensioner has resided during the twenty years immediately preceding
the grant of the pension. The pension is reduced where a pensioner
has resided part of these twenty years in a Province with Avhich no
agreement is in force.
In Alberta, the municipalities concerned pay to the Province 10 per
cent, of the total pension amount. In Manitoba the municipalities pay
one half of the Provincial contribution. In Ontario, municipalities
of 10,000 inhabitants and over pay to the Province 20 per cent, of the
whole pension amount. No municipal contribution is levied in British
Columbia and Saskatchewan.
The scheme, however, is not wholly non-contributory ; the pension
authority is entitled to recover out of the estate of the deceased
pensioner, as a debt due by the pensioner, the amount paid in pensions,
together with interest at 5 per cent.
Such part of the estate as passes by will either to (1) a pensioner or
(2) a person who has regularly contributed to the support of the pensioner for the last three years, or since the grant of the pension to a
reasonable extent, is exempted from liability to repayment.
5.—Benefits.
(a) Definition of risks.
The pension is payable from the age of 70.
(b) Benefits.
The pension is $240 a year where the pensioner has no other income
in excess of $125; the pension is reduced by the amount of any
income in excess of $125.

167

CANADA

—Statistics.
CANADA : O L D - A G E P E N S I O N S
Number of pensioners
Number
at
31
March
1934

Province and date
of Act effective

Jberta (1.S.29) ...
ìritish
Columbia
(1.9.27)
tanitoba (1.9.28)...
¡"ova Scotia (1.3.34)
Intano (1.11.29) ...
'rince Edward
Island (1.7.33)
askatchewan
(1.5.2S)
lorth-West Territories (25.1.28)
Total

Per
Per
1,000 of 1,000 of
populatotal
popula- tion over
tion
70

Total
amount of
pensions
paid from
1 April
1933 to
31 March
1934
S
1,246,412

Dominion
Government
share,
March
1933-34

S
934,388

6,286

8-2

378-3

8,095
9,236
6,50»
46,281
1,258

11-2
12-6
12-4
12-9

331-6
449-2
240 • 3
300-7

141

9,203

9-5

0-5

56-2

1,398

86,873

—

16,566,117

12,313,595

B.—PENSIONS

Total
amount of
pensions
paid since
inception
of Old-Age
Pensions
Act

221-5

1,745,192
2,025,154
92,361
9,585,989
98,834

1,304,144
1,516,372
69,271
7,085,840
74,125

4,204,747
8,007,760
8,401,098
92,361
37,006,589
98,833

452-6

1,770,777

1,328,057

7,753,152

OF GOVEBNMENT RAILWAY

Dominion
Government
share
1927-1934

Average
monthly
pension

17-84

2,790,268
4,982,601
5,328,973
69,271
23,826,402
74,125

18-94
18-72
14-28
17-49

4,939,824

15-53

0,539

6,539

20 00

65,571,079

42,018,003

EMPLOYEES

1.—Legal Basis.

The Canadian National Railways Pension (formerly Grand Trunk)
Act, Ch.9, 1906-1907, as amended by Ch. 4, 1929, and Inter-Colonial
and Prince Edward Island Railway Employees Provident Fund Act,
Ch. 22, 1907 as amended by Ch. 5, 1929. Rules and regulations of
C.N.R. Pension Department, effective on 1 Aug. 1929.1
2.—Beneficiaries.

The scheme covers employees in the service of the Canadian
National Railways2. Service means continuous employment as an
employee of the Railway (including operation and construction, etc.,
of steamships, telegraphs, property and works by the Company).
Employee includes any officer or employee giving or required to givo
his whole time and attention to the business of the Company or jointly
to the business of the Company and of some other company or business.
3.—Administration.

The Canadian National Railways Pension Fund is administered by
the Pension Committee, consisting of nine members. Seven members
are officers of the Company and two members are elected from the ranks
of officers of the recognised labour organisations on the Canadian
National Railways by vote of such officers.
1
New regulations came into force on 1 J a n u a r y 1935 providing for t h e
p a y m e n t of a non-contributory basic pension b y t h e railway company and
supplements on a contributory basis.
2
The Inter-Colonial a n d Prince E d w a r d Island Railway Employees Provident
F u n d , established on a contributory basis, was closed t o new members in August
1929, a n d employees of this railway who were n o t members of the fund were
placed u n d e r t h e C.N.R. Pension Act. The Grand T r u n k Railway of Canada
Supervision a n d Provident F u n d Association was closed t o new members on 31
Uocember 1007.

10-68

—

168

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

4.—Financial Resources.
Pensions are paid by the railway company.
5.—Benefits.
(a) Definition of risks.
1. Old age and discharge.
An employee is entitled to a pension :
(a) at sixty-five years of age or over after fifteen or more years of
service ;
(6) at fifty years or over after fifteen years of service in case of
discharge otherwise than for misconduct.
The retiring age is generally sixty-five subject to special permission
to continue service after attaining that age.
2. Invalidity.
A pension is payable :
(a) at sixty to sixty-five years of age after twenty years or more of
service in case of certified unfitness of the employee to follow his usual
or any other suitable employment in the company's service for reasons
of permanent physical or mental disability ;
(6) after ten or more years of service in case of incapacity to
continue service by reason of injuries received whilst actually at work
in the employment of the company.
(b) Cash benefits.
The pension consists of an annual allowance of one per cent, for
each year of service calculated on the highest average rate of the
employee's wages or pay during any ten consecutive years of his
service. Minimum $25 per month. 1
In case of incapacity due to injury the pension is payable for the
duration of the incapacity.
6.—Statistics for 1933.
1. Number of assisted persons.
The number of employees covered by this scheme was on an
average 70,625 in 1933. The number of employees who retired
during the year and the number of persons in receipt of a pension
at the end of the year were as follows :
Fund.
Canadian National Railways Pension Act
Grand Trunk Railway of Canada Superannuation
a n d Provident F u n d (closed to new members
in 1908)
Inter-colonial and Prince E d w a r d Island Railways Employees' Provident F u n d (closed to
new members in 1929) ...
1

Number
retired
during
the year
495

Number in
receipt of
pensions at
the end of
the year
3,195

150

216

1,661

According to the new scheme every employee who joins the service after
1 J a n u a r y 1935 before attaining the age of 45 years will upon retirement receive
a non-contributory basic pension of $300 per year. After ten years of service
he is eligible to become a contributor to a supplemental annuity. Special
provisions apply to employees in service prior to 1 January 1935.

CANADA

169

The 3,195 ex-employees of the C N R . were in receipt of pensions
amounting to $1,869,852 for the year 1933.
2. Expenditure in 1933.
The total cost of the scheme Was 3,105,264 dollars, including 11,366
dollars for salaries and expenses. Data of costs of administration are
not available as these are a charge against the general costs of the
Company.

H.—Maternity Assistance in British Columbia
1.—Legal Basis.
Maternity Protection Act, Ch. 155, Revised Statutes 1924 (Ch. 37,
1921).
2.—Beneficiaries.
The provisions on maternity assistance apply to any female person,
irrespective of age or nationality, whether married or unmarried, in
industrial or commercial undertakings, pubhc or private, except an
undertaking in which only members of the same family are employed.
3.—Administration.
The Lieutenant-Governor in council may make regulations concerning the administration of the Act.
4.—Financial Resources.
The employer bears the cost of wages paid during absence due to
confinement.
5.—Benefits.
(a) Definition of risks.
A woman under the Act is not permitted to work during the six
weeks following the confinement.
She has the right to leave her work if she produces a medical certificate stating that her confinement will probably take place within six
weeks.
A mother nursing her child is allowed half an hour twice a day for
this purpose.
(b) Benefits in kind.
None.
(c) Cash benefits.
The employer continues to pay wages to the woman during her
absence, as above defined, due to confinement.
(No statistics available)

m.—Allowances in respect oí Dependent Children to Mothers
or Other Persons in charge oí such Children
1.—Legal Basis.
Alberta : Ch. 215, Revised Statutes, 1922, as amended by Ch. 51,
1923 (Ch. 17, 1926, not proclaimed) Ch. 33, 1927, and Ch. 9, 1930.

170

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

British Columbia : Ch. 42, 1931, as amended by Ch. 36, 1932.
Manitoba : Ch. 30, Consolidated Amendments, 1924, sections 19-28,
as amended by Ch. 4, 1926, Ch. 3, 1927, Ch. 2, 1930, and Ch. 5, 1931,
and Order in Council 1643/32 of 28 December 1932.
New Brunswick : Ch; 10, 1930.
Nova Scotia : Ch. 4, 1930.
Ontario : Ch. 280, Revised Statutes of Ontario, 1927, amended by
Ch. 47, 1928, Ch. 23, 1929, Ch. 55, 1930, Ch. 23, 1931, Ch. 53, 1932,
Ch. 36, 1933.1
Saskatchewan : Ch. 231, Revised Statutes, 1930 (sections 101-104),
as amended by Ch. 74, 1931.
2.—Beneficiaries.
Allowances are granted in respect of dependent children to mothers,
or in some provinces to foster-mothers, in the case of loss of adequate
support, where the following conditions are satisfied :
(a) Residence.
The mother or foster-mother as the case may be must reside in the
province at the time of application for the allowance in British Columbia,
New Brunsioick, Nova Scotia, Ontario and Saskatchewan, and have
resided prior to that date for at least one year in the province and two
years in Canada in Saskatchewan ; two years in the province in Ontario ;
three years in the province in British Columbia, and three years or
since marriage in the province in New Brunswick and Nova Scotia.
Moreover, the mother must have resided in the province at the time
when the father died, was disabled, or confined to an institution, etc.,
in New Brunswick, Nova Scotia and Ontario.
The husband or father must have resided in the province at the
time of his death or incapacity, etc., in British Columbia, New Brunswick,
Nova Scotia and Saskatchewan.
In Alberta, the mother must have resided in the province at the time
of the passing of the Act, or the father must have resided there at the
time of his death or the occurrence of the accident or sickness, or the
date of bis confinement in an asylum.
(b) Nationality.
No conditions as to nationality are made in Alberta and Saskatchewan.
The mother or foster-mother must be a British subject in British
Columbia, New Brunswick, Nova Scotia, Manitoba and Ontario. Indian
mothers are excluded in New Brunswick and Nova Scotia.
In Manitoba the law requires that the child must be born in Canada.
(c) Means test.
The mother or foster-mother as the case may be must be without
adequate means of properly maintaining the children. In Manitoba the
child must be without adequate means.
i Further amended by Ch. 54, 1934.

CANADA

171

The property limit for cash income varies from $200 to $500 according to province. For other property the limits are §1,500 in British
Columbia, $2,000 in Manitoba, §1,500 to §4,000 in Ontario, according
to size of township. Mother and children are expected to add to income
provided the children's welfare is not endangered thereby. Part of
the earnings is deducted from the allowance according to various
schedules.
(d) Dependency of children.
A dependent child is a child under the age of 16 in British Columbia,
Neiv Brunswick, Nova Scotia, Ontario and Saskatchewan; 15 for boys
and 16 for girls in Alberta ; 15 in Manitoba.
(e) Good character of mother or foster-mother.
The mother or foster-mother must be a fit and proper person to have
the care and custody of children.
3.—Administration.
The schemes are administered by the following authorities : In
Alberta, the Superintendent of dependent and deUnquent children ; in
British Columbia, the Workmen's Compensation Board; in Manitoba,
Nova Scotia and New Brunswick, the Director of Child Welfare; in
Ontario, the Mothers' Allowance Commission; in Saskatchewan, the
Commissioner of Child Protection. Special staffs of home visitors
exist in the various provinces.
4.—Financial Resources.
The cost of the allowances is carried entirely by the provincial
Treasury in New Brunswick, Nova Scotia and Saskatchewan. One half
is paid out of provincial and one half out of municipal revenue in
Alberta, British Columbia and Manitoba.
In Ontario, the province bears the whole cost of allowances paid to
persons resident in those parts of the province without county organisation (Northern Ontario). Por other persons, one half of the cost is
borne by the province and one half by the municipality.
5.—Benefits.
(a) Definition of risks.
Allowances are paid to the mother in the following cases :
1. Loss of father's support.
(a) Death of father : Allowances in respect of one or more
dependent children in Alberta, British Columbia and Saskatchewan ; two
or more dependent children in Manitoba, New Brunswick, Nova Scotia
and Ontario.
(6) Total disablement of father : Allowances in respect of one or
more dependent children where disablement is expected to continue at
least one year in British Columbia; two or more dependent children
where the disablement is permanent in Manitoba ; two or more dependent children where disablement is permanent, or one dependent child

172

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

where the invalid husband resides with the family in Ontario ; one or
more dependent children where the father is in a tuberculosis sanatorium, an institution for incurables or permanently incapacitated by
blindness, incurable disease or insanity from contributing sufficiently
to the support of the family in Saskatchewan.
(c) Insanity of husband and confinement in an institution :
Allowances in respect of one or more dependent children in Alberta,
British Columbia and Saskatchewan; two or more dependent children
in Manitoba and Ontario.
(d) Desertion of father : Allowances in respect of one or more
dependent children in British Columbia after two years' desertion ; two
or more dependent children in Ontario after five years' absence without
news ; one or more dependent children in Saskatchewan, if father has
been absent for seven years. The presumption is that he is dead.
(e) Imprisonment of father : Allowances in respect of one or more
dependent children in British Columbia and Saskatchewan.
2. Loss of father's support and grown-up child in charge of mother.
(a) Death of father and invalidity of grown-up child : Allowances
in respect of one dependent child in New Brunswick and Nova Scotia.
(b) Invalidity of father and grown-up child : Allowance in respect
of one dependent child in Ontario and Manitoba.
3. Loss of support of both parents.
An allowance is paid to the foster-mother, being the grandmother,
aunt, or sister or other suitable person, or to the mother as the case
may be in the following cases :
(a) Death of both parents : Allowances in respect of one or more
dependent orphans in British Columbia and Saskatchewan; two or
more dependent orphans in Manitoba and Ontario.
(6) Death of one parent and incapacity of other : Allowances in
respect of one dependent child in Nova Scotia and New Brunswick
where the father is dead and the mother incapable of earning sufficient
owing to permanent physical disability; one dependent child in
Manitoba where the father is dead and the mother temporarily or
permanently unable through physical or mental disability to provide
for the child ; one or more dependent children in Saskatchewan where
the mother is dead and the father incapable of supporting the children
for the reasons indicated under 1.
(c) Incapacity of both parents : Allowances in respect of one or
more dependent children in Saskatchewan and Manitoba.
4. Other cases.
Allowances may be paid hi other cases in respect of one or more
dependent children in British Columbia, and in special cases in Ontario.
(b) Cash benefits.—In Alberta, a mother of a single child is granted not
more than §20 a month and a mother of one child under the stipulated

173

CANADA

age is given a maximum allowance of $25. On this basis, adjustments
are made for other cases.
In British Columbia, the maximum per month is §42-50 to the
mother and first child, and $7.50 for every child thereafter.
In Manitoba, a special budget is established with specified amounts
for food, clothing, rent, fuel, etc. The maximum allowance to a mother
with three children is $60 a month (O.C. 28 December 1932). " Computation of the allowance within the maximum provided herein and
revision thereof from time to time shall be made in each case by the
Child Welfare Board."
In New Brunswick and Nova Scotia, the maximum is $60 a month.
In Ontario, the maximum for a mother with two children is $40 a
month in a city, $35 in smaller towns, and $30 in rural districts ; and
$5 for every other child. The maximum in all cases is $80.
In Saskatchewan, the maximum for any family is $30 a month under
the revised regulations made in 1931 to reduce allowances and other
expenditures on account of the depressed financial condition of the
province.
6.—Statistics in 1932-1933.
WORKING

Province

Alberta ...
British Columbia
Manitoba...
N o v a Scotia
Ontario ...
Saskatchewan
...
1
2

MOTHEES'

Year
ended
(1933)

31
31
30
30
31
30

March
March
April
Sept.
Oct.
April

ALLOWANCES

Number assisted during
year
Families

1,675
1,514
1,078
1,138
7,653
2,5112

ACTS

Benefits
paid

Children

4,00o1
3,274
3,374
3,487
19,359
6,733a

S
438,570
779,640
352,053
341,929
2,801,873
403,915

Cost of
administration

S
20,000
16,227

Approximately.
Number as at 30 April 1933. No figures available for the year.

IV.—Institutional Assistance for Sick and Destitute
Under the British North America Act legislative powers are divided
between the Dominion Parliament and the Provincial Legislatures.
Among the subjects in relation to which legislation may be enacted
by the provincial legislatures are the establishment and maintenance
of " hospitals, asylums, charities and eleemosynary institutions," the
establishment and maintenance of prisons and reformatories, and
municipal institutions in the province.
In turn, the provincial legislatures have given to municipal
authorities the responsibility for the establishment and maintenance of
hospitals, houses of refuge for the aged or destitute and the care of
dependent and neglected children. Asylums for the insane are maintained directly by the provincial authorities, and provincial grants are

N U M B E R OF P U B L I C H E A L T H AND B E N E V O L E N T

Brit.
Col.

Han.

X.B.

N.Sc.

74
1
60

68
1
36

28
3
16

17
3
9

23
2
11

1
3

3
9

3
13

9
7

6
10

368

546

601

470

589

966

771

664

175

284

Alberta
Hospitals1 :
General public
Tuberculosis ...
Others ...
Mental

institutions

Benevolent institutions :
Refuges for adults
Refuges for adults and
children
Orphanages
Institutions for blind
and deaf mutes
Inmates of refuges for
adults ...
Children in refuges and
orphanages
Inmates of institutions for
blind and deaf mutes ...
1

INSTIT

Separate figures for maternity hospitals are not available.

CANADA

175

made to hospitals of different kinds which are maintained by municipalities.
Under the authority of the Children's Protection Acts of the
different provinces, neglected, dependent and delinquent children may
be taken in charge by the local Children's Aid Societies, of which there
are 86 in Canada. Most of these societies maintain children's shelters
where children are kept temporarily. Orphanages are maintained by
private philanthropic societies.
In all cases where provincial funds are granted to assist in defraying
the cost of the upkeep of hospitals and other charitable institutions,
such places are required to be open to provincial inspection.

V.—Shipowners' Liability towards Sick and Injured Seamen
1.—Legal Basis.
Until the Statute of Westminster of 1931, enacted by the Parliament
of the United Kingdom, the Parliament of Canada had limited powers
to pass laws dealing with shipping. Accordingly the legal basis of
shipowners' liability was not only the Canada Shipping Act but parts of
the Merchant Shipping Act of Great Britain. In 1934 a new Canada
Shipping Act was enacted to come into force on proclamation, but as it
has not yet been proclaimed the information given relates to the
existing law.
The liability of shipowners in Canada for sick and injured seamen
is governed at the present time by :
(a) Parts III, IV and V of the Canada Shipping Act, Ch. 186,
Revised Statutes of Canada, 1927 ;
(6) Part I I of the Merchant Shipping Act, 1894, 57 to 58 Vict.
Ch. 60, Part IV of the Merchant Shipping Act 1906, 6 Edward VII,
Ch. 48 and the Distressed Seamen Regulations pursuant thereto.
2.—Beneficiaries.
Canada Shipping Act
Part III of the Act deals with seamen, including masters and
apprentices, of Canadian foreign-going ships in case of injury or sickness
on board or abroad ; these ships include those registered in Canada and
those registered in the United Kingdom and owned in Canada and
employed in trading or going by sea between some place or places in
Canada and some place or places out of Canada.
Part IV deals only with the limitation in payment of wages to sick
and injured seamen left abroad under sanction of proper British
authority by Canadian inland ships, that is ships registered in Canada
propelled by steam and of more than twenty tons registered tonnage
or propelled otherwise than by steam and of more than fifty tons, and
employed in navigating the inland waters of Canada. Barges and scows
navigating rivers and canals are excluded.
Part V, providing for hospitals for sick mariners at Canadian ports,
entitles all seamen on board all vessels arriving at Canadian ports to
maintenance and treatment in such hospitals. Every such ship has to

176

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

pay a duty on arrival. Ships engaged in the coasting trade and
arriving from any other port in the same province (or in Quebec from
any port in Ontario) are excluded. Fishing vessels are exempted but
may pay the duty voluntarily.
Merchant Shipping Acts, etc.
These Acts and Regulations deal with sick and injured British
seamen, including Canadian seamen, abroad out of the United Kingdom.
All sea-going British ships registered in and out of the United Kingdom
are included.
3.—Administration.
The Canadian Shipping Act is administered under the control of
the Minister of Marine and Fisheries. The shipping offices and
shipping masters at each port are charged to superintend and facilitate
the engagement and discharge of seamen.
Hospitals devoted exclusively to the reception of sick mariners
are under the control and management of the Minister.
4.—Financial Resources.
The shipowner is liable for the maintenance and treatment of sick
seamen as prescribed, and for the payment of wages.
The expenses of treatment and care in the hospitals for sick mariners
provided for under Part V of the C. Sh. A. are defrayed out of monies
appropriated for this purpose by Parliament. Dues are collected
(except in Ontario) from all vessels arriving in Canadian ports from
ports abroad, amounting to two cents for every ton of registered tonnage
but not less than %2 in any year for any ship, and not more than three
times a year.
5.—Benefits.
(a) Definition of risks.
Foreign-going Ships and British Ships
(Part III C. Sh. A. and M. Sh. A.)
Provision is made for the sick seamen :
(1) on board ship;
(2) abroad (a) until he is landed at a proper return port, and
(6) in Canadian ports by means of reception in sick mariners'
hospitals.
1. Illness on board ship.
Under Part III of the C. Sh. A. and under the M. S. A. the shipowner is Hable for the provision of medical treatment and maintenance
in case of any illness while the seaman is on board ship, without any
deduction from wages.
Wages are payable provided the illness is not due to the wilful act
or default of the seaman.
2. Injury or illness abroad.
Under Part III of the C. Sh. A. and under the M. Sh. A. the shipowner must provide for treatment and maintenance as follows :

CANADA

177

(a) Where the sick seaman is disembarked elsewhere than at the
proper return port in case of :
(1) hurt or injury received in the service of the ship under both
Acts;
(2) any other illness not due to the wilful act or default or misbehaviour of the seaman, and venereal disease in any case, under the
M. Sh. A;
(6) where the seaman is only temporarily removed from the ship for
the purpose of preventing infection or otherwise for the convenience of
the ship in case of any illness.
The shipowner's liability therefore ceases when the seaman is landed
at a proper return port, subject to the provisions concerning hospital
treatment under Part V of the C. Sh. A.
In all other cases any reasonable expense incurred in respect of
illness may be deducted from the wages.
Wages generally run only to the time the seaman is properly
discharged.
Ships arriving at Canadian ports
Under Part V of the C. Sh. A. provision is made for hospital
accommodation for sick mariners at Canadian ports. Seamen suffering
from permanent insanity are not admitted. The master or person in
charge of any ship paying duty on arrival may send to any such hospital
any sick mariner belonging to the ship ; if there is no such hospital
other provision must be made for the assistance and treatment of the
seaman.
Any shipwrecked, destitute or distressed seaman may, by authority
from the Minister, be temporarily boarded and lodged and taken care
of at a seamen's hospital.
3. Death.
Burial expenses are defrayed by the shipowner in case of death of
the seaman due to injury received in the service of the ship, both under
the C. Sh. A. and the M. Sh. A., and also in case of death from any
other illness not due to the seaman's fault, etc., under the M. Sh. A.
(b) Benefits in kind.
Foreign-going Ships (Part III, C. Sh. A.) and
British Ships (if. Sh. A.)
1. Medical treatment.
Medical treatment includes the necessary surgical and medical
advice and attendance and medicines to be provided by the shipowner
(1) in any case of illness while the seaman is on board ship ; (2) (a) in
the cases defined until the seaman is cured or dies or is returned to a
proper return port : and (2) (6) in case of temporary removal while the
seaman is away from the ship.
The proper return port under Part III of the C. Sh. A. is in Great
Britain if the seaman was shipped in Great Britain, and in Canada if
he was shipped in Canada, or some other British possession.
T

o 1297:1

178

INTERNATIONAL, SURVEY OF SOCIAL SERVICES, 1933

Under the M. Sh. A. a proper return port is the port where the
seaman was shipped or a port in the country to which he belongs, or a
port agreed on. So far as Canadian seamen are concerned, the shipowner's liability ceases at the port in Canada where the seamen are
landed, which return port is determined by the proper British authority
abroad.
2. Maintenance.
The shipowner is hable for the maintenance of the seaman in case
of sickness under the same conditions as for medical treatment.
Ships arriving at Canadian Ports
3. Hospital treatment and maintenance.
Under Part V of the C. Sh. A. the Minister may rent, equip and
maintain premises for hospitals for the care and treatment of sick
mariners or contract with hospitals for such care and treatment.
The sick mariners from ships paying the duty under this part
receive gratuitously maintenance and such medical and surgical treatment and attendance as the case requires for a period not exceeding one
year.
Shipping on Inland Waters (Part IV of C. Sh. A.)
No provision is made for medical treatment of seamen by the
C. Sh. A. ; in case of accident the Workmen's Compensation Acts apply.
The provisions of the M. Sh. A. apply to seamen on British sea-going
ships.
Distressed Seamen
The Dominion Government appropriates funds to pay for the
subsistence and transport back to Canada of seamen who have been
found in distress in any place out of Canada.
(c) Cash benefits.
Foreign-going ships (Part III of C. Sh. A.) and
British ships (M. Sh. A.)
Wages are payable in case of illness on board ship other than illness
due to the default or wilful act of the seaman, and abroad for the period
provided for in the seaman's agreement, that is, until the termination
of the period contemplated in the agreement.
The cost of conveyance to the proper return port and (or) burial
expenses are also at the charge of the shipowner.
Shipping on Inland Waters (Part IV of C. Sh. A.)
Seamen left abroad for reason of unfitness or inability to proceed on
the voyage before the termination of the period contemplated in the
agreement are entitled to wages for the remainder of that period.
In the absence of an agreement there is no liability on the part of
the shipowner except where the seaman is dealt with under the M. Sh. A.
In case of illness on board ship due to the seaman's own wilful act or
default no wages are payable during such illness.

CANADA

179

VI.—Unemployment Relief
Assistance for the unemployed is governed by the following federal
legislation : Unemployment Relief Act, 1930, the Unemployment and
Farm Relief Act, 1931, the Unemployment and Farm Relief Continuance Act, 1932, and the Relief Acts, 1932 and 1933.
These Acts are administered by the Minister of Labour with the
assistance of advisory committees.
Relief, which is the responsibility of provinces and municipalities,
is provided by means of employment on public works, by the settlement
of families on the land, by the placing of single, homeless persons in
camps and on farms, and by direct relief (food, fuel, clothing, shelter,
or the equivalent thereof).
The Unemployment Rehef Act, 1930, made provision for the appropriation in the Federal budget of $20 million for the rehef of unemployment by means of contributions to municipal and provincial authorities
for expenditure on public works and undertakings to provide employment, and on direct relief where suitable work could not be provided.
Of this sum $4 million were set aside to provide for the payment to
municipalities of one-third of their expenditures on direct relief, or of
one-half of the rehef given by provincial authorities in unorganised
districts where no municipalities exist.
A subsequent agreement was entered into with the province of
Saskatchewan to provide for the payment of a sum not to exceed
$500,000 for the relief of distress in the drought area of that province.
The sum of $20 million, while alleviating unemployment, proved
inadequate entirely to cope with it, and in August 1931 the Unemployment and Farm Rehef Act was adopted to enable further moneys to be
contributed from the ordinary budget to the provinces and municipalities for unemployment rehef measures. With regard to direct rehef
where no employment could be given, the Dominion agreed to pay to
the provinces for remittance to the municipalities such proportion of
the expenditures of the municipalities as might be agreed upon, the
balance being divided between the municipality and the province.
The Dominion Government's contribution to provincial direct relief in
unorganised districts where no municipalities exist was fixed at 50 per
cent. The provisions of this Act were extended for a further period by
the Unemployment and Farm Rehef Continuance Act, 1932.
Under the Rehef Act, 1932, which received Royal Assent on 13 May
1932 the Dominion Government continued to contribute to the expenditure of the provinces and municipalities for direct rehef, the normal
arrangement in the case of organised municipalities being 33J per cent.
contribution from the Dominion Government with equal contributions
from the province and the municipalities. In the case of municipalities
unable to carry the financial burden of 33^ per cent, contribution, the
municipal contribution was lessened on the recommendation of the
province with the approval of the Dominion, the difference between
the municipal contribution and the total expenditure being divided
equally between the Dominion and the province. In the case of
unorganised territory, the Dominion Government continued to pay 50
per cent, of the provincial expenditures for direct relief. Provision was
M 2

180

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

made in the Act for the continuance of relief measures in the droughtstricken areas of Saskatchewan.
In connection with the placing of families on the land, agreements
were entered into with all the provinces (with the exception of Prince
Edward Island) providing for a Dominion non-recoverable expenditure
of one-third of an amount not to exceed §600 per family for the purpose
of providing a measure of self-sustaining relief to families who would
otherwise be in receipt of direct relief, the remaining two-thirds of the
expenditures to be contributed by the province and the municipality
concerned.
The Relief Act, 1933, extends the provisions of the Act of 1932, but
stipulates that the amount provided for direct relief during the fiscal
year ending 31 March 1934 shall not exceed $20 million.
In November 1932 agreements were entered into with the four
Western provinces providing that each province should establish camps
under the management of specially appointed commissions where single,
homeless persons selected by the commission could be provided with
fuel, food, clothing and shelter, and so far as possible employed on
useful work., It was also agreed that where suitable the single,
homeless persons might be placed on farms. The agreements provided
that the Dominion Government would pay 100 per cent, of the cost of
providing food, fuel, clothing and shelter to the persons referred to at a
cost not to exceed 40 cents per day, except in the case of persons placed
on farms, who would receive $5 per month, the province to bear any
necessary costs of administration.
Statistics.
The following statement shows disbursements made by the
Dominion under the Unemployment Relief Act 1930 from the passing
of the Act until 31 March 19341 :
Public Works
$14,571,971

Direct Relief
$3,540,015

Administration
§43,062

Total
§18,155,048

The following statement shows disbursements made by the
Dominion under the Unemployment and Farm Relief Act 1931, and the
Unemployment and Farm Relief Continuance Act 1932 from the passing
of the Acts until 31 March 19341 :
Public Works
§32,546,046

Direct Relief
§10,109,061

Administration
§85,204

Total
§42,740,311

The following statement shows disbursements made by the
Dominion under the Relief Act 1932 from the passing of the Act until
31 March 19342 :
Direct Relief
§17,747,631

Relief other than
Direct Relief
§7,762,159

Administration
§67,576

Total
§25,577,366

1
Only a small proportion of these amounts was expended during the financial
year ended 31 March 1934.
2
Over one-third of the total amount was expended during the financial year
ended 31 March 1934.

CANADA

181

F O U R T H PART

HOLIDAYS W I T H PAY
Statutory holidays with pay are provided for civil servants and
teachers only.
Municipal employees in the larger towns and cities, including
officials, office workers, policemen and firemen, and persons employed
in connection with municipal waterworks and engineering departments,
usually have two weeks' vacation after one or two years' service.
A limited number of collective agreements contain stipulations
concerning holidays with pay and in other cases the custom has been
adopted by the management. Generally, salaried employees in the
transportation and manufacturing industries and in commercial
establishments are given two weeks' vacation with pay after one or
two years' service. By agreement, railway office employees, foremen,
station agents and telegraph operators in the railway service are given
holidays. Other railway employees paid at an hourly rate are not
given holidays with pay.
The position of manual workers is much less favourable. A certain
number of employers give holidays, for example in the food, rubber, and
paint and varnish industries. In a few small undertakings manufacturing tents, shutters, bags, mattresses, corsets, etc., a week's
holiday is given to all persons employed. In a few cases a holiday of
one or two weeks is given only to workers paid by the hour or to those
having a certain length of service. In the printing and kindred trades
holidays for manual workers are usual .only in the newspaper printing
trade. In most of the drug and pharmaceutical product factories a
week's paid holiday is given, salaried employees and manual workers
with more than ten years' service having a fortnight. A week's holiday
is the rule in factories manufacturing soap and other toilet preparations ;
in a number of large toilet soap factories and laundries holidays of one
or two weeks are given, but only to salaried employees and manual
workers paid by the week.
The period of service required is generally one year, and the worker
receives his full wages during the holiday period. Sometimes the
accumulation of holiday rights is allowed and in rare cases compensation in the form of a cash allowance is given in lieu of a holiday. The
worker forfeits his holiday rights if he is dismissed or voluntarily leaves
his employment.

CHILE
SUMMARY
PAGE

F I R S T PAKT :

Statistics of Population

SECOND PAKT : Social Insurance

184

...

184

I.—Workmen's Compensation...
...
...
II.—Workers' Sickness, Invalidity and Old-Age
Insurance...
...
...
...
...

THIRD P A R T :

184
186

III.—Salaried Employees' Compulsory Provident Fund

188

IV.—State Railway Stan's Compulsory Provident Fund
"..
...

190

Social Assistance

...

193

I.—Unemployment Assistance
...
II.—Public Assistance ...
...
...
III.—Sickness and Maternity Benefits paid
Employers
...
...
...
FOURTH P A R T :

Housing

FIFTH P A R T :
SIXTH PART :

...

...
...
by
...

193
194
195

...

198

Family Allowances

...

199

Holidays with Pay

...

200

184

INTERNATIONAL SURVEY OE SOCIAL SERVICES, 1933

FIRST PART

STATISTICS OF POPULATION
Census of 27 November 1930 : Gainfully Occupied Population
classified by Branch of Economic Activity and Industrial Status.

Branch of economic activity.

Agriculture and fishing
Mines and quarries...
Industry
Commerce ...
Transport and communications
Public administration and
defence
Liberal professions ...
Domestic service
Others
TOTAL

Employers
and persons
working on
their own
account
149,298
1,677
92,717
73,428

Salaried
employees

Workers

Total

11,121
7,559
19,135
48,788

345,922
68,333
184,349
25,590

506,341
77,569
296,201
147,806

8,887

14,507

46,386

69,780

8.111
6,091

47,489
18,396

29,155

5,605

14,035
2,978
96,807
11,456

69,635
27,465
96,807
46,216

369,364

172,600

795,856

1,337,820
118,00o 1 .

—

1,455,820
2,831,625

—

1 4,287,445

Unemployed
Gainfullyoccupiedpopulation
Unoccupied population
TOTAL POPULATION
1

In December 1933 the number of unemployed was 50,044.

SECOND PART

SOCIAL INSURANCE
1.—Legal Basis.

I.—Workmen's Compensation

The employer's liability in connection with industrial accidents was
first established by Act No. 3170 of 27 December 1916. This Act
was amended in 1924 and (with the exception of the insurance provisions, which still remain in force) is now incorporated in the Labour
Code, Book II, Part II (Act No. 178 of 13 May 1931).
2.—Scope.
The employer is liable to pay compensation for accidents to salaried
and wage-earning employees and apprentices employed in any branch
of industry or class of occupation.

CHILE

185

The sole exception is work which on account of its nature is of
short duration and in which not more than three persons are employed
at the same time.
3.—Administration.
The employer may contract insurance with the accident insurance
service of the National Savings Bank, or with a mutual insurance
institution or a Chilean insurance company satisfying the conditions
respecting organisation and security laid down by the Social Welfare
Department.
The employer who fails to insure his workers must, in order to
cover his liability, adopt one of the following measures in case of an
accident causing the death or permanent injury of the victim :
1. Deposit security with the National Savings Bank to cover the
payment of the pension and make a contribution to the Guarantee
Fund, which pays compensation due by insolvent employers or
insurance institutions ;
2. Arrange for the payment of the pension by an insurance
company.
4.—Financial Resources.
The cost of workers' compensation is borne solely by the employers.
5.—Benefits.
(a) Definition of risks covered.
An industrial accident is defined as any injury suffered by a wageearning or salaried employee which arises out of or in the course of
his employment. The employer's liability also extends to diseases
which are directly caused by the exercise of a trade or occupation.
(b) Benefits in kind,
The employer defrays the cost of medical treatment and medicaments as well as maintenance in hospital until such time as the victim
is restored to health or declared to be permanently incapacitated.
The employer must also provide all the necessary orthopaedic appliances.
(c) Gash benefits.
1. For the purposes of compensation, the basic salary or wage must
not exceed 3,600 pesos a year nor be less than 900 pesos.
2. In case of temporary incapacity, the injured person is entitled
to one-half of his wage from the date of the accident for a period not
exceeding one year.
3. In case of permanent total incapacity, compensation consists
of a life annuity equal to 60 per cent, of the wage. In case of permanent
partial incapacity, compensation is granted in the form of a lump sum
which may not exceed two years' wages; compensation in excess of
500 pesos is paid by instalments.
4. In case of death, the employer must pay funeral benefit
amounting to 200 pesos and survivors' pensions. The widow, until

186

INTERNATIONAL SURVEY OF SOCIAL SEBVICES, 1933

her remarriage, or the surviving husband if incapable of work, is
entitled to a pension equal to 30 per cent, of the deceased person's
wage if there are no chüdren, and to 20 per cent, if there is at least
one child. Each child under 16 years of age is entitled to a pension
equal to 20 per cent, of the wage but the total amount of the pensions
granted to the surviving widow (or husband) and children may not
exceed 60 per cent, of the wage. If there is no wife (or husband) or
children, other relatives dependent on the deceased person are entitled
to pensions, the aggregate amount of which may not exceed 30 per
cent, of the wage.
6.—Statistics.
Number of insured persons in 1933 ...
Number of cases of incapacity in 1933
Number of deaths in 1933

...
...

156,611
21,470
210

INCOME AND E X P E N D I T U R E OF INSURANCE INSTITUTIONS F O B

1933

(In thousands oí pesos)
INCOME

Contributions
ployers

Total

paid

EXPENDITURE

em7,786

7,786

Benefits in kind
...
Cash benefits
Administrative expenses
Other expenses
...

...
...
...

Total

1,302
3,283
955
2,477
8,017

II.—Workers' Sickness, Invalidity and Old-Age Insurance
1.—Legal Basis.
Compulsory sickness, invaUdity and old-age insurance was
introduced by Act No. 4,054 of 8 September 1924. The amended
text of this Act was codified by Decree No. 34 of 22 January 1926.
2.—Scope.
Insurance is compulsory for all workers under 65 years of age whose
yearly earnings do not exceed 8,000 pesos and who are not covered by
special insurance schemes.
Insurance extends likewise to persons working on their own account,
craftsmen, small manufacturers and small tradesmen, subject to the
same age and wage conditions.
Persons not Hable to insurance who are under 45 years of age
and whose income does not exceed 8,000 pesos a year may insure
voluntarily, provided they obtain a health certificate from the
Compulsory Insurance Fund.
By paying a supplementary contribution, insured persons may
extend the benefits of medical treatment and medicaments to their
families.
3.—Administration.
The insurance scheme is managed by the Compulsory Insurance
Fund, which has local branches in the provincial towns. The governing body of the Fund consists of the Minister of the Interior or his
representative, three employers' representatives, three representatives

CHILE

187

of the insured persons and a representative of the medical profession ;
all these persons are appointed by the Government.
4.—Financial Resources.
The resources of the Insurance Fund are derived from contributions
payable by the insured persons, the employers and the State, and from
the proceeds of a special tax.
Insurance contributions amount to 6 per cent, of the wage and
are payable as follows : 3 per cent, by the employer, 2 per cent, by
the insured person, and 1 per cent, by the State. These rates are
increased to 4, 3 and 2 per cent, respectively in the provinces of
Tarapacá, Antofagasta and Magallanes and in the mining industry.
The special tax consists of 1 per cent, on all payments made by
the State or the municipalities, save for the service of foreign debt,
public assistance and public education.
5.—Benefits.
(a) Definition of risks covered.
Insurance covers the risks of sickness, maternity, invalidity and
old age.
1. Sickness and maternity risks are covered by the allocation of
benefits in kind to the insured person (and, in return for an extra
contribution, to his or her family) and cash benefits which include
a funeral allowance.
2. The invalidity risk is covered by the grant of a pension in case
of permanent total incapacity for work.
3. Old age is covered by the grant of a pension at the age of
55, 60 or 65 years, at the option of the insured person.
(b) Benefits in kind.
Medical benefit, including medical treatment and medicaments
or hospital treatment, is granted to the insured person from the first
day of sickness for a period of 26 weeks which may be extended up
to one year.
Benefits in kind are also granted to insured women before, during
and after confinement.
(c) Cash benefits.
1. Sickness benefit is paid from the fifth day of sickness, or from
the first day when the sickness continues for more than a week. For
the first week, benefit is equal to the whole wage, for the second week
to half of that amount, and thereafter to one-quarter of the wage
earned. The maximum period during which sickness benefit is paid
is the same as for medical benefits.
2. In case of death, funeral benefit of 300 pesos is granted to the
family. If there is no family, the Fund pays the cost of the funeral.
3. Maternity benefit granted to insured women is equal to half
the wage earned and is paid during the fortnight preceding and the

188

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

fortnight following confinement. Nursing benefit equal to onequarter of the wage is granted after the cessation of maternity benefit,
for a maximum period of eight months.
4. An invalidity pension is granted on condition that contributions
have been paid on the insured person's behalf for at least two years.
The pension rates are as follows :
For

10 or more vears' contributions

100 per cent, of the wage
75
„
„
„
50

5. The old-age pension is constituted by the accumulation in the
insured person's account of his own share of the contribution, which
equals 2 per cent, of his wage. If the insured person desires, his
pension may be calculated according to the system of repayable
contributions and in this case the capital is paid to his family if he
dies before attaining the pensionable age. When the amount of the
pension is less than 20 pesos a month, it is commuted by the payment
of the corresponding capital.
6.—Statistics.
Average number of insured persons for whom contributions were
paid regularly in 1933 : 500,000.
INCOME AND E X P E N D I T U R E FOR

1933

(ill thousands of pesos)
INCOME

Compulsorily insured persons'
contributions
Voluntarily insured persons'
contributions
Employers' contributions ...
State contributions ...
1 per cent, t a x
Income from capital
Other income

Total

EXPEN DITURE

16,313
1,027
24,184
9,911
3,023
17,931
563

72,952

Benefits in kind
Cash benefits :
Sickness
Funeral
Maternity ...
Invalidity ...
Old-age
Repayment
of
individual
accounts
Administrative expenses
Other expenses
Total

23,777
4,012
1,734
1,329
1,070
600
942
9,665
3,296
46,425

HI.—Salaried Employees' Compulsory Provident Fund
1.—Legal Basis.
Compulsory affiliation to a provident fund for salaried employees in
private undertakings was introduced by Act No. 4,059 of 8 September,
1924; this Act was amended on several occasions and the text was
codified by Decree No. 857 of 11 November 1925.
2.—Scope.
The Act applies to all salaried employees in private undertakings,
irrespective of age. A salaried employee is defined as a person who
performs work in which the intellectual effort predominates over the
physical effort required.

CHILE

189

The only persons exempted from the Act are journalists, who are
compulsorily affiliated to the provident fund for public servants and
journalists.
3.—Administration.
The Provident Fund is managed by a governing body composed of
the Minister of Finance, the manager of the Fund, the director of the
Social Welfare Department, four representatives of the employees, and
an employers' representative, all these persons being appointed by the
Government.
Large undertakings were authorised at the outset to set up an
auxiliary fund for their staff, provided that this fund granted higher
benefits than those prescribed by the Act ; but, apart from the existing
funds, this authorisation no longer holds good, and no new auxiliary
fund may be set up.
4.—Financial Resources.
An individual retirement account is opened for each employee.
This account is credited with the contributions paid by the employee
and his employer, and all interest paid on the account itself.
The employee's contributions comprise :
5 per cent, of his salary ;
25 per cent, of the share of the profits of the undertaking due to the
employee ;
One-half of his first month's salary on entering the service of the
establishment ;
One-half of the difference in the first month's salary after receiving an
increment.

The employer's contribution is equal to 5 per cent, of the
employee's remuneration.
5.—Benefits.
The employee is entitled to withdraw the amount standing to his
credit in his retirement account in any of the following cases :
After 30 years' service or when he attains the age of 50 years;
In case of invalidity after 5 years' service ;
After two years' continuous unemployment ;
After one year's permanent residence abroad ;
In order to acquire real property within national territory.
In addition, the Fund may grant emergency loans on retirement
accounts to employees in case of illness, unemployment or urgent need,
as well as mortgage loans with a view to the acquisition of real property.
In case of death, the amount standing to the deceased person's
credit is paid to his dependants.
Life Insurance.
Every employee is obliged to take out a life insurance policy with
an insurance company approved by the governing body. The
amount of this policy may not be less than 5,000 pesos.

190

INTERNATIONAL SUBVEY OF SOCIAL SERVICES, 1933

6.—Statistics.
Number of members on 31 December 1933 ...
Number of pension accounts wound up in 1933
Number of members using their retirement account
for the acquisition of real property in 1933...
Number of members receiving mortgage loans in 1933
Number of members receiving emergency loans in 1933
INCOME AND E X P E N D I T U R E FOR

83,950
5,332
386
800
13,180

1933

(In thousands of pesos)
INCOME

Members' contributions
Employers' contributions ..
Interest on pension accounts

Total

EXPENDITURE

31,272
17,358
6,608

55,238

Refund of pension accounts
Pension accounts used to
acquire real property
...
Mortgage loans
...
...
Emergency loans
...
...
Ad^miiiistrative
and
other
expenses ...
...
...
Total

9,753
2,435
12,000
18,770
2,321
45,279

IV.—State Railway Staff's Compulsory Provident Fund
1.—Legal Basis.
A compulsory retirement and provident fund was set up for the staff
of the State Railways by Act No. 3,379 of 10 May 1918 as amended
by Act No. 3,997 of 4 January 1924, the Legislative Decrees No. 335
of 12 March 1925 and No. 758 of 16 December 1925, and Acts No.
4,866 of 9 September 1930, No. 5,155 of 23 April and No. 5,290 of 18
October 1933.
2.—Scope.
(a) Retirement scheme.
Membership of the retirement scheme is compulsory for the following
classes of staff of the State.Railways :
Salaried employees ;
Train staff and workers in t h e shops after at least one year's service ;
Administrative staff of the Fund.

Membership of the pension scheme is optional for all other classes
of staff.
(b) Provident scheme.
Membership of the provident scheme is open to all members of
the retirement scheme, railway servants who have been retired after
completion of the normal period of service or on account of age or
invalidity, and members of mutual aidj societies composed of railway
servants.
3.—Administration.
The Retirement and Provident Fund is managed under State
supervision by a governing body composed of 11 members, including
five workers, three salaried employees, the manager of the Fund, a
representative of the railwavs and a representative of the Government.

CHILE

191

4.— Financial Resources.
(a) Retirement scheme.
The income of the retirement scheme is derived from the following
sources :
A deduction of 5 per cent, from wages ;
One-half of the first month's wages on entering the railway service;
One-half of the difference in the first month's wages after receiving an
increment ;
Annual contribution from the railway equal to 5 per cent, of wages ;
Annual subsidy from the railway equal to 1-5 per cent, of t h e gross
receipts ;
Sundry receipts ;
Interest on capital.

(b) Provident scheme.
The income of the provident scheme is derived from the following
sources :
Sums resulting from wage reductions for staff on sick leave ;
An annual subsidy from the railway equal to 1 per cent, of t h e gross
receipts ;
Special subsidies voted by the railway or the S t a t e ;
Interest on capital.

In addition, the provident scheme accumulates in individual
accounts a compulsory deduction of 5 per cent, from all pensions
exceeding 300 pesos a month.
Finally, it organises voluntary welfare services (savings, life
insurance, etc.).
5.—Benefits.
(a) Retirement scheme.
The income of the retirement scheme is accumulated in the
members' individual accounts. The amount standing to the credit of
a member is refunded to him in the following cases :
In case of voluntary retirement (in all cases the beneficiary
receives the contributions which he has paid plus interest,
but the part which he receives of the remainder of the
amount standing to his name depends on his length of
service);
After 35 years' service or when the member reaches 60 years of
age;
In case of abolition of post ;
In case of invahdity.
If the beneficiary so desires, the amount standing to his credit
may be used to buy an annuity. Iii case of death during service,
this amount is paid to his dependants, and amounts due to dependants
under 18 years of age are converted into temporary pensions expiring
when the person concerned reaches 18 years of age.
(b) Provident scheme.
The income of the provident scheme is used for the following
purposes :
To assist families of deceased members by the payment of funeral
expenses and supplements to orphans' pensions ;

192

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

To assist invalids ;
To increase the interest given on individual accounts of retired
members ;
To contribute towards staff mutual aid societies.
The sums standing to the credit of retired or sick members are paid
to their dependants in case of death.
6.—Statistics.
(a) Retirement scheme.
Number of members on 30 J u n e 1933 : 13,027.
INCOME AND E X P E N D I T U R E FOR

1933

(In thousands of pesos)
INCOME

EXPENDITURE

Members' contributions
Railway's contributions
Interest on capital ...

4,084
5,381
4,397

Total

13,862

Amounts credited to individual accounts
Administrative expenses
Other expenses
Balance to reserve fund
Total

BALANCE S H E E T AT 31 D E C E M B E R

12,630
941
29
242
13,862

1933

(In thousands of pesos)
LIABILITIES

ASSETS

Liquid assets ...
Securities
Real property
Mortgage loans
Sundry debtors
Sundry accounts

409
25,323
2,177
49,849
9,922
27,090

Individual accounts ...
Reserve fund ...
Sundry creditors
Sundry accounts

Total

114,770

Total

..
..

79,168
2,607
5,905
27,090

114,770

(b) Provident scheme.
Number of compulsory and voluntary members on 30 J u n e 1933 : 16,837.
INCOME AND E X P E N D I T U R E FOE

1933

(In thousands of pesos)
EXPENDITURE

INCOME

Members' contributions
Railway's contributions
Income from capital ...
Other

Total

1,423
500
914
78

2,915

Amounts credited to retired
members' accounts
Pensions
Assistance
Life insurance, etc.
Administrative expenses
Other expenses
Amounts
transferred
to
actuarial and contingency
reserve funds
Total

509
235
134
556
672
52

757
2,915

193

CHILE

BALANCE S H E E T AT 31 D E C E M B E B

1933

(In thousands of pesos)
ASSETS

LIABILITIES

Liquid assets ...
Securities
Other investments
Sundry debtors
Sundry accounts

51
11,564
6,711
489
56,674

Retired members' accounts ... 2,554
Various deposits by members
5,195
Actuarial reserve
3,342
Contingency reserve ...
3,405
Sundry creditors
4,319
Sundry accounts
56,674

75,489

Total

THIRD

Total

75,489

PART

SOCIAL ASSISTANCE
I.—Legal Basis.

I.—Unemployment Assistance

A national unemployment assistance scheme was set up by Decree
No. 640 of 19 August 1931.

2.—Beneficiaries.
Assistance is given to all indigent unemployed persons and their
families.
3.—Administration.
Assistance is administered by a special section of the Ministry of
Labour and by district committees.

4.—Financial Resources.
The resources of the assistance scheme are derived from the proceeds of a special tax on unearned income and business profits, and on
salaries and emoluments in excess of 500 pesos a month.
5.—Benefits.
Assistance granted to unemployed persons and their dependants
includes :
Cooked and uncooked victuals distributed by local food centres;
Housing facilities : One room per family, or accommodation in
shelters for unmarried persons ;
Clothing ;
Free transport to the place where work has been found ;
Free treatment by the public medical services and treatment at
home by visiting nurses ;
The engagement of unemployed persons as gold washers, agricultural
workers, or as labourers in roadmaking.
6.—Statistics.
In 1933, the average daily number of persons in receipt of assistance
was 169,512, including 45,659 men, 52,846 women, and 71,017 children.
x a 1207;;

194

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

The expenditure incurred for unemployment assistance was as
follows (in thousands of pesos) :
Food
Clothing, Subsidies, Placing
Administrative expenses
...

...
...

Total

1.—Legal Basis.

...
...

37,868
2,483
6,849
47,200

n.—Public Assistance

The administration of public assistance was centralised by Act
No. 5,115 of 30 April 1932. Prior to that date, public assistance was
administered by local committees whose work was not co-ordinated.
In addition to these public measures, much is also done by private
institutions working in close collaboration with the State.
2.—Beneficiaries.
Assistance is given to the aged, indigent sick persons and the
insane. Maintenance in institutions is assured by contract for
members of the Compulsory Insurance Fund, victims of industrial
accidents, and members of the various mutual aid funds.
3.—Administration.
Public assistance is administered by the Central Committee for
Charity and Social Assistance, which includes representatives of the
public health services, the medical profession, the Compulsory Insurance
Fund, private charitable institutions, and the Government. This
Committee is responsible for the higher management of the assistance
services, and draws up rules for the co-ordination of the work of the
various institutions under its jurisdiction.
The Government appoints the local committees set up in the
capitals of the provinces and departments and in certain important
towns ; each of these committees is composed of four members, including
a doctor and a workers' representative, and is presided over by a
Government representative.
4.—Financial Resources.
The resources of public assistance include :
Subsidies from the State, the municipalities, and private sources ;
Interest or income from capital ;
The proceeds of paid services rendered to the non-indigent public,
insured persons, and members of mutual aid societies ;
The proceeds of certain taxes (totalisators on race courses, patents
and licences, etc.);
The profits from a special lottery called the " Polla de Beneficencia."
5.—Benefits.
The object of public assistance is to prevent and treat sickness and
to assist the needy as a matter of social justice. With this goal in
view, the authorities maintain hospitals, lunatic asylums, homes,
dispensaries, etc.

195

CHILE

6.—Statistics.
(a) Number of institutions and persons assisted in 1933.
1.

Hospitals.
Number of hospitals : 144 with 17,346 beds.
Number of patients treated : 235,717.
Dispensaries.
Number of dispensaries : 358.
Number of patients treated : 1,798,143.
Lunatic asylums.
Number of asylums : 3.
Number of inmates : 4,G16.
Homes for the aged.
Number of homes : 11.
Number of inmates : 2,893.
Hostels.
Number of hostels : 84.
Number of inmates : 11,341.
Auxiliary
hospitals.
Number of hospitals : 29.
Number of patients treated : 42,222.

(b) Resources of the 'public assistance institutions in 1933.
(In thousands of pesos)
State subsidy
Subsidies from municipalities, private sources, etc. ...
Amount received from the Compulsory Insurance
Fund
Legacies, bequests, donations ...
...
...
...
Income from property and in vestments, dues...
...
Proceeds from paid services supplied by assistance
institutions
...
...
...
...
...
...
Licenses, extraordinary receipts and other items ...
Balance brought forward from previous year
...
Total

21,998
1,680
6,735
384
7,099
13,542
5,645
7,674
64,757

m.—Sickness and Maternity Benefits paid by Employers
A.—ASSISTANCE

FOB SALARIED EMPLOYEES IN CASE OF SICKNESS
AND CHILDBIRTH

1.—Legal Basis.
The employer's liability towards salaried employees in respect of
sickness and childbirth is defined in t h e Labour Code, Book I, P a r t I V
(Act No. 178 of 13 May 1931), and in rules N o . 969 issued by t h e
Ministry of Labour on 18 December 1933.
2.—Beneficiaries.
The legal provisions regulating t h e employer's liability cover all
salaried employees in private undertakings. An employee is defined
as a person who performs work in which t h e intellectual effort
predominates over t h e physical effort required.
3.—Benefits.
(a) Definition of risks covered.
The legislation covers the risk of sickness entailing incapacity for
work and provides benefits in case of childbirth.
N 2

196

INTERNATIONAL SURVEY OP SOCIAL SERVICES, 1933

(b) Benefits in case of sickness.
In case of sickness, the employee continues to be paid, the amount
of salary and the period during which it is payable varying with the
length of his previous service.
If the employee has served for a year or more, he is entitled to his
full salary during the first month's illness, 75 per cent, of his salary
during the second month, 50 per cent, during the third month, and to
25 per cent, during the fourth month.
If he has served for less than a year but for more than six months,
he is entitled to his salary only during the first month.
All periods of sickness occurring within a period of 12 months are
taken into consideration in assessing benefits.
(c) Benefits in case of childbirth.
Women employees are entitled to their full salary during the six
weeks preceding and the six weeks following confinement. If incapacity
for work still continues after the expiry of this period, the woman
becomes entitled to the benefits provided for in case of sickness.
4.—Statistics.
In 1933, the total number ot employees (men, women and children)
recognised as having a claim to sickness and maternity benefits was
87,786.
B.—ASSISTANCE FOR WOMEN WORKERS AT CHILDBIRTH

i.—Legal Basis.
The employer's liability towards women workers in respect of
maternity is defined in the Labour Code, Book II, Part I I I (Act No. 178
of 13 May 1931) and in rules No. 349 issued by the Ministry of Labour
on 19 April 1934.
2.—Beneficiaries.
The legal provisions regulating the employer's liability cover all
women working in industrial or commercial undertakings whether of a
public or private character.
3.—Benefits.
Women workers are forbidden to work during the six weeks preceding and six weeks following confinement, and their post is kept open
for them.
During this period they are entitled to an allowance equal to 50 per
cent, of their wage.
If the woman is entitled to maternity benefits from the Compulsory
Insurance Fund, the employer pays the allowance for four weeks, and
the Fund for two weeks, before and after confinement. In addition to
this allowance, a nursing bonus equal to 25 per cent, of the wage is
payable from the third week following confinement.
If the woman is not entitled to benefits under compulsory insurance,
the employer is required to pay an allowance equal to 50 per cent, of
the wage throughout the whole period. If confinement takes place

CHILE

197

later than the date foreseen, the period during which the employer is
required to pay the allowance is prolonged accordingly. If, on the
contrary, confinement takes place at an earlier date, the allowance
must nevertheless be paid during 12 weeks, the cost for the period of
prolongation being met by the employer.
G.—SHIPOWNERS' LIABILITY TOWARDS SICK OB INJURED SEAMEN

1.—Legal Basis.
The shipowner's liability in case of sickness and accident to
seamen is defined in the Commercial Code, Book III, Part III, and
in the Labour Code, Book I, Part V (Act No. 178 of 13 May 1931).
2.—Beneficiaries.
The provisions cover the master and members of the crew of all
Chilean vessels navigating by their own power, irrespective of their
description, tonnage or means of propulsion.
3.—Benefits.
(a) Definition of risks covered.
The legislation covers the risks of sickness, injury or mutilation
and death occurring during the voyage.
The shipowner is discharged from his obligations if the sickness,
injury or mutilation is due to an act contrary to the discipline of the
ship.
(b) Benefits in kind.
The shipowner is responsible for the cost of medical treatment
until the return of the ship to the port in which the sick or injured
person was engaged.
If a sick seaman is put on shore at a Chilean port where there is a
medical service organised by a social insurance institution to which
the seaman is affiliated, this service must provide the necessary medical
treatment.
If the injury has been caused by an industrial accident (Book II,
Part II, of the Labour Code), the insured person is entitled to all the
benefits in kind provided for in case of industrial accidents.
(c) Cash benefits.
The seaman is entitled to his full wages until the vessel returns
to the port where he was engaged.
If he is put on shore during the voyage as a result of sickness or
injury, he is entitled to an indemnity to cover the cost of his return
journey to his port of engagement.
A seaman who is not restored to health on the expiry of the
shipowner's obligations is entitled from that time to the benefits provided for under sickness, invalidity and old-age insurance.
If the injury has been caused by an industrial accident, the injured
seaman is further entitled to the cash benefits provided for in cases of
industrial accidents.

198

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

The dependants of a deceased seaman are entitled to a part or the
whole of his wages. If the seaman was engaged by the month, his
wages are due up to the day of his death; if he was engaged for the
voyage, the full wages agreed upon or one-half of such wages must be
paid according as death took place on the outward or return journey.
If the seaman was entitled to a share of the profits or the freight, his
whole share must be paid to his dependants.
If the death has been caused by an industrial accident, the
dependants are entitled to workmen's compensation in addition.

FOURTH PART
HOUSING
1.—Legal Basis.
The legislation relating to workers' dwellings dates back to the
Act of 1906. In 1925, an Act defined the measures to be taken for
the encouragement of house-building. Act No. 4,931 of 31 January
1931, relating to the building of workers' houses, was recast and
amended by Legislative Decree No. 33 of 12 March 1931.
2.—Beneficiaries.
The object of the Act of 12 March 1931 is to encourage the building
of hygienic cheap dwellings for the poorer classes and wage earners
in industry, agriculture and the mining industry.
The Act defines cheap dwellings as those of which the rent does
not exceed 200 pesos a month and the building costs, including the
value of the land, do not exceed 20,000 pesos.
The benefits of the Act may be extended in certain conditions to :
(a) persons desiring to build houses of which the value does not
exceed 30,000 pesos, provided such persons have sufficient means to
cover the extra cost;
(b) persons desiring to build a house with an adjoining workshop
or plot of land for cultivation. Preference is shown to persons who can
prove that they are capable of the work contemplated, and to persons
with large families.
3.—Authorities and Undertakings Concerned in Building.
According to the Act of 12 March 1931, the Cheap Housing
Committee is responsible for the application of the housing laws.
This Committee includes representatives of the public health and
labour services, the Mortgage Loan Bank, and members appointed by
the President of the Republic, of whom one must belong to a workers'
incorporated association. The Minister of Labour is chairman of the
Committee and may be represented by the head of the Housing
Service.
The Committee grants loans to incorporated associations and
co-operative societies building houses for their members, municipalities, national saving funds and provident funds, and to executive
authorities putting up cheap houses for minor officials.

199

CULLE

4.—Financing by Public Authorities.
Although the main object of the Cheap Housing Committee is
to promote the construction of hygienic cheap dwellings, it may also
build houses itself. The Committee grants loans, through the intermediary of the Mortgage Loan Bank, which issues bonds guaranteed
by the State up to an amount of 50,000,000 pesos a year and a total of
300,000,000 pesos. The National Savings Bank and the social
insurance institutions may invest their money in cheap housing bonds.
Three loans of this sort have already been issued : a 6 per cent.
loan in 1925-1926, a 6 | per cent, loan in 1926 and a 6 per cent, loan
in 1928. These three loans brought in a total of 143,886,010 pesos.
The Committee distributes the loans according to the needs shown
by a housing census taken in the various regions. The plan of buildings
for which a loan is made must be approved by the Committee. Interest
on loans and amortisation payments must not exceed 5 and 1 per cent.
respectively per annum. The difference between the interest paid
by the Mortgage Loan Bank on bonds and the payments by borrowers
is made up by the State.
5.—Statistics.
(a) Number of workers' divellings built with the help of the public
authorities1

1906 Act
1925 Act
Total

...

Number of
houses
built
519
5,844
6,363

Aggregate
number of
rooms
3,528
19,742
23,270

Aggregate
number of
tenants
7,576
23,536
31,112

(b) Finance
From the loan capital (143,886,010 pesos) realised by the sale of
bonds, 123,290,449-02 pesos were used to finance 340 loans on 6,409
houses2.
The cost incurred by the State has been 2,775,269-40 pesos a year,
the total cost amounting to 18,220,425-90 pesos at the end of 1933.
It follows that for each peso paid by borrowers on building loans, the
State supplied 0-28 to 0-37 pesos.

F I F T H PABT

FAMILY ALLOWANCES
Provision is made for the payment of family allowances to members
of their staff by the works rules or contracts of employment in some
mining and industrial undertakings, and by the Municipalities of
Santiago and Valparaiso.
1
These figures refer to operations u p to the end of 1933. They include new
and renovated houses. A t the end of 1930, the number of such houses was 5,156,
occupied by 20,624 persons.
2
I n 1930, loans amounted to 113,812,554 pesos, representing 327 loans on
5,156 houses.

200

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

By way of example, reference is made below to the allowances
granted by a sugar refinery, a cement works and by the Municipalitj' of
Valparaiso.
Sugar refinery.—At the end of each month the worker receives
articles of food of a value of 20 pesos for his wife and of 10 pesos for
each child under 16 years.
Cement works.—Heads of families whose wages are less than 15
pesos a day receive 0-50 peso a day for each child under 16 years,
provided that the mother does no work apart from her household
duties and that the children attend school.
Municipality cj Valparaiso.—Allowances are paid for children
under 17 years (21 years if they continue their studies). The rate of the
allowance varies with the number of children from 0 • 60 peso per day
for one child up to 4-50 pesos for five children; families of more than
five children receive 1-20 pesos a day for each child after the fifth.
In 1933, the number of workers employed in undertakings paying
allowances was 19,157, including 11,983 in nitrate works and 7,174 in
other establishments.

SIXTH PART
HOLIDAYS W I T H

PAY

1.—Nature of the Regulations.
Legislative Decree No. 178 of 13 May 1931 ratifying the Labour
Code, as amended by Act No. 5,405 of 8 February 1934, codified the
provisions governing conditions of employment of wage-earning and
salaried employees and introduced a system of holidays with pay for
workers.
Legislative Decree No. 188 of 31 December 1924 made provision for
annual paid holidays for salaried employees, and this provision is
maintained in the new Act.
Decree No. 545 of 24 May 1932 relating to conditions of existence
and work in industrial undertakings, and Decree No. 969 of 18 December
1933 concerning the enforcement of the law relating to salaried
employees, fixed for workers and salaried employees respectively the
standards to which employers are bound to conform in granting
holidays with pay to their staff.
2.—Beneficiaries.
The legislation makes provision for holidays with pay for all
industrial workers, as well as domestic servants and salaried employees.
An exception is made in the case of salaried employees engaged in
undertakings or establishments which, owing to their special nature,
cease work at certain periods of the year, provided that the duration of
the interruption of work is not less than a fortnight and that during
such periods they duly receive the salary stipulated in. the contract of
employment.

201

CHILE

3.—Conditions of Holidays.
The right to hohdays is acquired by salaried employees and
domestic servants after one year's service in the same establishment.
In the case of workers, the minimum length of service is 220 days.
4.—Length of Holidays.
The length of the annual holiday period with full pay is fixed as
follows :
for salaried employees
...
...
...
for workers with 220-288 days' service
during the year ...
...
...
...
for workers with more t h a n 288 days'
service during the year ...
...
...
for domestic servants
...
...
...

15 working days
7 working days
15 working days
15 working days.

5.—Statistics.
(a) Salaried employees
Total numbers covered by legal provisions regulating
holidays with pay in 1933
87,786
Total number who received holidays with pay in 1933 20,798
Total number of days' holiday granted in 1933
... 311,960

(b) Workers
Total number who received holidays with pay in 1933

73,866

The average length of the holiday may be estimated at 10 days, so
that the total number of days' holiday granted would be 738,660.

FINLAND
SUMMARY
PAGE

FIRST 1'AKI :

Statistics of Population

SECOND P A R T : Social Insurance

THIRD P A K T :

204
...

...

204

I.—Workmen's Compensation ...
...
...
II.—Voluntary Sickness Insurance
...
...
III.—Voluntary Invalidity, Old-Age and Widows'
and Orphans' Insurance ...
...
...
IV.—Voluntary Unemployment Insurance
...

204
207

Social Assistance

...

208
211
212

I.—Child Welfare
212
IL—Poor Relief
213
III.—Shipowners' Liability towards Sick or Injured
Seamen
...
...
...
...
... 216
FOURTH P A S T : Housing...

...

217

FIFTH P A S T :

Family Allowances

...

218

SIXTH P A R T :

Holidays with Pay.

...

218

204

INTERNATIONAL SURVEY OE SOCIAL S E R V I C E S ,

1933

FIRST PART

STATISTICS OF POPULATION
POPULATION I S

FL>-LAUD AT

DECEMBER

1930,

CLASSIFIED

OCCUPATION

Occupation of head of family

Males

Females

Total

Agriculture
Manufacturing industries, arts and
handicrafts ...
Communications
Commerce
Public services and liberal professions
Domestic service
Other occupations not mentioned
above
Unclassified workers, skilled or
unskilled

634,191

473,339

1,107,530

186,465
44,319
37,774
34,394
1,298

65,193
7,375
39,303
27,846
37,360

251,658
51,694
77,077
62,240
38,658

10,703

19,515

30,218

60,266

35,491

95,757

1,009,410
641,119

705,422
1,024,797

1,714,832
1,665,916

1,650,529

1,730,219

3,380,748

158,539
1,809,068

127,780
1,857,999

286,319
3,667,067

Gainfully occupied population
Unoccupied population
Population in Finland
Population not in Finland ...
Total population

1
Excluding : Persons of independent means, owners of house property, pensioners, prisoners,
inmates of charitable institutions, etc.
SOURCE : Finnish Statistical Year-Bool-, 1933 (Helsingfors, 1933) and Communication from the
Finnish Government.

SECOND PART

SOCIAL INSURANCE
I.—Workmen's Compensation
1.—Legal Basis.
Workmen's compensation is regulated by the Act of 17 July 1925 as
completed by the Act respecting the Insurance Council of the same
date, and by the Orders of 30 November and 17 December 1925 and
13 March and 2 July 1926.
2.—Scope.
Every person who undertakes to perform manual work for another
person in return for remuneration or as an apprentice is liable to
insurance, with the exception of :
(a) members of the employer's family residing with him ;
(b) workers who perform work for not more than six consecutive
days for a person who normally employs no other workers hable
to insurance;

FINLAND

205

(c) workers in the employment of the State ; but manual workers
employed by the State who are injured by an accident and
their dependants are granted compensation in accordance with
the Act;
(d) agricultural and other workers in about twenty thinly-populated
communes where medical assistance is difficult to organise.
3.—Administration.
The employer may insure either with an insurance institution
based on the mutual liability of its members or with a Finnish accident
insurance company. The insurance institutions and companies
must be recognised by the Council of State, which ascertains that they
offer the guarantees prescribed by the Act.
If an employer who employs workers liable to insurance fails to
insure his workers, the commune concerned must undertake general
group insurance on their behalf. In this case, the commune collects
the contributions from the employers. If the commune fails to perform
this duty, it is liable for payment of compensation to injured workers
and their dependants.
The supervision of the enforcement of the Act is carried out by the
Insurance Council, which consists of a director, a duly qualified legal
member, and two medical practitioners, together with four employers'
representatives and four workers' representatives. The members of
the Insurance Council are appointed by the Council of State for a period
of four years, the employers' and workers' representatives on the
nomination of the central organisations of employers and workers.
The employers' and workers' delegates must represent industry,
agriculture and shipping.
4.—Financial Resources.
The cost of the insurance is borne by the employers, except in the
case of employers whose income for purposes of communal taxation is
assessed at less than 6,000 marks a year and who from an economic
point of view may be regarded as workers, when the contributions are
paid by the State. The insurance institutions have adopted a common
schedule, under which the workers are placed in various risk classes.
5.—Benefits.
Insurance covers all cases of bodily injury incurred by a worker
during his work or on the way to or from his place of work. Compensation may be refused or reduced if the worker has failed to follow the
rules issued for the prevention of accidents or if he has otherwise acted
contrary to the instructions of those in authority over him.
The following occupational diseases are put on the same footing as
industrial accidents for purposes of insurance : anthrax, diseases
caused by radiant energy or by the following substances : ammonia,
amyl alcohol, aniline dyes, antimony compounds, arsenic compounds, benzine, benzol and its derivatives, phenol, lead and lead
compounds, chlorine, unslaked lime, chloride of lime, mercury and
mercury compounds and amalgams, hydrofluoric acid, formaldehyde,

206

INTERKATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

phosphorus, phosphine, carbon monoxide, carbon dioxide, methyl
alcohol, caustic soda, caustic potash, nitroglycerine, petroleum, picric
acid, pyridine, sulphuric acid, sulphurous acid, carbon disulphide,
sulphuretted hydrogen, hydrochloric acid, coal-tar and vegetable
tar, low acid compounds of nitrogen and derivatives of nitrogen in
gaseous form, nitric acid and nitrous acid, turpentine, cyanogen
compounds.
(a) Benefits in case of temporary incapacity.
(i) Medical attendance including treatment in a hospital, medicines
and requisites for dressings, bandages and other necessary appliances
such as crutches, artificial limbs, spectacles, transport of the injured
person, etc.;
(ii) Cash benefit from the day on which incapacity for work begins,
for a maximum period of one year. No benefit is granted for incapacity
of less than three days. In case of complete incapacity, the cash
benefit amounts to two-thirds of the average daily wage if the injured
person has dependants, with a minimum benefit of 5 marks and a
maximum of 30 marks a day. If the injured worker has no family or
near relatives depending on him, the benefit is equal to one-half of his
average daily wage, with a minimum of 4 marks and a maximum of
25 marks a day. In case of partial incapacity, the benefit is fixed in
proportion to the degree of incapacity. No benefit is payable for
incapacity of less than 20 per cent.
If the injured person is unable to dispense with the attendance of
another person, the benefit is increased to four-fifths of the average
daily wage, with a minimum of 10 marks and a maximum of 40 marks
a day.
If the injured person is treated in hospital, the cash benefit is
replaced by a maintenance allowance for his wife (two-fifths of the
average wage) and for each child under 17 years of age (one-fifth of
the average wage), provided that the total of such allowances does not
exceed four-fifths of the cash benefit referred to above.
(b) Benefits in case of permanent incapacity.
If incapacity for work persists after one year, the injured worker is
entitled to a pension amounting in case of total incapacity to two-thirds
of his basic annual earnings if he has dependants or to one-half of such
earnings if he has no dependants. If incapacity is partial, the pension
is a fraction of the total pension corresponding to the diminution of
working capacity. No pension is granted when the working capacity
is reduced by less than 10 per cent. The pension is increased when the
injured worker is unable to dispense with the attendance of another
person.
The calculation of the pension is based on actual earnings up to
7.200 marks a year and on one-third of the earnings in excess of that
amount. No account is taken of earnings in excess of 24,000 marks.
(c) Benefits in case of death.
(i) Funeral benefit amounting to one-sixth of the basic annual
earnings.

207

FINLAND

(ü) A widow's pension amounting to one-third of the basic annual
earnings of the deceased person, and pensions payable to surviving
children, whether legitimate or illegitimate, until the age of 17 and
amounting to one-sixth of the basic earnings (one-fourth if both
parents are dead). The joint widow's and children's pensions may
not exceed two-thirds of the annual earnings of the deceased person.
6.—Statistics.
INCOME AND E X P E N D I T U R E FOB

1932

(in marks)
INCOME

EXPENDITURE

Contributions paid by employers
54,078,000
Interest
15,620,000
Miscellaneous
1,700,000
Total

Cash benefits
30,883,000
Benefits in kind
13,165,000
Administrative expenses ... 17,482,000
Payments to reserve fund
and other expenditure ... 9,868,000

71,398,000

Total

71,398,000

R E S E R V E F U N D S OF F I N N I S H ACCIDENT INSURANCE COMPANIES AT
31 D E C E M B E R 1932

(in marks)
Limited liability companies ...
...
Mutual societies

...

67,428,000
139,629,000

STATE E X P E N D I T U R E FOR ACCIDENT COMPENSATION ON BEHAXF OF ITS
E M P L O Y E E S I N 1932

(in marks)
Benefits
Cost of living bonuses
Insurance contributions
Total

1.—Legal Basis.

...

6,696,000
3,010,000
362,000

...

10,068,000

H.—Voluntary Sickness Insurance

Voluntary sickness insurance is regulated by the Decree of
2 September 1897.
2.—Scope and Administration.
The voluntary insurance of workers and salaried employees is
administered by mutual aid funds under the supervision of the
Insurance Office of the Ministry of Social Affairs. The funds are free
to organise their activities. Most of them are attached to a particular
undertaking.
Only two funds accept employers as members.
Apprentices are not accepted.
3.—Financial Resources.
The financial resources of most of the funds are derived from fixed
contributions payable by their members. Some of the funds are
merely mutual insurance clubs which charge contributions only when
necessity arises. A number of works funds are subsidised by the
emplo3'ers. The funds receive no subsidy from public moneys.

208

INTERNATIONAL SUHVEY OF SOCIAL SERVICES, 1933

4.—Benefits.
In case of sickness, members receive daily cash benefit for a period
of two to six months. The benefit rate varies in the different funds.
Maternity benefit is granted by only one fund.
About one-half of the funds grant medical treatment, but only
a few of them pay the cost of medicines.
Most of the funds grant funeral benefit.
5.—Statistics.
(a) Workers' Mutual Aid Funds
Number of insured workers in 1932
INCOME AND E X P E N D I T U R E F O E

65,980

1932

(in marks)
INCOME

Members' contributions ...
Employers' contributions
Interest

Total

EXPENDITURE

6,960,500
1,668,700
1,646,100

Cash benefits
Benefits in kind
Administrative expenses ...
Funeral benefit and other
expenditure
...
...

10,275,300

Total

'...

(b) Other Funds
Number of insured persons in 1932
Number insured only for funeral benefit

3,804,500
3,037,800
580,400
635,400
8,058,100

16,300
12,760

INCOME AND E X P E N D I T U R E FOR

1932

(in n arks)
INCOME

Members' contributions ...
Interest
Miscellaneous
...
...
Total

EXPENDITURE

1,220,500
665,400
58,700
1,944,600

Cash benefits
Administrative expenses .
Miscellaneous
Total

820,700
146,300
43,400
..

1,010,400

HI.—Voluntary Invalidity, Old-Age and Widows' and Orphans'
Insurance
A.—INSURANCE or WORKERS AND SALARIED EMPLOYEES

1.—Legal Basis.
The voluntary system of invalidity, old-age and widows' and
orphans' insurance is regulated by the Act of 1897 respecting workers'
mutual aid funds.
2.—Scope and Administration.
The provisions of the Act being very general, the funds are free to
organise their activities as they please. The workers' mutual aid funds
confine their activities to industrial workers.
In addition, there are a number of pension funds which are
independent of the mutual aid funds properly so called. The most
important of these are the widows' and orphans' funds to which officials
and other State employees belong.

209

FINLAND

3.—Financial Resources.
The financial resources are derived from contributions payable by
members. In many cases, the employers contribute voluntarily
towards the funds.
4.—Benefits.
Most of the workers' funds grant a pension to members on the
attainment of a certain age, provided they are no longer able to work.
A reduced pension is granted if incapacity occurs before the specified
age. Only in very rare cases is an old-age pension granted irrespective
of working capacity.
The State officials' funds are set up mainly to provide pensions for
widows and orphans.
The other funds grant various benefits, including in many cases
funeral benefit and sickness benefit.
5.—Statistics.
(a) Workers' Mutual Aid Funds
14,260

Number of insured workers in 1932
INCOME AND E X P E NDITUIÌE

FOR 1932

(in ir arks)
EXPENDITURE

INCOME

Workers' contributions ...
Employers' contributions
Interest
Miscellaneous
Total

2,643,900
2,468,600
3,185,700
2,679,700

Cash benefits
Administrative expenses ...

Total

10,977,900

Assets of funds at 31 December 1932

2,795,300
345,700

3,141,000

63,892,000 marks.

(b) Independent Pension Funds
Number of insured persons in 1932
INCOME AND E X P E NDITURE

5,710
EOR 1932

(in marks)
EXPENDITURE

INCOME

Members' contributions ...
Employers' contributions...
Interest
State subsidies
Miscellaneous
Total

4,003,900
937,500
7,608,600
871,000
1,669,700

Cash benefits
Administrative expenses ...
Miscellaneous

15,090,700

Assets of funds at 31 December 1932
x

G 12973

Total

4,088,500
458,900
3,400,200

7,947,600

109,783,000 marks.
o

210

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

1932

(in marks)
INCOME

EXPENDITURE

Members' contributions ... 21,455,300
Interest
21,630,700
State subsidies and miscellaneous
13,765,800
Total

Cash benefits
32,804,900
Administrative expenses ... 1,196,700
Miscellaneous
...
...
567,900

56,851,800

Total

Assets of funds at 31 December 1932
B.—SEAMEN'S

...

34,569,500

298,319,000 marks.

PENSION FUND

1.—Legal Basis.
The Seamen's Pension Fund is governed by the regulations
promulgated by the Ministry of Commerce and Industry on 27 May
1924, which cancelled the former regulations of 28 March 1879.
2.—Scope.
Admission to insurance is open to all Finnish seamen under 45 years
of age. Nevertheless, if the insured person is over 25 years of age at
the time of his admission to the Fund, he must have served in the
mercantile marine for at least half the time that has elapsed since his
twenty-fifth birthday, and he is required to pay half the contributions
for such period.
3.—Administration.
The Seamen's Pension Fund has its headquarters in Abo. The
chairman is appointed by the Ministry of Commerce and Industry.
The Governing Body of the Fund includes, in addition to the chairman,
four members appointed by the insured persons.
4.—Financial Resources.
The members' contributions are 100, 75, 50 and 25 marks respectively, according to the wage class to which they belong.
The Fund also receives the proceeds of tonnage dues paid by
Finnish and foreign ships putting into Finnish ports.
5.—Benefits.
The retiring age is fixed at 55 years. In order to be entitled to
an old-age pension an insured person must, however, have paid
contributions during a period of thirty years or have paid a corresponding number of contributions. In addition, he must have worked
on board ship for at least sixty months.
The right to a pension is also acquired in case of invalidity due to
an accident or sickness which prevents the victim from working on
board ship.

FINLAND

211

In case of death, the widow and children under 18 years of age are
entitled to receive the total pension if the insured person has
contributed towards the fund for thirty years ; in other cases, a reduced
pension is paid. Infirm children continue to receive their pension
after the age of 18 years.
The pension amounts to 800, 600, 400 or 200 marks a year according
to the wage class to which the insured person belongs.
6.—Statistics.
Number of persons in 1932 in receipt of :
(a) Old-age and invalidity pensions
(6) Survivors' pensions
...
...

...
...

728
787

IV.—Voluntary Unemployment Insurance
1.—Legal Basis.
A new Act on unemployment insurance was promulgated on
23 March 1934 and came into force on 1 January 1935.
3.—Scope and Administration.
Unemployment insurance is voluntary. It is administered by
unemployment funds subsidised by the State and established on the
basis of mutual liability. The funds may not be connected with any
society, organisation or other association formed for other purposes
than unemployment insurance, which might on that account restrict
their independence. The Ministry of Social Affairs has the right to
appoint one of the members and a deputy member to the managing
committee of each fund.
3.—Financial Resources.
The State pays in respect of each daily allowance, up to the
amount of 12 marks, two-thirds of this sum for insured persons with
dependants and one-half of the said sum for other insured persons.
In respect of fractions of allowances in excess of 12 marks, the State
pays up to one-half in the case of insured persons with dependants, and
one-third for other insured persons.
4.—Benefits.
The unemployment funds may grant daily allowances, and also
special allowances for rent, clothing and travelling. Benefit is granted
only to insured persons who have been members of the fund for at
least six weeks immediately before application for an allowance, and
who have paid at least 26 weekly contributions. Daily allowances
and rent allowances are granted only after a waiting period fixed
by the rules of the fund, which must not be less than 10 nor more than
18 days. The rules of the unemployment funds may provide for the
payment of benefit also to members whose unemployment is due to
short time, provided that the total number of hours of work, in the
undertaking in which the insured person is employed, has not, for a
period of at least three consecutive weeks, exceeded four full working
days a week or the equivalent of this.
0 2

212

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

The maximum daily allowance for insured persons with dependants
is 30 marks, but must not exceed two-thirds of the daily wage
ordinarily paid at the date in question to persons of the same occupation
as the insured person. For other insured persons, the allowance
must not exceed three-quarters of the maximum rate for insured
persons with dependants.
5.—Statistics.
Unemployment Funds
17,093

Number of workers insured in 1933
INCOME AND E X P E N D I T U R E FOR

1932

(in marks)
INCOME

EXPENDITURE

Insured persons' contributions
261,000
State subsidy
389,000
Interest and other income ... 273,000
Total

Daily allowances
... '
Travelling allowances
Other special allowances
Administrative expenses, etc.

923,000

Total

Assets of the funds at 31 December 1933 ...

599,000
4,000
45,000
89,000
737,000

352.000 marks.

THIRD PART
SOCIAL ASSISTANCE
I.—Chüd Welfare
1.—Legal Basis.
The Acts respecting guardianship (19 August 1898), public
assistance (1 June 1922), children born out of wedlock (27 July 1922,
as amended on 9 December 1927) and State educational institutions
for neglected children (19 December 1922). The Act of 19 December
1922 and the Order of 21 June 1923 respecting State subsidies to
communal and private institutions. The Act of 11 November 1927
and the Order of the same date respecting State subsidies to day
nurseries and the Order of 22 December 1927 respecting the supervision
of children born out of wedlock. The Act of 1 July 1927 and the
Order of the same date respecting State subsidies to institutions for
the mentally deficient (chiefly the provisions relating to institutions
for mentally deficient persons under age).
2.—Administration.
The enforcement of the above legislation is entrusted to :
(a) child welfare superintendents, one of whom must be
appointed in each commune and whose duty it is to protect
chüdren born out of wedlock ;

213

FTNLAND

(b) the child welfare committees set up in twenty towns and
two rural communes. The main duty of the committees is
to assist children taken away from their family, i.e., placed by
the communes in children's homes or boarded out with private
persons. They also organise protective measures for young
persons in general. In all the other communes the protection
of poor children and orphans is entrusted to the poor-relief
board.
The institutions now in existence are as follows :
(a) Educational institutions for neglected children (10 State,
8 communal and 4 private institutions, with accommodation
for 1,475 persons).
(b) Institutions for mentally deficient children (2 State educational institutions and one industrial home, and 4 hostels,
with accommodation for 185 persons).
(c) Day nurseries, which receive children from 3 to 7 years for
the day, free of charge. At present there are 95 such nurseries,
with accommodation for approximately 6,800 children, which
receive State subsidies.
{d) Children's homes. Children maintained by the authorities
may be placed in a communal almshouse only pending other
arrangements. Where it is impossible for the poor-relief board
of the child welfare committee to board assisted children out
with families, the commune must maintain a children's home.
At the end of 1931 there were 117 communal homes and about
100 private homes for children.
-Statistics.
STATE SUBSIDIES TO EDUCATIONAL INSTITUTIONS I N

(in marks)
State educational institutions for neglected children
Communal institutions
Private institutions
Day nurseries ...
Holiday camps ...
Institutions for mentally deficient children
Miscellaneous ...

1933

6,363,583.85
2,234,200.45
2,331,159.65
3,924,412.60
80,000.00
1,649,243.75
750,000.00

H.—Poor Relief
1.—Legal Basis.
This branch of assistance is regulated by the Act of 1 June 1922,
as amended by the Acts of 7 April 1933 and 18 May 1934.
2.—Scope.
Poor relief is granted by the communes, each of which must
appoint a poor relief board to make the necessary arrangements.
Every Finnish citizen is entitled to relief from his commune of
residence in case of necessity. If the commune refuses relief, the
person concerned may apply to the provincial governor with a view

214

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

to bringing an action against the commune. The commune of residence
is entitled to claim a refund of the cost of relief from the assisted person's commune of origin. When relief is given to a person of foreign
nationality, and in certain other cases mentioned in the Act, the cost
incurred is refunded by the State.
If a person in receipt of relief appears likely to remain permanently
in a state of indigence, the commune of residence or the commune of
origin may apply to have him sent back to the latter commune.
Under the Poor Relief Act an employer must provide for the
maintenance of his workers, their wives, and children under age living
with their parents, for the full duration of their contract. Likewise,
workers who, since they were 20 years of age, have been for 20 years in
the service of the same employer or the same undertaking, and who
during this period have become ill or in any other way incapable of
earning their own living, and are unable to live on their private means
or those of their wife or children, are entitled to be maintained for the
remainder of their life, in return for such work as they are able to do,
by their employer or his successors or the owner of the undertaking in
question.
All assisted persons, with the exception of minors, are required
to refund to the commune the relief received, provided that this does
not make it impossible for them to maintain themselves and thendependants. Nevertheless, the commune may demand that the cost
of relief be met by work in a workhouse or other institution for a
period not exceeding three years.
3.—Administration.
The poor relief institutions in each commune are the almshouse,
the children's home and the workhouse. Each commune is required
to set up an almshouse and, when required, a workhouse for able-bodied
persons who have to work in return for relief granted to themselves
and their families. The State meets one-half of the cost of building
and equipping workhouses.
If a commune does not own a lunatic asylum, or has no share in
such an institution, it must set up a special ward for the mentally
deficient in the almshouse.
Minors maintained by the poor relief board and inmates of poor
relief institutions are subject to disciplinary rules. If an inmate
refuses to comply with a disciplinary penalty, the provincial governor
may sentence him to a term of compulsory labour not exceeding one
year.
A certain number of almshouses have a special sick ward. Sick
persons who are unable to pay for their treatment may also be admitted
as fourth-class patients in public hospitals.
Persons in need of assistance may be assisted in their own home
or boarded out with a private family. The poor relief board may send
persons to the communal almshouse only when it is considered unsuitable to grant them assistance in their own home or board them
out with private persons.

215

FINLAND

No special measures are taken for the assistance of the unemployed,
the disabled, the aged, widows and children, such persons being assisted
under the same conditions and by the same institutions as other
indigent persons. Nor can the cost of medical treatment for poor
persons be completely separated from other forms of assistance. (See
also Second Part : Social Insurance).
The State and the communes have, however, organised relief work
for the unemployed. For this purpose, the State expended in 1933
a sum of approximately 302,400,000 marks, and the communes a sum
of 85,491,566 marks. In addition, 4,249,169 marks were spent by the
State in vocational education facilities for the unemployed.
4.—Statistics.
N U M U E B OF Pooit B E L I E F INSTITUTIONS I N

—
Almshouses
Children's homes
Workhouses ...
Other institutions
Special w a r d s in almshouses :
For children
F o r t h e m e n t a l l y deficient
F o r o t h e r infirm p e r s o n s . . .

1932

Towns

Ilural
Communes

Total

37
30
2
2

304
89
8

341
119
10
2

6
18
22

14
150
136

20
168
158

NUMBEB OF PERSONS IN RECEIPT OF P o O B RELIEF IN

—
M a i n t a i n e d in i n s t i t u t i o n s . . .
Boarded out
Otherwise assisted ...
Total

1932

under 15
years of
age

From 16
to 05
years

(JG years
and
over

Age
unknown

Total

10,704
19,683
208

33,989
3,028
51,564

11,891
2,414
13,824

253
50
337

56,837
25,175
65,933

30,595

88,581

28,129

640

147,945

ExPENDITUItE OF THE COMMUNES ON P o O B RELIEF IN

(in marks)
Administration and supervision
...
...
...
Almshouses, etc.
Lunatic asylums
...
...
...
...
...
Workhouses
Placing of persons in hospitals and sanatoria
...
Placing children in schools for the mentally deficient
Placing persons in other institutions
...
...
Boarding out with private persons ...
...
...
Other forms of assistanco
...
...
...
...
Refunds to other communes ...
...
...
...
Miscellaneous
Total

1932

13,189,021
127,049,495
11,592,232
2,637,711
44,879,619
860,426
3,506,912
36,079,194
129,587,915
23,559,733
10,001,190
404,943,448

216

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

in.—Shipowners' Liability towards Sick or Injured Seamen
1.—Legal Basis.
The shipowner's liability is regulated by the Seamen's Act of
8 March 1924 as amended on 26 May 1925.
2.—Scope.
The Act applies to every Finnish vessel with the exception of rowing
boats and similar small craft.
The Act does not apply to :
(a) vessels belonging to the State which are used for purposes of •
defence or administration;
(6) pleasure boats ;
(c) vessels on which only members of the owner's family are
employed.
Vessels belonging to the Forestry Department and used for the
transportation of timber, and vessels belonging to the State which are
not used solely for administrative purposes are not excluded from the
provisions of the Act.
The Act applies to all persons employed aboard the vessels covered
by the Act.
3.—Benefits.
The individual liability of the shipowner continues throughout
the duration of the seaman's employment and during any extension
of his agreement due to the vessel's requirements, the impossibility of
going ashore, or any other reason.
If a seaman is still sick or injured at the expiry of his agreement, the
shipowner's liability continues for a maximum period of six weeks,
and in the case of a Finnish seaman under care abroad, for a maximum
of twelve weeks.
The shipowner's liability for the maintenance of a repatriated
Finnish seaman whose engagement is terminated abroad is prolonged
until the arrival of the seaman at his domicile in Finland.
The liability with regard to sickness is the same as that with regard
to accident.
The shipowner's liability is cancelled if a seaman has incurred illness
or injury intentionally or through criminal action or negligence or other
grave fault, or if he has concealed the illness or injury at the time of
engagement.
The shipowner has no further liability when a seaman is put ashore
on account of venereal disease at a communicable stage. When a
seaman of Finnish nationality is discharged abroad for this reason, his
return journey is paid out of State funds.
The shipowner's liability in case of the death of a seaman is the same
as in the case of accident, except that he is required to meet the cost of
burial even when death is due to a grave fault on the part of the
seaman or to an injury or illness concealed at the time of engagement.

FINLAÌO)

217

The shipowner is freed from all responsibility while the seaman is cared
for at State expense.
The benefits payable at the shipowner's expense are :
(a) medical treatment and medicines on board and ashore during
the period of the shipowner's liability ;
(6) maintenance during the same period ; no provision, however,
is made for the payment of a maintenance allowance to sick
or injured seamen put ashore but not sent to hospital ;
(c) payment of wages until the expiry of the seaman's agreement
even if the seaman is unable to perform his work. If a seaman
is discharged on account of a dangerous illness or the result of
an accident, he is entitled to one month's wages (two months
for a ship's officer, three months for a master) ;
(d) cost of repatriation, if the seaman is of Finnish nationality
and has been put ashore in a foreign country on account of
sickness or accident;
(e) cost of burial.
No statistics are available.

FOURTH PART
HOUSING
1.—Legal Basis.
The Act of 8 January 1927 and the Order of the same date respecting
the State Fund for Popular Dwellings (small one-family houses), and
the Decree of 12 August 1927 respecting the allocation of loans by that
Fund. The Act of 8 January 1927 respecting co-operative mortgage
loan societies for the construction of popular dwellings.
2.—Authorities and Undertakings concerned in Building.
The resources of the Fund are supplied in equal parts by the
Ministry of Social Affairs and the Ministry of Agriculture. The
Ministry of Social Affairs grants loans to the communes and the cooperative mortgage loan societies for the construction of popular
dwellings in towns and other urban districts.
The Ministry of
Agriculture grants loans for the building of popular dwellings in rural
areas.
3.—Financing by Public Authorities.
Houses for which a loan is granted must be situated on the property
of the borrower or on property leased by him. Each dwelling must have
a floor space of not more than 100 sq. metres.
The loan must be redeemed within 25 years. Annual repayment
is made at the rate of 7£ per cent, including 4 | per cent, interest.

218

INTERNATIONAL SURVEY Olí SOCIAL SERVICES, 1933

4.—Other Measures to Encourage Building.
The Building Mortgage Bank facilitates the financing of real
property in general. The majority of the Governing Body of the
Bank must consist of State representatives. The State has endowed
the Bank with a capital of 200 million marks in the form of State
bonds. Loans amounting to approximately 1,000 million marks have
been granted to the co-operative societies.
5.—Statistics.
Building in Towns in 1933
N U M B E R OF DWELLINGS B U I L T

Dwellings
Rooms

1,036
2,638

FIFTH

PART

FAMILY ALLOWANCES
Family allowances are granted in Finland only to State officials.

SIXTH PART

HOLIDAYS W I T H

PAY

Holidays with pay are granted to workers under the Act of 1 June
1922 respecting contracts of employment, and to salaried employees
under the Act of 24 October 1919, as amended by the Act of 29 May
1922.
The Act respecting contracts of employment applies to all workers
in private undertakings, including agriculture and domestic service.
The Act respecting the work of salaried employees covers work in all
commercial undertakings and offices.
The length of service giving right to a holiday is six months. The
minimum length of the holiday is fixed at four working days for workers
and one week for salaried employees. After one year, it is increased to
seven working days for workers and two weeks for salaried employees ;
for the latter the holiday period is prolonged up to three weeks after
five years' service and up to one month after ten years' service.
During the holiday the wage earner receives his usual pay. If he
is in receipt of board and lodging from his employer but does not spend
his holiday at home, he is entitled to receive an allowance based on the
usual prices of the locality in which he works.

FRANCE
SUMMARY
TAGE

F I R S T PAKT :

Statistics of Population

220

SECOND P A S T : Social Insurance

...

221

I.—Workmen's Compensation
...
...
...
II. —General Social Insurance Scheme (Sickness,
Invalidity, Old Age and Death)
III.—Minors' Insurance
...
...
...
...
IV.—Seamen's Insurance
...
...
...
...
V,—Railwaymen's Insurance
...
...
...
VI.—Postal Workers' Insurance
...
...
...
VII.—Insurance of Workers in State Undertakings ...
VIII.—Social Insurance in Alsace-Lorraine ...
...
IX.—Voluntary Unemployment Insurance
...
X.—Voluntary Social Insurance
...
...
...

221

THIRD P A K T :

Social Assistance

225
234
240
247
255
261
264
279
281

...

284

I.—Assistance for the Aged, Infirm and Incvirable
II.—Unemployment Relief ...
...
...
...
III.—Shipowners' Liability towards Sick or Injured
Seamen
IV.—Welfare Offices
V.—Free Medical Assistance ; Hospitals ...
...
VI.—Tuberculosis Service
...
...
...
...
VII.—Lunacy Service ...
...
...
...
...
VIII.—Assistance for Large Families ...
...
...
IX.—National Scheme to Encourage Large Families
X.—Birth Bonuses
XI.—Maternity Assistance
XII.—Assistance for Destitute Children
...
...

284
286

FOURTH PAKT :

Housing

FIFTH PABT :

Family Allowances

SIXTH P A E T :

Holidays with Pay

...

289
290
291
292
294
295
297
298
299
301

...

303

...

306
309

FIRST PART
STATISTICS
1931

CENSUS.

POPU

G A I N F U L L Y OCCUPIED POPULATION CLASSIFIE
INDUSTRIAL STATU

Brandi of Economic Activity
Agriculture, stock-raising, foresto' ami
fishing
Mining, surface mining and quarrying ...
Manufacturing industries
Transport
Commerce, banking, insurance, entertainment
Public services, administration ¡mil
defence
Public utility services ...
Liberal professions
Personal and domestic services
Total

Heads of
undertakings

Salaried
employees

4,078,825
5,384
710,131
30,738
726,382

6,512
17,726
538,581
184,663
1,023,167

52,432
32.6S6

865,251
20,953
324,102
43,030

6,236,578

3,024,885

Wage-e

2,140
411
4,417
570
352
33
9
7
74
9,14

Source : Bulletin de la Statistique générale de la France, Vol.

FRANCE

221

SECOND PART

SOCIAL INSURANCE
I.—Workmen's Compensation
1.—Legal Basis.
Compensation for industrial accidents : Acts of 9 April 1898>
30 June 1899, 12 April 1906, 18 July 1907, 13 December 1912, 15 July
1914, 15 December 1922, 2 August 1923, 30 April and 8 Julv 1926,
and 14 May 1930.
Compensation for occupational diseases : Acts of 25 October 1919
and 1 January 1931.
2.—Scope.
The legislation extends to all persons employed in commercial,
industrial or agricultural undertakings and to domestic servants. It
does not apply to public servants and persons employed in the liberal
professions, or to jobbing workers and home workers. Maritime
workers and the workers and employees in certain State undertakings
are covered by a special scheme.
3.—Administration.
Employers are not bound to insure. Those who wish to do so may
take out an insurance either with the National Accident Insurance
Fund (but only against the risks of permanent incapacity and death)
or with private institutions placed under the control and supervision
of the administrative authorities, such as fixed premium companies,
mutual associations, associations binding their members jointly and
severally for the payment of compensation, and agricultural mutual
insurance funds.
In the case of insolvency on the part of the insurer or of an employer
who is not insured, the compensation due to injured workers or their
dependants is paid out of a Guarantee Fund administered by the
Government Deposit and Trust Fund.
4.—Financial Resources.
Employers who are insured must bear the whole cost of the necessary
insurance premiums.
Those who are not insured must pay to the victims of accidents
or their dependants the benefits prescribed by law.
The Guarantee Fund is constituted as follows1 :
(a) for employers who are insured, by a surcharge of 1 per mille
on the premiums, paid directly by the insurance institutions
to the Deposit and Trust Fund.
(6) for employers who are not insured, by a surcharge of 2 per mille
on the capital value of the pensions which they have to pay
in the event of an accident followed by death or permanent
incapacity to their workers.
1

Decree of 26 May 1932.

999

INTERNATIONAL SURVEY OF SOCLAL SERVICES,

1933

5.—Benefits.
The risks covered are :
total temporary incapacity of)
more than 4 days
I resulting from an industrial accident
total or partial permanent f or one of the occupational diseases
incapacity ...
...
... I specified as such by law.

death ...

...

...J

The Act of 1 January 1931 contained the following list of
occupational diseases for which compensation is due :
1. OCCUPATIONAL LEAD POISONING

(Diseases caused by lead and its compounds)
Diseases due to lead
poisoning

Lead colic.
Rheumatism due to lead
poisoning.
Paralysis of the extensor
muscles
and
other
forms of paralysis due
to lead poisoning.
Nephritis.
Cardlo-vascular disorders
due to lead poisoning.
Lead gout.
Lead ansemia.
Meningoencephalitis due
to lead poisoning.
Amaurosis due to lead
poisoning.

P e r i o d of l i a b i l i t y : o n e y e a r
Industrial processes liable to cause lead poisoning among
workers
' Metallurgical treatment and refining of lead.
Casting and rolling of lead and its alloys.
Casting of zinc with a lead content.
Treatment of ores containing lead, including residues containing
lead from zinc works.
Tempering and annealing with lead.
Typefounding with alloys of lead.
Manufacture and polishing of so-called tinware from alloys of lead.
Soldering with alloys of lead.
Soldering metal articles made of lead or with a lead content.
Working composing machines in which an alloy of lead is used.
Tinning with alloys of lead.
Manufacture of toys from alloys of lead.
Manufacture of metallic capsules and covers containing lead.
Melting of old tins and other objects soldered with alloys of lead.
Handling type made of alloys of lead.
Handling or use of printing inks containing lead.
Manufacture of lead compounds.
Preparation and handling of compounds containing lead in crysta
glass works.
Manufacture and grinding of colours with a lead basis.
Painting work of all kinds involving the use of substances containing
lead or done on substances containing lead.
Work with the blowpipe on substances coated with paint containing
lead.
Manufacture and repair of lead accumulators.
Manufacture of drying oils and varnishes containing lead.
Manufacture of lead enamels and the application thereof.
Manufacture of pottery and glazed earthenware with enamels
containing lead.
Decoration of china with enamels containing lead.
Enamelling of metals with enamel containing lead.
Varnishing and lacquering with products containing lead.
Dyeing with colours or substances containing lead.
Manufacture of artificial flowers involving the use of lead colours.
. Polishing by means of lead filings or putty powder with a lead content.

2. OCCUPATIONAL HYDRARGYRISM

(Diseases caused by mercury and its compounds)
Period of liability o n e y e a r
Diseases due to mercury
poisoning

Mercurial
Mercurial
Mercurial
Mercurial
Mercurial

stomatitis.
tremors.
paralysis.
anaemia.
nephritis.

Industrial processes liable to cause mercury poisoning among
workers
1. Distillation of mercury.
2. Manufacture of incandescent lamps and radiographic tubes witli
the use of the mercury blowpipe.
3. Manufacture of mercurial barometers, manometers and thermometers.
4. Gilding, silvering and tinning with the use of mercury.
5. Manufacture of mercury compounds (azotate, chlorides, cyanide,
etc.).
6. Carrotting of furs with acid nitrate of mercury and felting of
the carrotted furs.
7. Treatment of furs and skins with mercury compounds.
8. Bronzing and damascening with mercury compounds.
9. Stuffing animals with the use of mercury compounds
10. Manufacture of fulminate of mercury' primers.
11. Manufacture and repair of mercury accumulators.

223

FRANCE
3. OCCUPATIONAL

POISONTNG

BY MEANS O F

TETRACHLORETHANE

(Diseases caused by tetrachlorethane)
Period of liability : one year
Diseases due to tetrachlorethane poisoning
Tmindice cirrhosis
te"raehÍor¿tíam

Industrial processes liable to cause tetrachlorethane poisoning among workers
f - Manufacture of artificial pearls.
pnolvnouriris
ol>n<mntls
celusoti
ausetl
bhv
J
j 2. Various processes using tetrachlorethane as
a solvent.
l

OCCUPATIONAL

BENZENE

POISONING

(Diseases caused by crude or rectified benzene) (C„HC and its homologues)
Period of liability : one year
Diseases due to benzene poisoning

Industrial processes liable to cause benzene
poisoning among workers
Production of benzol by the distillation of coal
and tar, and its use.
Rectification of benzene (CeHe).
Extraction of fatty substances, extraction of
fat from bones and from skins of geese,
manufacture of colouring matters, dyeing
and cleaning, feather-dressing, manufacture
and repair of pneumatic tyres, manufacture
of waterproof cloth, clothing, boots and
shoes and hats involving the use of benzene.
In all the above processes, operations effected
within carefully closed apparatus such that
no odour of benzene is perceptible are
excluded.

Gastro-intcstinal disorders due to benzene
accompanied by recurrent vomiting.
Polyneuritis of the lower limbs due to benzene.
Ocular troubles duo to benzene (optic neuritis).
Hœmorrhagic purpura.
Progressive aniemia accompanied by leucopenia
and mononucleosis.
Acute attacks due to benzene poisoning (coma,
convulsions).

5. OCCUPATIONAL

PHOSPHORISM

(Diseases caused by white phosphorus)
Period of liability : one year
Diseases duo to phosphorus poisoning
PhmnlinniD nenrnsis
1 nospnorus necrosis.

Industrial processes liable to cause phosphorus poisoning
( Manufacture of strips of phosphorous paste for
J
relighting miners' lamps.
< Manufacture of detonating toys involving the
1_ use of white phosphorus.

P O I S O N I N G CAUSED BY THE ACTION OF X - R A Y S OR THE FOLLOWING
RADIO-ACTIVE SUBSTANCES : U R A N I U M AND ITS SALTS, U R A N I U M - X ,
I O N I U M , R A D I U M AND ITS SALTS, R A D O N , POLONIUM, T H O R I U M ,
MESOTHORIUM, RADIOTHORIUM, T H O R I U M - X , T H O E O N , A C T I N I U M
Diseases due to X-rays or other radio-active
substances
1. Acute and chronic radio-dermatitis and
radium dermatitis.
Period of liability : one year.
2. Radiologist's cancer.
Period of liability : five years.
3. Simple ancemia accompanied by leucopenia
caused by rays.
Period of liability : one year.
4. Pernicious aniemia caused by rays.
Period of liability : one year.
5. Leucaemia caused by rays.
Period of- liability : one year.
0. Radio-necrosis of the bones caused by rays.
Period of liability : one year.

Processes liable to cause these diseases
Extraction of radio-active substances from
ores.
Manufacture of derived radio-active substances.
Manufacture of medical apparatus for radium
treatment and X-ray apparatus.
Research or manipulative operations on
radio-active substances and X-rays in
laboratories.
Manufacture of radio-active chemical ana
pharmaceutical products.
Manufacture and application of luminous
products with a radium content.
Work in clinics, medical, dental and radiological laboratories, anti-cancer hospitals
and centres in which workers are exposed
to rays.
Sale and hire of radium and radio-active
substances.
Work in all industries and businesses using
X-rays and radio-active substances.

224

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

(a) Basic wage.
Benefits in case of death or permanent incapacity are calculated
in terms of the previous or basic wage of the worker. The basic
wage means his total annual remuneration if it does not exceed 8,000
francs. Only a quarter of the fraction of the wage between 8,000 and
18,500 francs is reckoned in the basic wage, and only an eighth of
any fraction above 18,500 francs, unless there is an agreement to the
contrary raising the coefficient.
(b) Benefits in case of temporary incapacity.
(1) A daily allowance (workdays and public holidays)
half the wage, due from the fifth day if the incapacity lasts
than ten days, and from the first day if it lasts more than
The daily allowance is due until the injury is healed or death
(2) The cost of medical and hospital treatment.

equal to
not more
ten days.
occurs.

(c) Benefits in case of permanent incapacity.
(1) Total : a life annuity equal to two-thirds of the annual basic
wage.
(2) Partial : a life annuity equal to half the reduction in the basic
wage resulting from the incapacity.
(3) In all cases, the cost of medical and hospital treatment until the
injury is healed.
(4) Vocational re-training.
(d) Benefits in case of death.
(1) A life annuity to the consort equal to 20 per cent, of the victim's
basic wage.
(2) A temporary pension, up to the age of sixteen years for the
children, fixed in accordance with the following scale :
1
2
3
4

Fatherless or motherless children
Per cent.
child
...
...
... 15Ì - . ,
2 5
children
Uast
children
35 fDa8lc
or more children
... 40 J w a g e -

Orphans
Per cent.
Not more t h a n 3 children :
Ì c.,
er c h i I d
P
^ULc"
More than 3 children :
f Dasic
inali
60 J w a g e "

(3) In the absence of a consort and children under sixteen years
of age, a life annuity to the ascendants and a temporary pension up
to the age of sixteen years to descendants who were supported by the
victim, the pension for each such beneficiary shall equal 10 per cent.
of the basic wage, subject to an aggregate maximum of 30 per cent.
(4) Funeral expenses not exceeding 200 francs.
6.—Statistics.
The following statistics, supplied to the Office by the Ministry
of Labour and Social Welfare, are compiled from a variety of sources,
sometimes calculated on the basis of relative figures ; they are therefore

225

FRANCE

only very approximate, except in the case of t h e income a n d expenditure
of t h e insurance institutions, where t h e figures are strictly correct.
(1) Number of persons covered b y t h e workmen's compensation
legislation 1
10,309,000
(2) Employers insured 2 :
Total number of accidents registered in 1932 ...
...
...
1,552,507
1
Total
of wages insured
F r s . 74,546,999,406
Based
on amount
the 1926 census.
- Figures for 1932.
INCOME

EXPENDITURE

Francs
Premiums paid
1,622,217,151
Income from investments
157,340,742

Total

1,779,557,893

Tranes
Benefits :
Temporary incapacity... 366,919,067
Permanent
incapacity
(capital value of pensions)
551,884,853
Medical, pharmaceutical, a n d hospital expenses
281,165,883
Funeral benefits
...
502,247
Administrative expenses 445,331,695
Other expenses 1
... 45,003,811
Total
1,690,807,556

(3) Employers n o t insured :
Expenditure in respect of compensation for accidents which
occurred in uninsured undertakings 2 ...
...
...
... 350,000,000
1
This
expenditure includes legal expenses and experts' fees, amounting to 36,111,008 francs.
2
Estimate based on the figures given above on the assumption that about 78 per cent, of
the workers covered by the workmen's compensation legislation are employed by insured
undertakings.

n.—General Social Insurance Scheme1

(Sickness, invalidity, old age, death)
Legal Basis.
T h e obligation t o insure against sickness, m a t e r n i t y , old age,
invalidity a n d death was established by t h e Act of 5 April 1928.
Before i t came into force, t h e Act was amended (on 30 April 1930).
T h e final t e x t , which came into force on 1 J u l y 1930, set u p two distinct
insurance schemes, one applying to workers in commerce a n d industry
a n d t o domestic servants, a n d t h e other limited to agricultural
occupations.
The scheme applying t o industrial a n d commercial workers was
modified b y an Act of 28 J u l y 1931.
The applicability of invalidity insurance t o agricultural wageearners was recognised in a circular d a t e d 20 J u l y 1933, a n d was made
effective b y t h e Legislative Decree of 30 J u n e 1934.
- i . — S C H E M E APPLYING TO WORKERS IN INDUSTRY AND COMMERCE AND
DOMESTIC SERVANTS

1.—Scope.
Insurance is compulsory for all employed persons whose total
a n n u a l remuneration does n o t exceed 15,000 francs. This m a x i m u m
is raised t o 18,000 francs in towns of more t h a n 200,000 i n h a b i t a n t s ,
1
The provisions as set out below were amended by the Legislative Decrees
of 28 a n d 30 October 1935, more particularly in respect of the scope of t h e
scheme, the qualifying period and the rate of contribution.

X G 1297S

226

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

and in industrial districts specified by the Minister of Labour. For
employed persons with one or more dependent children the wage
limit is raised by 2,000 francs for one child and 4,000 for two children.
I t is increased to 25,000 francs for three or more children.
Foreign workers whose real and permanent domicile is in France
are insured in the same way as French workers, but only on condition
of reciprocity do they receive family allowances and certain pension
bonuses.
Frontier workers are exempted from the obligation to reside in
France if an agreement to this effect has been concluded with their
country of origin.
Liability to compulsory insurance ceases at the age of sixty.
The Act does not apply to :
(1) workers employed by the State, the departments, communes,
and public institutions for poor relief, to merchant seamen,
miners and allied workers, and employees of railways of
general or local importance, tramways and undertakings
holding a concession for a public gas or electricity service,
all of whom continue to be covered by special schemes ;
(2) the Departments of Haut-Rhin, Bas-Rhin and Moselle,
where the special social insurance scheme established by local
legislation remains in force.
2.—Administration.
The risks of sickness, maternity, invalidity treatment, and death
(assessment risks) are assigned (a) to departmental funds, or by way
of exception, inter-departmental funds, covering, in addition to
persons who wish to be insured with them, such persons as have not
selected any other organisation ; (b) to funds created either by mutual
aid associations or federations of such associations or by trade unions
or trade union federations, or again by independent associations of
insured persons ; (c) to employers' institutions which have been authorised to insure, as primary insurance institutions, against assessment
risks.
The risks of invalidity and old age (accumulation risks) are assigned
either to the National Old-Age Pension Fund or to funds of private
origin.
All funds of private origin must be approved by the Ministry of
Labour before starting their activities.
The management of the sickness, maternity and survivors' funds
and of the funds of private origin covering invalidity and old age
is vested in a board of management consisting of at least 18 members,
not less than half being insured persons elected by the general
meeting of the insured, 6 being representatives of employers chosen
by employers affiliated to the funds and the remainder being doctors
appointed on the recommendation of the medical associations.
3.—Financial Resources.
The financial resources of the insurance scheme are contributions
payable by the insured persons and their employers, contributions
from public authorities, and miscellaneous revenue.

FRAÍTCE

227

(a) Contributions.
The contribution, payable in equal parts by the insured persons
and their employers, is, until 1 January 19371, fixed at 8 per cent, of
the basic wage.2
For the purpose of determining the basic wage, the insured persons
are divided into five3 classes, according as their annual remuneration
ranges from 1 to 2,399 francs (daily basic wage : 6 francs), from
2,400 to 4,499 francs (daily basic wage : 12 francs), from 4,500 to
5,999 francs (daily basic wage : 18 francs), from 6,000 to 9,599 francs
(daily basic wage : 24 francs), or exceeds 9,600 francs (daily basic
wage : 36 francs).
In addition, for each worker, whether liable or not to insurance,
whose remuneration exceeds the maximum wage but is below 25,000
francs a year, the employer is liable for a contribution the amount of
which is fixed annually by Decree.
The contributions are paid by the employer, who, on each pay day,
deducts from the wages of the insured persons the amount of contributions due by each.
(b) State subsidy.
The State subsidy comprises :
(1) the liabilities assumed by the State under the Act on workers'
and peasants' pensions when the general scheme of social
insurance came into force, namely, 540 million francs a year4 ;
(2) an additional amount intended to guarantee the minimum
old-age pension awarded to persons between sixty and sixtyfive years of age when the Act came into force. This amount
is estimated at 100 million francs a year.
(c) Miscellaneous contributions.
The miscellaneous contributions comprise :
transfers to the social insurance scheme of the savings that this
scheme has made it possible to effect on social assistance
services ;
a deduction from, the royalties paid to the State by the Bank of
France and from the Treasury's share of gaming revenue.
4.—Benefits.
The social insurance scheme for workers in industry and commerce
and domestic servants covers the risks of sickness, premature
invalidity, old age and death, and makes provision for benefits in
connection with family responsibilities, maternity, and involuntary
unemployment due to lack of work.
(a) Benefits in case of sickness.
In order to qualify for benefits in kind and in cash the insured
person must have sixty daily contributions credited to his account
during the three months preceding the beginning of the illness.
1
2
3
4

Finance Act of 28 February 1934, section 37.
7 per cent, for the year 1936 (Legislative Decree of 28 October 1935.)
Provision amended by t h e Legislative Decree of 28 October 1935.
Provision amended by the Legislative Decree of 16 July 1935.
P2

228

INTERNATIONAL SURVEY OE SOCIAL, SERVICES, 1933

The benefits in kind are due not only to the insured person but
also to his or her consort and their children under sixteen years of age
who are not earning.
The amount of these benefits is advanced by the fund or refunded
by it to the insured person, within the limits of a scale of charges that
fixes for each class of medical treatment the maximum sum that the
fund undertakes to pay.
Apart from any difference between the actual fees of the doctor
and the scale of charges limiting the liability of the fund, the insured
person defrays part of the medical and pharmaceutical expenses
appearing in the scale. This part is, in respect to medical expenses,
fixed at 15 per cent, for insured persons in the two lowest wage: classes,
and at 20 per cent, for the three other classes ; it is fixed at 15 per cent.
in all cases for pharmaceutical expenses.
When a sick insured person cannot continue or recommence his
work, he is entitled, from the sixth day of incapacity and until
recovery, or until the expiry of the six months following the first
medical certificate, to a daily allowance; this allowance is equal to
half his basic wage and is paid for every working day. It is payable
from the fourth day when the insured person has less than three
children or wards of the nation dependent on him.
The daily allowance is increased by 1 franc for each child under
sixteen years of age dependent on the insured person.
(b) Maternity benefits.
As in the case of sickness insurance, the right to maternity benefits
is conditional on the payment of sixty daily contributions during the
three months preceding the beginning of pregnancy1. The benefits in
kind (medical expenses and drugs) are payable not only to insured
women but also to the wives of insured persons. An insured woman
who ceases work is entitled to the daily sickness benefit for six weeks
before confinement and six weeks after.
An insured woman who nurses her child is further entitled, during
such period and for not more than nine months in all, to a monthly
allowance of 150 francs for the first four months, 100 francs in the
fifth and sixth months and 50 francs in the remaining months.
An insured woman who, on account of physical disablement or
sickness, is unable to nurse her child entirely herself may, if the child
remains with her, be granted milk vouchers up to an amount not
exceeding two-thirds of the nursing bonus.
(c) Benefits in case of invalidity.
In order to be entitled to invalidity benefits, the insured person
must have been insured for the last two years and must have 480 daily
contributions credited to his account during the two years.
An insured person suffering from incapacity for work of at least
66 per cent., i.e., two-thirds, is entitled to an invalidity pension and to
medical, surgical and pharmaceutical benefits.
1

Act of 28 July 1931.

FBANCE

229

If the person entered the insurance scheme before the age of
thirty, the pension is equal to at least 40 per cent, of the average wage
as determined by the compulsory contributions paid each year from
the age of sixteen, if the insured person is over this age. This rate is
increased up to a maximum of 50 per cent, by 1 per cent, of the wage
for each year of insurance beyond the thirtieth and representing at
least 240 daily contributions.
If the person entered the insurance scheme after the age of thirty,
the pension is reduced by 1 per cent, for each year between thirty and
the age of entry, save that it cannot fall below a prescribed minimum
rate.
In any case the pension is increased by 100 francs per year per
child under sixteen years of age.
(d) Benefits in case of old age.
The old-age insurance scheme guarantees a retiring pension to an
insured person who reaches the age of sixty years. The pension may
be awarded at the age of fifty-fi ve years or deferred until a later age.
The old-age pension is, as a rule, constituted by the accumulation
—the capital being alienated or repayable as the persons concerned
desire—of the fraction of the contribution entered in the individual
account of each insured person. This fraction is fixed as follows :
Insured persons under thirty years of age : 2 per cent, of the
basic wage ;
Insured persons of thirty years of age and over : 3-6 per cent, of
the basic wage.
In the normal scheme every insured person who at the age of
_sixiy^years or up to the age of sixty-five years can prove at least thirty
full contribution years, each representing at least 240 daily contributions, is entitled to an old-age pension of not less than 40 per cent.
of the average wage, as determined by the compulsory contributions
paid each year from the age of sixteen. If the insured person cannot
prove the required minimum of contributions, he is entitled only to
the annuity yielded by the accumulated contributions in his individual
account.
The pension is increased by 10 per cent, for insured persons who
have brought up three children to the age of sixteen years, whatever
the actual charges at the moment the risk matures.
Special provisions apply to insured persons who are in the " transitional period," i.e., who were over thirty years of age on the day
when the Act came into force, and who have since that date paid
240 contributions per year without interruption. Their pension
is equal to as many thh-tieths of the normal pension as they have
completed contribution years, provided the amount be not less than
the minimum guaranteed pension of 600 francs.

230

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(e) Benefits in case of death.
The survivors' insurance scheme secures the payment of a capital
sum fixed at 20 per cent, of the average annual wage to the legal representatives of an insured person who has been insured for the year, and
has sixty daily contributions credited to his account during the three
months preceding the beginning of his fatal illness. This sum may
not be less than 1,000 francs in the case of an insured person who has
contributed regularly, but it may not exceed two-thirds of the actual
wages of the deceased.
The capital at death is increased by 100 francs for every child
under sixteen years of age left by the deceased.
In addition, widows of insured persons with at least three living
children, legitimate or recognised, under thirteen years of age, are
entitled to a temporary orphan's pension for each child after the
second under thirteen years of age.
When the children of an insured man or an insured woman are
orphans, each child under thirteen years of age is entitled to an
orphan's pension.
The age of thirteen is raised to sixteen when the child continues
its schooling, vocational training, etc.
Orphans' pensions may not be less than 120 francs per year per
child benefiting.
(f ) Unemployment guarantee.
The unemployment guarantee covers persons who, immediately
before they became unemployed, had paid social insurance contributions
for a full year without interruption, and had fulfilled the conditions
as to contributions which would qualify them for sickness benefit.
This Guarantee Fund undertakes the payment of contributions on
behalf of such persons so as to maintain their right to benefit. I t may
not operate on behalf of an unemployed person for more than 80 days
a year.
B.—SCHEME APPLYING TO AGBICTJI/TUBAL WOBKEBS

1.—Scope.
The compulsory insurance scheme extends to all persons of both
sexes employed in agriculture or forestry whose remuneration does
not exceed the maxima fixed for liability to insurance in the case of
commercial and industrial workers.
For the purposes of the Social Insurance Act, the term " agricultural
workers " includes :
(a) Workers in the occupations in agriculture and forestry
governed by the Industrial Accidents Acts ;
(6) persons employed by rural craftsmen who do not -employ
more than two workers ;
(c) persons employed by contractors for threshing and other
agricultural work ;
(d) share-farmers ordinarily working alone with the help of
members of their family and not owning any part of the

FEAÍtCE

231

stock when they become occupiers of the undertaking (owners
of real estate farmed on a share basis are deemed to be employers) ;
(e) persons employed by agricultural trade unions and other
agricultural organisations.
2.—Administration.
The management of the special insurance scheme for agricultural
workers is vested :
(0) as regards the risks of sickness, treatment of disabled persons,1
maternity and death, in approved mutual benefit societies,
agricultural insurance societies assimilated to these societies,
and the agricultural section of the departmental fund ;
(6) as regards the risks of old age and invalidity, 1 in autonomous
insurance funds exclusively for agricultural workers, and the
National Old-Age Pension Fund.
3.—Financial Resources.
The financial resources of the special scheme for agricultural
workers are constituted by :
contributions levied on the insured persons and their employers ;
surcharges proportionate to the compulsory contribution;
a part of the State subsidy assigned to the general body of
insured persons.
(a) Contributions.2
The contribution, half of which is due by the insured person and half
by the employer, owner or lessor, consists of two parts, one of which,
independent of the wage, serves to cover the risks of illness, maternity
and death, and the other, varying with the wage, serves to cover the
risk of old age.
The contribution serving to cover the risks of sickness, maternity
and death is compulsory only to an amount of 5 francs a month due
by the employer and 5 francs due by the worker.
The contribution serving to cover the risk of old age is fixed at
2 per cent, of the basic wage.
For the purpose of assessing this wage, agricultural workers are
divided into the various classes established for wage earners in commerce
and industry with reference to the average daily wage as ascertained
for the administration of the Accident Insurance Acts.
(b) Surcharges.2
To the amounts compulsorily paid in by the insured persons and
their employers are added :
(1) a surcharge of 10 francs a month which doubles the compulsory contribution covering tb.3 risks of sickness, maternity
and death ;
1

Legislative Decree of 30 J u n e 1934.
The provisions relating to contributions and surcharges were amended
by Legislative Decree on 30 October 1935.
2

232

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(2) a surcharge equal to 80 per cent, of the sums paid in under the
head of old-age insurance by insured persons of over thirty
years of age.
Since 1 April 1932 these surcharges have been borne by the State.
4.—Benefits.
The special insurance scheme for agricultural workers covers the
risks of sickness, maternity, death, invalidity and old age.
(a) Sickness, maternity and death benefits.
The Act specifies neither the amount nor the conditions for granting
the benefits due in the case of sickness, maternity or death. These
benefits are fixed by the rules of the mutual benefit societies or the
agricultural section of the departmental fund to which the agricultural
workers are affiliated.
(b) Invalidity and old-age benefits.
As regards conditions of award and the maxima guaranteed, the
old-age and invalidity pensions of agricultural workers rest on the same
bases as those of industrial and commercial workers.
5.—Statistics.
Number of insured persons :
(a) Industry, commerce, and domestic service.
(i) Compulsorily insured persons on the register a t
31 December 1933
(ii) Compulsorily insured persons having paid contributions
in 1933
approx.
(Hi) Voluntarily insured persons having paid contributions in
1933
approx.
(b)

7,970,880
6,400,000*
12,000 2

Agriculture.
(i) Compulsorily insured persons on the register a t
31 December 1933
approx.
(ii) Compulsorily insured persons having paid contributions
in 1933
approx.
(Hi) Voluntarily insured persons on the register at 31 December
1933
approx.

800,000
640,000
132,000

INCOME

Contributions
Subsidy from public authorities
1

Francs
3,271,276,895
535,904,224 s

The average period for which contributions were paid is 10J months per

year.
2

Including 7,000 insured persons' wives n o t being wage earners.
Including 27,404,224 francs, being t h e proceeds of surcharges on contributions paid b y insured agricultural workers.
3

FRANCE

233

EXPENDITUBE

(a) Sickness and maternity insurance.
Benefits paid b y the sickness insurance funds for industrial
a n d commercial workers
...
...
...
...
...
Benefits paid b y maternity funds for industrial and commercial workers ...
...
...
...
...
...
...
L u m p sums paid a t death b y funds for industrial and commercial workers ...
...
...
...
...
...
...
Benefits paid by sickness insurance funds for agricultural
workers
Benefits paid by maternity funds for agricultural workers ...
L u m p sums paid at death by agricultural funds
...
...

873,414,626
151,533,837
32,432,109
62,582,738
16,608,657
1,700,303

Total benefits paid by all the distribution funds
1,138,272,270
Supplementary benefits paid to beneficiaries under the maternity and survivors' insurance scheme in respect of family
expenses
19,703,228
Supplementary benefits paid by the funds out of their surpluses, opening of clinics, sanatoria, etc., in 1932 and 1933
54,423,000
Administrative expenses of the distribution funds
...
...
89,709,466
(b) Invalidity
insurance.
Invalidity pensions payable a t 31 December 1933 (annual value
2,286 francs)

4,624,718

499,936

(d) Expenditure arising out of the liquidation of workers'1 and peasants' pensions
Payments effected in 1933
384,073,747
ASSETS OF INSOKANCB F U N D S

At 31 December 1933 the assets of t h e primary distribution funds included
5,003,184-50 francs of State Bonds, and the following securities (nominal capital
value) :
French bonds issued in the U.S.A.
...
...
...
...
§5,000
Francs
State securities and securities guaranteed by the State
... 324,230,600
Crédit Foncier bonds
5,374,000
Bonds issued by colonies, protectorates, departments and
municipalities ...
...
...
...
...
...
...
12,414,000
Railway and shipping companies'debentures ...
...
... 255,312,000
Loans to public institutions and collective bodies (agricultural
credit, municipal credit)
24,830,000
The funds had also made the following loans and investments :
Loans to departments and collective bodies ...
...
...
16,000,000
Loans to building societies and agricultural credit associations
2,000,000
Mortgage loans and funds invested in buildings
...
...
31,000,000

In addition to cash in hand, on postal cheque account and at the
General Treasuries, the funds had a credit balance of about 850,000,000
francs at the Deposit and Trust Fund.

The primary capitalisation funds had, since the beginning of their
activity, invested a total of 4,305,000,000 francs, approximately made

234

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

up as follows (the figures do not include payments to the General
Labour Fund) :
Francs
State securities and securities guaranteed b y the State or
accepted as security by the Bank of France
...
...3,167,000,000
Loans to departments, communes, public institutions and railway companies
881,000,000
Loans to building societies and agricultural credit associations
62,000,000
Buildings and land
106,000,000
Mortgage loans
89,000,000

They also had a credit balance of about 277,000,000 francs on
current account at the Deposit and Trust Fund.
*
* *
The assets of the General Guarantee Fund were as follows at
31 December 1934 :
Francs
1,670,029,315-18
73,947.612-25
603,067,149-96
62,786,028-50
231,148,281-33

Securities
Mortgage loans
Loans to collective bodies
Real estate
General Labour F u n d

2,640,978,387-22

Total

Under the Legislative Decree of 15 May 1934, the capitalisation
funds and the General Guarantee Fund transfer part of their moneys
for investment to the General Labour Fund, the purpose of which is
to reduce unemployment by financing public works on a large scale.
At 31 December 1934 the assets of this Fund amounted to
827,753,882.85 francs, contributed as to 596,605,601.52 francs by
the capitalisation funds and as to 231,148,281.33 francs by the General
Guarantee Fund.

in.—Miners' Insurance
A.—SICKNESS

INSURANCE

1.—Legal Basis.
Insurance against sickness was made compulsory by the Act of
29 June 1894, the provisions of which were amended and recast by
the Act of 21 March 1930.
Within the framework of this legislation, the Decree of 30 June
1930 brought the miners' and allied workers' compulsory insurance
scheme into line with the Social Insurance Act.
2.—Scope.
The scope of the sickness insurance scheme for miners is identical
with that of the old-age, invalidity and widows' and orphans' scheme
(see below, p. 236).
3.—Administration.
The insurance institutions are the miners' benefit societies, which
are friendly societies each having a monopoly of insurance in a given
area. These societies are administered by a board of management, of
which one-third of the members are appointed by the employer and
the other two-thirds elected by the manual workers and salaried
employees.

235

FRANCE

4.—Financial Resources.
The financial resources of the insurance funds are constituted by
the contributions of the insured persons and their employers, to which a
State subsidy may be added. The amount of the contribution is
fixed in conformity with the rules by the board of management of
each fund, subject to a maximum of 3-5 per cent, of the wage1 (maximum wage assessable : 15,000 francs). The contribution is paid in
equal parts by employer and worker.
In addition, the friendly societies may receive State subsidies,
which are granted as a rule under the same conditions as for mutual
benefit societies.
5.—Benefits.
(a) Compulsory benefits.
The Act leaves the rules of each fund to define the nature and
amount of the benefits. I t merely lays down that these benefits shall
consist of assistance to and treatment of insured persons prevented
from working by illness, and, in the case of death, their grants to
dependants.
Nevertheless, in application of the rules laid down for bringing
the miners' scheme into line with the Social Insurance Act, the rules
of every fund must include clauses ensuring members and their families
benefits equivalent to those for which provision is made in the Act,
in respect of sickness, maternity and treatment for disabled persons.
The rules must also mention the conditions under which persons
may transfer from the miners' insurance to some other scheme.
(b) Optional benefits.
The rules of the funds may provide for the grant of supplementary
or exceptional assistance.
6.—Statistics.
Number of insured persons in 1933 :
Workers
Salaried employees

...

264,117
10,002
274,119

INCOME

ASD

E X PENDITTJKE

IXCOME
Insured persons'contributions ...
Employers'contributions
...
State subsidy
Gifts and legacies
Fines for offences against the rules
of the society
Fines for works ofiences
Interest on investments
From reserves
Miscellaneous receipts
Total

Francs
33,942,165
33,931,311
8,330,141
478,044
87,242
1,287,347
1,296,347
776,183
8,038,970
88,167,710

R e s e r v e s a t 31 D e c e m b e r 1933
1

FOE 1933
EXPENMTUKE

Francs
Benefits in kind
43,811,033
Cash benefits to insured persons ... 33,095,858
Funeral expenses and various
allowances to families of insured
persons
9,263,782
Maternity benefits
1,240,037
Administrative expenses
2,024,497
Miscellaneous expenses
5,148,665

Tutul

94,583,872
...

P r o v i s i o n a m e n d e d b y t h e D e e r e s of 8 A u g u s t 1935.

31,835,481 francs.

236

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

B.—INVALIDITY,

OLD-AGE AND WIDOWS' AND OBPHANS' INSURANCE

1.—Legal Basis.
The compulsory insurance scheme now in force Was established by
the Act of 25 February 1914, and subsequently extended, more
particularly by the Acts of 9 March 1920, 24 December 1923, 11 July
1925,16 April 1929, 8 July 1932 and 12 July 1933.
The special scheme for miners was brought into line with the
general social insurance scheme by a Decree of 30 June 1931.
The rules laid down in this Decree are based on the principle that
the benefits for which provision is made in the Miners' Insurance
Act are due to all persons who fulfil the conditions stipulated in that
Act and to their dependants. Persons who have not fulfilled these
conditions are entitled only to the benefits for which provision is made
in the general insurance scheme ; the worker and his dependants must
then fulfil the conditions on which benefit may be claimed under the
latter scheme. Finally, in certain cases of invalidity, when the conditions laid down in both the general and the miners' scheme have been
fulfilled, the interested parties are free to choose between the two.
2.—Scope.
The scope of the insurance is fixed by definitions of :
(a) the undertakings covered;
(b) the workers liable.
The Act applies to all mining undertakings, to subsidiary industries
covered by a decree of assimilation, and to slate quarries.
All manual workers and salaried employees in the undertakings
covered, as well as the safety examiners elected by the miners,
employees of friendly societies and trade union officiais are liable.
3.—Administration.
The insurance scheme is administered by the Miners' Autonomous
Pension Fund.
This Fund is managed by a board of eighteen members, six being
elected by the insured persons, six by the mine-owners, and six representing the State.
4.—Financial Resources.
The financial resources of the fund are constituted by :
(a) contributions amounting to 11-3 per cent, of the wages
insured, payable in equal parts by employer and workers,
the maximum wage on which the contribution is calculated
being fixed at 15,000 francs ;
(6) the annual contribution of the State, fixed at 4"5 per cent.
of the wages bill ;
(c) subsidy paid out of the proceeds of an increase in the coal
tax and not exceeding 20 million francs per annum ;
(d) miscellaneous revenue.

FBANCE

237

5.—Benefits.
The insurance scheme covers the risks of old age, invalidity and
death.
(a) Old age.
The retiring age is fixed at fifty-five years.
The pension is constituted by :
(1) the accumulation in an individual account of part of the
contributions of the insured person and his employer equal to
2 • 5 per cent, of the wage ;
(2) A pension supplement paid out of a solidarity fund which is
built up from all the other resources of the autonomous fund.
Only workers who have been employed for at least fifteen years
in the mines are entitled to this supplement, which is intended
to raise the annual amount of the pension to a figure between
1,650 and 5,500 francs, according to the insured person's
length of service (fifteen to thirty years).
If at fifty-five years of age, the insured person has been engaged for
more than thirty years in mining work, his pension is increased by
66 francs for every year's work beyond the thirtieth.
Under the Decree of 30 June 1931 the minimum pension so guaranteed may, from the age of sixty onwards and provided the insured
person has paid contributions under the general social insurance
scheme, be combined with the life annuity derived from the individual
account which has been opened for him under that scheme.
Miners who have not yet.worked fifteen years in the mines may
however receive, likewise from the age of sixty years onwards, the
minimum pension specified in the Social Insurance Act.
Those who Were under thirty years of age on 1 July 1930, the date
at which the Act came into force, are entitled to a pension equal to
40 per cent, of their average yearly wages, provided that since the date
mentioned they have paid contributions in respect of at least thirty
years, either under the general scheme, or under the special legislation
concerning miners' pensions, each contribution year including at least
240 daily contributions.
Persons who were thirty years or over on 1 July 1930 are entitled
to a pension if for each year since that date, and for at least five years,
they have paid contributions under one of the two schemes, also on
condition that they have paid at least 240 daily contributions in each
year. The pension is equal to as many thirtieths of 40 per cent, of the
average yearly wages of insured persons as the beneficiary has completed contribution years, but it may in no case be less than 600 francs.
(b) Invalidity.
An insured person whose general capacity for work has been
reduced by at least two-thirds is entitled to an invalidity pension,
the amount and qualifying conditions of which are fixed either in the
general social insurance scheme or in the miners' special scheme.

238

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

The following are entitled to benefits under the miners' special
scheme :
(i) workers and employees who have been engaged in mining
for not less than ten nor more than fifteen years and who.
having fulfilled the conditions laid down both in the general
scheme for wage earners and in the special scheme for miners,
choose to claim benefit under the latter ;
(ii) workers and employees who have been engaged in mining for
fifteen years or more and whose status must by law be determined with reference to the Miners' Insurance Act, provided
such persons have fulfilled the qualifying conditions for claiming
benefit under that Act, namely, ten years' mining service
and 500 days actually worked in the course of the two years
preceding the beginning of the illness or infirmity which caused
invalidity.
If these conditions have been fulfilled, the disabled person receives,
during a maximum period of five years, a monthly allowance of 330
francs. When this period has expired, the allowance is converted
into an annual pension, which is invariably fixed at 4,000 francs
unless the person concerned reaches the age of fifty-five years during
the period mentioned, in which case he receives his old-age pension in
lieu of the invalidity pension even if the amount of the former be less.
If the person concerned reaches the age of fifty-five years after
having been granted the definitive invalidity pension, his old-age
pension, if it be larger in amount, is then substituted for the former.
The following are entitled to benefits under the general social
insurance scheme provided they fulfil the conditions laid down in that
scheme :
(i) workers and employees who have been engaged in mining for
more than ten years and less than fifteen if they prefer to
claim benefit under this scheme ;
(ii) workers and employees who have been engaged in mining for
more than fifteen years, but do not fulfil the qualifying conditions for claiming benefit under the Miners' Insurance Act ;
(in) insured foreigners who are not assimilated to French nationals
whatever the length of their mining service.
The invalidity pension paid under the general scheme is fixed in
principle at 40 per cent, at least of the average wage corresponding to
the compulsory contributions paid by each insured person. I t varies
with the age of entry into insurance, being reduced by one-thirtieth
in respect of each year or fraction of a year spent in insurance between
the age of thirty and that of entry into insurance.
The pension may be supplemented by allowances for children.1
(c) Coal bonuses for persons in receipt of an old-age or invalidity pension.
The Autonomous Fund issues free coal vouchers to persons in
receipt of miners' old-age pensions who can prove at least fifteen years'
employment in coal mines. Persons in receipt of invalidity pensions
1

See analysis of the general social insurance scheme, p . 225.

FRANCE

239

are entitled to free coal if they have been employed for at least ten
years in mines, including at least five in coal mines.
(d) Survivors' benefit.
Widows.—A widow is not entitled to a pension unless she has
reached the age of fifty-five years. Moreover she must have been
married at least three years before her husband ceased to pay contributions under the scheme. This latter condition is not enforced, however,
when the husband has ceased work in the mine owing to an accident
or when at the time of his ceasing work the married couple had a
child of their own.
The widow's pension is fixed at 50 per cent, of the old-age pension
to which her husband was entitled or which he might have claimed if at
the date of his death his right to pension had matured.
Widows are further entitled to half a coal bonus.
Orphans.—The legitimate or recognised children of an insured
person who has fulfilled certain conditions as to length and continuity
of service and the legitimate children of workers whose pension rights
have matured after at least fifteen years' employment in mines are
entitled to a pension up to the age of 12 years, or 14 years if they still
go to school.
The orphan's pension is fixed at 360 francs a year for each child
who has lost his father ; the pension is also due on the mother's death
if she was employed in a mine. The amount is 720 francs for orphans
who have lost both parents.
Allowances paid at death.—The widow of a person who has fulfilled
the necessary conditions for claiming benefits under the general social
insurance scheme is entitled to an allowance. If the insured person
leaves no widow or child under 16 years of age, the allowance is paid
to his descendants or, failing these, to any relatives in the ascending
line who were dependent upon him.
The allowance is 150 francs for widows without children, 200 francs
for widows with one child, 250 francs for those with two children, and
300 francs for those with three or more children.
If the insured person has been employed in a mine during the three
years preceding the illness or accident which caused his death, and if
during that period at least 792 days of work or absence on account of
injury or sickness have been credited to his personal account, the
allowance due on his death is 600 francs for a widow without children,
and is increased by 100 francs for each child. If the only survivors
are children, they are entitled to the allowance which their mother
might have claimed.
Allowances at the same rates are due to widows and orphans under
16 years of age of workers and employees who were in receipt of a
pension and had been employed in mining for at least thirty years or
who at the time of their death were in receipt of a monthly invalidity
allowance.
Widows of workers who were in receipt of a pension and had been
employed for fifteen to twenty-nine years in mining are also entitled
to an allowance at death of 75 to 150 francs.

240

INTERNATIONAL STJEVEY OF SOCIAL S E R V I C E S ,

1933

6.—Statistics.
Number of insured persons who had paid contributions in 1933—
285,857.
INCOME

AND E X P E N D I T U R E FOB

INCOME

1933
EXPENDITURE

Francs
Insured persons' contributions 120,787,541'70
Employers'contributions
...120,787,541-71
State subsidy
96,343,455-28
Income from investments
... 08,414,564-71
Refunds and surpluses
... 57,312,672-55
Other income
810,487-12
Total
494,456,263-07

Francs
Cash benefits
331,945,150Administrative expenses
...
4,273,750-7«
Other expenditure and adjustinent of advances
1,866,635-56
Total

338,085,537-09

Capital refunded
477,175,890-75 Capital invested
651,050,789-403
'Including
457,358-43
francs
in
respect
of
reserved
capital
refunded.
!
and 3 Including 459,309,940 • 95 francs, being the proceeds of the conversion of Treasury bonds
and stock.
DISTRIBUTION OF

BENEFITS

Pensions or allowances being paid at 31 December 1933
Number
I n v a l i d i t y pensions or allowances
Old-age pensions
Widows'pensions
Orphans'pensions

...

1,929
68,863
31,404
6,432

...
...
...
...

G r a n t s m a d e t o s u r v i v o r s in 1933

Annual value
(francs)
5,969,212-60
283,029,866-40
70,728,851-20
2,419,960-80
F r . 1,202,953

BALANCE

The credit balance of the Autonomous Fund (grouping all the funds)
at 31 December 1933 was 2,133,994,933-20 francs.

IV.—Seamen's Insurance1
A.—ACCIDENT

AND

SICKNESS

INSURANCE

Legal Basis.
Seamen's risks of accident and sickness are covered by three schemes.
The shipowner is required by the Maritime Labour Code of 1928
to afford seamen any treatment they may need for injuries received
in the ship's service or for sickness occurring on board.
From the moment that the shipowner's liability ends, occupational
risks of permanent or temporary incapacity or death are covered by the
French Seamen's Provident Fund in accordance with the Acts of
1 January 1930 and 31 March 1931 (section 110).
Non-occupational accident and sickness risks are covered, in
virtue of the Act of 30 April 1930 and Decrees of 30 June 1931 and 18
December 1933, by the general social insurance scheme.
The liability of shipowners under the Maritime Labour Code will
be described in Part III. The following analysis bears on :
(a) the insurance of occupational risks by the French Seamen's
Provident Fund ;
(6) the insurance of general risks by the Distribution Fund of
the National Institute for Disabled Seamen.
1
T h e provisions a s set o u t below were further a m e n d e d b y a Legislative
D e c r e e o n 30 O c t o b e r 1935, m o r e p a r t i c u l a r l y in r e s p e c t of t h e d e t e r m i n a t i o n of
t h e s u b s i d y g r a n t e d t o t h e N a t i o n a l I n s t i t u t e for D i s a b l e d S e a m e n .

FRANCE

241

(a) Insurance against Occupational Risks with Seamen's
Provident Fund
1.—Scope.

The following are compulsorily and exclusively members of the
Provident Fund :
(a) All Frenchmen professionally engaged in maritime navigation
(registered seamen) ;
(6) All Frenchmen registered as members of the purser's department on the list of the crew of French ships other than warships
or ships exclusively assigned to a public service.
French nationality is an essential condition for admission to the
insurance scheme. In no case can foreigners belong to the Provident
Fund.
2.—Administration.

The French Seamen's Provident Fund is managed by the National
Institute for Disabled Seamen. A tripartite board consisting of ten
representatives of the State and Parliament, ten representatives of
the shipowners and ten representatives of the insured persons is
responsible for supervising and protecting this institution.
3.—Financial Resources.

The financial resources of the Fund are constituted by :
contributions levied on shipowners and insured persons ;
a deduction that may not exceed 0-5 per cent, from the value
of all contracts concluded with the administrations of the
Mercantile Marine and the Navy ;
an annual State subsidy ;
income from investments and miscellaneous receipts.
The system of contributions (workers' and employers') depends
upon the nature of the trade.
For distant trade, international coasting trade and ocean fisheries
the contributions of the crew and of the employers are proportionate
to wages.
For the French coasting trade, deep-sea fisheries, pilotage, local
coasting trade and local fisheries, the insured persons are divided into
six classes according to their duties on board and irrespective of
the wages actually received.
The contributions are due for the entire period of employment
under articles of agreement.
The contributions proportionate to wages are fixed at 1 per cent.
for the insured persons and at 4 per cent, for the shipowners.
The fixed monthly contributions due from insured persons vary
from 0.85 francs a month in the case of ships' boys to 11.40 francs in
the case of masters of distant-trade ships, chief engineers and doctors.
Those due by shipowners for the same classes of insured persons vary
from 3.75 to 45.60 francs a month.
x

G 12073

242

INTERNATIONAL SURVEY OE SOCIAL SERVICES, 1 9 3 3

Exemption from payment of the whole or half the shipowner's
contribution is granted to registered seamen who themselves sail boats
of small tonnage, and are engaged in the local coasting trade or fishing.
4.—Benefits.
The benefits guaranteed by the French Seamen's Provident Fund
cover the occupational risks of loss of earning capacity and death.
(a) Benefits for temporary incapacity.
In the case of temporary incapacity the seaman is entitled to a
daily allowance equal to half his wages and not less than 11.50 francs
a day.
(b) Invalidity pensions.
In the case of permanent total incapacity the pension is fixed at
two-thirds of the wages at the time of the accident. If the insured
person has to pay the fixed contribution, the basic wage is reckoned
as 100 times the contribution paid.
The pension may in no case be less than 4,200 francs. When the
wage exceeds 12,000 francs, the pension is fixed at two-thirds of the
amount up to 12,000 francs only. For the remainder, up to 18,000
francs only one-fourth ranks for pension, and over 18,000 francs only
one-eighth.
In the case of permanent partial incapacity the pension is fixed
at half the reduction in the insured person's wages due to the accident
or illness, but if the invalidity is 70 per cent, or more the pension may
not be less than 2,940 francs.
The provisions concerning the rates of pension due when the wages
exceed 12,000 francs, described in connection with pensions for total
incapacity, are also applicable to the benefits for permanent partial
incapacity.
(c) Survivors' pensions.
In the case of death due to an accident or illness of occupational
origin, the widow or orphans receive half the pension that the husband
or father would have obtained in the case of total incapacity, subject to
a guaranteed minimum of 2,100 francs. If the husband dies while in
receipt of a pension without his death having any connection with an
accident or an illness of occupational origin, the widow or the orphans
receive half the pension which the deceased was drawing.
Failing a widow or orphans entitled to benefits, non-pensioned
ascendants receive an annuity fixed at half the widow's pension for
one ascendant, and the whole of the widow's pension for two ascendants
(d) Family responsibilities.
Family responsibilities carry with them an annual supplement of
360 francs for each child under sixteen years of age. The supplement
is paid up to the age of 18 or 21 in the event of apprenticeship or con
tinued study. If owing to infirmity the child is unable to earn his living,
there is no time limit to the payment of the supplement.

243

FBANCE

5.—Statistics.
Number of insured persons in 1933 : 160,753 registered seamen
and 34,918 employees of the purser's department.
INCOME AND E X P E N D I T U R E FOR 1933
EXPENDITURE
INCOME
1'rancs
Insured persons' contributions . . 14,822,417 Cash benefits
5,132,032 Belief
Employers' contributions
8,475,000
State subsidy
4,134,488 Administrative expenses
Income from investments
.
5,026,341
Other income
. 37,590,278
Total
Total

Francs
81,161,146
418,236
473,143

Number of pensioners :
Invalidity pensioners
Widows and orphans
Ascendants

...
...

2,981
12,096
2,779

(b) Compulsory Insurance of Non-occupational Bisks by the
National Distribution Fund
1.—Scope.
The scope is the same as that of the compulsory insurance scheme
against occupational risks.
2.—Administration.
The National Distribution Fund is managed by the National
Institute for Disabled Seamen under the same conditions as the French
Seamen's Provident Fund.
3.—Financial Resources.
The Distribution Fund is constituted by an aggregate contribution
amounting to 1.8 per cent, of wages, one-half being payable by the
seamen and the other by the shipowners.
4.—Benefits.
When in the interval between two voyages a seaman falls sick or
has an accident, he is entitled to benefits in cash and in kind under the
general social insurance scheme, always provided he has paid contributions in respect of 60 days during the quarter, or 240 days during
the year, preceding the accident or the beginning of his illness.
The cost of treatment (benefits in kind) is repaid by the Fund to
the insured person within the limits of a liability schedule fixing the
maximum amount which the Fund undertakes to pay for each class
of medical assistance.
Apart from any difference there may be between the fees actually
charged by the practitioner and the limited liability of the Fund under
its schedule, the insured person has to bear a share of the medical and
pharmaceutical expenses as scheduled. The share varies in respect of
medical expenses between 15 and 20 per cent, according to the fund.
In respect of pharmaceutical expenses, it is invariably fixed at 15 per
cent.
Q 2

244

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

When an insured person who is sick is unable to resume work,
he is entitled as from the sixth day of incapacity and until he is cured,
or until six months have elapsed since his state of ill health was medically
certified, to a daily allowance equal to half his wages.
The daily allowance is increased by 1 franc for every child under
16 years of age dependent upon the insured person.
The insured person is entitled to recover, on the same conditions
as if he had received the treatment himself, the cost of any treatment
received by his consort, children under 16 years of age, or wards of the
Nation for whom he acts as guardian, should they fall ill at any time.
In the event of a confinement, the wife of the insured person is
entitled to the benefits for which provision is made in the Fund's
liability schedule.
Women who are employed in the purser's department and are
insured also receive a daily allowance equal to half their wages and
payable for six weeks before and six weeks after childbirth.
5.—Statistics.
The National Distribution Fund only began to operate on 1 April
1934 (Decree of 18 December 1933).
B.—INVALIDITY,

OLD-AGE AJSTD WIDOWS' AJSTD ORPHANS' INSURANCE

Registered Seamen's Pension Fund
1.—Legal Basis.
The general invalidity, old-age and survivors' insurance scheme
was last reorganised by the Act of 1 January 1930, which was amended
by the Act of 31 March 1931 (Section 110).
2.—Scope.
All Frenchmen and naturalised Frenchmen who engage professionally in maritime navigation (registered seamen), including employers
sailing their own ships, are compulsorily and exclusively members of
the Pension Fund.
Here, as in the case of occupational risks, French nationality remains
an essential condition for membership of the insurance scheme.
3.—Administration.
The Registered Seamen's Provident Fund is managed by the
National Institute for Disabled Seamen under the same conditions as
the French Seamen's Provident Fund.
4.—Financial Resources.
The financial resources of the Fund are constituted mainly by :
contributions levied on registered seamen and shipowners;
an annual State subsidy;
interest on investments and miscellaneous receipts.
The systems of contribution vary with the nature of the trade and
the conditions of engagement of the seamen.
Seamen engaged in distant trade and ocean fisheries and those
engaged by the month or by the voyage in coasting trade and local

FRANCE

245

coasting trade are required, whatever their class, to pay a variable
contribution equal to 5 per cent, of their wages and profits.
Insured persons engaged on a profit-sharing basis in coasting trade
and local coasting trade and those engaged in local fishing, deep-sea
fishing and pilotage are required to pay a fixed monthly contribution
ranging according to their class from 4.80 francs in the case of ships'
boys to 57 francs in the case of masters of distant trade ships.
The shipowners are required to make an employer's contribution
equal to thirty-five fiftieths of the contributions mentioned above.
They are exempted from the whole or half of their contribution under
the same conditions as in the insurance scheme for occupational risks.
Shipowners must pay contributions in respect of the foreigners
they employ.
5.—Benefits.
The benefits guaranteed by the Registered Seamen's Old-Age
Pension Fund cover the risk of old age as well as the general risks of
loss of earning capacity and death.
(a) Old-age pensions.
The old-age pensions are divided into two classes : long-service
pensions properly so-called, and proportionate pensions.
The long-service pensions are earned at fifty years of age and after
at least twenty-five years' employment on board. They are divided
into two parts : a guaranteed minimum and a contingent supplement.
For the purposes of the guaranteed minimum, registered seamen
are divided into six classes according to their duties on board. The
guaranteed minimum for masters of distant-trade ships or first-class
doctors is 8,400 francs, and that for unskilled hands 4,200 francs.
The contingent supplement is based on the average annual wage
earned by the seaman throughout his career from the age of sixteen.
When they reach the age of fifty, seamen with at least fifteen years'
navigation service are entitled to a proportionate long-service pension
irrespective of any considerations of invalidity.
(b) Invalidity pensions.
The invalidity pension is granted to seamen suffering from infirmities that render it absolutely and permanently impossible for them to
undertake duties on board ship.
The premature pension is calculated in the same way as the ordinary
long-service pension. It is equal to one three-hundredth of the latter
for every month of employment taken into account.
(c) Survivors' pensions.
Widows and orphans are entitled to the pension (including all
supplements) which the husband was drawing or which he could have
claimed on account of his service assuming that he had reached the
age of fifty.
(d) Family responsibilities.
Pensioners with family responsibilities receive an annual supplement
of 360 francs for each child under sixteen years of age. The supplement

246

I N T E R N A T I O N A L S U R V E Y O F SOCIAL S E R V I C E S ,

1933

is paid up to the age of 18 or 21 years in the event of apprenticeship or
continued studies. There is no time limit to the payment of the
supplement if the child is unable owing to an infirmity to earn his living.
Insurance, Fund of Employees of the Purser's Department
The insurance scheme for employees of the purser's department is
based, under the Act of 1 January 1930, on the same principles as the
special scheme for registered seamen.
I t covers only persons possessing French nationality. The pensionsresulting from contributions to the insurance fund are fixed and
awarded under the same conditions as for registered seamen, but the
rates of the basic pensions are different.
They vary from 6,800 francs, the minimum guaranteed to pursers,
to 3,800 francs for unskilled members of the purser's department. The
supplements proportionate to the average wage are calculated on
bases similar to those adopted for registered seamen.
Special transitional measures provide for seamen who served part
of their time on board ship before, and part after, the setting up of the
Pension Fund of Employees of the Purser's Department.
6.—Statistics.
Number of insured persons in 1933 : 160,753 registered seamen and
34,918 employees of the purser's department.
INCOME AND E X P E N D I T U R E FOR

Segistered

Seamen's

Pensions

INCOME

Insured persons' contributions
Employers' contributions
State subsidy
Income from investments
Other income

Insurance

Fund

INCOME

Insured persons' contributions
Employers' contributions
Income from investments
Total

EXPENDITURE

Erancs
.. 22,255,639
.. 13,231,430
.. 174,650,917
..
7,765,644
480,962
218,384,592

Total

1933

Fund

of Employees
Francs
3,134,798
2,581,633
166,390
5,882,821

Cash benefits (pensions)
Relief
Administrative expenses

...
...

Francs
.. 190,549,781
..
5,678,571
..
3,011,186

Total

199,239,538

of the Pursers'

Department

EXPENDITURE

Cash benefits
Relief
Administrative expenses
Total

Francs
26,790
7,710
63,771
98,271

Number of insured persons :
Registered seamen :
42,135 old-age a n d invalidity pensioners.
21,317 widows.
E m p l o y e e s of p u r s e r ' s d e p a r t m e n t :
67 o l d - a g e a n d i n v a l i d i t y p e n s i o n e r s .
3 widows.
659 a l l o w a n c e s p a i d t o f o r m e r e m p l o y e e s of p u r s e r s ' d e p a r t m e n t s w h o
h a d n o t p a i d c o n t r i b u t i o n s to t h e special Pensions F u n d , b u t before
t h i s F u n d w a s s e t u p i n 1930 h a d p a i d c o n t r i b u t i o n s t o t h e N a t i o n a l
Old-Age Pensions F u n d .

FKANCE

247

V.—Railwaymen's Insurance
A.—INSUBANCE

OF EMPLOYEES OF M A I N R A I L W A Y SYSTEMS

(Sickness and maternity benefit and invalidity, old-age a n d widows'
and orphans' insurance.)

1.—Legal Basis.
The compulsory insurance schemes for employees of main railway
systems of general importance were set up not by ordinary legislation
but by special regulations for railway employees approved by the
Minister of Public Works.
Nevertheless, the essential principles of the present scheme of
old-age, invalidity and survivors' pensions covering the bulk of the
staff were fixed by the Act of 21 July 1909, on which were based the
pension regulations of 1911.x These regulations were amended on
various occasions, more particularly to bring them into harmony with
section 49 of the Social Insurance Act of 5 April 1928 and 30 April 1930,
by which this special scheme was co-ordinated with the general scheme.
In the course of 1934, the pension scheme was modified in application
of section 36 of the Finance Act of 28 February 1934, which empowered
the Government to introduce by Decree any measure of economy
required to balance the budget.
The measures introduced by the Decrees of 19 April and 30 October
1934 are at present before Parliament for ratification.
2.—Scope.
The various compulsory insurance schemes for railway employees
cover all employees on the permanent establishments of the various
systems. Some sickness insurance benefits, however, are reserved to
employees whose wages are below a minimum fixed by the regulations.
3.—Risks Covered.
The insurance scheme covers the risks of sickness, maternity, old
age, invalidity and death for all members employed on the main railway
systems. The details are given below.2
(Persons on the permanent staff of the railways but not members of
the scheme are insured by the railway company against the risks of
sickness3, maternity 3 and death 3 and by the general funds against the
risks of invalidity and old age.)
4.—Sickness Benefits.
The cost of sickness benefits is borne entirely by the railway
systems. The scheme comprises benefits in kind and benefits in cash.
1
For the Alsace-Lorraine line the corresponding pension regulations are those
of 1925, issued under the Act of 30 December 1923 ; they are similar to those
of 1911 on other lines.
2
On the Alsace-Lorraine line there is a special sickness and maternity scheme.
On the Est and Midi lines special benefits are granted by the welfare funds,
to which the railwaymen contribute.
3
Railwaymen who are not members of the scheme are not covered by the
company against the risks of sickness and maternity until after a qualifying period
of three months, or against the risk of death until after a qualifying period of
one year. During these periods the risks are covered by the general funds.

248

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(a) Benefits in kind.
Under the staff regulations and the administrative rules pursuant
to them, an employee is entitled to free medical and dental treatment,
whatever his wages. Such treatment is administered by the railways'
own medical officers. In addition, an employee whose fixed salary
or wage does not exceed 20,000 francs is entitled to free drugs, hospital
treatment or treatment in a nursing establishment, as well as free
surgical treatment and a refund of the cost of surgical appliances.
(b) Benefits in cash.
As a rule during the first four days of sickness the fixed wage is
withheld, but it may be paid if the illness is duly certified by the
railway's medical officer, and by decision of the head of the service.
The residence allowance and the allowances for family responsibilities
are paid in full.
From the fifth day of illness and for a period of 120 days, the fixed
wage, the residence allowance and the allowance for family
responsibilities are paid in full.
Lastly, for a period of ninety days beyond the period above
mentioned, employees receive half the fixed wage, the whole of the
residence allowance and the whole of the family allowances. These
periods may be extended as an exception by decision of the manager.
5.—Maternity Benefits.
The cost of maternity benefits is borne entirely by the railway
systems. The scheme comprises benefits in kind and benefits in cash.
(a) Benefits in Icind.1
The benefits in kind granted to women employees comprise free
medical treatment and drugs as required by pregnancy and the
consequences of childbirth. In case of need and when prescribed by
the railway's doctor, the cost of treatment in a lying-in hospital is
borne by the railway.
(b) Benefits in cash.
During the six weeks preceding and the six weeks following childbirth, the insured woman receives full pay, including the residence
allowance and family allowances, if any. In the case of absence
beyond the above-mentioned periods due to pregnancy or the consequences of childbirth, the employee is considered as ill and receives
ordinary sick pay.
Further, the railways grant employees an allowance for the birth
of a child, the present rates being as follows : 150 francs if the
employee has no other child living, 225 francs if he has one child
living, 300 francs if he has more than one child living.2
1
The Midi Company grants supplementary cash benefits in place of benefits
in kind.
2
The Midi Company a t present pays to its employees who are members of
the welfare fund allowances for the birth of a child amounting to 250 francs
for the first-born and 400 francs for the second, rising by 150 francs for every
subsequent child.

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249

Lastly, mention must be made of the fact that the railways grant
family allowances, the amount of which varies according to the place
of residence of the employee (see p. 308).
6.—Invalidity, Old-Age and Widows' and Orphans' Insurance.
The risks of invalidity, old age and death are covered by a pension
scheme and, to a minor degree, by lump-sum allowances based on
contributions by the insured persons and the railway administrations
to pension funds established separately for each system.
(a) Financial resources of pension funds.
The financial resources of the pension funds are constituted by :
(1) compulsory deductions from the salaries and wages of the
employees from the date of their affiliation ;
(2) a contribution from the railway systems ;
(3) interest on invested funds and the income from securities held
by the funds.
The deductions from the employees' pay amount, as a rule to
5 per cent, of the salaries or wages and of all the subsidiary emoluments
not being in the nature of a refund of expenses, assistance or gratuity ;
but the employees are required to make supplementary contributions,
which may be estimated at 0-6 per cent, of salary or wages.
The contribution of the railway administrations is now fixed at
15 per cent, of the salary or wage liable to deduction.1
(b) Benefits in case of invalidity.2
Under the pension regulations in force in 1933 a disabled person is
entitled :
after fifteen years' membership, to a proportionate pension
calculated, for each year of membership, at the rate, as a rule
of one-fiftieth of the average basic salary or wage for the three
best years ; employees whose wages are low receive a supplement equal to the same proportion of five-fiftieths of their
average wage as the length of their membership bears to
twenty-five years ;
after less than fifteen years' membership and if the invalidity
results from his duties, to a proportionate pension calculated
in the same way as above, subject to a minimum of fivefiftieths of the average salary or wage ; if the invalidity does
not result from his duties, to the refund of the accumulated
deductions, together with an indemnity of equal amount.
The invalidity pension may be supplemented on account of family
responsibilities under the conditions specified below.
Subject to certain conditions concerning the maximum salary, an
official may opt for a pension under the general social insurance scheme.
1

Provisions amended by Decree of 19 April 1934.
» Provisions amended b y Decrees of 29 April a n d 30 October 1934.

250

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(c) Benefits in case, oj old age.1
The normal old-age pension is paid after twenty-five years of
membership and at fifty-five years of age (fifty years for engine drivers
and stokers.)
The regulations in force in 1933 fix this pension, for each year of
membership, at one-fiftieth of the average fixed salary or wage for the
three best years, subject to an increase of five-fiftieths for low wages.
The pension may in no case be less than 5,000 francs,2 or exceed
three-quarters of the basic wage.
The old-age pension may be supplemented on account of family
responsibilities under the conditions specified below.
A deferred pension is granted to an employee who, not being
disabled, leaves after fifteen years' membership without being entitled
to an ordinary pension. The employee may, however, claim, in place
of the deferred pension, the refund of the deductions from his wages ;
these are then paid to the National Life Insurance Fund, where they
constitute an endowment policy falling due not less than five years
after the employee leaves the service.
Subject to certain conditions concerning maximum salary, an
employee leaving the service without being entitled to a pension may
recover his rights under the general social insurance scheme by paying
to a recognised accumulation fund the amount necessary to constitute
the pension to which he would have been entitled if he had been
affiliated to the general social insurance scheme during the period when
he was a member of the company's pension fund.
(d) Benefits in case of death.
The widow of an insured person and his children under eighteen
years of age are entitled, as a general rule :
after fifteen years' membership, to a pension calculated, for each
year of membership, at the rate of one-hundredth of the
average wage for the three best years ;
after less than fifteen years' membership, if death results from
the insured person's duties, to a proportionate pension calculated in the same way as above, with a minimum of five onehundredths of the average wage.
If the insured person's death is not the result of his duties, the
accumulated deductions are refunded to certain classes of survivors.
The widow's pension may be increased on account of family responsibilities under the conditions specified below.
In every case the railway company guarantees to all survivors
advantages at least eajial to those granted under the general scheme.
1

Provisions amended by Decrees of 29 April and 30 October 1934.
This minimum of 5,000 francs for the normal pension applies only to employees who have been continuously in the service, with the exception of women
in charge of wayside stops or employed on manual work.
2

251

TRANCE

(c) Supplements for family responsibilities.
Every employee or widow of an employee in receipt of a pension
and having brought up three children of the employee's to the age of
eighteen years is granted an increase of 10 per cent, on the pension ;
if the number of children is higher than three, a supplementary increase
of 5 per cent, is allowed for each child beyond the third.
Every employee or widow of an employee in receipt of a pension
receives an allowance for each dependent child under eighteen years of
age. This allowance is fixed at 625 francs a year for one child, 1,250
francs a year for two children, and 2,500 francs a year for three children,
and is increased by 1,400 francs a year for every child beyond the third.
1.—Statistics.
Number of insured persons in 1933 :
I.—Average staff of main railways during the year :
Permanent staff (special railwaymen's scheme)
Non-permanent staff (general scheme)...
...

...
...

Total

431,569
19,863
451,432

II.—Number of affiliated employees at 31 December 1933 ...

...

424,343

Income and, Expenditure for the. Risks of Sickness and Maternity
INCOME

The whole cost of covering these risks is normally borne by the
companies.
EXPENDITUEE

(a) Permanent staff.
Francs
(1) Cash benefits :
Salaries and wages during sickness or injury
...
...
Allowances for family responsibilities a n d for births and
special family allowances ...
...
...
...
...
Contributions t o provident funds 1 ...
...
...
...
(2) Benefits in kind :
Cost of companies' medical services, drugs, hospital
treatment, etc
Total

138,600,000
545,400,000
20,500,000
51,200,000
755,700,000
Traites

(6) Non-permanent staff.
Cash benefits
Benefits in kind
Employers' contributions to general social insurance funds
(Act of 30 April 1930)
Total
Grand total

3,800,000
300,000
5,200,000
9,300,000
765,000,000

1
For t h e Alsace-Lorraine, E s t and Midi Companies ; the employees also
contribute to these funds.

252

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

Incoine and Expenditure of the Pension Funds for the Risks
of Invalidity, Old Age and Death
INCOME

Francs
Insured persons'contributions...
...
...
...
...
... 291,600,000
Employers' contributions :
Sums paid by the companies
...
...
...
...
... 955,300,000
Capitalised value of the supplementary pensions paid by the
companies under the Act of 28 December 1911
120,100,000
Subsidy from the public authorities 1
16,200,000
Income from investments
...
...
...
...
...
... 676,700,000
Other income
18,800,000
Total income
2,078,700,000
EXPBNDITUBE
Pension instalments and supplements, including
children 2 3
Refund of deductions and half-pay allowances
Administrative expenses
Allowances to pensioners for family responsibilities...
Other expenditure

those

Total expenditure

for

Francs
1,434,400,000*
14,900,000
15,900,000
15,600,000
21,600,000
1,502,400,0005

ASSETS OF THE P E N S I O N F U N D S

Francs
Balances of all the funds of the railway pension funds at
31 December 1932
11,029,100,000
Surplus of receipts over expenditure during 1933 ...
...
...
609,300,000
Balances of all funds a t 31 December 1933

11,638,400,000

B.—INVALIDITY,
O L D - A G E AND W I D O W S ' AND O B P H A N S ' INSURANCE
FOR E M P L O Y E E S OF SECONDARY RAILWAYS OF GENERAL IMPORTANCE,
R A I L W A Y S OF LOCAL IMPORTANCE AND TRAMWAYS

1.—Legal Basis.
The present scheme of compulsory insurance was set up by the
Act of 22 July 1922 as amended and supplemented by the Acts of
23 August 1923, 15 January 1925, 31 March 1928, 7 January and
31 March 1932.
1
Alsace-Lorraine Railway only, consisting of a State subsidy of 1,600,000
francs and a sum of 14,600,000 francs in respect of pensions repayable by the State.
2
Including instalments paid on behalf of the railway companies by other
institutions, such as the National Old-Age Pensions Fund, etc. These instalments amounted to 33,000,000 francs.
3
The pensions in course of payment at 31 December 1933 included :
95,293 normal pensions amounting to 929,200,000 francs.
20,867 pensions paid before the normal date, amounting to 112,600,000 francs.
72,400 reversionary pensions amounting to 284,900,000 francs, and for
the Alsace-Lorraine and Ceinture Railways, 13,286 unclassified pensions
amounting to 92,700,000 francs.
These figures do not include accident pensions under the Workmen's
Compensation Act.
4
Including, for the Alsace-Lorraine Railway, a State subsidy of 1,600,000
francs and a sum of 14,600,000 francs in respect of pensions repayable by the
State.
5
The expenses actually borne by the funds amounted only to about
1,469,400,000 francs. Cf. note above.

FBANCE

253

2.—Scope.
Membership of the pension scheme is compulsory after one year's
service in a permanent post in the administration of a secondary
railway of general importance, railway of local importance, tramway
or departmental or municipal motor-bus undertaking.
All employed persons are required to pay the contributions and
are entitled to the benefits of the pension scheme, but wages above
24,000 francs a year are taken into account only up to this amount.
3.—Administration.
The management of the insurance scheme is vested in an autonomous
mutual benefit fund. The managing board of the fund consists of
twenty-two members, six being elected by the staff insured and six
by the companies operating the transport systems whose employees
are hable to insurance.
4.—Financial Resources.
The autonomous pension fund derives its income from contributions payable by the insured persons and the companies and a
State subsidy.
The contribution is proportionate to the wages insured and
accordingly in its calculation no account is taken of fractions of earnings
in excess of 24,000 francs a year. For the insured persons, the rate of
contribution is 6 per cent. ; for the employers, the rate is 7 per cent.
The State subsidy is equal to the charges that would have been
laid on the public authorities by admission of the insured persons
to the workers' and peasants' pensions scheme, but may not be less
than 1 per cent, of the wages drawn by employees in actual employment.
5.—Benefits.
The insurance scheme covers the risks of old age, invalidity, and
death.
(a) Old age.
After thirty years' membership of the insurance fund, salaried
employees and manual workers of either sex are entitled to a pension
if they are fifty-five years old in the case of travelling staff, or sixty
years old in the case of all other classes.
The rate of pension granted to these employees may not be less than
one-fiftieth per year of membership of the average wage for the last
three years.
An employee who, in a normal period, has reached the age limit
before the expiry of the membership period provided for in the Act
is entitled to a proportionate pension if he has at least fifteen years'
membership. If he has less than fifteen years' membership the amounts
paid into his account, together with interest at 5 per cent., are either

254

INTERNATIONAL

S U R V E Y O F SOCIAL S E R V I C E S ,

1933

refunded to him or used to constitute an immediate annuity on the
alienated capital system.
In the case of cessation of work for any cause other than old age
or invalidity, an employee with at least fifteen years' membership
is entitled to a pension deferred until the normal retiring age. If
he has less than fifteen years' membership his personal payments
are accumulated and used to constitute a deferred pension, falling
due at the age of sixty years ; in this case, the system of alienated
contributions is compulsory.
(b) Invalidity.
Employees who, owing to infirmities not ascribable to their duties,
are judged by a special board to be unable to continue working are
entitled to the immediate payment, independently of any condition
of age, of a retiring pension calculated as explained above, provided
that they have been affiliated for at least fifteen years. If they have
not been affiliated for that period, the contributions paid into their
account are refunded with interest at 5 per cent.
When the invalidity is ascribable to the performance of his duties,
the insured person is entitled to a pension payable immediately on
the basis of one-fiftieth per year of membership of the average wage
for the last three years of membership, or, failing this, the years of
membership preceding his accident. The amount of this pension,
which may be held concurrently with an accident pension, may not
be less than eight-fiftieths of the average wage as defined above.
(c) Death.
Half the pension rights acquired by the insured person are transferable to the widow. In default of a widow entitled to the pension
the rights that would have been acquired by the widow pass to the
children under eighteen years of age. On the death of a non-pensioned
employee, the widow and children are entitled to half the pension to
which he would have been entitled. But if the insured person has
less than fifteen years' service, the survivors merely receive the amounts
paid in to his account, together with simple interest at 3 per cent.
6.—Statistics.
N u m b e r of i n s u r e d c o n t r i b u t o r s i n 1933

41,580

INCOME AND EXPENDITTJEE IN

Insured persons' contributions . ..
Employers' contributions
..
Subsidies from public authorities. ..
Income from investments
..
Other resources (arrears of iilterest, etc.)

Total

1933
EXPENDITUKE

INCOME

Francs
23,750,555
27,708,981
8,075,451
19,089,272
40,395
78,664,654

Francs
Pensions and life annuities
28,978,638
Refund of contributions to insured
persons or survivors not entitled
to pensions
3,241,381
Benefits in kind
—
Administrative expenses ...
1,974,599
Other expenses (negotiation of securities, etc.)
57,756
Total

34,352,374

255

TRANCE
POSITION OF F U N D AT T H E E N D OF

1933

1 Capital to meet pensions and annuities in course of payment
7,237 immediate long-service and invalidity pensions
2,312 immediate reversionary pensions
199 deferred pensions ...
442 immediate annuities
3,587 deferred annuities ...
Total
2. Reserve f u n d . . .
...

.
.

...

Credit balance of reserve fund

Francs
311,924,585
39,901,452
11,005,478
1,459,602
5,586,863
369,877,980
442,227,754
72,349,774

VI.—Postal Workers' Insurance
A.—WORKMEN'S

COMPENSATION

1.—Legal Basis.
All officials and employees covered by the Civil Pension Scheme are
protected against occupational risks by the Act of 9 June 1853, the
Decree of 9 November 1853 and the Act of 14 April 1924.
The Acts of 9 April 1898 concerning occupational accidents and of
25 October 1919 concerning occupational diseases apply to auxiliary
staff and permanent employees who are not covered by the Civil
Pension Scheme.
2.—Scope.
The entire staff of the Administration is covered by one or the other
of the two schemes mentioned above.
3.—Financial Resources.
The various benefits granted to injured or sick persons are paid
out of the credits provided for that purpose in the annex of the budget
of the Postal, Telegraph and Telephone Administration.
4.—Benefits.
In the event of their meeting with an accident while on duty or of
their suffering from a disease which is exclusively and directly due to
the performance of their duties, officials and employees covered by the
Civil Pension Scheme are entitled, in respect of :
(a) temporary incapacity, to their full salary or wages until they*
are cured or retire ;
(b) total and definitive invalidity, to the exceptional invalidity
pension, whatever the length of their service.
When death is caused by the accident or disease, the survivors
(widow and orphans under twenty-one years of age) receive a civil
pension.
In the event of an occupational accident or disease, auxiliary staff
and employees who are not covered by the Civil Pension Scheme are
entitled, in respect of :
(a) temporary incapacity, to a daily allowance equal to half the
wages earned at the time of the accident ;

256

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(¿>) partial and permanent incapacity, to a pension equal to half
the amount by which earnings have been reduced owing to the accident.
When death is caused by the accident or disease, the surviving
consort receives an annuity amounting to 20 per cent, of the deceased
person's annual wages. Orphans under sixteen years of age are
entitled to an annuity equal to 15 per cent, of wages if there is only
one child, 25 per cent, if there are two children, 35 per cent, if there
are three, and 40 per cent, if there are four or more. If the deceased
person leaves neither a consort nor a child, relatives in the ascending
and descending line who were dependent upon him receive a pension
equal to 10 per cent, of his yearly wages. This pension is payable
up to the age of sixteen years in the case of descendants.
In addition to the benefits mentioned above, the Administration
is liable for medical and pharmaceutical expenses due to the accident,
within the limits of a schedule drawn up by the Minister of Labour.
I t is also hable for funeral expenses up to a maximum of 200 francs,
as provided in the Act of 9 April 1898.
5.—Statistics.
The above benefits were paid in respect of 6,766 officials, employees
or auxiliary workers, of whom 6,652 suffered from temporary incapacity
and 114 were in receipt of pensions or annuities.
EXPENDITURE

Medical and pharmaceutical expenses ...
Salaries and wages during sickness or injury
Invalidity pensions a n d annuities

Total

B.—SICKNESS,

Francs
1,750,000
2,000,000
1,000,000
4,750,000

M A T E B N I T Y AND OTHEB ASSISTANCE

1.—Legal Basis.
Sich leave with pay.
The permanent staff and permanent auxiliary staff of the Postal,
Telegraph and Telephone Administration are entitled to :
(a) Ordinary sick leave as provided in section 16 of the Decree of
}) November 1853 ;
(b) Long leave for tuberculosis as provided in section 83 of the Act
of 30 June 1923, supplemented by section 51 of the Act of 30 March
1929;
(c) Long leave as provided under section 41 of the Act of 19 March
1928 for war-disabled officials in receipt of a pension under the Act
of 30 March 1919.
Maternity leave.
Women on the permanent staff and permanent auxiliary staff are
entitled in the event of confinement to special leave under section 140
of the Finance Act of 13 July 1911.

257

FBANCE

Medical treatment.
Subordinate staff receive medical treatment free of charge. This
applies to 35,000 employees resident in Paris and the Seine Department
(Orders of 16 February 1901 and 18 November 1910), Bordeaux (Order
of 25 March 1891), Lyons and Marseilles (Order of 21 July 1884).
Subordinate staff resident in Paris or in the Seine Department
receive medical supplies free of charge (Order dated 23 December 1901).
Assistance.
In cases where the family circumstances of an employee justify
assistance, this may be granted by administrative decision following
an investigation.
Subsidies.
Subsidies may be granted by administrative decision to mutual
aid societies formed by the staff.
2.—Scope.
The benefits mentioned above are granted to permanent staff and
auxiliary permanent staff (about 160,000 persons, including 46,000
women).
Free medical treatment is provided for 35,000 subordinate employees.
3.—Financial Resources.
The necessary credits are granted by Parliament in the annex
to the budget of the Postal, Telegraph and Telephone Administration.
4.—Benefits.
Sick leave with fay.
(a) Ordinary sick leave.—In the event of duly certified sickness',
employees are entitled to 180 days' sick leave in the year. They
receive full pay during three months ; during the next three months
their pay is curtailed by at least one-half and at most two-thirds.
(b) Long leave for tuberculosis.—Employees and workers on the
permanent staff, whether in active employment or on ordinary sick
leave, may, if they are suffering from open tuberculosis, be granted
long leave with full pay for three years and half pay for two years.
(c) Long leave for war-disabled persons.—Any official who was with
the colours during the war against Germany, or in any expedition
subsequent to the promulgation of the Act of 25 October 1919 and
recognised as a war campaign, who was wounded or contracted a
disease entitling him to a pension under the Act of 31 March ] 919, and
who, as a consequence of such wound or disease, continues to suffer
from an infirmity, may in the event of incapacity certified to be the
result of his infirmity be given leave with full pay until he is restored
to health or retires. The total amount of leave an employee may
be granted on these grounds may not exceed two years in all.
X G 12973

258

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

Maternity leave.
Women on the permanent staff or permanent auxiliary staff are
entitled to two months' leave with full pay, one month before and one
month after childbirth, apart from any sick leave granted in virtue of
the Decree of 9 November 1853.
The persons concerned may not return to duty until they have
been medically examined and have obtained a certificate to the effect
that they may do so without injury to their health. Should this not
be the case, they may be granted further leave on the same conditions
up to a maximum of two months.
Free medical treatment.
Subordinate staff receive free medical treatment in Paris and the
Seine Department, in Lyons, Bordeaux and Marseilles.
In Paris such staff also receive surgical and specialist treatment
free of charge. The Administration pays for any operations performed
by its medical officers and not involving hospital treatment.
Finally, in Paris and the Seine Department, staff described in the
earlier system of classification as employees and workers receive
medical supplies free of charge on production of a prescription signed
by the district medical officer.
Assistance.
Assistance may be granted to officials of all ranks who are in need
and apply for it, provided their conduct justifies such a measure.
Similar allowances may be granted to retired employees or such as are
on sick leave, to their widows and orphans under age, and to their
relatives in the ascending line when these are destitute.
Heads of services have authority to grant immediate relief to
the widows, orphans, or failing these, the relatives in the ascending
line of employees who die in active employment, for the purpose of
meeting any urgent needs arising in such circumstances.
Subsidies.
Subsidies are granted to associations formed by members of the
staff with a view to assisting employees who are on sick leave or out
of work, and their widows and orphans. Subsidies are also granted to
associations for the prevention and cure of tuberculosis which have
opened dispensaries and sanatoria with this end in view and to associations formed to provide dwellings for employees, particularly newly
recruited staff.
5.—Statistics.
The following expenditure was incurred in 1933 under the annex
to the budget in respect of the benefits described above :
Francs
Sick leave :
Ordinary sick leave 1,461,317 days, including 146,131 on half-pay
Cost of seconding staff on sick leave
Leave for tuberculosis :
452,000 days

44,330,000
25,000,000
19,900,000

259

FRANCE

Francs
Long leave (section 41 of the Act of 19 March 1928) :
71,630 days
Maternity leave :
168,000 days
Medical treatment
Medical supplies ...
Assistance ...
Subsidies ...
C.—INVALIDITY,

4,670,000
563,000
416,210
1,110,600
1.226.100

OLD AGE, DEATH

1.—Legal Basis.
The Act of 14 April 1924, as amended by the Act of 31 March 1932
(sections 96 and 97), modified the compulsory insurance scheme
previously in force and applies to the entire postal staff.
The Act of 14 April 1924 was amended during 1934 in virtue of
section 36 of the Finance Act of 28 February 1934, which empowered
the Government authority to introduce by Decree such measures of
economy as might be necessary to balance the budget. The proposed
Decrees are at present under consideration by Parliament.
2.—Scope.
The obligation to insure extends to all officials on the permanent
establishment.
3. —Administration.
The insurance scheme is administered by a Pension Fund managed
by a board of 24 members, of whom 8 are representatives of the
insured persons.1
4.—Financial Resources.
The pension fund derives its income from a contribution of 6 per
cent, deducted from officials' salaries. The Government makes good
any deficit in the scheme.
5.—Benefits.
The insurance scheme covers, by means of pensions, the risks of
old age, invalidity and death.
(a) Long-service
'pensions.'2
Every official is entitled to a retiring pension when he has completed
thirty years' service and reached his sixtieth year of age. If an official
has been in active employment for at least fifteen years, the minimum
age fixed for the retiring pension is fifty-five years after twenty-five
years' service.
As a general rule the pension after thirty or twenty-five years'
service is not less than 50 per cent, of the average wages for the last
1

Operation of the Pension F u n d has been postponed till 1 J a n u a r y 1937.
Provisions amended by Decrees of 4 April, 10 May, 30 J u n e and 27 October
1934.
2

K. 2

260

INTERNATIONAL SURVEY OP SOCIAL SERVICES, 1933

three years of service; but it is raised to three-fifths, subject to a
maximum of 7,000 francs, when the wages do not exceed 14,000 francs1
a year.
The pension is increased by one-sixtieth of the annual wages for
each year's service beyond the statutory minimum of thirty years in
the case of sedentary work and one-fiftieth for each year beyond the
statutory minimum of twenty-five years in the case of active work.1
To the amounts thus calculated may be added supplements for
children calculated at the rate of 10 per cent, of the pension for each
of the first three children under sixteen years of age, and at 5 per cent.
for each additional child. The pension may not exceed three-quarters
of the average wages or 45,000 francs a year.1 When officials leave
their employment without being entitled to a pension and for reasons
other than infirmities preventing them from continuing their duties,
their contributions towards the retiring pension, together with the
interest, are transferred to the National Insurance Fund, where they
are used to constitute endowment insurance, which may not be paid
to the insured person concerned until five years after he has ceased
working.
Married women or mothers of families are entitled to a p oportionate
pension when they have completed fifteen years' service. This pension
is calculated on the basis of one-sixtieth1 per year of sedentary work
and one-fiftieth per year of active work. Payment is deferred until
the age at which the woman would have been en+itled to a long-service
pension if she had remained in the service. Payment is immediate,
however, for mothers with three children alive, or for women suffering
from an infirmity or incurable disease rendering them incapable of
exercising their occupation, or for women whose husbands are thus
incapacitated. Each child gives them a right to one year's increase.
(b) Invalidity pensions.
Any official not capable of performing his duties owing to an
infirmity resulting either from an act of courage or devotion performed
in the public interest or in trying to save the life of another, or from
assaults or outrages of which he was the victim in the performance
of his duties, is entitled to a pension irrespective of his age and length
of service. In this case the pension is equal to three-quarters of the
last annual wages received.1
Any official suffering from infirmities ascribable to his duties,
other than infirmities due to the causes mentioned above, may choose
between a pension equal to one-third of his last wages in employment
and a long-service pension fixed at one-thirtieth or one-twenty-fifth
of the minimum mentioned above for each year's service.1
When the invalidity is not due to performance of his duties, an
official who has less than fifteen years' service is entitled to a pension
calculated at the rate of one-sixtieth or one-fiftieth per year of service
of his average wage for the last three years. 1
1

Amended by Legislative Decree of 28 October 1934.

FRANCE

261

If the official has not served fifteen years, he is granted an annuity
payable immediately. This annuity is constituted by payment to the
National Old-Age Pension Fund of :
(1) the deductions made from the wages of the person concerned,
together with the interest ;
(2) a sum equal to the Government grant.
(c) Pension in case of death.
The widow of an official is entitled to a pension equal to 50 per cent.
of the amounts received by her husband, or that would have been due
to him, as a retiring or invalidity pension. This pension is increased
by 10 per cent, of the father's wages for each child under twenty-one
years of age supported by the widow. Nevertheless, the aggregate
amounts allowed to the widow and children may not exceed the total
wages received by the deceased official.
Fatherless and motherless children and those whose mother has been
deprived of her pension rights receive a pension constituted by :
(1) the sum total of the amounts that would have been due to
the mother;
(2) the supplement of 10 per cent, for each child under twentyone years of age after the first.
Children of a deceased female official are entitled to the same
benefits as the children of a deceased male official.
6.—Statistics.
In the budget of the Postal, Telegraph and Telephone Administration for the fiscal year 1933, the receipts are put down at 114,949,225 • 23
francs and the expenditure at 298,281,315-72 francs.

Vu.—Insurance of Workers in State Undertakings
Workers employed in State industrial undertakings are covered
by a special superannuation scheme which is not unlike the general
scheme instituted by the Act of 21 October 1919, but which nevertheless
differs from it in certain respects. It would require too much of the
space of the present survey to give a detailed account of this special
scheme ; all that has been done, therefore, is to mention the legislative
provisions on which it is based. The statistics for 1933, however,
include figures for the working of the scheme whenever such were
available.
1.—Legal Basis.
The scheme of compulsory insurance for workers in State undertakings was set up by the Acts of 21 October 1919, 14 April 1924, 21
March 1928, and 4 August 1929.
2.—Scope.
The obligation to insure extends to the wage-earning staffs of the
tobacco and match factories, the transit depots of State factories, the

262

INTERNATIONA!, SURVEY OF SOCIAL SERVICES, 1933

General Stamp Factory, the Postal, Telegraph and Telephone Administration, the Mint and Medal Department, establishments under
the military, naval and air authorities, and roadmenders employed on
national highways.
3.—Administration.
The insurance scheme is managed by a special body attached to the
Deposit and Trust Fund which :
(a) has an individual accumulation account opened for each
insured person by the National Old-Age Pension Fund ;
(6) has payments made to a special augmentation and joint
business fund, administered by the Deposit and Trust Fund.
The purpose of the special fund is to bring the pensions constituted
by accumulation in individual accounts up to the guaranteed minimum
and also to pay pensions to widows and orphans, the whole cost of these
latter pensions being borne by the fund.
4.—Financial Resources.
The financial resources of the insurance scheme are :
(a) a contribution fixed at 12 per cent, of wages and shared
equally between the insured persons and their employer,
i.e., the State; of this, 8 per cent, goes into the individual
account and 4 per cent, to the special fund ;
(b) the amount required to make good the initial deficit resulting
from the retroactive application of the insurance scheme
to the staff employed when the scheme came into force. This
amount is paid annually by the State.
5.—Benefits.
The insurance scheme for wage-earning employees in State undertakings covers the risks of old age, invalidity and death.
(a) Old age.
The pension, which is payable at sixty years of age to male and at
fifty-five to female workers, is based on the average wage earned by the
insured person during his three best years of employment.
The minimum pension granted for length of service is as a rule half
the average wage for the years mentioned, but it is raised to threefifths, subject to a maximum of 6,000 francs for men if the average
wage does not exceed 12,000 francs, and of 4,500 francs for women if
the average wage does not exceed 9,000 francs.
When the twofold condition of age and length of service is fulfilled,
the minimum is increased by one-sixtieth of the average wage for every
year of civil service, and by one-fiftieth for every year of military service
beyond thirty.
The pension is increased by 10 per cent, for all insured persons who
have brought up three children to the age of sixteen years.
If the number of children brought up to the age of sixteen years is
higher than three, supplementary increases of 5 per cent, are granted

FBANOE

263

for each ohild beyond the third. The pension may not exceed threequarters of the average basic wage, or 12,000 francs in the case of men
or 9,000 francs in the case of women. Retired workers of either sex
retain the same rights to allowances for family responsibilities as they
enjoyed when in active employment. Insured persons who, at the age
of sixty years, are not entitled to a retiring pension because they have
not the necessary length of service are entitled to a proportionate pension.
(b) Invalidity.
In the case of permanent total incapacity for earning after ten
years' service, a worker is entitled to an invalidity pension fixed
irrespective of age.
If he has completed twenty-five or more years' service, the pension
is at least equal to the minimum old-age pension. If he has more
than ten years' service but less than twenty-five, the pension is
reduced by one twenty-fifth for every year's service below twenty-five.
If, without being permanent and total, the incapacity renders
it impossible for the worker to continue following his occupation,
and the administration under which he serves cannot find him another,
it is covered only after fifteen years' service. The amount of the
pension is then at least equal to the minimum old-age pension if
the worker has completed thirty or more years in Government service.
If he has completed more than fifteen years, but less than thirty, the
pension is reduced by one-thirtieth for every year's service below
thirty.
In any case the minimum pension is increased by one-sixtieth
of the average wage for every year of civil service and by one-fiftieth
for every year of military service above twenty-five or thirty as the
case may be. Workers of either sex who are in receipt of an invaliditypension retain their right to allowances for family responsibilities.
(c) Death.
Workers' widows are entitled to a pension equal to 50 per cent, of
the retiring or invalidity pension that was drawn by the husband, or
to which he Would have been entitled on the day of his death.
In addition, every surviving child is entitled, up. to the age of
twenty-one years, to a temporary pension equal to 10 per cent, of the
retiring or mvalidity pension specified above. In the case of orphans
under sixteen years of age or attending school or serving articles of
apprenticeship, the rate of this pension is raised to that of allowances
granted for family responsibilities.
In the event of the mother's death, or if the mother is not entitled
to a pension, her rights pass to the children under twenty-one years
of age and a temporary pension of 10 per cent, is continued for each
minor child after the second.
The pension consists of a life annuity based on the payments
accumulated in the individual account of the insured person. If this
is less than the minimum, reckoned as explained above, the necessary
supplement is paid out of the special fund. Widows who do not
remarry or workers who have died before completing ten years in

264

I N T E R N A T I O N A L SURVEY OF SOCIAL SERVICES,

1933

State employment, receive an annual allowance calculated at the rate
of 75 francs for each year of their husbands' employment.
The special fund is entirely responsible for widows' and orphans'
pensions.
6.—Statistics.
Special Pension Fund for Workers in State Industrial
Undertakings
N u m b e r of w o r k e r s i n s u r e d o n 31 D e c e m b e r 1 9 3 3 .
INCOME AND E X P E N D I T U R E TOB
INCOME

Balance at 31 Deo. 1932
State subsidy
Deductions from wages and
corresponding State contributions
Payment« not yet deducted;
entered in provisional accounts
Refund of pension instalments
Refund from the National OldAge Pensions Fund of sums
paid on its behalf
Interest on current account and
arrears of interest on investments
Investments refunded or exchanged
...
Total ...

Francs
37,649,223-29
55,500,000-00
123,592,016-72
14,391.651-27
1,920,561-63

94,546

1933
EXPENDITURE

Francs
Pensions instalments
104,117,217-40
Transfers from provisional to
14,301,843-69
individual accounts
109,476-17
Refund of irregular payments ...
Refund to institutions, of pen461,827-36
sions paid in advance
Transfers to the National Old79,298,940-00
Age Pensions Fund
1,198,348-88
Administration expenses
290,000-00

13,051,871-81
7,265,720-62
793,788-01
254,164,833-35

Total expenses
199,777,653-50
Funds invested
29,967,908-68
Grand total of expenditure
... 229,745,562-18
Balance in hand at 31 Dec. 1930 24,419,271 • 17
Total

... 254,164,833-35

VIH.—Social Insurance in Alsace-Lorraine
1.—Legal Basis.
The compulsory insurance scheme covering the risks of industrial
accident, sickness, maternity, old age, invalidity and death was set
up by the Social Insurance Code of 19 July 1911.
The salaried employees' scheme of compulsory insurance against
old age, invalidity and death is governed by the Act of 20 December
1911.
The Social Insurance Code and the Salaried Employees' Insurance
Act were maintained in force in the Departments of Haut-Rhin,
Bas-Rhin and Moselle by the Act of 17 October 1919.
The Social Insurance Code and the Act of 20 December 1911 were
adapted on various occasions to meet changes in the economic situation.
The most recent and important adaptation was effected by the Acts
of 30 December 1930.
Further, two decrees, dated 5 May and 30 June 1934, have amended
certain provisions of the Social Insurance Code with a view to restoring
the equilibrium of the State budget by reorganising the finances of
the Invalidity, Old Age and Survivors' Insurance Institute of AlsaceLorraine.
These decrees, which were issued in pursuance of section 36 of the
Act of 28 February 1934, are at present under consideration by
Parliament.

FRANCE

A.—WORKMEN'S

265

COMPENSATION

1.—Scope.
The obligation to insure extends to all undertakings belonging
to any one of the industries enumerated in the Act, namely, mines,
surface mines, quarries, metal works, mechanical engineering, textile
industry, chemical industry, building industry, food industry, transport
undertakings, wholesale trade, agricultural undertakings, etc.
The insurance scheme covers :
all manual workers employed in an undertaking belonging to
one of the industries liable to insurance, whatever their wages ;
all occupiers of agricultural undertakings, whether they employ
. manual workers or not.
Salaried employees are covered by the compulsory insurance
scheme only if they are employed in the technical part and not the
administrative part of the undertaking, and if their remuneration
does not exceed 20,000 francs a year (works employees or technical
workers).
Owners of small commercial or industrial undertakings working
alone or with not more than two workers may be admitted to the
insurance scheme if their annual profits do not exceed 12,000 francs.
PubHc officials and employees with a fixed salary and a right to a
pension are excluded from the insurance scheme.
2.—Administration.
The management of the accident insurance scheme is vested in
trade associations. The trade association is a compulsory association
endowed with legal personality, and consisting of all heads of undertakings in similar lines of business.
There are five associations1 for industry, each covering the whole of
Alsace-Lorraine, and three agricultural associations, one for each
Department. These bodies are managed solely by the employers,
who alone defray the cost of insurance in so far as it is limited to the
purposes specified by law.
The State and certain public bodies are exempt from the obligation
to insure, as they themselves cover the risks for the persons they
employ.
3.—Financial Resources.
In the industrial accident insurance scheme the expenditure of the
past year is shared annually among the heads of undertakings in
proportion to the wages paid by them and to the risk co-efficients
corresponding to the class of business or services to which the undertakings are assigned. For these purposes the wages paid in the various
factories, workshops or services are multiplied by the respective
1
Mining and Metallurgical Association, Metal Working and Transport Association, Textile and Chemical Industries Association, Building Industries
Association, Food Industries Association.

266

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

risk co-efficients applicable to them. The products thus obtained
constitute the " contribution units " on the basis of which the expenditure is distributed. The contribution for each unit is then
ascertained by dividing the total expenditure to be distributed by the
total number of units. Lastly, the expenditure chargeable to any
undertaking is found by multiplying the contribution in respect of
each unit by the number of contribution units assigned to the undertaking (product of the wages paid and the risk co-efficient or coefficients).
In the accident insurance scheme for agricultural undertakings,
the associations fix for each type of cultivation the number of days'
work required to exploit one hectare of land. Then this figure is
multiplied for each commune by the number of hectares taxed in the
area and by one three-hundredth part of the annual average earnings
of the agricultural workers. The product is the sum total of the
amounts earned by the agricultural workers employed in the different
types of cultivation throughout the commune. This sum total is then
multiplied by the risk co-efficients, which gives the total number of
" contribution units " for each commune. The contribution in respect
of each unit is ascertained, as in the industrial accident scheme, by
dividing the total expenditure by the total number of units. The
aggregate expenditure to be borne by each commune is found by
multiplying the number of contribution units allotted to the commune
by the contribution so ascertained. To the extent that this expenditure
is not covered by the yield of hunting leases, it is distributed among
property owners liable to property tax on the basis of the net yield
of this tax.
The contributions payable for works employees and technical
workers, for agricultural holdings not engaged in cultivation and for
industrial establishments attached to agricultural undertakings are
calculated and allocated as in the industrial accident insurance scheme.
4.—Benefits.
The insurance covers the risks of industrial accidents and occupational diseases.
The occupational diseases covered by this insurance and entitling
the worker to the same compensation as industrial accidents are those
caused by lead and its compounds, mercury and its compounds,
tetrachlorethane, crude or rectified benzene, white phosphorus, the
action of X-rays or the following radio-active substances : uranium
and its salts, uranium-X, ionium, radium and its salts, radon, polonium,
thorium, mesothorium, radiothorium, thorium-X, thoron and actinium.
(a) Benefits in case of incapacity.
The association must guarantee the medical treatment of the
victim of the accident and ensure the payment of the benefits due in
the case of incapacity for work or death. But it intervenes only on
the expiry of the thirteenth week following the accident. The initial
period of incapacity is covered by the sickness fund, which grants

ÏBANCE

267

accident victims the same benefits as to its other members. Nevertheless, from the beginning of the fifth week until the end of the thirteenth
week, accident victims are entitled to a special additional allowance.
This allowance is refunded to the sickness fund to the accident insurance
association if the incapacity lasts more than thirteen weeks, or by the
employer if it does not.
The pensions granted in case of permanent incapacity or death
are fixed in proportion to the wages earned by the victim during the
year preceding the accident ; but only the fraction of annual earnings
below 8,000 francs is counted in full in fixing the pension, the fraction
in excess of this amount counting only to the extent of one-third.
In the case of total incapacity, the accident pension is equal to
two-thirds of the basic wage. In the case of partial incapacity, the
pension is equal to a fraction of the compensation for total incapacity
corresponding to the percentage reduction in working capacity.
(b) Benefits in case of death.
If the accident is followed by death, each of the insured person's
survivors is entitled to a pension amounting to one-fifth of the annual
earnings, provided that the sum of the pensions granted them does not
exceed three-fifths of such earnings.
5.—Statistics.
Number of insured persons in 1933 :
Agriculture ...
Industry

674,000 ( a p p r o x . )
404,143

Number of " full-time " workers :
206,269
313,126

Agriculture ...
Industry

INCOME

AND

EXPENDITURE

INCOME

1933
EXPENDITURE

Francs
Balance from preceding year
31,132,670
Contributions for the year
56,546,369
State subsidy i
3,714,408
Income from investments and de4,405,777
posits
1,284,132
Miscellaneous receipts

Total

ron

97,083,350

Only applies to agricultural corporations.

Francs
Accident pensions
37,250,963
Widows'pensions
4,603,032
Orphans' pensions
3,833,634
Ascendants'pensions
700,632
Allowances for curative treatment
502,085
Funeral benefits
177,118
Payment of benefit taken over in
accordance with decision of
Council of league of Nations of
21 June 1921
6,168,410
Belief to victims of accidents
38,307
Benefits in kind
2,531,579
Administrative expenses
4,547,280
To reserve fund
3,227,827
Miscellaneous expenses
2,343,825
Befunded or irrecoverable contributions
448,014
Balance carried forward
30,710,638
97,083,350
Total

268

INTERNATIONAL SURVEY O F SOCIAL SERVICES, 1 9 3 3
BALANCE
ASSETS

Cash in hand and current account
Securities constituting reserve fund:
(a) Government stock ...
(6) Stock guaranteed by the
State
(c) Other securities
(d) Loans and joint-account
(c) Administrative buildings
Staff pensions fund securities
Other securities
Outstanding contributions
Miscellaneous claims
Total
...
1
1

SHEET AT

Francs
35,177,852
21,709,204
16,998,435
17,058,365
14,169,030
5,004,369
3,312,370
3,313,836
18,806,939
428,620
135,979,020

DECEMBER

1933
LIABILITIES

Francs
Reserves for accident insurance ... 83,422,258
Staff pensions fund
4,077,001
Government advances 1
4,375,000
Advances from affiliated undertakings'
9,104,042
Miscellaneous reserves
2,402,587
Miscellaneous debts
1,887,494
Surplus assets (balance of profit
and loss account)
30,710,638
Total

135,979,020

Only applies to agricultural corporations.
Only applies to industrial corporations.
B.—SICKNESS

INSURANCE

1.—Scope.

Insurance is compulsory for :
(a) all manual workers, whatever their remuneration ;
(6) all salaried employees whose earnings do not exceed 18,000
francs a year. The following are assimilated to salaried employees : chemists' assistants and apprentices, private teachers,
theatrical artistes, the crews of shipping undertakings whose
headquarters are in the three Departments, etc.
Insurance is voluntary for heads of small undertakings working
alone or with not more than two workers, when their annual profits do
not exceed 24,000 francs.
Salaried employees and the heads of small undertakings mentioned
above may continue in insurance if they earn between 18,000 and 24,000
francs a year.
Persons employed in an undertaking or service of the State, a
department, commune or social insurance fund are excluded from
insurance, provided that they are entitled in the event of sickness to
benefits which are at least equivalent in value and in duration to the
normal benefits provided by the sickness funds or that they receive
for the same period benefits equivalent to one and a half times the
daily sickness allowance.
2.—Administration.

The administration of sickness insurance is divided between two
classes of organisations : the general insurance funds, which are organisations under the ordinary law and are in principle established one in
each district or large town, and the trade or works sickness funds set
up in undertakings employing at least 150 compulsorily insured
persons. If the head of an undertaking decides to set up such a fund,
the staff must belong to it.
The sickness funds are self-governing institutions, managed by
representatives of the insured persons and the employers ; the number
of representatives of each group on the board of management is in
proportion to the costs borne by the group—namely, one-third for the
employers and two-thirds for the insured persons.

FBANCE

269

3.—Financial Resources.
The financial resources required for operating the insurance scheme
are derived from :
(a) contributions paid by the insured persons and their employers ;
(6) the income from investments.
Contributions are calculated as percentages of the basic wage.
The latter is determined by the rules of each insurance fund in relation
to the wages earned by its members. The basic wage may not exceed
36 francs a day. The rate of contribution may not exceed 6 per cent.
of the basic wage except by agreement between the representatives
of the employers and the insured persons on the management of the
fund.
The wages taken as the basis for calculating contributions are,
subject to the maximum mentioned above, either the actual earnings
of the insured person or a flat rate representing the average earnings
of all the insured persons, or again, a theoretical rate of earnings for
those insured persons whose actual wages fall within certain limits.
A large number of funds have adopted this last system for fixing
the basic wage. In this case the insured persons are divided into
various wage classes. The Union of Local Funds in Alsace-Lorraine
recommends the classification of insured persons into six classes
ranging from 4 to 36 francs a day.
4.—Benefits.
The benefits due under the Act are called normal benefits. To
these are sometimes added supplementary benefits, for which the
insurance fund may or may not provide in its rules.
The normal benefits are the following :
(a) medical aid from the beginning of the illness (this aid includes
medical treatment, drugs, spectacles, trusses and other minor
appliances) ;
(b) the daily sickness benefit, amounting to half the basic wage
per working day, if the illness renders the insured person
incapable of working ;
(c) maternity benefit to women who, during the year preceding
confinement have been insured against sickness for at least
six consecutive months ;
(d) funeral benefit equal to twenty times the insured person's
basic wage.
The normal benefits, except those under (c) are granted for not more
than twenty-six weeks.
The maternity benefits include :
(a) a cash allowance equal to the sickness benefit, granted for
eight weeks, of which at least six must be after the confinement ;
(b) an allowance of 60 francs for the expenses of the confinement ;
(c) an allowance of 40 francs for attendance necessary in the case
of complications during pregnancy (assistance of a midwife
and medical attendance) ;

270

INTERNATIONAL SÜHVEY OF SOCIAL SERVICES, 1 9 3 3

(d) a nursing bonus of 1.50 francs a day up to the end of the first
twelve weeks following the confinement.
The maternity benefits cannot be granted concurrently with
sickness benefits.
The supplementary benefits granted by the sickness funds take
the form mainly of medical attendance for members of the insured
person's family, extension of the sickness benefit beyond the first
twenty-six weeks or raising of the rate of benefit.
5.—Statistics.
Number of insured persons on 31 December 1933 :
Compulsorily insured...
Voluntarily insured ...

7411} ^ 9<J

INCOME AND E X P B N B I T D E E F O R 1933
ExrBNDlTUKE

IXCOME

Francs
Insured persons' contributions ... 121,404,519
Employers' contributions
52,948,325
Income from investments
4,152,549
Other resources :
Appreciation or balance on the
salt or arbitrage of stocks and
shares
135,929
Profit on exchanging securities
from marks to francs
27,580
Miscellaneous receipts
946,691
1,110,200
179,615,593
Sums outstanding at the end of the
year
655,371
Sums to be paid at the end of 1932
and shown in the expenditure for
1933
1,041,138
Debit balance forward
58,598,263

Cash benefits :
Cash sickness benefit
Cash maternity benefit (including
nursing benefit)
Allowances for family responsibilities
Cash benefit in lieu of medical
treatment
Funeral benefit

Francs
67,142,161
4,848,106
2,681,SS0
131,559
2,558,605

77,362,311
Benefits in kind :
Medical expenses
31,973,419
Dental expenses
5,098,352
Medical and pharmaceutical sup21,655,359
plies
Other medical supplies and
remedies
3,998,677
Attendance by midwives, nurses,
etc
1,559,163
Hospital treatment and medical
treatment at home
26,417,819
Treatment in maternity homes ...
94,111
90,796,900
Administrative expenses :
Staff
Materials and equipment
Depreciation of fixed and movable
assets

8,520,338
1,919,414
657,642
11,097,394

Other charges :
l o s s incurred on the sale or
exchange of stocks and shares
Sundry expenditure

136,932
926,333
1,063,265
180,319,870

Sums outstanding for payment ...
828,508
Sums outstanding a t the end of 1932
and shown as receipts for 1933 ...
425,415
Beserve fund (increase in the legai
reserve at the end of 1933 as
compared
with sum at the end of
1932)
7,504,024
Balance brought
forward
on
1 January 1933
50,832,548
Grand total

239,910,365

Grand total

239,910,365

271

FBA2ÎCE

BALANCE

S H E E T A T 31 D E O E M B E B

Available securities (as at 31 December 1933):
(«) Cash in hand
(b) Current accounts and deposits

1933

LlABnjTIES

ASSETS

Francs
3,308,135
31,816,197

Francs
Loans and advances
1,958,052
Miscellaneous debts
11,689,000
Reserve Fund (Legal amount fixed
in pursuance of section 304 of the
Social Insurance Code)
179,583,235

35,124,332
Movable assets :
(a) Government funds
(6) Funds guaranteed by the
State
(c) Other securities
Mortgages and loans
Social investments at reduced
rates
...
Miscellaneous credits
Land and buildings :
(a) Administrative buildings ...
(6) Hospital buildings ...
Furniture and supplies
Deficit

31,313,980
17,585,364
13,921,381
62,820,725
1,227,000
120,500
10,578,32S
14,839,527
3,531,764
18,371,291
3,389,782
58,598,263
196,230,287

196,230,287

G.—WOBKEBS'

INVALIDI'! y,

OLD-i*LGE

AND

WIDOWS'

AND

ORPHANS'

INSURANCE

1.—Scope.
Insurance is compulsory for all manual workers whatever their
remuneration.
The Act, however, does not apply either to salaried employees,
who are covered by a special insurance scheme, or to employees in
the public services when they are covered by a pension scheme at
least equivalent to the manual workers' insurance scheme.
2.—Administration.
The Invalidity and Old-Age Insurance Institute at Strasbourg
is a self-governing institution covering the three Departments. Its
managing committee consists of three State officials appointed by
Ministerial Order, two representatives of employers and two representatives of insured persons.
3.—Financial Resources.
The financial resources of the Insurance Institute are mainly derived
from :
(a) the contributions levied on employers and insured persons;
(6) payments corresponding to the State contributions towards
the pensions.
Income from investments constitutes only a very small part of
the income.
The contributions, which are payable in equal parts by employers
and workers, vary from 1 • 60 to 8 • 00 francs a week according to the
wage class in which the insured person has been placed.

272

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

4.—Benefits.1
The manual workers' insurance scheme covers by means of pensions
the risks of invalidity, old age and death, provided that the insured
person has completed the qualifying period prescribed by law.
The qualifying period is deemed to have been completed in the
case of invalidity when the person concerned has paid at least 200
weekly contributions, and in the case of old age when he has paid
1,200 weekly contributions.
(a) Old-age pensions.
The normal old-age pension is payable at sixty years of age, but the
insured person may advance the time for payment by not more than
five years. The pension consists of :
(1) a State subsidy fixed at 500 francs a year;
(2) a pension varying with the amount of contributions paid.
The part of the pension varying with the amount of contributions
paid is itself made up of :
(1) a basic amount, fixed for all wage classes at 600 francs per
annum ;
(2) a supplement amounting to one-fifth of the contributions
paid.
To the capital value of the pension may be added a supplement of
10 per cent, for each child under fifteen years of age.
(b) Invalidity pensions.
The invalidity pension is paid to insured persons who suffer for
more than twenty-six weeks from loss of earning capacity of at least
two-thirds; it is calculated under the same conditions as the old-age
pension.
(c) Survivors' pensions.
The widows' pension is paid to the insured person's wife if she
suffers from loss of earning capacity of at least two-thirds.
I t consists of:
a State subsidy fixed at 500 francs a year;
a sum equal to two-fifths of the basic amount and the supplement
comprised in the pension drawn by the husband or to which he
would have been entitled in case of invalidity.
The children under fifteen years of age are entitled to a pension
fixed as follows :
a State subsidy : 250 francs a year ;
a sum equal to one-fifth of the basic amount and the supplement
comprised in the pension drawn by the insured person or to
which he would have been entitled in case of invalidity.
1

Provisions amended by the Decrees of 5 May and 30 J u n e 1934.

273

FRANCE

The Insurance Institute also pays the following supplements in the
case of pensions granted before 2 February 1931 :
540 francs per annum for invalidity and old age pensions.
270 „
,,
„
„ widows' and widowers' pensions.
54 ,,
,,
„
„ individual orphans' pensions.
These allowances have, however, been reduced, together with the
principal amount of the pension, by 5 per cent, in virtue of the Legislative Decree of 30 June 1934.
5.—Statistics.
Number of insured persons in 1933 : 463,00o.1
INCOME
INCOME

Insured persons'contributions
Employers' contributions :
(o) Ordinary contributions
(6) Employers'shares

AND E X P E N D I T U R E

Tranes
... 38,290,522
38,290,522
988,685

39,279,207
State subsidy
42,384,812
Transfer from actuarial reserve 3 ...
17,037
Income from investments
5,159,659
Other resources
2,759,952
Total
127,891,189
425,178,002
Debit balance forward

FOB.

1933

EXPEOTITÜRE

Tranes
Transfer of contributions to Treasury*
196,571
128,087,075
Benefits in cash
Benefits in kind (curative treatment
of insured persons and pensioners) 5,502,738
222,037
Optional supplementary benefits ...
Administrative expenses :
5,518,882
(1) StarT
1,003,727
(2) Materials and equipment ...
6,522,609
Other expenses
99,616
140,630,646
Capital cover for pensions in course
of payment (increase in total
value at the end of 1933 as compared with the end of 1932) ... 19,500,461
Total
Balance brought forward
January 1933

Grand total

553,069,191

Grand total

... 160,131,107
on 1
392,938,084
553,069,191

Approximate average for the year.
• In pursuance of the Decree of 5 June 1928 concerning Government servants who come under
the 3general pension scheme (Act of 14 April 1924).
In application of section 16 of the Order of 3 September 1921 concerning persons previously
covered by the R.O.J?. Act of 5 April 1910 who had chosen to come under the local scheme of the
Social Insurance Code in consequence of residing in one of the Departments of the Bas-Rhin,
Haut-Rhin or Moselle. Whenever a person formerly insured under the R.O.P. scheme is granted
apension under the local scheme, a transfer is made from the actuarial reserve.

DlSTBIBtTTION OF CASH BENEFITS IN 1 9 3 3

Benefit
Invalidity and old age :
(o) Invalidity pensions
(6) Sickness benefit (temporary invalidity)
(c) Old-age pensions
Survivors :
(o) Widows'and widowers'pensions
(6) Sick widows'pensions
(c) Orphans'pensions
(d) Widows'allowances
(e) Orphans'endowments
1
l u m p sum settlements.
* Number of allowances and endowments granted in 1933.
x G 12973

Sum paid in
1933
Francs
64,547,355
1,435,134
44,245,039
13,951,578
24,102
3,556,525
320,860'
6,482'

Number of
beneficiaries
on 31 December
1933
40,739
870
26,941
15,513
27
5,267
540'
60»

274

INTERNATIONAL
BALANCE

SURVEY OF SOCIAL SERVICES,
S H E E T A T 31 D E C E M B E R

ASSETS

1!)33

1933
LIABILITIES

Francs
Available assets (cash and current
accounts)
10,307,461
Movable assets (at purchase price) :
(1) Government stock
24,139,006
(2) Stock guaranteed by State... 10,988,850
(3) Other securities (credits on
land)
277,500

Francs
Capital cover for pensions and
allowances in course of payment
at 31 December 1933 (excluding
cover provided by the State subsidy)
538,454,978

35,405,350
Loans guaranteed by Treasury
annuities
Loans to communes
Loans on mortgage
Social investments at reduced
rates
Real estate :
(a) Land and buildings
(6) Furnishings and supplies ...

10,005,004
9,814,769
3,389,946
29,662,879
13,345,221'
1,346,340
14,691,501

Total
Deficit

113,270,970
425,178,002
538,454,978

538,454,978

Including an appreciation of 4,723,000 francs due to the revaluation of buildings in 1932.
SALARIED EMPLOYEES' INVALIDITY AND WIDOWS' AND ORPHANS'
INSURANCE

1.—Scope.
All salaried employees earning not more than 18,000 francs a
year are liable to invalidity, old-age and survivors' insurance.
2.—Administration.
The Alsace-Lorraine Salaried Employees' Insurance Fund is a
self-governing institution covering the three Departments. Its
managing committee consists of equal numbers of representatives
of employers and insured persons and of two State officials appointed
by ministerial order.
3.—Financial Resources.
The financial resources of the Salaried Employees' Insurance Fund
are derived mainly from the contributions levied on employers and
insured persons, but income from investments and other receipts form a
substantial part of the revenue.
The monthly contribution to the invalidity and old-age insurance
scheme is shared equally between employer and insured, and varies
from 15 francs to 80 francs a month, according to the salary class to
which the employee belongs.
4.—Benefits.
The salaried employees' insurance scheme covers the risks of
invalidity, old age and death, provided that the insured person has
completed the qualifying period prescribed by law. For persons
compulsorily insured this period is fixed at 120 contribution months in
the case of men and 60 contribution months in the case of women.
(a) Old-age pension.
The old-age pension falls due at the age of sixty years, but the
insured person may advance the time for payment by not more than
five years.

275

FRANCE

The pension amounts to one-fourth of the first 120 contributions,
one-sixth of the next 120 contributions, and one-eighth of the remainder. In the case of an insured woman who has contributed for 60, or
more than 60 but less than 120 months, the pension amounts to onefourth of the contributions paid during the first 60 contribution months.
At the present time the pension includes a temporary allowance of
720 francs a year. The permanent inclusion of this allowance in the
pension is contemplated.
The amounts of the pension and of the allowance are reduced if
the insured person draws his pension before reaching the age of 60 years.
(b) Invalidity pension.
The invalidity pension is granted to insured persons who suffer
for more than twenty-six weeks from loss of earning capacity of at
least 50 per cent.
The invalidity pension is calculated on exactly the same bases as
the old-age pension.
(c) Survivors' pensions.
A widow is entitled to a pension independently of any condition
of age or incapacity for earning. The pension is equal to 40 per cent.
of the pension drawn by the husband or due to him in the case of
invalidity.
At the present time the pension includes a temporary allowance of
360 francs a year. The permanent inclusion of this allowance in the
pension is contemplated.
Children under eighteen years of age are entitled to a pension, fixed
in the case of fatherless or motherless children at one-tenth, and in the
case of orphans at one-sixth, of the pension drawn by the insured person,
or due to him in the case of invalidity.
At the present time, the pension includes a temporary allowance
of 120 francs a year. The permanent inclusion of this allowance in the
pension is contemplated.
The sum total of the survivors' pensions may not exceed the
invalidity pension drawn by the insured person or to which he would
have been entitled if he had been drawing a pension at the time of his
death.
Lastly, a funeral allowance is granted to persons dependent on
insured persons who die after completing the qualifying period but
before drawing an old-age or invalidity pension and without leaving
relatives entitled to a survivor's pension. It is granted in the following
order of priority :
(a) survivors of insured women : husband, children, father,
mother, or collateral relatives living with the insured person ;
(b) survivors of insured men : widow, children under eighteen
years of age.
In all cases the allowance amounts to 50 per cent, of the compulsory
contributions and 75 per cent, of the voluntary contributions paid into
the insured person's account.
S 2

27G

INTERNATIONAL

SURVEY O F SOCIAL S E R V I C E S ,

1933

5.—Statistics.
Number of insured persons in 1933 : approx. 51,000.
INCOME AND E X P E N D I T U R E F O B 1933
INCOME
EXPENDITURE
Francs
Francs
Ordinary contributions :
Transfer of contributions to Treasury*
122,927
(a) Payable by insured persons .... 13,242,554 Cash benefits :
(6) Payable by employers
...
13,242,554
(1)
Invalidity
and
old-age
:
Employers'shares 1
199,535
(a) Invalidity pensions
1,236,494
Subsidy from public authorities
(6) Old-age pensions
4,654,070
—
Income from investments ...
... 12,023,295
(2) Sickness (temporary pensions)
107,315
Other resources
198,861
(3) Survivors :
(a) Widows
901,765
(ft) Orphans
96,427
(4) Rights repurchased :
(a) Annuities
18,177
(6) Contributions refunded...
542,138
(c) Lump sum settlements...
23,949
7,580,335
Benefits in kind (curative treatment) 3 2,641,529
Administrative expenses :
(a.) Staff
1,645,143
(b) Materials and equipment
312,612
1,957,655
169,931

Other expenditure

12,472,377

Total

Balance to reserve funds :
(a) Actuarial reserve
21,944,389
(6) Reserve for supplementary
allowances
611,000
(c) Reserve for contingencies ... 3,769,303
(d) Other reserves
109,730
26,434,422
38,906,799

38,906,799

* In pursuance of section 12 of the Act of 30 December 1930 amending certain provisions of
the Salaried Employees' Insurance Act of 20 December 1911.
s I n pursuance of the Decree of 5 June 1928 concerning Government servants coming under
the general pension scheme (Act of 14 April 1924).
» Including 62,397 francs for " family " benefits paid to members of families of insured persons
undergoing curative treatment.
DISTRIBUTION OF PENSIONS IN COURSE

Nature of pension

OF P A Y M E N T AT T H E E N D

Number

1933

Total annual amount 1
Francs
Francs

(a) Invalidity :
704,058
Invalidity pensions
496,080
Supplementary allowances
Sickness benefit
51,675
Supplementary allowances
41,040
Total
1,292,853
(6) Old age:
3,034,602
...2,455
Pensions
1,750,704
Supplementary allowances
4,785,306
Total
e) Widows :
503,406
. 1,220
Pensions
439,200
Supplementary allowances
942,606
Total
(d) Orphans :
44,381
Pensions
52,680
Supplementary allowances
97,061
Total
18,973
707
(«) Annuities
2
Total number of pensions
¡,507
Total annual amount of pensions, including allowances1
7,136,799
Amount of lump sum settlements, refunding of contributions, etc., In 1933 : 566,087 francs.
1
The amounts actually paid in respect of pensions during 1933 are shown on the income and
expenditure account.
' The 439 individual orphans' pensions were due in respect of 293 deaths of insured persons.
If the orphans' pensions are counted by titles and not by beneficiaries, the total number of pensions
of all kinds is 5,421.

277

FRANCE

BALANCE SHEET AT 31 DECEMBER
ASSETS

Movable assets :
(1) Government stock
(2) Stock guaranteed
State
(3) Other securities

Francs
by the

1933
LIABILITIES

37,952,347
14,268,782
1,476,335
S3,697,46á

Loans (mortgage and other)
126,415,903
Social investments at reduced rates 16,403,961
Fixed assets :
(1) Land and buildings
15,066,229
(2) Furniture and supplies
2,126,769

Francs
Actuarial reserve to meet acquired
rights or those in course of
acquisition
195,219,574
Kcserve for supplementary allowances
16,212,643
Reserve for contingencies
2,900,079
Other reserves
5,064,576
Sundry debts
704,435

17,192,998
Liquid assets (cash and current
accounts)
Sundry claims

4,583,861
2,707,120
221,001,307

E.—MINERS'

221,001,307

INVALIDITY, OLD-AGE AND WIDOWS' AND ORPHANS'
INSURANCE1

1.—Scope.
Insurance is compulsory for mine workers, but optional for salaried
employees and for manual workers in ancillary establishments, salt
mines, surface mines and quarries.
Practically speaking, the only persons insured are the manual
workers and salaried employees of the mines and surface mines.
2.—Administration.
The insurance of mine workers is carried on by eight mining funds,
which have been grouped since 1925 in a Union with headquarters at
Metz. This Union manages a guarantee fund and a special augmentation fund, the purpose of which is to supplement the benefits granted by
the mining funds. The insurance institutions are managed by representatives of employers and workers in equal numbers.
3.—Financial Resources.
The financial resources of the mining funds and the Union consist
of:
(a) ordinary resources : workers' and employers' contributions,
recognition fees, income from investments, State subsidy ;
(6) extraordinary resources : gifts and legacies, entrance fees,
income from fines.
The workers' and employers' contributions are equal and form
the greater part of the resources. The total contribution is at present
fixed at 38 francs a month for insured persons whose annual wages
exceed, and at 25 francs a month for insured persons whose annual
wages are below, 4,500 francs.
The State subsidy, including the contribution to the Social Insurance
Institute at Strasbourg, must be equal to the charges that would have
been laid upon the Treasury if the mine workers in Alsace-Lorraine
1
By legislative decree of 30 October 1935 the provisions concerning administration, contributions, benefits and other minor points were amended.

278

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

had been brought within the workers' and peasants' scheme hi force
in the rest of France. It may not be less than 4-5 per cent, of the
insured person's wages.
4.—Benefits.
The miners' insurance scheme covers, by means of pensions, the
risks of invalidity, old age and death.
The benefits consist of :
(a) a basic amount payable by the mining insurance funds ;
(6) a supplement payable out of the augmentation fund managed
by the Union of Mining Funds.
The basic amount is fixed as follows :
(a) invalidity pension : 40 francs per contribution year ;
(b) old-age pension : 40 francs per contribution year for insured
persons proving at least thirty contribution years ; 30 francs
per contribution year for insured persons proving less than
thirty contribution years;
(c) widow's pension : 50 per cent, of the pension that the husband
drew or could have drawn under the rules ;
(d) assistance to children : monthly allowance of 15 francs for
fatherless children, 30 francs for orphans, up to the age of
fourteen years.
The supplement granted by the Union of Mining Funds varies with
the length of membership of the insurance scheme.
The old-age pension, for example, is increased by 30 francs for each
of the first thirty years of service and by 40 francs for each of the
following years.
The supplement granted by the Union of Mining Funds increases
the pensions calculated at the above rates by 50 per cent.
5.—Statistics.
Number of insured persons in 1933

...

Total contributions collected in 1033 ...
...
Total pensions paid in 1933
State subsidy in 1933
Income in 1933 ...
Number of pensioners a t 31 December 1933 : 2
Invalidity pensioners ...
Old-age pensioners
Widows
Orphans

...

30,28!)

1'rancs.
... 17,588,00o 1
21,674,103
12,598,000
8,993,000

Not including the employees' section at Petite-Rosselle :
Contributions
460,000 francs.
Benefits
568,000
* Including the employees' sections of the mining funds.

4,889
3,241
3,753
2,256

TBANCE

279

IX.—Voluntary Unemployment Insurance
1.—Legal Basis.
The Finance Act of 22 April 1905 (section 55) made provision for
a special ad hoc appropriation, and a Decree of 9 September 1905
laid down that funds assisting their unemployed members either by
relief on the spot or by travelling or removal allowances should be
eligible for the State subsidies to unemployment funds provided
that they satisfied the prescribed conditions. Only involuntary
unemployment due to lack of work gives the right to the State subsidy.
Hence the system thus set up, which has frequently been amended
since in its administrative details, is in the nature of voluntary insurance
subsidised by the public authorities.
2.—Scope.
This scheme applies to funds whose members follow the same
occupation, similar occupations, or connected occupations jointly
concerned in the manufacture of specific articles ; or, in communes of
less than 50,000 inhabitants, to local funds whose members belong to
various occupations; or, again, to funds created by federations of
associations for the purpose of furnishing travelling allowances.
The unemployment funds entitled to State subsidies are of three
kinds :
(a) unemployment funds formed for the purpose of providing
relief for persons who have been released from any obligations
towards their last employer and are free to take up employment
elsewhere, and for whom it has been impossible to find fresh
employment (Decree of 9 September 1905, as amended) ;
(b) short-time funds, formed for the purpose of providing relief
for workers who continue in their former employment, but,
owing to lack of work, are employed less than four days or 32
hours per week, or only for one week in a fortnight (Decree of
22 October 1932);
(c) unemployment funds formed for the purpose of providing
relief for independent workers1 who have entirely lost the
employment on which they were dependent for a living.
No industry or occupation is excluded, and membership of the
funds is open to foreign workers on the same terms as to national
workers.
3.—Administration.
Most of the funds in question are attached to a trade union or a
federation of trade unions. Some are connected with mutual benefit
societies, and others again are independent. Each fund must have
1
T h a t is, manual and intellectual workers who are n o t regularly employed
by any one person or undertaking (handicraftsmen).

280

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

at least 50 members if it is subsidised by the commune or department,
or else 100 members ; it must run a free employment agency for
unemployed persons1 and keep a check on its unemployed members.
4.—Financial Resources.
The financial resources may be of three kinds :
(a) contributions of the insured persons; the rates vary from
fund to fund and must be fixed by the rules of each fund ;
(b) State subsidies proportionate to the sum paid in benefit
within the limits fixed by Decree (see below under 5.—Benefits) ;
minimum 50 francs per half year ;
(c) subsidies from the communes or departments.
For 1933 the rate of the State subsidy was fixed (Decree of 5 April
1932, extended by Decrees of 12 May and 18 August 1933) with
reference to the ratio between the number of days of unemployment and
the number of days which might have been wrorked (that is, 300 days
per member per year) by the entire membership of the relief fund, as
follows :
Sixty per cent, of the total benefits paid under the rules up to a
maximum of 10 per cent, of the number which might have been worked ;
Seventy per cent, of the total benefits in respect of the number of
days between 10 and 20 per cent, of the total number which might
have been worked;
Eighty per cent, of the total benefits in respect of the number of
days between 20 and 30 per cent, of the number which might have been
worked ;
Ninety per cent, of the total benefits in respect of the number of days
in excess of 30 per cent, of the total number which might have been
worked.
No provision is made for an employers' contribution. Nevertheless
in pursuance of the Decree of 28 October 1932, short-time funds may
make the grant of benefit to persons on short time conditional on the
employer's contributing to the expenses arising out of the payment of
benefits to persons working short time in his undertaking.
5.—Benefits.
The risk covered is that of involuntary unemployment for the
members of each fund.
The benefits vary from fund to fund ; their rates must be fixed
by the rules of each fund, but in practice they depend largely on the
amount of the subsidy received from public authorities, since the
funds have to meet, out of their own resources, the part of their expenses
which is not covered by subsidies from the State, the departments
and communes.
1
The Decree of 28 J u l y 1932 exempted from this obligation the unemployment funds set up by independent workers.

281

FRANCE

The State subsidy is based on the benefits paid, after deducting
the amount of any departmental and communal subsidies, as follows :
8 francs a day for an unemployed unmarried person or head of a
household, and for each unemployed member of the same family who
belongs to the unemployment fund ; and 4 francs a day for the consort
of the unemployed person and each of the ascendants and children
dependent on him, provided that they are not wage earners, or if wage
earners, earn less than 4 francs a day. The total benefits granted to a
single household is taken into account in calculating the State subsidy
only to the amount of 26 francs ; but in applying this maximum no
account is taken of the benefits paid to those members of the unemployed person's family who themselves belong to the unemployment
fund (Decrees of 16 July 1931 and 23 February 1933).
The portion of the unemployment benefit which is covered by
departmental, communal or other supplementary allowances does not
enter into the calculation of the State subsidy.
The departments and communes are entirely free to decide whether
they shall or shall not subsidise unemployment insurance funds.
The Decree of 9 September 1905 mentioned above provided that no
member of a fund should receive benefit in respect of more than 120
days in any period of twelve months. This provision was repealed by
the Decree of 23 February 1933.
In addition to the allowances granted on the spot, some funds grant
their members travelling allowances, towards which the State grants
the same subsidies as towards unemployment benefit.
6.—Statistics.
Number of insured persons in 1933
INCOME

AND E X P E N D I T U R E

INCOME

215,058
IN

1933
EXPENDITURE

Insured persons'contributions
...
Contributions
from public authorities1
Other resources
1
Including 3,992,377 francs from
communes.

Francs
3,194,304

Cash benefits paid

Francs
9,008,047

7,010,093
1,973,218
the State and 3,017,716 francos from the departments and

X.—Voluntary Social Insurance
1.—Legal Basis.
Mutual benefit societies are voluntary provident institutions
governed by the Act of 1 April 1898.
2.—Scope.
Mutual benefit societies recruit their members freely under the
conditions laid down in their rules.
3.—Administration.
Before commencing operations, mutual benefit societies must
register and deposit their rules with the authorities. The independent
societies are entirely outside the jurisdiction of the public authorities.

282

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

Approved societies, on the contrary, are subject to a certain degree of
supervision by the administrative authorities, but they enjoy financial
advantages and are alone entitled to State subsidies. Societies
of recognised public utility have to assume the same obligations and
are granted the same advantages by the State as approved societies ;
they are, however, subject to stricter supervision than the latter.
4.—Financial Resources.
The ordinary income of the independent, approved, and recognised
societies is derived from contributions paid by their full members or
honorary members, the yield of investments, and State subsidies.
The extraordinary income is derived from gifts and legacies,
transfer of property, etc.
The State subsidies vary with the amount and nature of the expenditure of the society, in the manner fixed by order of the Minister of
Labour. They may in no case exceed 27 francs a year per full member
of the society. No subsidy may be granted when the society pays
benefits exceeding 25 francs a day on the average or guarantees pensions
of over 6,000 francs a year or capital sums exceeding 36,000 francs.
5.—Benefits.
The mutual benefit societies may provide assistance in the event of
sickness, maternity and death. They are not permitted directly to
undertake insurance against old age, invalidity, or accident, but
must work through insurance institutions subject to technical regulations, such as the independent funds governed by the Decrees of
15 April 1924 and 9 June 1933, the National Old-Age Pension Fund, the
National Life Insurance Fund, or private companies supervised by
the State.
The rates of contribution and benefits are fixed freely by the rules
of each fund, but the discretion allowed to mutual benefit societies is
limited by the rule concerning equality of treatment for all members :
for equal contributions and equal risks there should be equal benefits.
6.—Statistics.1
NuMBEii O Ï M E M B K K S O N 31

DECEMBER

1931

—

Honorary
members

D'ull
members

Total

Recognised public utility and approved societies (for adults)
School societies
...
Independent societies

838,369
24,733
54,550

6,745,963
629,909
456,858

7,584,332
654,642
511,408

917,652

7,832,730

8,750,382

Total

1931 ifl the latest year for which the Ministry has received figures.

283

FKANCE

INCOME AND E X P E N D I T U R E FOR

1931

INCOME

Recognised
public utility
and approved
societies

—

Contributions of honorary members
Contributions of full members
State subsidy ...
Subsidies from departments and
communes ...
Gifts a n d legacies
Various receipts : entrance fees,
fines, etc.
Interest on investments
Total income

School
societies

Independent
societies

Francs
18,154,012
684,544,935
91,544,629

Francs
116,956
6,741,114
624,381

Francs
3,859,542
35,642,661

7,710,403
13,140,163

220,742
67,749

4,883,119
6,193,265

75,562,421
58,226,358

714,907
1,226,686

12,846,805
22,978,867

948,882,921

9,712,535

86,404,259

Total income for the three groups of societies

...

Tranes
... 1,044,999,715

EXPJSNDITUIIE

—

Maternity benefit
Sickness expenditure ...
Relief t o t h e infirm and incurable ...
Maintenance of orphans
Funeral expenses a n d relief to widows
and orphans ...
Pensions a n d allowances t o t h e aged...
Sums paid towards constitution of
pensions
Miscellaneous insurance benefits a n d
subsidiary services ...
Keinsurance premiums, contributions
to unions, etc.
Miscellaneous expenditure
Administrative expenses
Total

ltecognisod
publie utility
and approved
societies
Tranes
13,286,758
123,020,016
3,073,879
4,963,229
20,310,887
23,645,323

School
societies

Independent
societies

Tranes
2,936,127

Tranes
638,320
13,588,583
281,400
184,929

14,647

3,688,158
14,846,972

252,429,175

3,105,430

710,604

8,495,808

485,187

370,166

34,665,383
30,268,415
30,525,954

107,675
336,242
1,004,996

1,118,674
10,011,209
2,529,592

544,684,987

7,990,304

47,968,607

Total expenditure for t h e three groups
Excess of income over expenditure

...
...

Tranes
600,643,898
444,355,817

284

INTERNATIONAL, SURVEY 03? SOCIAL SERVICES, 1933
FINANCIAL POSITION AT 31 DECEMBER

Reserve for
pensions
Recognised public utility and
approved societies :
adults ...
school ...
Independent societies

491,633,319

1931

Available
funds

Total

1,528,998,499 |
31,898,843
363,658,888

2,052,530,661

1,924,556,230

2,416,189,549

363,658,888

Francs
2,416,189,549

Total assets

T H I R D PART

SOCIAL ASSISTANCE
I.—Assistance for the Aged, Infirm and Incurable
1.—Legal Basis.
Assistance for the aged, infirm and incurable was regulated by the
Act of 14 J u l y 1905, amended, in particular, b y sections 171, 172 and
173 of the Act of 16 April 1930, 121 of the Act of 31 March 1932 and 30
of the Act of 31 May 1933.
T h e provisions of t h e Acts concerning assistance for t h e aged,
infirm and incurable have been amended b y the Decree of 30 J u n e 1934
issued in pursuance of section 36 of the Finance A c t of 28 February
1934 which empowered the Government to introduce measures of
economy with a view to balancing the budget. The provisions introduced b y t h e Decree of 30 J u n e 1934 are a t present being considered
b y Parliament.
2.—Beneficiaries.
All French citizens who are destitute and over the age of seventy
years or incurable are eligible for assistance.
3.—Administration.
The cost of assistance to the aged, infirm a n d incurable is borne by
the commune, the department, or t h e State, according t o the assisted
person's domicile for purposes of assistance.
The domicile for purposes of assistance is t h e commune when
t h e person concerned has habitually resided there for five years.
Failing a communal domicile, the cost of assistance is borne by the
department. If the person has neither communal nor departmental
domicile, the cost of assistance is borne b y t h e S t a t e .
The municipal council, 1 on the proposal of the assistance office,
decides on the admission of persons whose domicile for assistance
1

Provision amended by the Act of 28 February 1934.

ÏKANCK

285

purposes is the commune, and regulates the conditions under which
assistance will be granted either at home (in the form of an allowance)
or in a hospital. It fixes the rate of the monthly grants to be given
to those who are assisted at home.
A departmental committee decides on the admission of persons
whose domicile for assistance purposes is the department.
The Minister of Public Health after consultation with a central
committee, decides on the admission of persons who have no domicile
for purposes of assistance.
4.—Financial Resources.
The financial resources required for assistance to the aged, infirm
and incurable are items in the budgets of the various authorities
responsible for this assistance.
Communes whose financial resources are inadequate to meet their
assistance obligations are entitled to a departmental subsidy and, if
need be, a State subsidy.
5.—Benefits.
The aged, infirm and incurable are assisted at home.
Those who cannot be usefully assisted at home are, if they agree,
placed either in a public infirmary or, more rarely, in a private establishment, or, again, with private persons.
The method of assistance employed in each individual case has no
definitive character.
Assistance at home consists in the payment of a monthly allowance.
The rate of this allowance is fixed for each commune by the municipal
council, subject to the approval of the general council, and, in the
case dealt with in the following paragraph, the Minister of Public
Health.
It may not be less than 30 francs or, in the absence of special
circumstances, more than 60 francs. If it is more than 60 francs, the
decision of the general council is subject to the approval of the Minister
of Public Health, who decides after consultation with the Superior
Public Assistance Council or the permanent section of this Council.
If it exceeds 80 francs, the excess is, in all circumstances, charged
to the commune.
If the person assisted has certain means, the allowance is reduced
by the amount of these means. Nevertheless, those derived from
savings, in particular an old-age pension acquired by the person
concerned, are not deducted if they do not exceed 400 francs. This
amount is raised to 600 francs in the case of persons proving that
they have brought up at least three children to the age of sixteen
years. If the means exceed these figures, not more than one-half of
the excess is counted, provided that the income from savings and the
assistance allowance together do not exceed 2,400 francs.
Fixed and permanent means derived from charity are deducted
to the extent of not more than one-half, subject to the same maximum
of 2,400 francs.
Means derived from the work of persons of seventy years of age
are not taken into account.

286

INTEBNATIONAJj S U K V B l ' OV SOCIAL SERVICES,

1933

To the monthly allowances fixed by the commune is added a
supplement of 20 francs a month paid by the State.
Recipients of indoor relief who, owing to their infirmities, require
the regular help of another person are granted a special supplement
to bring their rate of assistance up to the cost of maintenance in the
infirmary of assisted persons in the commune of residence.
The right to this supplement is granted by the Minister of Public
Health after consultation with the Central Committee.
The cost of this supplement is borne, according to circumstances,
by the authority for the assistance domicile or the State.
6.—Statistics.
Number of persons in receipt of assistance on 31 December 1932 : l
Aged
I n f i r m a n d i n c u r a b l e suffering f r o m p a r t i a l inc a p a c i t y for w o r k
...
...
...
...
...
I n f i r m a n d i n c u r a b l e suffering f r o m t o t a l i n c a p a c i t y
for w o r k
T o t a l r e g i s t e r e d on 31 D e c e m b e r 1932

INCOME

AND

EXPENDITURE

415,613
114,800
131,384
661,797

FOB

1930

EXPENDHrKE

INCOME

State subsidy
Communal contribution
Departmental contribution
...
Contribution from public assistance
and other institutions
Total

345,431,400
249,790,200
152,603,700
6,468,000
754,293,300

Administrative expenses
Monthly allowances
Hospital treatment
Other expenses
Total

Francs
5,748,400
429,587,700
263,486,200
5,471,000
754,293,300

n.—Unemployment Relief
1.—Legal Basis.
The National Unemployment Fund set up as a temporary
institution by the Circular of the Prime Minister of 20 August 1914 has
since been maintained on a permanent basis. Its object is to facilitate
the working of the unemployment fund of the communes and departments by refunding them a part of their expenditure (Decree of 24
November 1914 as amended by the Decree of 28 December 192C
among others).
The municipal and departmental unemployment funds are unemployment relief institutions existing only in certain communes or
departments, where they function intermittently, that is to say,
whenever the communal or departmental authorities consider it
necessary. A very small number of unemployed persons who have
exhausted their claim to allowances from the public unemployment
funds may, in virtue of the Decree of 11 November 1931, receive
assistance from municipal welfare or assistance offices subsidised by
the State for this purpose.
1

Latest year for which the Ministry has received figures.

FRANCE

287

2.—Beneficiaries.
The unemployment funds may help unemployed persons of all
industries and occupations who have been in paid employment for at
least six months immediately before becoming unemployed and have
resided for at least three months in the locality, and whose unemployment is not due to age or incapacity (Decree of 28 December 1926 as
amended). Special funds have been set up for partial unemployment
(Decree of 22 October 1932), dockers (Decree of 3 June 1931), seamen
(Decree of 13 November 1931 amended by Decree of 13 May 1933),
and for persons other than wage earners engaged in the graphic,
plastic, dramatic and musical arts (Decree of 16 December 1933).
Relief is granted only to persons dependent on their work for a
livelihood. This is deemed to exclude persons in receipt of a pension
under the Workers' and Peasants' Pensions Act of 5 April 1910 or
the Social Insurance Act, or in receipt of relief for the aged, infirm or
incurable under the Act of 14 July 1905. Such persons cannot therefore
claim unemployment relief unless they can show that they were
engaged in an occupation and drawing a steady wage for some considerable time immediately before being unemployed.
No statutory provision requires these funds to refrain from assisting
foreign unemployed persons, but the only foreigners legally entitled
to relief are those of Austrian, Belgian, Italian, Polish, and Spanish
nationality, by virtue of treaties concluded by France with their
countries.
3.—Administration.
Most of the unemployment funds are communal institutions.
No unemployment fund may operate in a locality where there is no
public employment exchange or, failing this in the case of small
communes, a correspondent of the departmental employment exchange.
To every fund must be attached a joint supervisory committee.
As a rule the departmental unemployment funds cover communes
in which the working population is not large enough to justify the
establishment of an independent municipal fund.
The National Unemployment Fund is merely an organisation for
the distribution of subsidies.
4.—Financial Resources.
The financial resources are derived from the communes or departments and the State.
The State subsidies, which were fixed by the Decree of 28 December
1926 at 33 per cent, of the allowances paid under the rules (see below
under 5.—Benefits), have since been increased. In 1933 the following
rates applied in virtue of the Decrees of 31 December 1931,12 January,
7 April and 20 June 1933 :
Sixty per cent, of the total relief paid to the unemployed up to a
maximum of 10 per thousand inhabitants ;
Seventy per cent, of the total relief paid to the unemployed in
respect of the number between 10 and 20 per thousand inhabitants ;

288

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

Eighty per cent, of the total relief paid to the unemployed in
respect of the number between 20 and 30 per thousand inhabitants ;
Ninety per cent, of the total relief paid to the unemployed in
respect of the number in excess of 30 per thousand inhabitants.
For the short-time relief funds and the dockers' unemployment
funds, the number of unemployed persons on which the rate of the
State subsidy is calculated is found by dividing the number of daily
allowances by the number of working days in the period considered
(Decree of 31 December 1931).
Moreover, any short-time relief fund (Decree of 22 October 1932)
may make the grant of short-time allowances conditional on the
employer's contributing to expenses arising out of the payment of
allowances to persons working short time in his undertaking.
5.—Benefits.
The risk covered is that of involuntary unemployment. The great
majority of the beneficiaries are wholly unemployed, but, in virtue of
the Decree of 22 October 1932, departmental and communal funds,
subsidised by the State, have been set up for the relief of short-time
(less than four days' or 32 hours' work per week, or one week in two).
The rate of benefit is fixed in the rules of each fund and in practice
depends largely on the amount of the State subsidy. The percentage
of benefit covered by the State subsidies has frequently varied. For
1933 the maximum rates of allowances ranking for subsidies from the
National Unemployment Fund to the municipal and departmental
funds were as follows :
for an unemployed head of a household : 7 francs a day ;
for an unemployed consort or one who does not work, for each
unemployed person over sixteen years of age living in the
household of his father, mother, guardian, grandfather, grandmother, uncle or aunt, and for an ascendant who does not
work and is dependent on the head of the household : 4 francs a
day;
for each person under sixteen years of age dependent on the
unemployed person and not working, or earning less than
2 francs a day : 2-50 francs a day.
The total amount of relief granted to any one household may not
exceed 19 francs a day, or 20 francs if the household includes three
children under sixteen years of age dependent on the unemployed
person, 23 francs if it includes four, and 26 francs if five or more. In
no case may the total exceed half the wages plus the family allowances
customary in the occupation and district in question (Decrees of 31
December 1931, 12 January, 7 April and 20 June 1933).
The Decree of 28 December 1926 provides that these allowances
may be paid only for a maximum of 120 days' unemployment per year,
but under the Decree of 24 June 1932, which was extended by the
Decrees of 12 January and 14 April 1933, all limitation of the period
for which allowances may be granted was abolished in 1933.

289

FBANCE

As an exception, and subject to various guarantees, the Minister
of Labour may allow a State subsidy in respect of relief granted in the
form of vouchers of a specified value, representing a task to be performed or a meal. Similarly, the unemployment relief granted by
municipal welfare or assistance officers may be either in cash or in kind.
6.—Statistics.
N u m b e r of p e r s o n s i n r e c e i p t of relief i n 1933 ( m o n t h l y a v e r a g e )

...

295,000

EXPENDITURE

INCOME

Francs
592,000,000

State subsidies
Subsidies from departments and
communes
421,000,000
Total
1,013,000,000

CashbeneQts

Total

Francs
1,013,000,000

1,013,000,000

in.—Shipowners' Liability towards Sick or Injured Seamen
1.—Legal Basis.
Act of 13 December 1926 constituting the Maritime Labour Code.
2.—Beneficiaries.
The obligations laid down in the Code cover the whole French staff
of sea-going vessels flying the French flag, with the exception of ships
of war.
Foreigners engaged on French vessels are granted only partial
protection as compared with French seamen, unless a treaty of
reciprocity exists.
3.—Financial Resources.
The benefits must be provided entirely by the shipowner, who is at
liberty to insure against his HabiHty in this respect.
When a sick or injured seaman is put ashore, the shipowner can
fulfil his obligations (including attendance and repatriation) by paying
a lump sum to the maritime or consular authority responsible for
supervising the treatment and repatriation of seamen in such cases.
4.—Benefits.
The shipowner's liability extends to injuries received in the service
of the vessel and sickness occurring on board.
(a) Treatment and maintenance must be provided for the seaman
until he has recovered or until he is certified as being disabled.
(6) The seaman's wages or pay must continue during the whole
period of incapacity, and, if need be, until his repatriation, but for not
more than four months at most from the date on which he was put
ashore.
(c) The repatriation of seamen left in foreign ports on account of
their state of health comprises board, lodging and transport. Unless
any agreement to the contrary exists, a sick or injured seaman who is
not returned to his French port of embarkation is entitled to be conveyed to that port.
(d) In the event of death, the funeral expenses must be borne by
the ship.
X G 12973

290

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

5.—Statistics.
Number of seamen assisted in 1933 after being put ashore :
In France (including Algeria : metropolitan scheme) 2,824
Abroad or in the colonies
371
INCOME AND E X P E N D I T U R E I N

1933

Income : total amount of lump sums paid by shipowners to t h e
Maritime Authority :
Abroad and in the colonies ...
I n France
Expenditure, covered by the budget of the Ministry of Shipping, on
t h e relief of seamen p u t ashore owing to sickness or injuries :
Expenses debited to lump sums paid abroad or in the colonies
Expenses debited to lump sums paid in France ...

Francs
713,000
4,171,600

652,000
5,100,000

IV.—Welfare Offices
1.—Legal Basis and Object of the System.
Welfare offices are governed by the Act of 7 Frimaire of the year V
of the Revolution. Their purpose is to grant indoor relief to indigent
and necessitous persons other than the sick. They form part of the
system of optional and communal assistance as opposed to the compulsory assistance organised by the State (Acts of 15 July 1893, 14 July
1905, etc.), and are represented in each commune by the assistance
office.
2.—Beneficiaries.
The assistance granted by the welfare offices is available to all
persons without means. The only statutory duty of these offices is to
keep a register of persons granted indoor relief. These are divided
into three classes : necessitous persons assisted annually, temporarily,
and occasionally. Foreigners may be assisted as well as French citizens,
as far as the resources allow.
3.—Assistance Institutions.
Welfare offices possess legal personality and are set up by Decree.
They are managed, in the same way as hospitals, by a board of management consisting of four members appointed by the prefect and two
members elected by the municipal council under the chairmanship of
the mayor (Acts of 21 May 1893 and 5 August 1879).
i.—Financial Resources.
The financial resources of the welfare offices consist of :
(a) the revenue from their endowment, which includes property
acquired under various revolutionary laws, property formerly
belonging to abolished ecclesiastical institutions, and, above
all, gifts and legacies to the poor.
(6) the yield of the poor rate and any subsidies from the municipal
council, etc. State subsidies are reserved for compulsory
assistance, but in some cases the welfare offices may be given
a share of the grant to local charity organisations from the
yield of totalisator betting.

291

FRANCE

5.—Benefits.
The rate and duration of assistance are left entirely to the discretion
of the managing boards of the welfare offices ; but section 10 of the
Act of 7 Frimaire of the year V lays down that indoor relief should be
granted in kind rather than in cash.
6.—Statistics.
INCOME AND E X P E N D I T U R E F O B 1932 1
EXPENDITURE

INCOME

Income from investments
...
Income from collections, subscriptions, bequests, donations
...
Poor rate
Sale of concessions in cemeteries...
Communal contribution
Other income
Total

Francs
50,738,800
12,762,300
56,728,800
18,544,500
65,499,200
63,667,900
267,941,500

Cash relief
Supply of bread and other food ...
Medicines and appliances
Other relief in kind
Investments
Administrativo and other expenses
Grants in aid of compulsory assistance
Total

Francs
56,183,200
66,912,800
24,976,700
25,549,600
12,287,400
61,311,900
11,644,300
258,865,900'

Latest year for which figures have been received by the Ministry.
»Including 11,644,300 francs set aside for compulsory relief (old age, maternity, and large
families) and already included in the statistics for these forms of social assistance.

V.—Free Medical Assistance : Hospitals
1.—Legal Basis.
The scheme of free medical assistance is regulated by the Act of
15 July 1893, all the essential provisions of which have remained in
force. I t supplements the Act of 7 August 1851, which established the
hospital system.
2.—Beneficiaries.
Under the Act of 15 July 1893, every French person who is
suffering from an illness and is destitute is cared for free of charge
at home or in a hospital at the expense of the commune, department,
or State, according to his domicile for purposes of assistance.
Foreigners whose country of origin has concluded a treaty of reciprocity
with France are assimilated to French citizens.
3.—Administration.
The cost of assistance is borne by the commune, the department
or the State according to the assisted person's domicile for purposes
of assistance.
The hospitals defray a part of the cost of free medical aid from the
income of their own property.
The domicile for purposes of assistance is the commune when
the person concerned has habitually resided there for one year. Failing
a communal domicile, the cost of assistance is borne by the department.
If the person has neither a communal nor a departmental domicile for
the purposes of assistance, the cost is borne by the State.
The administration of assistance is entrusted in each commun
to an assistance office.
The prefect decides on the admission of sick persons who have
no domicile in the commune; he forwards to the Minister of Public
12

292

INTERNATIONAL STJBVEY OF SOCIAL SERVICES, 1933

Health the list of sick persons whose assistance is a matter for the
State.
4.—Financial Resources.
The cost of free medical aid is an item in the budget of the State,
the departments and the communes, and is set off by certain appropriations in the form of the income from special endowments or contributions from certain charitable bodies or hospitals.
To arrive at the total public expenditure entailed by the medical
services available to the population, there must be added to the
expenditure arising out of the Act of 15 July 1893 that part of the
cost of running the hospitals which is covered neither by the inmates
or their families, nor by refunds payable by the State, departments
or communes under a system of public assistance (e.g., free medical
aid, assistance to the aged, infirm and incurable). This part of
working expenditure is met out of the income of hospital foundations,
the yield of certain duties, subsidies from public authorities, gifts and
legacies.
5.—Benefits.
The benefits comprise all medical services and the treatment provided by the hospitals.
6.—Statistics.
INCOME AND E X P E N D I T U R E FOB, 19321
INCOME
(1) Free Medical Assistance
Communal contribution ...
Departmental contribution
State subsidy
Other income
Total
..

Francs
240,096,500
88,378,500
43,581,300
47,454,400
419,510,700

(2) Hospitals.
Income from endowments... 144,112,200
Poor rate, profits from pawnshops, etc.
90,279,000
Communal contributions ... 549,748,800
Gifts and bequests
... 33,309,000
Other income
288,934,400
Kepayinent of expenses ... 825,852,000
Grand total
...
1,932,235,400
Less repayment of expenses 825,852,000
Nettotal
1,106,383,400
Grand total, less repayment, for
medical assistance and hospitals 1,418,887,400
1

EXPENDITURE
Francs
(1) Free Medical Assistance.
Doctors' and surgeons' fees,
etc.
47,667.200
Medicines and appliances ... 43,528,400
Hospital treatment
... 302,227,700
Other expenses
26,087,400
Total
419,510,700
(2) Hospitals.
Domiciliary care
...
4,646,600
Other relief
21,917,800
Hospital
service
(staff,
equipment, food, drugs)...1,163,196,800
Other expenses
705,618,100
Total
1,895,379,300
Expenses not repaid by families
: or by free medical service
1,069,527,300
Grand total, less repayment, for
medical assistance and hospitals 1,382,031,300

Latest year for which figures have been received by the Ministry.

VI.—Tuberculosis Service
1.—Legal Basis and Purpose oí the Assistance.
Special supplementary medical aid to the tuberculous was provided
by the Act of 7 September 1919.
Since the State, the departments and the communes share in
the cost of maintenance in sanatoria of sick persons granted free
medical aid owing to lack of means, the primary object of the Act

FRANCE

293

of 7 September 1919 is to ensure the payment of the difference between
the cost of maintenance in the sanatorium and the cost of maintenance
in the hospital in which the assisted person would have been placed if
he had not suffered from tuberculosis.
Under the Act of 7 September 1919, the State may also contribute
up to one-half of the cost of establishing, altering, enlarging or
renovating sanatoria for assisted sick persons.
2.—Beneficiaries.
The State makes good the difference between the cost of maintenance
in the sanatorium and the cost of maintenance in the hospital for
the place of domicile of the assisted person when he belongs to one
of the following classes :
(a) persons who have been affiliated for at least three years to a
mutual benefit society re-insuring its members against sickness
of long duration ;
(ö) persons recommended by charitable societies or the bodies
responsible for the foundation of the sanatorium ;
(c) persons not covered by the Act of 15 July 1893 respecting
free medical aid, whose admission has been applied for by a
public dispensary, subject to the right of the State to recover
from persons who have sufficient means to pay for their
requirements.
(d) beneficiaries of free medical aid.
3.—Administration.
In the case of beneficiaries of free medical aid, the admission
of sick persons is decided upon by the prefect of the department
in which they have their domicile for purposes of assistance ; and in
the case of other classes of sick persons, by the prefect of the department
in which the sanatorium is situated.
Departments which do not possess appropriate sanatoria are required to provide for treatment by making the necessary arrangements
with a public or private sanatorium.
The whole of the expenditure incurred under the Act is borne by the
State and is met from an item in the general budget. .
4.—Benefits.
The benefits are defined by the purpose of the Act. They consist
in :
(a) State subsidies for the purpose of covering up to one-half
of the expenses incurred in establishing or fitting out sanatoria ;
(6) payments for the purpose of making good the difference
between the cost of maintenance in the hospital to which the
sick person would have gone and the cost of maintenance in
the sanatorium admitting him.
The maximum daily cost of maintenance in each sanatorium is'
fixed by the Minister of Public Health.

294

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

5.—Statistics (for 1933).
State subsidies for the erection and equipment of sanatoria ...
...
State subsidies for the erection and equipment of preventive homes
State subsidies for the erection a n d equipment of tuberculosis
dispensaries
State share in the cost of maintenance of patients in sanatoria
...
Cost of the Camiers preventive home (Pas-de-Calais) managed b y
1
the State
State subsidies towards the running expenses of tuberculosis dispensaries and similar institutions
...
...
...
...
...
Total
1

Francs
36,370,000
9,370,000
2,000,000
20,637,000
377,000
24,265,000
93,019,000

Managed by the Pas-de-Calais Department since 1 June 1933.

Vu.—Lunacy Service
1.—Legal Basis.
Assistance to the insane is regulated by two fundamental texts :
the Act of 30 June 1838, and the Eoyal Order of 18 December 1839.
2.—Scope.
The provisions of the Act of 30 June 1838, cover :
(a) insane persons voluntarily placed in an asylum by their
family ;
(b) persons whose condition is a danger to public order or the
safety of others and who are confined compulsorily by the
administrative authorities; confinement orders made by the
competent administrative authorities must be accompanied
by a statement of reasons and brought to the notice of the
Attorney-General ;
(c) insane persons of a harmless character confined voluntarily
by the administrative authorities.
Confinement is effected in the circumstances and conditions laid
down by the general council of each department on the proposal of
the prefect and after being approved by the Minister. This method
of confinement is applied to harmless insane persons who require
attention and have not been voluntarily confined either because
they have no family, or because the family does not concern itself
about them or is indigent.
The position of insane aliens does not form the subject of any
special regulations. When a foreigner is put into an asylum compulsorily, the administrative authorities may ask for his repatriation.
Insane aliens belonging to a country with which France has concluded
a reciprocity treaty of pubhc assistance may not be sent back to their
country if they have been resident in France for at least five years.
3.—Administration.
The cost of assistance to insane persons is defrayed by the commune, the department or the State, in proportions varying with the
insane person's domicile for assistance purposes.

FRANCE

295

In addition, any infirmaries which before the Act of 1838 maintained insane persons either by tradition or under the deeds of foundation are still bound to contribute to the assistance of mentally deranged
persons.
Domicile for assistance purposes is acquired by :
voluntary and habitual residence of a year ;
filiation (a child has the father's domicile, or, failing that, the
mother's) ;
marriage (a wife has the husband's domicile ; in the event of
desertion, she may acquire a personal domicile).
4.—Financial Resources.
The cost of assistance to the insane is met from the following
sources :
payments made by the patient or his family ;
payments made by the department, with the help of the commune
of domicile, and in certain cases by the infirmaries ;
payments made by the State.
Finally, the asylums have their own resources derived from the
cultivation of their land, often by the inmates themselves, who in
such cases are remunerated by a system of deferred wages.
The public authorities, the State departments, communes or
infirmaries contribute to the cost of mamtaining the patients in an
institution only in so far as they themselves or their families are unable
to do so.
The departments are responsible for expenditure on insane persons
and for making good budgetary deficits, subject to the right of recovery
from the proper quarter : the family, the commune of domicile, the
State or the infirmary.
5.—Benefits.
The insane may be cared for (a) in departmental asylums or
independent public asylums (seven in number) or (fc) in special wards
maintained or set up for the purpose in infirmaries, or (c) in private
asylums. Private asylums may be maintained or set up only with the
permission of the prefect, after the papers have been filed and a security
deposited.
The departments may conclude agreements with private asylums
for the maintenance of patients at public expense.
6.—Statistics.
Statistics for 1933 are not available.

Vili.—Assistance for Large Families
1.—Legal Basis.
Assistance to large families was regulated by the Act of 14 July 1913,
amended in particular by the Finance Acts of 29 April 1926 and
31 March 1931 (section 102).

296

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

2.—Beneficiaries.
Every French citizen supporting more than three children, and
having insufficient means for their upbringing, receives an annual
allowance for each child beyond the third under thirteen years of age.
If the children are supported by the mother alone, the assistance
is given for every child beyond the first under thirteen years of age.
If the children are supported by the father alone, the assistance
is given for each child beyond the second under thirteen years of age.
Parents who take charge of children whose own parents have
deserted them or disappeared are considered heads of families for the
purpose of assistance, which in this case is given for each child under
thirteen years of age.
Children under sixteen who have an apprenticeship contract or
are continuing their studies, or who are infirm or incurable but are
not being treated in a hospital at the public expense, are assimilated
to children under the age of thirteen years.
3.—Administration.
The communes assist persons with a communal domicile for assistance purposes. The departments assist persons with a departmental
domicile, defray the departmental costs of administration and supervision, and subsidise the communes. The State assists persons who
have no domicile for purposes of assistance, defrays the cost of administration and supervision occasioned under the Act, and subsidises
the departments.
The domicile for purposes of assistance is the commune when
the person assisted has habitually resided there for one year. Failing
a communal domicile, the cost of assistance is borne by the department.
If there is neither communal nor departmental domicile, the cost of
assistance is borne by the State.
4.—Financial Resources.
The cost of assisting large families is an item in the budgets of the
departments, but in principle it is the communes which bear the cost
for persons domiciled in a commune for assistance purposes; they
receive departmental subsidies in proportion to their means and their
expenditure.
The State assumes responsibility for the whole of the allowances
up to 210 francs per year per child; the communes, the State and
the departments share the expenditure entailed by the fraction of
allowances between 210 and 300 francs per year.
The communes alone bear the cost of the fraction of allowances
in excess of 300 francs.
5.—Benefits.
The amount of the allowance is fixed for each commune by the
municipal council. It may not be less than 270 francs. If it is above
300 francs, the excess is met by the commune alone.

297

FRANCE

6.—Statistics.
Number of persons in receipt of assistance :
O n 1 J a n u a r y 1933
O n 31 D e c e m b e r 1933
INCOME

47,924
47,036

AND E X P E N D I T U R E FOB
Tarili P*Ì

State subsidies
Departmental contributions
Communal contributions ...
Total

1930
EXPENDITURE

INCOME

\
/

20,872,630
8 9.-. Q r n
o.«".*""
29,114,580

Cash benefits
Administrative
expenses
Total

36,298,830
and

inspection
2,816,250
29,114,580

IX.—National Scheme to Encourage Large Families
1.—Legal Basis.
The system of encouragement to large families was instituted by
the Act of 22 July 19231, amended by section 174 of the Act of 16 April
1930.
The provisions of this Act were amended by a Decree of 30 June
1934 issued in pursuance of section 36 of the Finance Act of 28 February
1934, which empowered the Government to introduce by decree such
measures of economy as were necessary to balance the budget.
2.—Beneficiaries.
Every family of French nationality residing in France and including
three living children, legitimate or legitimised, under thirteen years
of age receives from the State a monthly allowance for each child
beyond the second under thirteen years of age. A mother living
alone with dependent children receives an allowance for each child
beyond the first under thirteen years of age.
If both father and mother are dead, the allowances are granted in
respect of the first and each subsequent child.
Children under sixteen years of age having a written contract of
apprenticeship or continuing their studies, or who are infirm or suffering
from an incurable disease and are not being treated in a hospital at the
public expense are assimilated to children under thirteen years of age.
3.—Administration and Financial Resources.
The allowances granted by way of national encouragement to large
families are paid by the State from an item in the budget.
Nevertheless, the departments and communes may supplement the
State allowances from their own funds to the extent that they think
fit.
1
T h e A c t of 20 J u l y 1923 is n o t , p r o p e r l y s p e a k i n g , a social relief m e a s u r e .
A s i n d i c a t e d b y t h e t i t l e , i t is a n A c t t o r a i s e t h e b i r t h r a t e a n d e n c o u r a g e l a r g e
families.

298

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

4.—Benefits.
The amount of the State allowance is fixed as follows :
For families in which both father and mother are alive, 84 francs
for the first child benefiting, 300 for the second, and 480 for the third
and each of the following.
In other cases, 300 francs for the first child benefiting and 480 for
the second and each of the following.
These allowances cannot be paid concurrently with the family
allowances paid to their staffs by the various public authorities, or
with the various forms of assistance (assisted children, assistance to
large families, etc.).
During the past few years no department has reported grants of
supplements to the State allowances.
5.—Statistics.
Number of beneficiaries under the scheme on 31 December 1933 ...
681,268
Total expenditure
Frs. 332,021,000

X.—Birth Bonuses
1.—Legal Basis.
The principle of birth bonuses consisting partly of a State contribution was laid down by section 48 of the Finance Act of 29 June
1918, under which public administrative regulations were to fix the
conditions in which subsidies would be granted to those departments
or communes that took financial steps to promote a higher birth rate.
2.—Beneficiaries.
The conditions giving a right to birth bonuses are left to the
discretion of the communes and departments.
3.—Administration and Financial Resources.
The bodies responsible for administering the birth-bonus scheme
are appointed by the departments or communes that have instituted
bonus systems.
The expenditure entailed by the grant of birth bonuses is met from
the departmental or communal budgets, and set off by a State
subsidy.
The State subsidy is calculated in direct proportion to the number
of large families in the department or commune, and in inverse
proportion to the ability of the department or commune to contribute.
I t is granted only if the bonuses are at least 100 francs. In the case
of bonuses exceeding 1,000 francs, the State pays only up to 1,000 francs.
4.—Benefits.
The minimum rate of departmental bonuses, i.e., those allowable to
all the communes of a given department, varies from 150 to 400 francs.
In about a third of the departments, the bonuses are fixed ; in the
others, they are paid with supplements varying with the chronological
order of birth. The bonuses in the communal systems vary from
100 to 1,000 francs.

299

FRANCE

The bonus is nearly always paid in two parts, one soon after birth
and the other when the child is one year old.
5.—Statistics (provisional figures for 1933).
State subsidy
Departmental and communal contributions (together)
Total

Francs
21,000,000
24,650,000
45,650,000

XI.—Maternity Assistance
1.—Legal Basis.
Maternity assistance and bonuses for women who nurse their
children were instituted by the Acts of 17 June 1913 and 24 October
1919, which were amended, in particular, by the Act of 2 December
1917 and by sections 168 and 169 of the Act of 16 April 1930.
The Act of 23 December 1874 concerning the protection of infants
made provision for the medical supervision of children put out to
nurse, to be weaned, or taken care of.
2.—Beneficiaries.
Any French woman who is without means is entitled to a daily
allowance before and after confinement.
Before confinement the allowance begins when a medical certificate
is produced stating that the woman is unable to work. After confinement the allowance is granted for the four weeks immediately following,
provided that an application is made within twelve months of confinement. The allowance may not be granted for more than eight weeks
in all.
To qualify for this allowance the mother must cease to follow her
habitual occupation, rest as far as her domestic duties permit, and
take due hygienic precautions for herself and her child.
The medical supervision introduced by the Act of 23 December
1874 applies to all children put out to nurse, to be weaned or taken
care of. Anyone who puts out, or takes in against payment, an infant
to nurse or to be weaned or taken care of is required to notify the
municipal authorities.
3.—Administration.
The grant of assistance to confined women and of nursing bonuses
to mothers is decided upon by the municipal council1 or in urgent
cases by the mayor, at the suggestion of the assistance office of each
commune.
Any maternity mutual benefit society and any assistance organisation previously approved for the purpose may be entrusted by the
municipal council with the Administration of the Act.
The inspectorate of public assistance is responsible for the protection
of infants. In addition to medical services proper there arc depart1

Provision amended by section 55 of tho Act of 28 February 1934.

300

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

mental infant welfare centres and, in many departments, maternity
or infant protection centres governed by the Act of 23 December 1874.
4.—Financial Resources.
The expenditure entailed by maternity assistance and the grant
of nursing bonuses is met from the departmental budgets. The
communes are, however, in principle responsible for the cost of assistance to mothers with communal domicile, receiving in return departmental subsidies in proportion to their financial resources and their
expenditure. The State also refunds to the departments a certain
fraction of their expenditure.
Further, according to section 25 of the Act of 30 June 1930, the
State is alone responsible for the supplementary expenditure involved
for the departments and communes by the application of the new
rates of assistance laid down in sections 168 and 169 of the Act of
16 April 1930.
Private maternity and infant protection centres may receive
subsidies from the Ministry of Public Health, which has a special
endowment for the purpose.
The expenses arising out of the application of the Act concerning
the protection of infants are borne partly by the State and partly by
the departments concerned.
5.—Benefits.
(a) Maternity assistance.
.The rate of the daily maternity allowance is fixed for each commune
by the municipal council, subject to the approval of the general
council and the prefect. The allowance may not be less than 2.50
francs or more than 7.50 francs. If it is more than 7.50 francs, the
whole of the excess is paid by the commune.
(b) Nursing allowances.
The supplementary monthly allowance payable under the Act
of 24 October 1919 to French women in receipt of the maternity
allowance and feeding their children at the breast rises from 15 francs
to 45 francs during the first six months following confinement, returning
to the initial rate of 15 francs for the next six months.
(c) Protection of infants.
The benefits for which provision is made in the Act of 23 December
1874 consists mainly of medical and social supervision for infants put
out to nurse or to be weaned or taken care of. This supervision is
exercised, either at the homes of the infants or in infant welfare centres,
by doctors, nurses or midwives.
6.—Statistics.
(a) Maternity assistance.
Number in receipt of assistance :
1 January 1933
31 December 1933

34,414
32,709

301

FEANCE
INCOME AND EXPENDITURE

FOR

INCOME

I'rancs
State subsidy
21,871,770
Special State contribution (under
sec. 25 of Act of 30 June 1930) 19,181,180
Departmental contribution
\ 20,505,430
Communal contribution ...
/
Total
61,558,380

1933
EXPENDITURE

Cash benefits
Administrative
expenses

and

inspection

Francs
57,285,940
4,272,440

Total

(b) Supplementary nursing allowances.
Number in receipt of assistance :
205,001
184,072

1 J a n u a r y 1933
3 1 D e c e m b e r 1933
INCOME

AND E X P E N D I T U R E

FOR

EXPENDITURE

INCOME

Francs
State subsidy
29,257,360
Special State contribution (under
sec. 25 of Act of 30 June 1930)... 40,126,360
9,630,050
Departmental contribution
\
Communal contribution ...
f
79,013,770
Total

1933

Cash benefits

Total

79,013,770

(c) Protection of infants.
In 1933 the total expenditure for the protection of infants amounted
to 7,156,668 francs. This expenditure is borne in equal shares by the
State on the one hand and the departments concerned on the other.
The subsidies granted by the Ministry of Public Health to private
maternity or infant welfare centres amounted in 1933 to 9,855,000
francs.

Xu.—Assistance for Destitute Children
1.—Legal Basis.
The scheme of assistance to children is regulated by the Act of
27 June 1904, all the essential provisions of which are still in force.
2.—Beneficiaries.
The scheme of assistance to children applies primarily to mothers
who are so poor that they cannot keep or nurse their children or
put them out to nurse. This system also covers foundlings, deserted
children, children placed with institutions or private persons, and
poor orphans.
3.—Administration and Financial Resources.
The costs of the assistance scheme for children are borne by the
communes, the departments and the State, and are met from the
budgets of these authorities.
The costs of assistance are paid as to two-fifths by the department,
as to two-fifths by the State, and as to one-fifth by the communes,
after deducting expenditure wholly borne by the State on children who
have no domicile for the purposes of assistance, and receipts, consisting

302

INTERNATIONAL SUBVEY OF SOCIAL SERVICES, 1 9 3 3

of refunds from departments or families, police court fines, gifts and
legacies.
The domicile of children for the purpose of assistance is the
department or commune in which they were born, found, admitted
or received.
The expenditure occasioned by children with no departmental
domicile is met by the State.
4.—Benefits.
(a) Assisted children.
Assistance is granted to allow a poor mother to keep and nurse
her child or put it out to nurse. The amount of and the conditions
for granting this assistance are fixed in each department by the general
council.
(b) Public wards.
Establishments designated by the prefects are responsible for
receiving, as public wards, the children brought to them.
The person on duty informs the person bringing the child that
the mother may receive assistance if she keeps the child, and that
if she abandons it she will only receive information at stated intervals
as to whether the child is dead or ahve, the place where the ward is
kept remaining a secret.
If the child appears to be under seven months and if the person
bringing it refuses to gives its name or the place and date of its birth,
note is taken of this refusal and the child is admitted.
Apart from this case, when assistance has not been accepted
the request is transmitted to the prefect and the child may be received
temporarily.
The protection and guardianship of public wards are matters
for the prefect or his delegate—the departmental inspector of public
assistance. The guardian is assisted by a family council in the form
of a committee of seven members elected by the general council and
renewable every four years.
A child claimed by its parents may be handed over if the guardian
considers, after consulting the family council, that this would be
in the child's interest. Children may be handed over for a trial period.
The wards are placed in a home : infants in a nursery and the
others in special accommodation. They are kept there only if their
state of health so requires or if their guardian has good reasons for
so deciding. Wards under thirteen years of age are generally entrusted
to families living in the country.
The remuneration of the nurse to whom a ward is entrusted comprises a fixed wage and a contingent allowance in proportion to the
number of months that she has kept the child. Board is paid until
the ward is thirteen years of age. The child is then apprenticed,
preferably in an agricultural occupation, and often with the fosterfather.
The father, mother and ascendants of a public ward or child
entrusted to the authorities are always liable for its board.

303

FRANCE

5.—Statistics.
N u m b e r of c h i l d r e n i n r e c e i p t of a s s i s t a n c e a t 31 D e c e m b e r 1933 a p p r o x . 175,000
INCOME

AND E X P E N D I T U R E

FOE

1933
EXPENDITURE

INCOME

Franca
State subsidy
87,000,000
Departmental subsidies
87,000,000
Communal subsidies
43,500,000
Contributions from families and
departments
...
• •
Other income
2,200,000
Total
219,700,000

Francs
Benefits in kind
1,250,000
Other expenses : wages of nurses,
cost of boarding out children,
temporary relief, etc
218,450,000
Total

219,700,000

A m o u n t of t h e f u n d s for p u b l i c w a r d s o n 31 D e c e m b e r 1933 ... F r s . 76,610,971

FOURTH PART
HOUSING
1.—Legal Basis.
The legislation for encouraging the building of cheap dwellings
originated in the Siegfried Act of 1894. After the war this legislation
was consolidated by the Act of 5 December 1922, which, supplemented
by subsequent Acts, was the basis for all action of the public authorities
in the matter of housing until the Act of July 1928, known as the
Loucheur Act. This was itself supplemented in 1930 by the Bonnevay
Act of 28 June 1930 on improved dwellings, i.e., a category intermediate
between cheap dwellings properly so called and dwellings at a medium
rent.
2.—Beneficiaries.
The Act of 1922 lays down that cheap dwellings are intended for
persons of small means and workers living mainly on their wages.
The bodies responsible for receiving individual applications must
decide whether the applicants can be considered as persons of small
means in view of their resources and the charges upon them. Doubtful
cases are referred to the Ministry.
The beneficiaries of dwellings at medium rents are determined
chiefly by the conditions for the grant of subsidies.
The maximum figures for cheap dwellings are, as a rule, those laid
down in the Act of 13 July 1925. The graduated table contained
therein does not go beyond three-roomed dwellings ; consequently, the
limitations imposed in that case apply also to larger dwellings. An
allowance is made for extra rooms in the case of large families.
The Loucheur Act has no provisions on this point except with
reference to dwellings at medium rents, which did not exist previously.
I t was only in 1929 that permission was given for Decrees to be
issued raising the maximum figures in certain districts, but never by
more than 25 per cent, of the figures laid down in the 1925 Act.

304

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

3.—Authorities and Undertakings concerned in Building.
The chief building agencies are the public housing offices and the
co-operative societies or building companies for cheap dwellings. The
communes are expected to take direct action in some cases, but in
practice they obtain the assistance of the public offices.
The most important agencies are the public offices for cheap
dwellings set up in 1912. These offices are established by Decree, but
solely at the instance of the local authorities. They have increased in
number as a result of the Loucheur Act, which made the estabhshment
of a departmental office compulsory where no other body was in
existence.
In addition to the public offices and the societies for cheap dwellings,
there are the building credit societies, which were first instituted in
1908 for the special and sole purpose of granting loans to persons
wishing to acquire a small house.
Above or side by side with these bodies there are a number of
councils and committees for the study of general questions, such as
the Superior Council for Cheap Dwellings and its permanent committee, or for the allocation of credit, such as the Loans Committees
attached to the Ministry, or for local propaganda, such as the committees for the encouragement of cheap dwellings, most of which are
departmental in scope.
4.—Financing by Public Authorities.
The financial support provided under the 1922 Act was destined
only for cheap dwellings—the only type subsidised at that date. The
support generally took the form of advances at low interest rates,
which were granted :
(a) to building agencies in the form of advances up to 75 or
60 per cent, of the cost according to whether the commune
or department did or did not guarantee the refund of the
advance ;
(b) to building credit societies in the form of credit with the
Deposit and Trust Fund, which could be drawn on gradually
as required.
The rate of interest fluctuated between 2 and 3 | per cent, prior
to the 1928 Act.
The State obtained the requisite funds by borrowing from the
Deposit and Trust Fund. The amount was deducted from various
accounts managed by that Fund, which lent the money to the State
at the average rate of interest on all its investments. The cost to the
State was equal to the difference between the interest it charged for
its advances and the rate it had to pay for its borrowings.
The Loucheur Act of 13 July 1928 made important changes in
the system. In the first place, it fixed the rate of interest for all
advances to the public offices and societies at 2 per cent. ; in the
second place, the maximum advance which could be made to the
building agencies was raised to 80 per cent, of the cost, or even 90 per
cent, when the loan was guaranteed by the department or commune.
The new Act also introduced a system of promoting the construction

305

JTBANCE

of medium-rented dwellings. In this case advances are at 4 per cent.
interest, the maximum amount being fixed at 40 per cent, of the price
in 1928 and raised to 70 per cent, in 1930. A complicated system of
contributions Was also introduced, but these contributions, together
with the advances, can never exceed 80 per cent, of the cost of building,
the builder always being entirely responsible for 20 per cent, at least.
In 1930 a third type of dwelling, the " improved cheap dwelling,"
was added. These are to be let in the ordinary way at rents which
may amount to twice the figure for ordinary cheap dwellings. Builders
can obtain advances in the same way as for cheap dwellings, but the
rate of interest is 3 per cent.
In addition to credit faculties, the legislation makes provision in
certain cases for subsidies for the building of ordinary cheap dwellings.
These may be granted under the 1922 Act for dwellings intended for
families with more than three children under the age of sixteen ; the
amount of such subsidies may not exceed 33 per cent, of the cost of
building, but in practice it is at present never more than 15 or 16 per
cent.
Another type of subsidy is payable under section 11 of the 1928
Act with a view to enabling seriously disabled soldiers and heads of
large families to become owners of their dwellings. These individual
bonuses vary from 5,000 to 15,000 francs according to the degree
of invahdity or the size of the family.
Exemption is granted from various taxes with a view to encouraging
the building of cheap houses. In particular, partial exemption from
transfer fees is granted for the acquisition of land for bunding, and
total exemption for the purchase of recently built houses. Temporary
exemption for 15 years from the land tax is also conceded in the case of
all.new buildings finished before 1936. After that date the time limit
of the exemption will be reduced to 12 years, by the return to the
scheme introduced by the Act of 1922.
5.—Statistics.
(a) Exemption from taxation.
Exemption from taxation in 1933 covered 42,905 separate houses
and 1,804 apartment houses (9,116 dwellings). The following table
shows the amounts involved in these exemptions :
Land taxes
Mortmain taxes
Licences
Stamp d u t y

...

Francs
8,334,862-71
2,008,830-11
572,234-69
...
—
10,915,927-51

The figures for the stamp duty are not known.
(b) Subsidies.
Parliament having adjourned its vote on all advances to public
offices for cheap dwellings and building credit societies, there was
in 1933 no recourse to this method of finance. Unlike the credits
I

G 12073

306

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

for advances, the credits for subsidies have not been completely
suppressed, except as regards the subsidies contemplated in section 59
of the Act of 1922. The amount of the fund for loans to persons
wishing to acquire a small house has been fixed at 76,745,834 francs.
(c) Dwellings built.
The total number of dwellings built, including those which it will
be possible to build with the aid of subsidies granted since 1928, is
estimated at 1,800,000 and that of medium-rent dwellings and
" improved cheap dwellings " at 28,000.

FIFTH PART
FAMILY ALLOWANCES
1.—Nature oí the Scheme.
Family allowance schemes were first adopted by public administrations, railway companies and mining undertakings. When the
practice of equalisation became more general, the scheme spread
rapidly to various branches of trade and industry.
The first equalisation funds were set up in 1918. In 1921, when
they already numbered more than 60, they were grouped together to
form the Central Committee for Family Allowances.
In 1923, it was made compulsory for State, departmental, and
communal public works contractors to belong to an equalisation fund
approved by the Minister of Labour.
Finally, the Act of 11 March 1932 generalised the system of family
allowances by requiring all persons employing workers or salaried
employees in industry, commerce, agriculture, and the liberal professions to belong to an equalisation fund or a similar institution approved
by the Ministry of Labour. By way of exception, an employer who
has organised a special scheme of family allowances for his staff may
on certain conditions be exempted and his scheme approved on the
same footing as a collective fund. Public administrations are governed
by special legislation concerning family allowances and are not covered
by the Act.
The application of the Act to industrial, commercial and liberal
occupations is governed by public administrative regulations dated
14 March 1933. In pursuance of a Decree of 12 August 1933, the Act
came into force on 1 October 1933 for the following industries : mining,
metallurgy, building and public works, textile industry, and chemical
mdustry. Since then, the application of the Act has been extended
by stages to other industries.
2.—Family Allowances Paid Out of Equalisation Funds.
(a) Beneficiaries.
All workers employed in an undertaking which is covered by the
Act and having one or more children dependent upon them who are
not over school-leaving age and are resident in France, may claim

FRANCE

307

an allowance. The allowance is due in respect of each child or
descendant, whether legitimate, recognised, or adopted and in respect
of each ward. The allowance must be paid up to the age of sixteen
years when the child continues to attend school or is articled as an
apprentice.
(b) Administration.
The administration of the Act is normally entrusted to equalisation
funds which have been approved by the Ministry of Labour. Interoccupational funds must, to secure approval include at least 100
affiliated employers occupying at least 25 per cent, of the workers
shown in the census returns for the district in which the fund operates
when the number of such workers is less than 40,000, and at least
40,000 workers when the head office of the fund is in the department
of the Seine or includes this department in its district. In the case
of occupational funds, the minimum membership is fixed at 50 per
cent, of the workers employed in the occupation and shown in the
census returns for the district in which the fund operates. The
minimum may not, however, be less than 3,000, or the number of
affiliated employers less than 20, except when all the employers in a
given district and occupation are affiliated to the fund. Every fund
must have a reserve, the minimum amount of which is fixed by the
Minister x>f Labour. The resources of the funds consist of employers'
contributions. The Act leaves the amount of the contributions to
the discretion of each fund. The responsibility for giving advice in
regard to family allowances lies with the Central Committee for
Family Allowances at the Ministry of Labour and the local committees
formed in each department.
(c) Bules for the grant of allowances.
Allowances are paid in proportion to the number of days worked.
They may be reduced or withdrawn for bad work or failure to comply
with regulations. Payment is continued in full in the event of
temporary or permanent total incapacity, and in that of a fatal
accident to the beneficiary. Allowances must be paid at least once
every three months during the first days of the period following that
for which they are payable. They are usually paid to the mother
or the person actually responsible for the child's education. They
are neither negotiable nor liable to distraint except for the payment
of alimony.
(d) Amount of allowances.
Liability under the Act extends only to maintenance allowances
proper. The minimum rates of allowance per day worked and per
month are fixed for each department in orders issued by the Minister
of Labour. The monthly rate is equal to twenty-five times the daily
rate. The great majority of the minimum rates applied since
1 October 1933 vary between 17-50 francs per month for the first
child and 80 francs per month for the fourth child and any child over
u2

308

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

and above four. In the Seine Department they are fixed at 1 • 20 francs
per day or 30 francs per month for one child, 2.80 francs per day or
70 francs per month for two children, 4.80 francs per day or 120 francs
per month for three children, and 3.20 francs per day or 80 francs per
month for each child over and above three.
3.—Family Allowances Unconnected with Equalisation Funds.
(a) Private schemes.
Private family allowance schemes may not be approved unless the
employer concerned regularly employs not less than 3,000 workers,1
affords the necessary guarantees for the regular operation of the
scheme, and shows good reason why he should not join an existing
collective fund. In 1933 no private scheme had yet been approved.
They are mainly to be found in mining undertakings and the undertakings holding concessions for public utility services. The scheme
applying to the main railway companies was standardised and given
general application by an agreement between the State and the
railway companies, dated 10 November 1916, and by an Order of
13 January 1919. The standardised scheme provides for an allowance
at birth, varying with the number of the beneficiary's children who
are alive, between 150 and 300 francs, and for maintenance allowances
the annual amount of which varies, according to the place of residence,
between 720 and 1,005 francs for each of the first two children, 1,470
and 2,040 francs for the third child, and 1,590 and 2,160 francs for the
fourth and every subsequent child. Provision is also made for
allowances to staff who have retired. An agreement of 31 December
1917 extended the application of the family allowance scheme to all
undertakings in the mining industry.
(b) Public services.
Under the Act of 14 November 1918 all public servants, whatever
the amount of their salary, are entitled to family allowances. The
annual allowance is fixed at 660 francs for the first child, 960 for the
second, 1,560 for the third, and 1,920 for every child over and above
three. 2 The allowances are payable in respect of every child under
eighteen years of age ; they are payable up to the age of twenty-one
years when the child continues his studies or is undergoing apprenticeship. In 1933 there was as yet no statutory scheme of family
allowances for the staffs of departmental or municipal services. Some
departments and communes, however, paid their staff such allowances.3
1
This number may, however, be reduced in the case of undertakings holding
concessions for public utility services.
2
Scale introduced by the Act of 29 December 1929.
3
An Act of 30 J u n e 1934, which has not yet come into force, extended the
provisions of the Act of 11 March 1932 to departmental and municipal services
which have not as yet introduced a scheme of their own.

309

FEANCB

The total amount of the family allowances paid to the staffs of
public services in 1933 was 500 million francs, and the number of
public servants in receipt of such allowances was 950,000.
4.—Statistics.
Number of approved equalisation funds in 1933 1
...
...
168
Number of employers affiliated to equalisation funds 1
58,680
Number of workers employed by undertakings affiliated to
equalisation funds 1
2,169,200
Total allowances paid 1
Frs. 280,920,000
Private schemes not as yet approved in 1933

Railways, mines, concessions
Public services ...

...

Number of
workers
employed

950,000
950,000

Total
allowances
paid
francs
815,000,000
500,000,000

The aggregate amount of the allowances paid in 1933 was therefore
about 1,600 million francs, the number of workers concerned being
4,070,000.

SIXTH PART
HOLIDAYS W I T H PAY
1.—Regulations.
Annual holidays with pay have not yet been made compulsory
by law in France, but a Bill on the subject is before Parliament.
Where such holidays are granted, they are provided for in individual
or collective agreements, more particularly between employers' and
workers' organisations.
The minimum period of service giving the right to paid holidays
varies widely, and in practice ranges from three months to fifteen
years. The length of the holiday is often uniform for all beneficiaries,
but sometimes varies according to seniority; either the workers
receive an extra day's holiday for every year's service or, more
frequently, the holiday is increased at intervals of two to six years
according to the undertaking.
1
I t should be noted t h a t some of the funds only began to operate during the
fourth quarter of 1933, since the provisions of the Act of 11 March 1932 were
applied in practice only from 1 October 1933 onwards.
The figure does not include any agricultural funds. As the Act of 11 March
1932 has not yet been made applicable to agriculture, no existing agricultural
fund has so far applied for recognition. About 15 are in operation. They cover
400 undertakings and pay allowances totalling rather more than one million
francs to 2,000 families.

310

INTERNATIONAL, SURVEY OF SOCIAL SERVICES, 1933

Workers paid by the day or month receive their normal wages;
those paid by the hour or piece are generally paid on the basis of the
average earnings over a certain period.
Annual holidays with pay are most frequently granted in the
following industries : food, chemicals, printing, textiles, clothing,
leather, wood, metals, building, pottery, glass.
As regards private employees, annual paid holidays are general
in commerce, industry, banks, insurance institutions, large multipleshop undertakings, departmental stores and co-operative societies.
The length of service giving the right to a paid holiday is usually a
year and the length of the holiday a week, increasing with seniority.

GERMANY
SUMMARY
PAGE

312

FIRST PART : Statistics of Population
SECOND P A S T : Social Insurance

I —Workmen's Compensation
I I —Sickness Insurance
I I I —Workers' Invalidity, Old-Age and Widows
and Orphans' Insurance
IV —Salaried Employees' Invalidity, Old-Age
and Widows' and Orphans' Insurance ..
V —Miners' Invalidity, Old-Age and Widows
and Orphans' Insurance ...
VI —Unemployment Insurance and Emergency
Relief
VII —Subsidised Benefit Schemes for Staffs of
Public Undertakings
THIRD PART :

Social Assistance
I.—Public Assistance
II.—Winter Relief ...
III.—Shipowners' Liability
Injured Seamen

FOURTH PART : Housing

FIFTH PAST :

Family

Allowances

SIXTH P A R T :

Holidays with Pay

towards

Sick

312

INTERNATIONAL S U R V E Y OF SOCIAL SERVICES,

FIRST

1933

PART

STATISTICS OF POPULATION
C E N S U S O F 16 J U N E , 1933.
GAINFULLY OCCUPIED POPULATION, CLASSIFIED BY M A I N
„ BRANCHES O F ECONOMIC ACTIVITY AND INDUSTRIAL STATUS.1

Branch of
Economic Activity

Agriculture, forestry
a n d fishing
Mining a n d i n d u s t r y
Commerce
T r a n s p o r t ...
Public
administration,public defence
a n d liberal professions
Domestic service ...
Total
gainfully
occupied...
3
Occupied
T o t a l population ...

Assisting
family
members

Total

2,530,320
9,936,507
1,000,521
847,382

4,516,934
273,166
488,465
5,788

9,343,500
13,050,875
4,379,370
1,551,906

1,726,816
18,440

598,284
1,251,142

27,750

2,701,263
1,269,582

5,516,974

16,164,156

5,312,109

32,296,496
32,921,965
65,218,461

Owners and
managers 2

Salaried
employees

2,181,630
1,516,955
1,193,774
62,491

114,610
1,324,247
1,696,610
636,245

348,407

5,303,257

Wage
earners

i Excluding the Saar territory.
2
Including higher officials.
3
Including persons retired, supported and living ou their own income; housewives without
principal gainful occupation, and other dependants.

GERMANY

313

SECOND PART

SOCIAL INSURANCE
1.—Legal Basis.

I.—Workmen's Compensation

An accident insurance scheme for industrial workers was introduced
in 1884 and subsequently extended in turn to other occupational groups
(agriculture in 1886 ; building and shipping in 1887 ; inland navigation,
etc., in 1911; fire brigades, hospitals, laboratories, theatres, etc., in
1928).
Since 1925 the scheme has also covered certain occupational
diseases, the list of which was considerably extended in 1929.
2.—Scope.
All persons employed in the occupations or undertakings covered
by the scheme : workers, assistants, journeymen, apprentices, industrial salaried employees, foremen, technicians, etc., are insured,
irrespective of remuneration. The rules of each insurance institution
may extend the liability to insurance to owners of undertakings
and to the wife or husband of the owner if employed in the undertaking. For agriculture, this extension may also be effected by the
legislative authority of the State.
3.—Administration.
There are two types of institution for the administration of the
scheme, namely :
(a) accident associations of undertakings (Berufsgenossensclwften)
in industry and agriculture;
(6) special insurance institutions.
(a) Industrial and agricultural accident associations.
These are bodies with legal personality for the joint covering of
risks to which undertakings employing insurable workers are obliged
to belong ; they are under the supervision of the Federal Insurance
Office. Some of them comprise all the undertakings of a particular
kind in the whole of Germany, others only those to be found in a
limited area. The associations for the building industry have branches
covering non-industrial building. There is also a special association
for undertakings for the keeping of vehicles and animals for riding
otherwise than by way of trade.
(b) Special institutions.
These institutions are set up :
1. By the Federation and the States for undertakings which
these authorities carry on on their own account ;
2. By the communes, federations of communes, and other public
bodies, under certain conditions, in particular for operations carried
on on their own account in connection with building work and the
keeping of vehicles and animals for riding otherwise than by way of
trade.

314

INTERNATIONAL SURVEY OT SOCIAL SERVICES, 1 9 3 3

The liability of the special institutions is not covered by insurance.
The law requires that compensation payable by special institutions
shall be the same as that allowed by the associations of undertakings,
and makes the institutions subject to the same judicial authorities in
the ease of disputes.
4.—Financial Resources.
The expenses of the accident associations are borne solely by the
employers apart from a few exceptions ; the system obtaining is that
of assessment according to risk at the end of each year.
The expenses of the special institutions figure in the estimates of
the authority concerned.
5.—Benefits.
(a) Risks covered.
The object of the scheme is to provide compensation for occupational
accidents and diseases.
For the purposes of accident insurance, occupational diseases mean
the diseases specified in the second column of the following schedule,
provided that they are caused by industrial employment in one of the
establishments mentioned in the third column, opposite the disease in
question :
Serial No.
Occupational disease
I
II
1 Diseases caused by lead or its compounds
2 Diseases caused by phosphorus
3 Diseases caused by mercury or its
compounds ...
4 Diseases caused by arsenic or its
compounds ...
5 Diseases caused by manganese compounds
6 Diseases caused by benzol or its
homologues...
Diseases caused by nitro a n d
amido compounds
the aromatic
Diseases
caused by ofcarbon
bisulgroup
phide
Diseases caused by sulphuretted
hydrogen
by carbon monDiseases caused
oxide
by X-rays and
10
Diseases
caused
other forms
of radiant energy
11 Chronic and chronically recurrent
skin diseases caused by galvanising
operations ...
12 Chronic and chronically recurrent
skin diseases caused by various
kinds of exotic wood
13 Chronic a n d chronically recurrent
skin diseases caused by soot,
paraffin, tar, anthracene, pitch a n d
similar substances ...
14 Diseases of the muscles, bones a n d
joints caused by work with compressed air apparatus
...

Establishments and activities
III

Serial numbers 1-14 :
Establishments and activities
liable to accident insurance.

GERMANY

315

Establishments and activities
III
Basic slag mills, machines for
mixing fertilisers and establishments transporting powdered
basic slag.
(a) Undertakings for quarrying,
rough working and finishing
sandstone ;
(6) undertakings
for
metal
grinding ;
(c) chinaware undertakings ;
(d) mining undertakings ;
Metalliferous mines in the Schneeberg district
(Republic
of
Saxony).
Deafness or hardness of hearing Establishments for metal working
approximating
to
deafness
and finishing.
caused by noise.
Glass and iron works, foundries.
Cataract
Mining undertakings.
Ankylostomiasis
Tropical diseases, spotted fever, Seafaring undertakings.
scurvy.
Hospitals, infirmaries and nursing
Infectious diseases
homes, maternity homes and
other institutions which receive
patients for treatment and nursi n g ; also establishments and
activities belonging to public
and free welfare services and the
public health service, and laboratories for scientific and medical
research and experiments.

Serial No.
Occupational disease
I
II
15 Diseases of the respiratory system
a n d lungs caused by powdered
basic slag
16 Serious pneumoconiosis (silicosis).
If serious pneumoconiosis occurs simultaneously with pulmonary tuberculosis, the tuberculosis shall for t h e purposes of
compensation be deemed to be
pneumoconiosis
17 Schneeberg miners' lung disease
18
19
20
21
22

(b) Benefits in case of incapacity due to accident.
The main benefits are :
1. Free medical attendance, including hospital treatment.
2. Free vocational rehabilitation (retraining and placing).
3. A pension from the day of the accident (or, in case of persons
insured against sickness, from the end of the duration of sickness benefit) for the duration of the incapacity for work
caused by the accident.
In cases of total incapacity the victim is entitled to the full pension
(two-thirds of his annual wages), and in case of partial incapacity to
a proportion of such pension corresponding to the degree of incapacity.
If the pension is not less than 50 per cent, of the full pension, a bonus
of 10 per cent, of the actual pension is payable for each child dependent
on the pensioner and under 15 years of age.
(c) Benefits in case of fatal accident.
The main benefits are :
1. Funeral benefit, equal to one-fifth of the victim's annual
wages, but not less than 50 RM.

316

INTERNATIONAL

SURVEY

O F SOCIAL S E R V I C E S ,

1933

2. Survivors' pensions payable from the day of death : Widow,
one-fifth of victim's annual wages, or two-fifths if she loses
more than half her earning capacity, until her death or remarriage ; widower in need, two-fifths of victim's annual wages
for duration of need or until remarriage; each child, onefifth of victim's annual wages until end of fifteenth year;
ascendants in need and dependent on victim at his death,
one-fifth of victim's wages for duration of need (payable to
all ascendants combined).
3. Lump-sum grant payable to widow of victim of non-fatal
accident whose death is due to other causes—single payment
equal to two-fifths of annual wages.
The sum of all survivors' pensions may not exceed two-thirds of the
victim's annual wages.
(d) Benefits in case of occupational disease.
These are the same as those detailed under (b) and (c). Further,
provision is made for a transitional pension (Übergangsrente) payable
when there is reason to believe that a worker's continuation in his
employment will cause an occupational disease to develop, recur or
grow worse. This pension may not exceed half the full pension, and
is payable as long as the worker refrains from employment in the
undertaking or undertakings concerned.
6.—Statistics.
Number of insured persons in 1933
Number insured by two associations and. counted
twice in above
figure

25,055,161
3,000,000

INCOME AND E X P E N D I T U R E O F ACCIDENT ASSOCIATIONS AND SPECIAL
INSTITUTIONS F O B 1933
(000's EM.)
INCOME

Total income of associations
290,966
Items in budgets of authorities with special institutions
Grand total

Special
Associa- InstiMedical benefits and retions tutions
habilitation ...
35,443
3,186
Cash benefits :
(1) to insured persons 131,385 13,664
(2) to survivors
62,242
6,574
Other benefits ...
400
—
Accident prevention ...
6,937
54
Cost of administration
31,819
1,056
Other expenses
13,704
906
Surplus income
9,036
—
EXPENDITURE

Accident Associations
Contributions of affiliated
undertakings
278,681
Other income
12,285

Total
Total (special
tions)

290,966

25,440

institu25,440

25,440
316,406

Grand total

316,406

317

GERMANY

BALANCE S H E E T OF ACCIDENT ASSOCIATIONS AT 31 D E C E M B E R

1933

(000's RM.)
LIABILITIES

ASSETS

Credit balance at 1 J a n u a r y
186,579
1933
74,759
Contributions due
9,036
Surplus of income
Total

1.—Legal Basis.

Advances on contributions ..
7,201
Benefits due ...
923
Credit balance
. 262,250

270,374

Total

. 270,374

II.—Sickness Insurance

The first Sickness Insurance Act was passed in 1883 and applied
to industrial workers only ; subsequently Acts extended it to transport
workers (1885) and agricultural workers (1886). In 1892 the scheme
became a general one for all employed persons.
2.—Scope.
All employed persons, whatever their occupation, age, sex or
nationality, are in theory required to insure under the scheme; all
manual workers are in practice covered by it, but salaried employers
and handicraftsmen working at home, whose remuneration is 3,600 RM.
a year or more, are exempted.
Apprentices are covered, whether
they are paid or not.
Certain persons may insure voluntarily if their annual income
does not exceed 8,400 RM.,1 the most important of these groups is that
of heads of undertakings who give employment to not more than
two persons liable to insurance.
Insured persons may co ¡tinue to insure after their obligation or
right to do so has ceased, provided that their annual income does not
exceed 8,400 RM.1
3.—Administration.
(a) Territorial funds (local and rural).
Each of these funds generally covers the same area as an insurance
office. It includes all the insured persons in the area who do not
belong to an occupational or substitute fund.
(ò) Occupational funds.
1. Works funds.—These are established in undertakings employing
not less than 150 persons hable to insurance (50 in agricultural undertakings) if the majority of the employers and workers concerned
consent. Since 1919 the establishment of new rural works funds has
not been allowed.
2. Guild funds.—These are set up by guilds for the persons
employed in members' undertakings. In this case, too, the consent
of the employers and workers concerned is required. Each fund
must insure at least 150 persons.
1

From 1 J a n u a r y 1934 onwards : 7,200 RM.

318

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

3. Miners' funds.—Comprising miners only.
4. Seamen's funds.—Comprising seamen only.
(c) Substitute funds.
Substitute funds must allow benefits at least equal in value to
those regularly allowed by the funds set up under the Insurance Code.
The status of substitute fund can only be obtained by means of a
special decision by the competent authority and no provision is now
made for the admission of new funds.
4.—Financial Resources.1
The revenue of the sickness insurance funds is derived from the
contributions of insured persons and their employers ; compulsorily
insured persons pay two-thirds of the total contribution due, and
their employers one-third, while voluntarily insured persons pay the
whole contribution themselves.
The rate of contribution and the basic wage on which it is to be
calculated are fixed independently by each fund.
5.—Benefits.
A distinction may be made first between statutory and additional
benefits, and secondly between benefits in kind and benefits in cash.
Each fund fixes its own additional benefits in its rules, subject to the
approval of the supervisory authority, which is refused if the contribution exceeds 5 per cent, of the basic wage.
(a) Benefits in kind.
1. Statutari/ benefits :
Sickness.—Medical attendance, medicaments, and therapeutic
appliances, from the first day of sickness until not later than the end of
the twenty-sixth week; hospital treatment when the nature of the
sickness or the circumstances require ; medical attendance for the
members of the insured person's family.
Maternity.—Obstetrical attendance and, if necessary, medical
attendance and hospital treatment for insured women and the wives
and daughters of insured men.
2. Additional benefits :
Sickness.—Nursing at the insured person's home, etc. ; extension
of the period of medical attendance to one year, aid for convalescents,
artificial limbs, etc.
(b) Cash benefits.
1. Statutory benefits :
Sickness.—Sickness benefit (50 per cent, of the basic daily wage)
from the fourth day of sickness, for a period not exceeding twenty-six
1
According to the Act of 7 December 1933, the insured persons and their
employers must pay equal contributions ; effect will be given to this rule by
administrative orders.

319

GEEMANY

weeks from the beginning of the sickness ; if the head of a household is
treated in hospital, his family receives a home benefit equal to half
the sickness benefit.
Maternity .—Lump sum of 10 RM. ; maternity benefit equal to
sickness benefit, but not less than 0-50 RM. a day, for four weeks
before confinement (six weeks if the insured person does no paid work
during this period) and six weeks after it. Nursing benefit, equal to
half the maternity benefit but not less than 0-25 RM. a day, for
twelve Weeks after confinement.
Death.—Funeral benefit equal to twenty times the basic daily
wage.
2. Additional benefits :
Sickness.—The sickness benefit may be increased by a fund to
60 per cent, of the basic wage and a family increment may be added,
but the total may not exceed 75 per cent, of the basic wage; the
benefit period may be increased to one year ; half the sickness benefit
may be paid to sick persons treated in hospital who are not entitled
to home benefit.
Maternity.—The lump sum may be increased to 25 RM. and the
maternity benefit to 75 per cent, of the basic wage ; further, its duration
may be increased to thirteen weeks; the duration of the nursing
benefit may be increased to twenty-six weeks.
Death.—The funeral benefit may be increased to forty times the
basic daily wage ; funeral benefit may be granted on the death of the
wife or child of an insured person.
6.—Statistics.
Average number of insured persons in 1933 : 18,540,348.
INCOME AND E X P E N D I T U R E FOR

1933

(all funds, including substitute funds)
(000's EM.)
EXPENDITURE

INCOME

Contributions
...
Interest on capital ...
Other income
Total

... 1,129,151
...
32,G78
23,596
1,185,425

Benefits
Cost of administration
Other expenditure ...
Paid into capital fund

. 1,036,007
.
127,861
17,008
4,549

Total

. 1,185,425

On 31 December 1933 the property of the sickness funds set up
under Federal legislation was 836-6 million RM., of which 436 millions
were in reserve funds.
The reserves of the substitute funds at the end of 1933 were 40

million RM.
IH.—Workers' Invalidity, Old-Age and Widows' and Orphans' Insurance
1.—Legal Basis.
Invalidity and old-age insurance for persons employed in industry,
commerce and agriculture was introduced in 1889. In 1911 widows'
and orphans' insurance was added.

320

INTERNATIONA!, SURVEY OF SOCIAL SERVICES, 1933

2.—Scope.
All manual workers in industry, commerce, transport, handicrafts,
agriculture, etc., including home workers, seamen, domestic servants
and apprentices, are hable to insurance, irrespective of age, sex and
nationahty.
Certain groups of persons may insure voluntarily (age limit : 40
years) ; the most important of these groups is that of small employers
and heads of undertakings giving regular employment to not more
than two persons hable to insurance.
Insured persons may continue to insure when their obligation or
right to do so ceases.
3.—Administration.
There are two types of institutions for the administration of the
scheme, namely, territorial and special institutions.
(a) Territorial institutions.
There are 26 of these, each covering all insurable persons in its
area who are not covered by special institutions. The governing
body of an institution ranks as a public authority. In general, the
officials alone on the governing body carry out the work of administration. These institutions are under the supervision of the Federal
Insurance Office.
(b) Special institutions.
These institutions, of which there are six,1 are public bodies.
The benefits they pay may not be less than those which the Insurance
Code requires the territorial institutions to pay. Each institution
covers the insurable persons employed in the undertakings for which
it was established.
4.—Financial Resources.
These are derived from employers' and insured persons' contributions
and Federal subsidies.
(a) Employers' and insured persons' contributions.
The contribution varies according to seven2 wage classes, being
equal to 5 per cent, of the maximum wage in each class. In the case
of compulsorily insured persons the employer pays the whole contribution, half of which he may deduct from the insured person's
wages. Voluntarily insured persons pay the whole contribution
themselves.
(b) Federal subsidies.
These take two forms.
1. The Federal supplement to pensions (Reichszuschuss).—72 RM.
a year for every invalidity, old-age and widow's or widower's pension,
and 36 RM. for every orphan's pension.
1
2

Since 1 J a n u a r y 1935, only three.
Since 1 J a n u a r y 1934, eight.

321

GERMANY

2. Federal grant (Reichsbeitrag).—Intended to indemnify the
insurance institutions for part of the loss incurred in restoring the value
of pensions the capital cover of which was destroyed by inflation.1
5.—Benefits.
The following benefits are paid : invalidity and old-age pensions,
widows', widowers' and orphans' pensions and benefits in kind.
(a) Invalidity and old-age pensions.
These are paid in case of temporary or permanent invalidity or on
attainment of the age of 65. In case of temporary invalidity the
pension is payable from the beginning of the twenty-seventh week,
and in that of permanent invalidity or attainment of the pensionable
age it is payable at once.
Pensions comprise2 the Federal supplement (72 RM. a year), and a
sum provided by the institution, consisting of a basic amount (84 RM.
a year) and an increment equal to 20 per cent, of the contributions
paid since 1 January 1924 plus a sum of from 4 to 30 RPf., according
to wage class, for each contribution week before 30 September 1921.
A bonus of 90 RM. a year is payable for each child under 15 years
of age.
(b) Widows' pensions.
These are payable to all insured persons' widows who are incapable
of work or have completed their sixty-fifth year. The Federal subsidy
(basic amount of pensions assessed after 1 January 1934) is 72 RM. a
year; the institution pays five-tenths of the invalidity pension
(excluding children's bonuses) to which the insured person was or would
have been entitled (five-tenths of the increment in the case of pensions
assessed after 1 January 1934).
(c) Widower's pensions.
These are equal to the widows' pensions, but are payable only to
invalid widowers while they are in want, provided that they were
dependent on their wives.
(d) Orphans' pensions.
The orphans' pension is equal to four-tenths of the invalidity
pension (four-tenths of the increment in the case of pensions assessed
after 1 January 1934) to which the deceased 'insured person was or
would have been entitled, plus a Federal subsidy (basic amount) of
36 RM. a year; it is granted up to the end of the orphan's fifteenth
year.
1
The Act of 7 December 1933 changed the nature of the Federal grant
and fixed it a t 200 million RM. a year.
1
According to the Act of 7 December 1933, pensions assessed on or after
1 J a n u a r y 1934 will consist only of the Federal subsidy (72 RM. a year), which
is considered as the basic amount, and an increment, paid by the insurance
institution, of from 8 t o 62 RPf. a year for each contribution week, according
to the rate of contribution paid.

X 12973

322

INTERNATIONAL

SURVEY OE SOCIAL SERVICES,

1933

(e) Benefits in kind.
These are optional.
1. Pensions may, in certain circumstances, be replaced by benefits
in kind, such as maintenance in a home for cripples or for the aged,
orphanage, etc.
2. Further, an insurance institution may provide an insured person
or insured person's widow with curative treatment to avert impending
invalidity due to sickness. If hospital treatment is provided, the
members of the beneficiary's family receive cash benefit during that
period.
3. An institution may spend money on promoting or applying
measures of a general nature calculated to prevent premature invalidity
or raise the general level of health among insured persons.
6.—Statistics.
Estimated number of insured persons in 1933

17,000,000

INCOME AND E X P E N D I T U R E OP ALL W O R K E R S ' INSURANCE INSTITUTIONS
F O B 1933

(000's KM.)
INCOME

EXPENDITURE

Contributions of employers
and insured persons
Interest and other profits ...
Federal subsidy
Federal grant
From capital account
Other income

678,680
57,804
220,500
174,750
37,453
8,146

Pensions
Benefits in kind
Cost of administration
Other expenditure ...

1,177,333

Total

...

.. 1,085,285
35,138
53,803
3,107

.. 1,177,333

BALANCE SHEET AT 31 D E C E M B E R 1933 (ALL W O R K E R S ' INSURANCE
INSTITUTIONS)

(000's KM.)
ASSETS

Cash in hand
Securities
Keal property
Furniture, etc.
Total

LIABILITIES

...
...
...

135,002
966,275
185,487
21,419

Debts
Credit balance

79,041
... 1,229,142

1,308,183

Total

... 1,308,183

IV.—Salaried Employees' Invalidity, Old-Age and Widows' and
Orphans' Insurance
A.—INSURANCE
ADMINISTERED
INSTITUTION

BY THE FEDERAL

INSURANCE

1.—Legal Basis.
This branch of social insurance was established in 1913, though
salaried employees earning less than 2,000 RM. a year continued to be
covered by the scheme of insurance for manual workers until 1922,
when this overlapping between the two schemes was abolished.

323

GERMANY

2.—Scope.
All salaried employees whose annual earnings are less than 8,400
RM. (7,200 RM. since 1 January 1934), e.g., office and works employees,
foremen, clerks, members of the theatrical profession, musicians,
hospital and public health service employees, and captains, officers and
superior staff employed in maritime and inland navigation, etc., are
Hable to insurance, as also apprentices undergoing training for an
insurable occupation and certain groups of persons Working on their
own account (private teachers, midwives, musicians, etc.) who do not
employ others.
The following may insure voluntarily :
(a) Salaried employees who earn more than 8.400 RM. (now
7,200 RM.) a year ;
(b) Persons engaged on their own account in an occupation
similar to that of salaried employees.
Any person who has paid contributions for four months may
continue to insure under the scheme after his obligation or right to do
so has ceased.
3.—Administration.
Apart from certain substitute funds,1 the Federal Insurance
Institution for Salaried Employees administers the whole of this
branch of insurance. The institution has a directorate which administers the scheme. I t is under the supervision of the Federal Ministry
of Labour (since 1 January 1935, under the supervision of the Federal
Insurance Office).
4—Financial Resources.
The scheme relies exclusively on contributions from the insured
persons and their employers, no subsidy being paid by the authorities.
Compulsorily insured persons are divided into 8 salary classes (since
1 January 1934, seven), the lowest including all salaries up to 50 RM.
a month and the highest those over 600 RM. (since 1 January 1934,
over 500 RM.). The rate of contribution is 4 per cent, of the maximum
salary in each group and thus varies from 2 to 25 RM. ; further there
are three classes for voluntarily insured persons, with contributions
of 30, 40 and 50 RM. a month respectively. Contributions are shared
equally between employer and insured person; the latter may
contribute in a higher salary class, but must in that case pay the
whole of the différence between the contribution for that class and the
contribution for the class to which he belongs in respect of his salary.
5.—Benefits.
Apart from the repayment of their contributions to insured women
in specified cases, the following are the benefits allowed : invalidity and
old-age pensions, widows', widowers' and orphans' pensions, and
benefits in kind.
These are being wound up under the Act of 5 J u l y 1934.
X 2

324

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(a) Invalidity and old-age pensions.
These are paid in case of temporary or permanent incapacity for
work, or on attainment of the age of 65. In case of temporary
incapacity the pension is payable from the beginning of the twenty seventh week, and in that of permanent incapacity or attainment of
the pensionable age it is payable at once. Any insured person over
60 years of age who has been unemployed for at least a year is also
regarded as incapable of work and is entitled to the pension while
unemployed.
The pension is composed as follows :
1. A basic amount of 360 RM. a year;
2. An increment equal to 15 per cent, of the contributions paid
since 1 January 1924; insured persons who paid contributions
between 1 January 1913 and 31 July 1921 receive a further increment
for each such contribution, varying with the salary class between
0-50 and 5 RM. 1
3. A bonus of 90 RM. a year for each child under 15 years of age,
which can be continued until the age of 18 in case of continued
education, provided the child is mainly dependent on the insured
person for maintenance ; in the case of a child prevented by infirmity
from earning a living, the bonus is payable for the duration of the
infirmity until the age of 18.
(b) Widows' pensions.
A widow's pension is equal to five-tenths of the pension (excluding
children's bonuses) to which the deceased was or would have been
entitled and is payable until her death or remarriage ; in the latter
case she receives a lump sum equal to three years' pension.
(c) Widowers' pensions.
This pension is calculated on the same basis as the widow's pension,
but is payable only to a widower who was dependent on his wife's
earnings and is incapable of earning and in need ; it is withdrawn if
the pensioner remarries or if the circumstances on the strength of
which the pension was allowed cease to apply.
(d) Orphans' pensions.
An orphan's pension is payable to each child of a deceased insured
person until completion of the fifteenth year, or for a further period
(but not after completion of the eighteenth year) in case of continued
education ; in the case of a child prevented by infirmity from earning
a living, the pension is payable for the duration of the infirmity until
the age of 18. I t is equal to four-tenths of the pension (excluding
children's bonuses) to which the deceased was or would have been
entitled.
1
I n the case of pensions assessed after 1 J a n u a r y 1934, the increment 13
equal to from 0-25 to 8 RM. a year, according to t h e salary class, for each
monthly contribution paid.

325

GERMANY

(e) Benefits in kind.
These are optional.
Pensions may, in certain conditions, be replaced by benefits in
kind, such as maintenance in a home for cripples or the aged,
orphanage, etc.
Further, the Federal Insurance Institution may provide an
insured person or insured person's widow with curative treatment to
avert impending invalidity due to sickness; during the treatment, if
given in hospital, the members of the insured person's family receive
a cash benefit. The Institution may spend money on promoting or
applying measures of a general nature calculated to prevent premature
invalidity or raise the general level of health among insured persons.
6.—Supplementary Insurance for Salaried Employees in Federal
Administrative Services.
Salaried employees in Federal administrative services (except the
Federal Bank and Post Office) who are liable to insurance are
required, after four months' employment, to insure in a higher salary
class than that applicable to them under the law. The class must be
so chosen that the supplementary contribution is as nearly as possible
equal to 6-5 per cent, of the employee's salary; one-third of this
supplementary contribution is paid by the employee and two-thirds
by the service concerned.
Salaried employees in these services who are not hable to insurance
must insure voluntarily with the Federal Insurance Institution in a
salary class in which the contribution is equal to about 6-5 per cent.
of their salary. Half the contribution, if it does not exceed the
contribution in the highest salary class for persons Hable to insurance,
and two-thirds in other cases, is paid by the service concerned.
7.—Statistics.
Number of insured persons in 1933 : 3,600,000.
INCOME AND E X P E N D I T U R E OF THE F E D E R A L INSURANCE INSTITUTION
FOR SALARIED E M P L O Y E E S FOR 1933
(OOO'a

EM.)

INCOME

EXPENDITURE

Contributions of insured persons and employers
... 288,000
Interest, profit from sale of
securities, etc.
...
... 123,000
Other income
2,000
Total

Pensions, allowances, benefits
in kind, etc.
228,000
Cost of administration
12,000
Carried forward to 1934
173,000

413,000

Total

413,000

A S S E T S OF THE F E D E R A L INSURANCE INSTITUTION

(000's EM.)
At 31 December 1932
Surplus from 1933
Total assets, 31 December 1933

2,076,000
173,000
2,249,000

326

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933
B.—INSURANCE

ADMINISTERED BY SUBSTITUTE FUNDS 1

1.—Legal Basis.
Under the Salaried Employees' Insurance Act insurance with a
substitute fund is considered in certain circumstances as equivalent
to insurance with the Federal Institution.
2.—Scope.
Only the employees of undertakings for which the establishment
of substitute funds has been permitted may insure with such funds.
3.—Administration.
The substitute funds require official recognition and, having
received it, enjoy legal capacity. No more new substitute funds may
be established now, and those in existence may not accept new
undertakings as members. All salaried employees in the undertakings for which substitute funds have been established must insure
with the fund. The insured persons take part in the administration
and in the fixing of benefits.
4.—Financial Resources.
The resources of the substitute funds are provided by the insured
persons and their employers. The employers' contribution must be
at least equal to that of employers whose employees are insured with
the Federal Institution or to the insured persons' contribution,
whichever is the higher.
5.—Benefits.
The Federal Insurance Institution for Salaried Employees assesses
the statutory benefits due from the substitute funds, which must
always be able to guarantee their full payment. The Federal Institution is responsible to the insured persons for the payment of these
benefits, the capital needed to cover them being charged to the funds.
If the rules of a fund grant benefits at more than the statutory rates,
the fund fixes the supplementary benefit on its own responsibility.

V.—Miners' Invalidity, Old-Age and Widows' and Orphans' Insurance
1.—Legal Basis.
Pension insurance for miners goes back some centuries, but was not
embodied in Federal legislation until 1923. The Act of 1926 gave it
its present form.
2.—Scope.
All persons employed in mining undertakings—that is to say,
undertakings for the extraction of minerals and similar substances
by raining—are in principle covered by the scheme. In practice all
workers, irrespective of sex and remuneration, and salaried employees
whose earnings do not exceed 8,400 RM. a year (7,200 RM. since
1

These funds are being wound up under the Act of 5 July 1934.

GBBMA2ÍY

327

1 January 1934), in these undertakings are Hable to insurance.
Salaried employees under 40 years of age whose earnings exceed the
above figure may insure voluntarily.
Members of the miners' funds who, though not incapable of working,
leave the employment which has hitherto entailed the obUgation or
the right to insure may continue to be insured or maintain their rights
by paying a regular fee.1
3.—Administration.
The scheme is administered by the Federal Miners' Benefit Society
(Beichsknappscliaft). This body has legal capacity, is autonomous
and acts through its local administrative organs, the district miners'
benefit societies (Bezirksknappschaften) consisting of a workers' and
a salaried employees' section. The scheme is provisionally administered
by a Federal Commissioner.
4.—Financial Resources.
Contributions are paid in by the employers, who deduct threefifths of the total from the wages of the insured persons.2 Voluntarily
insured persons pay the whole contribution.
In order to support the miners' pension insurance scheme and to
enable the Federal Society to maintain its financial equilibrium, the
Federal Government has granted it a subsidy for which no provision
was made in the legislation.
5.—Benefits.
The following benefits are the benefits allowed : old-age and
invalidity pensions, widows' and orphans' pensions, funeral boncfit
and benefits in kind.
(a) Old-age and invalidity pensions.
Payable to insured persons on reaching the age of 65 or in case of
permanent incapacity for their occupation. In case of temporary
incapacity, a worker receives an invalidity pension on exhausting his
claim to sickness benefit, and a salaried employee from the beginning
of the twenty-seventh week.
In certain circumstances persons of over 50 years of age who no
longer engage in mining or equally remunerative work may be deemed
to be incapable of work and become entitled to an old-age pension.
Invalidity and old-age pensions consist of a basic amount (84 RM.3 a
year for workers, 396 RM.3 a year for salaried employees) with an
increment calculated on a prescribed scale (not less than 72 RM. a
year for workers). A further bonus of 90 RM. a year is payable in
respect of each dependent child under 15 years of age.
(b) Widows' pensions.
The widow of an insured person receives a pension until her death
or remarriage ; in the latter case she receives a lump sum equal to her
1

This fee was abolished on 1 January 1934.
The Act of 7 December 1933 provides t h a t equal contributions should be
paid by insured persons and their employers ; effect will be given to this principle
by administrative orders.
3
For pensions assessed after 1 J a n u a r y 1934, the basic amounts are 72 and
360 RM. a year respectively.
2

328

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

pension for three years. The pension is equal to one-half of that to
which the deceased was or would have been entitled.
(c) Orphans' pensions.
Payable to children under 15 years of age. An orphan's pension
is equal to one-fifth (workers) or two-fifths (salaried employees) of
the pension to which the deceased was or would have been entitled.
(d) Funeral benefit.
This is a lump sum equal, in the case of the death of a pensioner, to
at least three times his monthly pension (excluding children's bonuses) ;
in case of the death of the wife or pensioned widow of an insured
person or pensioner it is equal to 60 per cent., and in that of a child
or pensioned orphan of an insured person or pensioner, to 20 per cent.
of the above amount.
(e) Benefits in kind.
Some of these are compulsory, others optional. Free medical
attendance, medicaments, etc., for pensioners are of the former type,
but may not exceed the extent to which the Federal Society grants
these benefits to persons insured against sickness.
Special curative treatment, on the other hand, is optional. It
may be granted in order to avert the impending incapacity of an
insured person due to sickness or to restore his working capacity.
Druing the treatment the family of the insured person receives an
allowance equal to at least half the sickness benefit.
Further, the Federal Society may spend money on the prevention
of premature invaUdity or on the promotion or application of general
measures for raising the level of health among insured persons.
6.—Statistics.
Number of insured persons at 1 January 1933 : 476,633.
Number of insured persons at 1 January 1934 : 508,405.
INCOME AND

E X P E N D I T U R E OF THE F E D E R A I M I N E R S ' B E N E F I T SOCIETY
FOR 1933
(000's RM.)
INCOME

Workers'
benefit
fund
Employers' a n d insured persons' contributions ...
Continued insurance fees
Interest on capital, profits, etc.
Federal subsidy
Advance from capital fund ...
Other income ...
Total

74,813
563
9,396
89,000
435
3,387
177,594

Salaried
employees'
benefit
fund

Total

19,428
25
876
6,000
24
7,896

94,241
588
10,272
95,000
459
11,283

34,249

211,843

329

GERMANY
EXPENDITURE

Workers'
benefit
fund
Pensions, funeral benefits, etc.
Benefits in kind
Cost of administration
Other expenditure
Total

Salaried
employees'
benefit
fund

Total

141,814
8,881
7,826
19,073

30,935
1,358
1,134
822

172,749
10,239
8,960
19,895

177,594

34,249

211,843

B A L A N C E S H E E T OF T H E F E D E R A L M I N E R S ' B E N E F I T SOCIETY AT
31 D E C E M B E R 1930

(000's RM.)
ASSETS

Workers'
benefit
fund

Salaried
employees'
benefit
fund

Cash in h a n d ...
Securities
Mortgages
Loans
Real a n d other property
Claims
Deficit

9,644
38,200
20,931
22,516
14,951
24,139

2,918
1,974
4,507
3,572
1,990
5,008
1,428

12,562
40,174
25,438
26,088
16,941
29,147
1,428

Total

130,381

21,397

151,778

—

Total

LIABILITIES

Advances from undertakings
Other debts ...
Credit balance
Total

Workers'
benefit
fund

Salaried
employees'
benefit
fund

39
13,342
117,000

2
7,988
13,407

41
21,330
130,407

130,381

21,397

151,778

Total

VI.—Unemployment Insurance and Emergency Relief
A.—UNEMPLOYMENT

INSURANCE

1.—Legal Basis.
Unemployment insurance is compulsory. It is based on the Act
of 16 July 1927, which came into force on 1 October of the same year
and has subsequently been amended on a number of occasions.

330

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

2.—Scope.
Generally speaking, all workers whatever their remuneration and
all salaried employees earning not more than 8,400 EM. a year are
liable to insurance; salaried employees earning more than that figure
may continue to insure voluntarily. Certain groups of agricultural
workers, apprentices, domestic employees, casual workers, persons
engaged in most forms of temporary employment and most home
workers are, however, exempted.
3.—Administration.
The Federal Institution for Employment Exchanges and Unemployment Insurance administers the scheme. The Insitution, which
is a. body corporate, is composed of a Central Office, with 13 regional
and 360 local employment offices.
4.—Financial Resources.
Unemployment insurance contributions are paid by employers
and insured persons in equal shares. Voluntarily insured persons
pay the whole contribution. Since the scheme came into operation
the rates have been fixed at a certain percentage of wages, uniform
for the whole of Germany ; this was originally 3 per cent., has been
increased on several occasions, and now stands (since 6 October 1930)
at 6 | per cent, (employers' and insured persons' contributions together).
If the sums needed to cover the obligations of the Central Office
exceed the contributions paid and the emergency fund (Notstock), the
Federal Government must lend the Central Office the balance. This
arrangement is not now in operation, since the income and expenditure
of the scheme are so adjusted that no deficits ensue. In 1933 there
was a surplus, used mainly to meet the cost of emergency relief,
formerly paid for by the Federal and local authorities {see under B).
This relief was transferred to the Federal Institution by the Emergency
Order of 14 June 1932, which provided for a levy on wages to finance
the scheme.
5.—Benefits.
These are as follows :
(a) unemployment benefit ;
(6) contributions to sickness insurance for the unemployed ;
(c) contributions to invalidity, old-age and widows' and orphans'
insurance for the unemployed ;
(d) short-time benefit.
In addition, the Federal Institution is responsible for employment
exchanges for workers and apprentices and collaborates in the campaign against unemployment.
(a) Unemployment benefit.
This is paid in case of involuntary unemployment to insured
persons who have completed the qualifying period and are capable
of working and willing to work. A worker is regarded as having
completed this period if, on claiming benefit for the first time, he has

GERMANY

331

been in insurable employment for at least 52 weeks during the preceding
two years, or if, on claiming benefit for the second time or subsequently,
he has been in insurable employment for 26 weeks during the preceding
year.
The amount of benefit is governed by the remuneration which
the worker received during his last year of employment and by the
cost of living where he resides. For this purpose earnings are divided
into 11 wage classes, benefit being assessed on one basic wage for each
cost of living area within each class. It is composed of the principal
benefit and a family bonus equal to 5 per cent, of the basic wage for
each member of the worker's family who has a statutory claim against
him for maintenance.1
Benefit is payable after a waiting period of from three to fourteen
days from the date of registration of unemployment, and may be
granted for 20 weeks.
(b) Contributions to sickness insurance for the unemployed.
While in receipt of benefit, unemployed persons are insured against
sickness at the cost of the Federal Institution.
(c) Contributions to invalidity, old-age and widows' and orphans'
insurance for the unemployed.
Under the invalidity, old-age and widows' and orphans' insurance
schemes for workers, salaried employees and miners, acquired rights
lapse if a certain number of contributions (or continued insurance
fees in the miners' scheme) are not paid at regular intervals; the
Federal Institution is required to pay the necessary contributions for
the maintenance of these rights.
(d) Short-time benefit.
The Federal Institution may order or approve the payment of this
benefit. In point of fact, it has been approved for several years back.
A short-time worker is defined as one employed in an insurable occupation who during any week does not complete the number of hours
habitual in his undertaking owing to shortage of work and consequently
earns less wages. Benefit may be paid if the worker loses at least
three working days in a calendar week or six in a calendar fortnight.2
B.—EMERGENCY RELIEF

1.—Legal Basis.
Emergency relief was introduced under the Act of 19 November
1926 and is now based on the Unemployment Insurance Act, under
which the detailed regulations are in the hands of the Federal Minister
of Labour. Relief is not an insurance benefit but a special measure
intended to supplement it in times of exceptional depression.
1
The rate of benefit varies, according to the cost of living in the commune of
residence of the beneficiary, from 4.50 RM. to 5.10 RM. weekly for persons without
dependants in the first wage class (wages up to 10 RM. weekly), and from 19.20 RM.
to 27.90 R M . weekly for those with six or more dependants in the eleventh class
(wages over 60 RM. weekly).
2
By Order of 30 November 1934, increased short-time benefit may be paid
in industries t h a t are obliged to cut down hours of work to a drastic extent because
of a shortage of raw materials.

332

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

The provisions concerning emergency relief have been frequently
amended. The present regulations governing the scope of the scheme
and the rates of relief are contained in the Emergency Order of
17 June 1932, while the duration of the relief was prescribed by an
Order of 15 March 1933.
2.—Scope.
Emergency relief may be paid, in localities with more than 10,000
inhabitants, to persons employed in any occupation except agriculture
and domestic service ; the president of the regional employment
office may also authorise its payment in localities with less than 10,000
inhabitants. Unemployed persons under 21 years of age are in every
case excluded. Relief is paid to unemployed persons who have
exhausted their right to benefit, provided that they are capable of
working, willing to work, involuntarily unemployed and in a state of
need; a means test is carried out in accordance with the provisions
of the Order concerning emergency relief. Aliens may receive relief
only if the State of which they are nationals pays relief of equal value
to unemployed nationals of Germany.
3.—Administration.
The emergency relief scheme is administered by the Federal
Institution for Employment Exchanges and Unemployment Insurance.
4.—Financial Resources.
Four-fifths of the expenses of emergency relief were formerly paid
by the Federation and one-fifth by the local authorities; the entire
cost is now met by the Federal Institute out of the proceeds of a levy
on wages.
5.—Benefits.
The rates of unemployment benefit are taken as the maxima for
emergency relief. The amounts actually paid depend on the results
of the means test ; they may not exceed the rates of relief paid in the
same commune to unemployed persons who have exhausted their right
to unemployment benefit and emergency relief and are receiving poor
relief from the local authorities.1
Until 2 November 1930 emergency relief might be paid for a
period not exceeding 39 weeks, or 52 weeks for unemployed persons
over 40 years of age ; since that date it may be paid for not more than
32 weeks, or 45 weeks for persons over 40 years of age.
6.—Statistics.
Number of insured persons in 1933 : 12,381,853.
Persons in receipt of benefits in 1933 :
(a) under unemployment insurance
(b) under emergency relief
...

...
...

531,000
1,281,000

1
I n 1933 there were 1,964,358 registered unemployed persons in receipt of
this poor relief from the local authorities. The expenditure on such relief is shown
in the Third Part, " Social Assistance," under " I. Public Assistance."

333

GERMANY
INCOME AND E X P E N D I T U R E OF F E D E R A L INSTITUTION FOR
INSURANCE IN
1933

UNEMPLOYMENT

(000's B.M.)
INCOME

C o n t r i b u t i o n s of i n s u r e d
persons a n d employers
L e v y f o r e m e r g e n c y relief
Other income
Deficit 1

Total

981,047
514,278
169,079
94,229

1,758,633

EXPENDITURE
Unemployment benefit
...
Emergency relief ...
Short-time benefit...
Placing, vocational guidance, administration, etc.
Made over to Federation 2 ...
Other expenditure 3
Total

277,282
822,883
27,391
107,846
399,379
123,852
1,758,633

' This deficit is covered by the surplus from 1032. At the end of 1933 there was actually a
surplus in hand of 541,400 KM.
* Under the Emergency Order of 14 June 1932.
3
Land improvement and drainage work, measures to combat unemployment, rural relief, etc.

VII.—Subsidised Benefit Schemes for Staffs of Public Undertakings
General Remarks
The expenditure undertaken b y public authorities in order t o
protect their staffs against such risks as accidents, sickness, old age
and death is governed by the principles of social insurance, though
these risks are in m a n y cases covered by special institutions such as
works' sickness funds and workers' pension funds. The statutory
benefits are often supplemented b y voluntary measures, such as gratis
contributions to pension funds, aid for the tubercular, for children and
for the sick, welfare institutions a t the workplace, safety and rescue
work, free medical attendance and subsidies to convalescent and
holiday establishments.
I n the case of the Federal Railways, the largest public undertaking
dealt with here, the tuberculosis aid scheme includes curative treatment, food allowances, improved housing, family benefit, etc. Welfare
institutions a t the workplace include the provision of accommodation
during the day and night, books and periodicals, drinking water, and
the equipment of kitchens, baths, etc.
Statistics
The International Labour Office has no statistics showing the
expenditure on the above-mentioned benefits.
A.—SUPPLEMENTARY
INVALIDITY, OLD-AOE AND WIDOWS' AND
ORPHANS'
INSURANCE
FOR WORKERS EMPLOYED BY
FEDERAL AND STATE ADMINISTRATIVE AUTHORITIES

1.—Preliminary Note. 1
A supplementary invahdity, old-age and widows' a n d orphans'
insurance scheme for workers (except railway and post office staff)
1
I n certain States (Saxony, Württemberg, Hesse, Thuringia, t h e Hansa
Towns) there are either independent institutions of a similar nature or noncontributory pension schemes. Salaried employees in the service of the Federation and t h e States are insured by the Federal Salaried Employees' Insurance
Institution in a higher wage class t h a n t h a t prescribed by law.

334

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

employed by the Federal Government and by certain States was
introduced on 28 October 1928; its application has been made
compulsory by collective agreement. The purpose of the scheme is to
supplement the benefits payable under the Federal insurance scheme.
2.—Scope.
All workers of not less than 18 or more than 45 years of age who are
permanently employed by the Federal Government or one of the States
concerned (Prussia, Bavaria, Baden, Mecklenburg-Schwerin and
Mecklenburg-Strelitz) are required to insure under the supplementary
insurance scheme for the duration of their employment. After employment for not less than 900 hours in the year, workers may also insure
voluntarily under the scheme. Workers who become officials or
salaried employees, or who leave the service after ten years' insurance
may continue to insure.
3.—Administration.
The scheme is administered by the Federal and States Supplementary Insurance Institution (Zusatzversorgungsanstalt des Reichs
und der Länder), a public body with its headquarters in Berlin. The
costs are borne by the Federation and the States concerned.
4.—Financial Resources.
Contributions are fixed according to nine wage classes, the lowest
of which includes wages of up to 0-20 RM. an hour and the highest
those of over 1 • 04 RM. The contribution varies from 0 • 69 RM. to
3-78 RM. a week. The service concerned pays two-thirds of the
contribution, and the compulsorily insured worker the remaining onethird, the total amounting to about 7 per cent, of wages. Voluntarily insured persons pay the whole contribution. The financial
system is that of accumulation. An entrance fee of 2 RM. is paid
with the first contribution.
5.—Benefits.
Pensions and lump-sum benefits are payable subject to a qualifying
period of five years. The rules provide that only 80 per cent, of the
pensions as calculated below will actually be paid.
(a) Pensions.
1. Supplementary pensions.—Payable to persons in receipt of statutory invalidity pensions and drawing no wages; they are composed
of a basic amount varying between 200 and 700 RM. a year, and an
increment equal to 7 per cent, of the contributions paid. The sum
of the invalidity and supplementary pensions may not exceed a proportion of wages varying from 35 to 80 per cent, with the age of the
insured person on the happening of the event insured against.
2. Widows' pensions.—Fifty per cent, of the supplementary pension
to which the deceased was or would have been entitled. In case of
remarriage the pension is withdrawn and the widow receives a lump
sum equal to her pension for three years.

335

GERMANY

3. Orpîtans' pensions.—Payable
to children until the age of 16
or 18 in case of continued education or incapacity for work. E a c h
fatherless child receives one-quarter of the supplementary pension to
which t h e father was or would have been entitled, and each full orphan,
one-third of such pension.
The total orphans'pensions m a y not exceed the supplementary
pension to which the deceased was or would have been entitled.
(b) Lump-sum benefits.
1. Medical treatment (optional) ; this benefit, consisting of a
share in t h e cost of curative treatment, m a y be granted to insured
persons and members of their families ;
2. Funeral benefit on death of insured person or wife of insured
person (varying between 100 and 300 RM. according to wage class) ;
3. Refund of contributions to worker a n d employer in case of
withdrawal from insurance before having acquired t h e right t o a
pension.
6.—Statistics.
Number of insured persons in 1933 : 61,318.
INCOME AND E X P E N D I T U R E OF THE F E D E R A L AND STATES SUPPLEMENTARY
INSURANCE INSTITUTION FOR 1933
(000's EM.)
INCOME

Contributions and entrance
fees
Subsidies from authorities ...
Interest, profit on drawing of
bonds, etc
Other income ...
...
...

Total

EXPENDITURE

6,616
635
2,838
16

Cash benefit :
(a) Supplementary pensions
(6) Funeral benefits
(c) Curative t r e a t m e n t
{d) Contributions refunded
Purchase of securities
Surplus income
Other expenditure

10,105

648
54
10
1,285
91
8,013
4
10,105

Total

F u n d s of the institution a t 31 December 1933 : 52,192,000 RM.,
of which 51,710,000 RM. were invested in securities.
B.-

-ACCIDENT COMPENSATION FOR
RAILWAYS AND P O S T OFFICE

OFFICIALS OF

THE

FEDERAL

1.—Legal Basis.
The provisions of the Accident Compensation Act of 18 J u n e
1901 apply t o t h e officials of t h e Federal Railways a n d Post Office
who are employed on work subject to accident insurance.
2.—Scope.
These provisions apply only t o officials; the ordinary accident
insurance legislation does not apply to them.
3.—Administration.
The scheme is administered b y the Federal Railways and Post
Office, which are competent to certify incapacity and to award pensions.

336

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

4.—Financial Resources.
The resources required to cover the cost of compensation figure
in the Federal Railways and Post Office estimates.
5.—Benefits.
(a) Incapacity.
1. In case of permanent incapacity for service, a pension equal to
two-thirds of the annual salary for life ; if the official is entitled to a
pension on retirement, two-thirds of his pensionable salary.
2. In case of total loss of earning capacity, a pension as above for
the duration of such incapacity.
3. In case of partial loss of earning capacity, a proportion of the
above pension corresponding to the degree of incapacity.
If the condition of the injured person necessitates the assistance
of another person, the pension is increased to 100 per cent, for the
duration of such condition.
If the official is entitled to a higher retiring pension, he receives that
pension.
The cost of medical treatment required after payment of salary
has ceased is refunded to the injured person.
(b) Death.
1. Funeral benefit.—Equal to a month's salary or pension, but
payable only to survivors not already entitled to an extra month's
or quarter's salary.
2. Widow's pension.—Equal to 20 per cent, of the deceased person's
salary, but not less than 216 RM. or more than 2,160 RM. a year;
payable for life or until remarriage;
3. Children's pensions.—Equal to 20 per cent, of the deceased
person's salary, but not less than 126 RM. or more than 540 RM. a
year, for each child under 18 years of age;
4. Ascendants' pensions.—If the deceased person had parents or
grandparents dependent on him, they are together entitled if in need
to a total pension equal to 20 per cent, of his salary, but not less than
126 RM. or more than 540 RM. a year ;
5. Grandchildren's pensions.—Orphaned grandchildren who were
dependent on the deceased person are together entitled if in need to a
similar total pension until the age of 18 years or until marriage.
The sum of all survivors' pensions may not exceed 60 per cent, of
the deceased person's salary.
6.—Statistics.
The International Labour Office has no information concerning
the sums spent in 1933 on accident compensation for officials of the
Federal Railways and Post Office.

337

GERMANY

VOLUNTARY SICKNESS

INSUBANCE

TOB OFFICIALS

THE

FEDEBAL POST OFFICE

1.—Preliminary Note.
The permanent officials of the Federal Post Office continue to
receive their salaries in case of sickness, the cost of providing substitutes falling on the Office. An official is pensioned if sickness lasts
for a year, unless a longer period is justified by the circumstances.
Further, there is a voluntary sickness insurance scheme for Federal
Post officials of the lower salary grades and their families.
2.—Scope.
Officials in salary grades A9 to Al 2 who are under 50 years of age
and do not belong to the Postal Sickness Insurance Fund may insure
under the scheme. Insured persons who are promoted to a higher
salary grade may continue their insurance, as may widows of insured
persons (until remarriage) and pensioned officials.
3.—Administration.
The scheme is administered by the sickness funds for officials in
each regional division of the Post Office. These funds, which are public
bodies, work under the supervision of the central post office authorities.
4.—Financial Resources.
(a) Entrance fees.
A fee of 1 RM. per person, raised for persons who join the fund
more than six months after becoming established officials.
(b) Contributions.
These vary according as the official has dependents or not.
(c) Federal subsidy.
Fixed by the Federal Postal Department.
5.—Benefits.
These are granted when an insured person is in need of medical
or dental attendance owing to sickness or infirmity. They include
medical attendance (excluding operation expenses), dental attendance,
false teeth, medicines, spectacles and similar minor orthopaedic
appliances; in the case of hospital treatment the fund pays the
expenses of medical attendance, medicines, etc., and in certain circumstances the cost of maintenance.
Benefit is payable in the case of insured persons for not more than
26 weeks from the first day of sickness, and in that of members of
insured persons' families for not more than 13 weeks from the first
day of treatment.
6.—Statistics.
The International Labour Office possesses no statistics on the
working of the scheme in 1933.
x

12073

338

INTERNATIONAL SUBVEY OF SOCIAL SERVICES, 1 9 3 3
£).—VOLUNTARY SICKNESS INSURANCE FOR OFFICIALS AND
SALARIED EMPLOYEES OF THE FEDERAL RAILWAYS

1.—Preliminary Note.
The permanent officials of the Federal Railways continue to receive
their salaries in case of sickness, the cost of providing substitutes
falling on the railway authorities. An official is pensioned if sickness
lasts for a year, unless a longer period is justified by the circumstances.
A special voluntary sickness fund has also been in existence since
1926.
2.—Scope.
All officials of the Federal Railways irrespective of sex, and those
salaried employees of the Federal Railways to whom the statutory
obligation to insure against sickness does not apply, may insure
themselves and their families under the scheme.
3.—Administration.
The scheme is administered by the Federal Railways Sickness
Relief Fund (Krankenfürsorgekasse), which is a public body.
4.—Financial Resources.
(a) Entrance fees.
1 RM. per person.
(b) Monthly contributions.
These vary from 3-30 RM. to 9-60 RM. according to the four
salary classes into which insured persons are divided.
(c) Subsidy from the Federal Railways.
Equal, in Class I, to the sum of the insured persons' contributions ;
in Class II to two-thirds and in Classes III and IV to one-half of such
sum.
There is no Federal subsidy in respect of officials in receipt of
pensions, temporary or permanent, or on leave of absence or dismissed ; such officials, if they continue to insure, must pay the whole
contribution themselves.
5.—Benefits.
These are granted when an insured person is in need of medical
or dental attendance owing to sickness or infirmity, or in case of
confinement or death. The following are the benefits allowed :
(a) Sickness and maternity benefit.
Treatment, if necessary in hospital, by doctor or speciahst (chosen
by insured person) ; artificial sun, X-ray, radium treatment, etc. ;
dental attendance, false teeth; medicines, etc.; other minor therapeutical appliances ; spectacles ; artificial limbs, etc. Insured women
and the wives of insured men receive a lump sum of 50 RM. in case
of confinement.

339

GEEMANY

The cost of such treatment m a y not exceed the following sums
per calendar year and person : Class I, 700 RM. ; Class I I , 900 RM. ;
Class I I I , 1,100 R M . ; Class IV, 1,200 RM.
(b) Funeral benefit.
In case of death of an insured person or his wife, a funeral benefit
of 250 RM. is paid to t h e survivors.
6.—Statistics.
The International Labour Office possesses no statistics on the
working of the scheme in 1933.
E.—INVALIDITY,
OLD-AGE AND W I D O W S ' AND ORPHANS' PENSIONS
SCHEME FOB OFFICIALS OF THE FEDERAL RAILWAYS AND POST
OFFICE

1.—Legal Basis.
The scheme is based on various laws applicable to Federal officials
and in particular the following : for officials of the Federal Railways,
t h e Acts concerning the Federal Railways staff and the Federal
Railway Company, both dated 30 August 1924, and the staff regulations ; for officials of the Federal Post Office, the Post Office Finance
Act of 18 March 1924 and other legislation concerning Federal officials
in general.
2.—Scope.
The scheme applies only to officials whose posts are entered in
t h e budget of the service concerned. Officials appointed on a provisional basis may, but need not, be granted pensions on retiring
even though they do not hold such a post.
3.—Administration.
The Federal Railways and Post Office administer the scheme.
4.—Financial Resources.
The funds required for the payment of benefits figure in the
Federal Railways and Post Office estimates.
5.—Benefits.
(a) Invalidity and old age.
1. Pensions.—Officials receive pensions on attaining the age of 65
or if, after serving for a t least 10 years, they are retired as permanently incapable of performing their duties owing to physical or
mental infirmity ; in the case of an accident occurring during service,
a pension is payable even though the 10 years have n o t been completed.
If the pension is granted after 10 but less t h a n 11 years' service,
it is equal to 35 per cent, of the last pensionable salary received by the
official, and increases for every further year's service until the twentyfifth inclusive by 2 per cent, and for every subsequent year by 1 per
cent, of such salary.
v 2

340

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

2. Transitional salaries {Wartegeld).—Officials who are placed
provisionally on the retired list receive transitional salaries. If the
official concerned has completed 25 years' service, his transitional
salary is equal to 80 per cent, of his normal salary ; the figure decreases
by 2 per cent, for every year of service less than 25, subject to a
minimum of 50 per cent, of the normal salary.
(b) Death.
1. Funeral benefit.—If a pensioner leaves a wife and children, his
pension is paid to them during the quarter following his death ; if not,
this payment may be made to other near relatives of the insured person
if they were dependent on him and are in need.
2. Widows' pensions.—Equal to 60 per cent, of the pension to which
the deceased was or would have been entitled, but not less than onethird or more than one-half of the pensionable salary in a specified
salary class.
If the widow was more than fifteen years younger than her
husband, her pension is reduced by 5 per cent, for every further year
of difference up to and including the twenty-fifth ; if, however, the
pair had been married for more than five years, 10 per cent, of the
pension so computed is added for each further year begun until the
normal amount is reached ; widows' pensions are payable until death
or remarriage.
3. Orphans' pensions.—Equal to one-fifth of the widow's pension
for each child whose mother is entitled to a widow's pension, and to
one-third of such pension for each full orphan; payable until completion of the eighteenth year or marriage, whichever first occurs.
Children's bonuses are added to pensions, transitional salaries and
widows' pensions in accordance with the regulations for officials on
active service; this bonus is also payable to orphans under 21 years
of age if they are otherwise entitled to it and if no widow's pension is
paid. Bonuses for wives are paid only to officials who retired before
30 September 1927.
6.—Statistics.
The International Labour Office has no information as to the sums
spent by the Federal Railways and the Post Office on this scheme
in 1933.
F.—SUPPLEMENTARY INVALIDITY, OLD-AGE AND WIDOWS AND
ORPHANS' INSURANCE POR WORKERS AND SALARIED EMPLOYEES
OP THE FEDERAL RAILWAYS

1.—Legal Basis.
The Social Insurance Code and the Salaried Employees' Insurance
Act require the workers and salaried employees of the Federal Railways
to insure against the risks of invalidity, old age and death ; they also
benefit, by a supplementary pension scheme made compulsory by
collective agreement.

GERMANY

341

2.—Scope.
Workers hable to insurance under the above legislation must join
the supplementary scheme after having been employed by the
Federal Railways for at least one year without interruption ; permanently employed workers who regularly cease work for a certain
season are required to join only if their employment on the Federal
Railways lasts at least six months in each calendar year. Supernumerary
workers, etc., are as a rule not required to insure. Insured workers
who leave the Railways may, under certain conditions, continue to
insure under the supplementary scheme.
Salaried employees of the Federal Railways who are liable to
insurance under the Salaried Employees' Insurance Act, and are not
covered by the workers' supplementary insurance scheme, are insured
by the Federal Insurance Institution for Salaried Employees in a
higher salary class than that to which they would normally belong.
3.—Administration.
The supplementary scheme is administered by the " B " sections
of the Railway Pension Funds I-VII. The purpose of the " A "
sections of Pension Funds I, II, III and V, which are special
institutions within the meaning of section 1360 of the Insurance Code,
is to administer the general scheme of invalidity insurance1 ; the
" B " sections are distinct in respect of administration and property.2
4.—Financial Resources.
Insured persons are divided into eight wage classes for contribution
purposes. Class I comprises earnings under 600 RM. a year and
Class VIII those over 3,000 RM. ; the rate of contribution is fixed in
each case in accordance with the requirements of the fund (assessment
system). Compulsorily insured persons pay one-third of the contribution and the Railways the other two-thirds, while voluntarily
insured persons pay the whole contribution.
5.—Benefits.
These include supplementary invalidity and old-age pensions,
widows' pensions, orphans' pensions, and funeral benefit. The
qualifying period is five years.
(a) Supplementary invalidity and old-age pensions.
Payable in case of invalidity or on completion of the sixty-fifth
year; cease with the statutory pension; composed of a basic sum
(240 RM. a year) and an increment for each full year of service as
follows : Class II, 6 RM. ; Class III, 9 RM. ; Class IV, 12 RM. ; Class V,
15 RM. ; Class VI, 18 RM. ; Class VII, 21 RM. ; and Class VIII, 24 RM.
The sum of the statutory and supplementary pensions may not
exceed 80 per cent, of the average earnings of the insured person
during the last three years.
1
On 1 J a n u a r y 1935 the " A " sections of Funds I I , I I I and V were amalgamated with t h a t of F u n d I.
*
2
On 1 J a n u a r y 1935 the " B " sections of Funds I I - V I I were amalgamated
with t h a t of F u n d I.

342

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

(b) Supplementary widows' and widowers' pensions.
Equal to 60 per cent, of the supplementary pension t o which the
insured person was or would have been entitled ; payable to t h e widow
until death or remarriage a n d to the widower if he was dependent on
his wife a n d is in need.
(c) Supplementary orphans' pensions.
Payable until completion of t h e eighteenth year or until marriage,
whichever is earher, to the following : each fatherless child, half the
supplementary widow's pension ; each full orphan, two-thirds of such
pension.
The sum of the supplementary pensions payable to t h e survivors
of a n insured person m a y n o t exceed the supplementary pension to
which he was or would have been entitled.
(d) Funeral benefit.
Payable on the death of a person in receipt of a supplementary
pension, the wife of such person (with potential right to a supplementary
widow's pension), or a widow in receipt of a supplementary pension.
The benefit varies between 120 RM. and 260 RM. with t h e pension
class.
6.—Statistics.
The International Labour Office possesses no statistics on the
working of the scheme in 1933.
G.—SUPPLEMENTARY
INVALIDITY, OLD-AGE AND W I D O W S ' AND
ORPHANS'
INSURANCE
FOR
WORKERS
AND
SALARDSD
EMPLOYEES OF THE F E D E R A L P O S T OFFICE

1.—Legal Basis.
The Sickness Insurance Code a n d the Salaried Employees' Insurance
Act require t h e workers and salaried employees of the Federal Post
Office to insure against the risks of invalidity, old age a n d death ; if
permanently employed, they also benefit by a supplementary pension
scheme made compulsory b y collective agreement.
2.—Scope.
All workers and salaried employees under 45 years of age,
irrespective of sex, who are permanently employed by the Federal
Post Office, are compulsorily insured for t h e duration of their employment if such employment does n o t amount to less t h a n 1,100
hours in t h e year.
The following m a y insure voluntarily under the scheme :
(a) Non-permanent workers a n d salaried employees under t h e
age of 45 who are employed for less t h a n 1,100 b u t more t h a n
900 hours in t h e year ;
(6) Compulsorily insured persons who become officials before
having completed t h e qualifying period, until they have done
so;

GERMANY

343

(c) Compulsorily insured persons who cease their employment for
a period not exceeding a year for reasons other than loss of
earning capacity ;
(d) Compulsorily insured persons who leave their employment
after at least 10 years' service, having been insured under
the scheme for at least five years.
3.—Administration.
Benefits are provided by the Federal Post Office Pension Institution
{Versorgungsanstalt der Deutschen Reichspost), which is a public body
under the supervision of the Federal Postmaster-General.
4.—Financial Resources.
The resources are provided by the insured persons and the Federal
Post Office (accumulation system). Employees are divided into
twelve wage classes, the first containing those earning 520 RM. a year
or less and the twelfth those earning over 5,200 RM. The weekly
contribution varies between 0-69 RM. and 7-44 RM.; one-third is
paid by the insured person and two-thirds by the Post Office ; voluntarily
insured persons pay the whole amount.
5.—Benefits.
These include supplementary old-age and invalidity pensions,
widows' pensions, orphans' pensions, funeral benefit and curative
treatment.
(a) Supplementary old-age and invalidity pensions.
Awarded and withdrawn with statutory pension; composed of a
basic amount of between 200 RM. and 1,375 RM. according to wage
class, and an increment of one-half per cent, of the total earnings on
which the contributions paid were based. The sum of the statutory
and supplementary pensions may not exceed 80 per cent, of the
pensioner's previous remuneration ;
(b) Supplementary widows' pensions.
Fifty per cent, of the pension to which the insured person was or
would have been entitled, payable until death or remarriage; in the
latter case the widow receives a lump sum equal to her pension for
three years ;
(c) Supplementary orphans' pensions.
Fatherless children, one-half of the widows' pension, payable until
completion of the sixteenth year ; full orphans, two-thirds of the
widows' pension payable until completion of eighteenth year; or in
either case until marriage or death, if earlier.
The sum of the supplementary and statutory widows' and orphans'
pensions may not exceed that of the supplementary and statutory
pensions to which the deceased was or would have been entitled ;

344

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(d) Funeral benefit.
Benefit from the Institution is added to that stipulated in the
collective agreement in such a way that the resulting sum is equal to
half the basic amount of the annual supplementary pension ;
(e) Curative treatment.
The Institution may pay the expenses of curative treatment if
these are not borne by some other insurance institution ;
(f) Refund of contributions.
The Institution is required to refund without interest the contributions paid by persons who at their own request cease to be insured
under the scheme without having acquired the right to pensions.
6.—Statistics.
The International Labour Office possesses no statistics as to the
working of the scheme in 1933.

THIRD PART
SOCIAL ASSISTANCE
I.—Public Assistance
1.—Legal Basis.
The relevant provisions are to be found in the Public Assistance
Order of 13 February 1924, the State Decrees for the administration
of this Order, and the Federal Instructions of 4 December 1924
concerning the conditions, nature and scope of public assistance.
There are also a number of Acts on special aspects of the question, such
as the Youth Protection Act of 9 July 1922 and the Act of 12 January
1923 concerning assistance for the seriously disabled.
2.—Scope.
Public assistance comprises :
(a) assistance for war-disabled men, war widows and orphans, etc. ;
(6) assistance for persons in receipt of pensions under the workers'
and salaried employees' insurance schemes, in so far as the insurance
institutions are not responsible for this assistance ;
(c) assistance for persons with small private incomes, etc. ;
(d) assistance by provision of employment for seriously disabled
persons and other persons unable to earn their living ;
(e) assistance for young persons in need ;
(/) maternity assistance;
(g) general assistance (formerly poor relief) for persons not covered
by other assistance schemes.
3.—Administration.
Public assistance is administered by the States. In order to
discharge the obligations incumbent on them, each State is required

GERMANY

345

to set up State and district public assistance unions (Filrsorgeverbande),
being free to decide what organisations are to act as such, and to
define their duties. For more specialised duties, such as supervision,
treatment and care of the mentally deficient, deaf and dumb, blind
and infirm, the State and provincial authorities as a rule act as
assistance institutions ; they also administer the Act concerning the
seriously disabled. Public assistance for young persons is administered
by the national and local youth offices.
4.—Financial Resources.
The resources of the assistance institutions are composed of Federal
contributions made on the basis of budget allocations (Finanzausgleich), the proceeds of certain taxes, etc., and subsidies from the
Federation, the States, State public assistance institutions, etc.
5.—Benefits.
The principal object of public assistance is to guarantee the
necessities of life to the needy. A person who cannot provide a
sufficient subsistence for himself and his dependants through his own
labour or means, and is not accorded such subsistence by other persons,
in particular by his relatives, is deemed to be in need. A sufficient
subsistence comprises :
(a) maintenance proper, including housing, food and clothing, etc. ;
(6) medical aid in case of sickness and the aid required for the
recovery of working capacity ;
(c) maternity aid ;
(d) general and vocational education for young persons ;
(e) vocational education for the blind, deaf and dumb, and cripples.
In order to guarantee a sufficient subsistence to such persons, the
central authority ôf each State, or an authority designated by it,
compiles minimum cost of living schedules according to local circumstances and conditions. These serve, however, only as a guide, and
departure from them in either direction is permissible in special cases.
The rates applicable to persons with small private incomes and
pensioners under social insurance schemes must be higher than the
normal.
Maternity aid is intended to give mothers the same benefits as are
granted in similar circumstances to members of insured persons'
families under the Federal Sickness Insurance Code, that is (according
to the nature and degree of poverty), medical attendance, payment
of part of costs of confinement, maternity benefit, and nursing benefit.
The competent State authority determines, in accordance with local
conditions, what shall be the limit of income below which maternity
aid is to be granted.
Assistance by provision of employment for the seriously disabled is
intended to make these persons as independent as possible of ordinary
assistance by finding remunerative work for them. The Act concerning
their employment and the administrative regulations issued under it
provide that every person employing 20 or more persons must employ

346

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

a certain percentage of seriously disabled persons (average minimum,
2 per cent.). The Act also grants them special protection in respect
of dismissal.
Medical attendance for persons in need and their families includes
treatment of sickness (treatment in dispensaries or hospitals if
necessary) and the treatment of cripples with the object of effecting
cure or of retraining them wholly or partly for remunerative work.
I t also includes treatment for the incurably sick or infirm in hospital
and for the mentally deficient and lunatics in asylums and homes.
Measures to be taken in respect of general health are governed by
special legislation which apphes also to the indigent, though not
intended exclusively for them.
The chief duties of the youth offices are as follows :
(a) Protection of children in receipt of assistance ;
(b) Collaboration in the supervision and education of indigent
children ;
(c) Help for young offenders ;
(d) Collaboration in the inspection of factories, etc., where young
persons are employed;
(e) Establishment and improvement of measures and organisations
with the following objects:
1. Vocational guidance of young persons ;
2. Protection of mothers before and after confinement;
3. Assistance for babies and infants ;
4. Assistance for school children out of school hours and for
young persons who have left school.
6.—Statistics.
Number of persons assisted at 31 March 1933
4,671,349
Number of persons assisted at 31 March 1934
..:
... 3,284,354
E X P E N D I T U R E F O B THE Y E A R 1933-1934

(State and district institutions)
Current assistance in cash
Single cash payments ...
Assistance in kind
...

...
...
...

Total
Per head of the population

(000'a KM.)
1,648,500
33,400
184,300
1,866,200

...

28-60 RM.

H.—Winter Reliei
1.—Preliminary Note.
Winter relief was introduced in 1933 to provide assistance for
Germans in necessitous circumstances.
2.—Beneficiaries.
The sums available were used to provide benefits for unemployed
persons, workers on short time, war victims, war widows, pensioners

347

GERMANY

under social insurance schemes, persons in receipt of assistance from
welfare offices and other necessitous persons.
3.—Administration.
The scheme was administered by the National Socialist Welfare
Office, assisted by an association of other welfare organisations. The
Federal, State and local authorities, the employment exchanges and
welfare offices, the Catholic and Protestant Churches and the various
industrial and commercial organisations also collaborated.
4.—Financial Resources.
The resources of the winter relief scheme consist in voluntary
donations in cash, in kind and in services. All sections of the
population contributed.
5.—Benefits.
Only benefits in kind are provided, sometimes directly and sometimes in the form of vouchers, etc.
6.—Statistics.
Number of persons in receipt of assistance in 1933-1934 :
16,618,000.
The value of the contributions collected during the winter of
1933-1934 was as foUows :
(000's EM.)

Cash donations ...
...
Donations in kind
...
Vouchers, services, etc. ...
Total

...
...
...

184,272
118,188
8,790
311,250

The value of the relief granted to necessitous persons was considerably higher, as a result of repairs to the objects contributed,
advantageous purchases with the cash donations, etc. It amounted
to 347-4 million RM. The administrative expenses were 3-4 millions.

m.—Shipowners' Liability towards Sick or Injured Seamen
1.—Legal Basis.
The legal liability of shipowners towards seamen is based on the
provisions of the Seamen's Order of 2 June 1902, and, as far as masters
of vessels are concerned, on the corresponding provisions of the
Commercial Code of 10 May 1897. Both have been amended on a
number of occasions.
2.—Scope.
The liability applies not only in respect of the crew proper, but in
respect of all persons employed on board the vessel on behalf of the
shipowner.
3.—Benefits.
In case of sickness or accident, the owner of a merchant vessel is
required to provide the seaman concerned with maintenance, nursing,
and medical treatment.

348

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

Further, he is required to repatriate seamen who have had to be
left ashore outside German territory by reason of sickness or injury ;
repatriation may be replaced by compensation in cash.
A seaman who becomes sick or injured before starting on a voyage
is entitled to his wages only for the period during which he worked. If
the sickness or injury occurs during the voyage, he is entitled to his
wages until the day on which he leaves the vessel inclusive.
A seaman who, owing to sickness or injury, is left ashore abroad is
entitled to a third of his wages for the duration of his incapacity or
of his treatment in hospital, provided that he has dependants. A
master is entitled to his full salary during such period.
If a seaman dies, the shipowner is required to pay his wages up to
the day of his death to his dependants. If death occurs during a
voyage, the shipowner is required to pay the burial expenses.
4.—Statistics.
The number of persons assisted is not exactly known.
I t is estimated that the expenditure entailed by assistance is equal
to between 2 and 2\ per cent, of the total wages paid.

FOURTH PART

HOUSING
1.—Preliminary Note.
In pursuance of the Third Legislative Decree concerning taxation
of 12 February 1924, the Federal Government, on 1 June 1926, passed
an Act concerning compensation for currency depreciation in the case
of built-up land. The Act specified that the fraction of tax receipts
earmarked for housing should be used more especially for the construction of small dwellings for persons of small means or with large
families. The administrative regulations of 26 March 1926 on this
subject were amended and supplemented during the following years
(on 2 June 1927, 7 March 1928, 26 March 1929, 1 December 1930 and
8 December 1931). The Emergency Order of 14 June 1932 made
provision for the repair of dwelling houses ; administrative regulations
were issued on 23 May 1933. An Emergency Order of 11 December
1932 provided for subsidies for one-family dwellings.
More detailed regulations have been issued by the States, which,
with the local authorities, have promoted building by loans, contributions toward interest, etc.
2.—Beneficiaries.
Certain sections of the population—officials, employees and workers
of the great public services, War disabled men, miners and agricultural
workers—have received special aid from the authorities. In general,
however, encouragement has been given to the construction of small
dwellings, so that the principal benefit has fallen to persons of limited
means. Assistance has also been given to promote the building of
large blocks of flats, provided that the cost of building each separate
dwelling did not exceed 8,000 RM. (in exceptional cases, 12,000 RM.)

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349

3.—Authorities and Undertakings concerned in Building.
The institutions responsible for promoting building include the
following : (a) central authorities (Federal and State) ; (6) local
authorities; (c) public utility undertakings, in particular building
societies (Bausparkassen) and associations for the promotion of house
building ( Wohnungsfürsorgegesellschaften) ; (d) private building contractors.
4.—Measures to encourage Building.
Broadly speaking the measures to encourage building are based on
the Federal Instructions of 1926. Under these the States are obliged
to use the proceeds of the additional rent tax for this purpose.
Building loans are granted out of these proceeds on a second mortgage,
the amount not as a rule exceeding two-thirds of the value of the
property. Sometimes, however, particularly in the case of large
families and war victims, the loan may be increased to the full value
of the property by means of a supplementary mortgage. The interest
and redemption charges of the mortgage loans vary according to local
conditions.
Special measures have been taken to encourage house-building for
specified groups of persons : e.g., the House Building Encouragement
Fund ( Wohnungsfürsorgefonds) for the benefit of officials.
The Federal Government also guarantees private loans to build
dwellings for its officials. The guarantee may not exceed 90 per cent.
of the value of the property. A retired official may commute part
of his pension into a lump sum for the acquisition or construction of a
dwelling.
In mining districts a tax is levied on the selling price of coal to
subsidise the construction of dwellings for miners.
The governments have allocated sums from the unemployment
funds in order to grant credits at low rates of interest for the construction of rural dwellings.
Under the Emergency Order of 14 November 1932, certain
allowances are made to house owners for the maintenance of houses
and the division of large houses. In addition, the Emergency Order
of 11 November 1932 provided 20 million RM. for the construction
of family dwellings.
Substantial tax exemptions have been granted, and the land policy
of the municipal authorities plays an important part in the encouragement of the building of blocks of flats.
5.—Statistics.
Dwellings built in 1933
The total number of new dwellings (newly built or converted from
old buildings) was 202,113. Of these 20,800 were built by public
authorities, 68,000 by public utility undertakings, and 111,200 by
private undertakings.

350

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

Long Term Loans in 1933
Private loans
(000,000 KM.)
Mortgages from credit institutions 1 ...
...
...
150
Private mortgages and builders' own resources ...
450
Total

600
200

Grand Total

800

Public loans

1
Land banks, saving funds, public insurance institutions and
insurance companies.

FIFTH

private

PART

FAMILY ALLOWANCES
1.—Introduction.
The system of family allowances at the employers' expense was
developed largely during the period 1921-1924. Its importance has
considerably decreased, particularly in private industry, since the
stabilisation of the currency.
2.—Family Allowances for Officials of the Federal Railways and Post Office.
These allowances are the same as those prescribed for Federal
officials in the Act of 16 December 1927, as amended by the Emergency Order of 5 June 1931. Under it every official receives a monthly
allowance of 10 EM. for the first dependent child under 16 years of
age, 20 EM. for the second, 25 EM. for the third and fourth, and 30 EM.
for every subsequent child. The allowance is paid up to the age of
21 years if the child continues its education or vocational training or
has not an income of 30 EM. a month. If owing to physical or mental
infirmity the child is unable to earn a living, and if he has not an income
of 30 EM. a month, the allowance is payable irrespective of age.
A married woman official whose husband is not in a position to
provide a sufficient livelihood for their children is also entitled to a
family allowance.
Officials employed in the undertakings of the State and local
authorities have the same rights as Federal officials. As a flat rate
is fixed for the allowances they form a larger proportion of salaries
in the lower than of those in the higher grades.
3.—Family Allowances for Salaried Employees.
Where family allowances are still paid under collective agreements
they are in general fixed amounts which have not risen with salaries.
In those parts of the country where salaries are high (Württemberg,
for instance) family allowances are comparatively low, while where
wages are low, as in the North-East, the allowances are particularly
high.
In many cases the family allowances are divided into those for
wives and children respectively.

351

GERMANY

4.—Family Allowances for Workers.
The system of family allowances for workers is developed most
highly in the coal-mining industry. Other industries in which they
are usual are the clothing, chemical, metal, textile, transport, paper
and brewing industries.
In the mining industry all collective agreements stipulate for
family allowances. These are added to the cash wages of married,
widowed, divorced and single workers who have family responsibilities.
In most cases the children's allowance ceases at 14 years, but sometimes continues for the whole period of education.

SIXTH PART

HOLIDAYS W I T H

PAY1

Regulations.
There is no legislation on this subject, but collective agreements
stipulate for annual holidays with pay for nearly all workers and
salaried employees, the period differing according to the age, length
of service and experience of the person concerned. In most cases the
length of the holiday lies between 3 and 12 days.
In the case of salaried employees a minimum period of six days is
the rule. The longest holidays are allowed by banks and insurance
companies, the shortest by industrial undertakings and retail firms.
In most cases the length of the holiday lies between 12 and 18 days,
but the maximum is often 18 or 24 days. Only 7 per cent, of all salaried
employees have 12 days' holiday or less, while 10 per cent, have more
than 24 days. There are usually special rules governing apprentices'
holidays.

1
In virtue of the National Labour Law of 20 January 1934, collective agreements have mostly been replaced by collective regulations, which often make
liberal provision for holidays with pay. Thus holidays with pay m a y be as
long as 18 working days for workers and 24 or even more for salaried employees
in commerce, offices and private administrations.

GREAT BRITAIN AND
NORTHERN IRELAND
SUMMARY

F I R S T PART :

Statistics of Population

SECOND PART : Social Insurance

...

PAGE

...

354
356

I.—Workmen's Compensation
...
...
...
II.—National Health Insurance ...
...
...
III.—Widows', Orphans' and Old-Age Contributory
Pensions
...
...
...
...
...
IV.—Unemployment Insurance
...
...
...
V.—Voluntary Social Insurance ...
...
...
VI.—Social Charges on behalf of Postal Workers
THIRD P A R T :

Social Assistance

...

I.—Non-Contributory
Old-Age
and Blind
Pensions
...
...
...
...
...
II.—Unemployment Assistance ...
...
...
III.—Poor Law Service
...
...
...
...
IV.—Institutional Treatment of Disease ...
...
V.—Highlands and Islands Medical Service
...
VI.—Lunacy and Mental Deficiency Services
...
VII.—Maternity and Child Welfare Service
...
VIIL—Health of School Children
IX.—Shipowners' Liability towards Sick or
Injured Seamen
...
...
...
...
FOURTH PART : Housing

FDJTH P A R T :

G I2973

356
358
361
365
367
371
371

371
374
375
380
384
385
387
389
395

...

396

Holidays with Pay

...

401

354

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

FIRST

PART

STATISTICS OF POPULATION
GREAT BBITAXN
CENSUS O F ENGLAND AND W A L E S 1931 (OCCUPATION TABLES) ; CENSUS OF
SCOTLAND 1931 (OCCUPATIONS AND I N D U S T R I E S ) . GAINFULLY
OCCUPIED
POPULATION (14 Y E A K S AND O V E R ) , CLASSIFIED B Y OCCUPATIONAL GROUPS
AND INDUSTRIAL STATUS.

Occupational groups

A g r i c u l t u r e a n d fishing
Mining a n d quarrying
Manufacture, building, etc. ...
T r a n s p o r t a n d communication
Commercial,
finance
a n d i n s u r a n c e (exc l u d i n g clerks) . . .
Public administration
a n d d e f e n c e (exc l u d i n g clerks) . . .
Professional occupat i o n s (incl. e n t e r tainments
and
sports)
P e r s o n a l s e r v i c e ( incl.
hotels, etc.)
Clerks, d r a u g h t s m e n
and typists
Warehousemen,storekeepers and packers
Stationary
engine
drivers,
dynamo
a n d motor attendants
O t h e r a n d undefined
w o r k e r s (including
those
unskilled
w o r k e r s w h o were
f o r m e r l y classified
to the group Manufacture) ...
Total
R e t i r e d or n o t gainfully o c c u p i e d (14
a n d over)
T o t a l p o p u l a t i o n (14
a n d over)
T o t a l population ...

Operative

Working
on own
account

Out of work

Total

202,345
6,900

936,647
879,115

181,821
274

77,653
207,735

1,398,466
1,094,024

306,756

4,940,285

262,727

972,379

6,482,147

56,797

1,532,273

45,120

196,041

1,830,231

387,876

1,329,234

471,500

130,192

2,318,802

311,942

819

312,843

Managerial

63,840

732,964

123,384

45,167

965,355

119,912

2,133,156

182,356

193,118

2,628,542

29,478

1,414,619

1,172

76,885

1,522,154

3,614

398,131

367

46,471

448,583

152,715

25,737

178,502

2,914
1,180,519

1,316,091
16,077,172

3,715 2,524,514
552,317
1,272,481

1,875,037
21,054,686

13,606,850
34,661,536
44,795,357

GREAT BRITAIN AND NORTHERN IRELAND

NORTHERN

355

IRELAND

CENSUS OF 1926—GAINFULLY OCCUPIED POPULATION AGED 12 Y E A R S AND OVER
CLASSIFIED BY OCCUPATIONAL GROUPS AND INDUSTRIAL STATUS (See FOOTNOTE)
Working ApprenEmployees on own tices and
account learners

Out of
work

Total

104
4

3,938
424

151,033
2,222

10,584

12,375

40,716

209,906

25,300

1,775

100

3,965

31,531

23,815

13,487

2,930

2,128

47,716

193

13,769

Occupational Groups

Employers

A g r i c u l t u r e a n d fishing
Mining a n d quarrying
Manufacture, building,
etc. ...
Transport a n d communication...
Commercial,
finance
a n d i n s u r a n c e (exc l u d i n g clerks)
Public administration
a n d defence
Professional
occupations (inc. entertainments and sports)...
P e r s o n a l service (inc.
hotels, etc.)
Clerks,
draughtsmen
and typists...
Warehousemen, storekeepers a n d packers
Stationary engine drivers, d y n a m o a n d
motor attendants...
Other a n d undefined
workers

35,231
18

77,768
1,766

33,992
10

4,230

142,001

391

5,356

Total
R e t i r e d or n o t gainfully o c c u p i e d (12
a n d over) ...
T o t a l p o p u l a t i o n (12
a n d over) ...
Total population

13,522

429

13,980

2,583

2,469

379

19,840

2,150

39,327

4,180

502

3,150

49,309

18,145

1,372

19,566

5,003

372

859

6,250

291

1,844

1,549
19

10,859

6,728

17,720

47,825

373,035

66,738

18,965

64,143

570,706

394,539
965.245
1,256,561

Note.—The occupational classification used in the 1926 census of Northern Ireland was adapted
to suit the requirements of the country from the Great Britain system of classification as published
in the "Classification of Occupations, 1921." This adaptation did not affect the allocation of
persons as between the main heads shown in the above table. I t is not possible, however, to
prepare a table for Northern Ireland exactly corresponding to that relating to Great Britain, owing
to the change made at the 1931 census of Great Britain in the age period covered by the statistcs,
and in the status divisions into which occupied persons were classified.

356

INTERNATIONAL SCBVEY OF SOCIAL SERVICES, 1933

SECOND PART

SOCIAL INSURANCE
I.—Workmen's Compensation
1.—Legal Basis.
Employers are individually liable to pay compensation; insurance
Ì3 optional.1
The first Act was passed in 1897, and important amendments
were made in 1900, 1906, and 1923. The legislation was codified
by the Workmen's Compensation Act, 1925, and in Northern Ireland
by the Workmen's Compensation Act (Northern Ireland), 1927, and a
further amending Act was passed in 1931.
2.—Scope.
The right to compensation is conferred on all persons working
under a contract of service or apprenticeship, except non-manual
workers whose annual remuneration exceeds £350, casual workers
employed otherwise than for the purposes of the employer's trade
or business, outworkers, and members of the employer's family
living with him.
3.—Administration.
Insurance is optional.1 Most employers insure with insurance
companies, or with employers' mutual indemnity associations.
An arrangement has been made with the Accident Offices'
Association (which includes almost all the large accident insurance
companies) to secure that in the case of these companies the ratio
of the total amount paid in compensation to the total amount of
the premiums shall not be less than 62J per cent. ; if it is less a
corresponding refund is made to employers.
The compensation claims are settled by agreement between the
parties or by judges of the county courts, acting as arbiters. The
Home Office supervises the application of the Act in Great Britain
and the Ministry of Labour in Northern Ireland.
4.—Financial Resources.
Compensation is payable entirely by the employers.
5.—Benefits.
Compensation is payable for personal injury by accident arising
out of and in the course of employment.
Compensation is also payable for numerous occupational diseases,
the list of which may be summarised as follows : anthrax ; poisoning
by lead, mercury, phosphorus, arsenic, benzene and its homologues
and their nitro- and amido-derivatives, dinitrophenol, nitrous fumes,
tetrachlorethane and solvents for acetate of cellulose, carbon bisulphide,
nickel carbonyl, African boxwood, and manganese; ankylostomiasis,
miner's nystagmus, beat hand, elbow and knee, inflammation of the
1

Since 1 January 1935, insurance in the Coal Mining Industry is compulsory.

GREAT BRITAIN AND N O R T H E R N I R E L A N D

357

synovial lining of the wrist joint and tendon sheaths ; cataract due to
exposure to molten glass or metal ; glanders ; telegraphist's, writer's
and twister's cramp ; various ulcerations or cancers due to chrome, dust
or liquids, tar, pitch, bitumen, mineral oil or paraffin, or due to exposure
to X-rays or radio-active substances; compressed air illness. Compensation is also payable in Great Britain under special schemes in
respect of silicosis and asbestosis.
(a) Benefits in case of incapacity.
Compensation consists in cash benefits only. No distinction is
made between temporary and permanent incapacity.
Compensation is payable from the fourth day of incapacity or,
when the incapacity lasts four weeks, from the first day.
1. In case of total incapacity, compensation, if the worker earned
50s. a week or more,_ is a weekly payment equal to half weekly wages
(maximum : 30s.), and if he earned less than 50s. a week, a weekly
payment equal to half weekly wages plus either half the difference
between such payment and 25s. or half the difference between such
payment and his average earnings, whichever of the two is less.
2. In case of partial incapacity, compensation, if the worker
earned 50s. a week or more, is a Weekly payment equal to half the
difference between his average earnings before the accident and a
sum which he is earning or capable of earning thereafter, and if he
earned less than 50s. a Week, a weekly payment bearing the same
proportion to the difference between his wages before the accident
and thereafter as the weekly compensation for total incapacity would
have borne to his average earnings before the accident.
3. Under certain conditions, the weekly compensation may be
commuted for a lump sum, and in practice commutation is frequently
effected, especially where the incapacity is likely to be permanent.
(b) Benefits in case of death.
The amount of compensation payable in case of death varies
according to the wages of the worker and the degree in which his
survivors were dependent on him ; there is special compensation
for children.
1. If the worker leaves a widow or other member of his family
aged 15 or over who is wholly dependent on his earnings, compensation
is a lump sum equal to his earnings during last three years. Minimum :
£200 ; maximum : £300.
2. If the worker leaves, in addition, one or more children under 15,
also wholly dependent, compensation is increased by a lump sum
for each child calculated as follows : 15 per cent, of the product of
worker's average weekly earnings and the number of weeks elapsing
between worker's death and child's 15th birthday; for the purpose
of this calculation, earnings are deemed to be £1 or £2 if they were
actually less or greater than these rates respectively. Maximum for
all dependants : £600.

35S

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

3. If the worker leaves only persons who are partially dependent,
compensation is a lump sum not exceeding the maxima specified
above, agreed upon by the parties, or, failing agreement, fixed by
arbitration.
4. If the worker leaves no dependants, compensation consists of
reasonable medical expenses and cost of burial. Maximum : £15.

6.—Statistics.
Statistics are obtained annually in seven branches of economic
activity—shipping, factories, railways, docks, mines, quarries, and
constructional work. No comprehensive statistics are available, but,
after making allowance so far as possible for unascertained items, it is
estimated that about 17 million persons come within the scope of the
Workmen's Compensation Acts; and that the total annual cost to
employers is over £10 millions.
In Great Britain and Northern Ireland in 1933, the number of
workers covered in the seven branches of economic activity for which
statistics are compiled was 6,843,125 of which 126,488 were in Northern
Ireland.
The total amount of compensation paid in Great Britain in these
branches was £5,404,921, of which £2,220,897 was paid by mutual
indemnity associations in the capacity of insurers, £2,021,602 was
paid by employers in respect of liabilities not covered by insurance,
and £1,162,422 was paid by insurance companies. In Northern Ireland
the total compensation paid was £36,364.
The following figures relate to the whole employers' liability
business of insurance companies—not merely to the branches enumerated
above—in Great Britain and Northern Ireland.
INCOME AND E X P E N D I T U E E OF INSUKANCE COMPANIES FOE
INCOME

Premiums paid by employers 4,650,299

Total

4,650,299

EXPENDITUKE

Compensation
...
Cost of administration
Profits
Total

1933
£

... 2,867,407
... 1,635,515
147,377
4,650,299

H.—National Health Insurance
1.—Legal Basis.
Compulsory health insurance was instituted by an Act of 1911, which
has been frequently amended since, but without altering the main
features of the original scheme. The legislation was codified by the
National Health Insurance Act, 1924, which was amended in 1926,
1928 and 1932.
2.—Scope.
Insurance is compulsory for all employed persons aged 16 and
upwards, with the exception of non-manual workers whose annual
remuneration exceeds £250, casual workers employed otherwise than

GREAT BRITAIN AND NORTHERN IRELAND

359

for the purposes of their employer's trade or business, unpaid
apprentices and unpaid children of the employer.
Further, officials of the central and local administrations, salaried
employees of railway companies, and persons employed by public
utility undertakings working under statutory authority are excepted
from the scope of compulsory health insurance, if the central authority
certifies that the terms of the employment are such as to secure provision
in respect of sickness and disablement on the whole not less favourable
than the corresponding benefits conferred under the compulsory
scheme. The number of persons so excepted on 31 December 1933,
was approximately 412,000. It is to be noted, however, that a considerable proportion of these persons are voluntary contributors to
the health insurance scheme.
3.—Administration.
The scheme is administered by approved mutual benefit societies,
managed by representatives of insured persons, and by insurance
committees, consisting mainly of representatives of approved societies
and doctors. The societies administer the cash benefits, and medical
benefit is administered by the insurance committees, except in the
case of Northern Ireland, where the benefit is administered by the
central authority. These institutions are supervised by the Ministry
of Health, the Department of Health for Scotland, and the Ministry
of Labour for Northern Ireland.
4.—Financial Resources.
The scheme is financed by a joint contribution from the employer
and the insured person and by a State subsidy.
The joint contribution is payable weekly as follows :
—

Total

Employer

Insured

Man

i\d.

4i¿.

9d.

Woman

i\d.

id.

8id.

The State pays a proportion (one-seventh for men and one-fifth
for women) of the cost of benefits and local administration and the
entire cost of central administration.
5.—Benefits.
The scheme covers the risks of sickness (first 26 weeks of incapacity)
and disablement (incapacity after first 26 weeks) of the insured person,
and the confinement of an insured woman or the wife of an insured
man.
The benefits consist of medical, sickness, disablement, maternity
and additional benefits.

360

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(a) Medical benefit.
In order to be entitled to medical benefit, the beneficiary must be
insured. He is continuously insured : (i) as long as he is insurably
employed ; (ii) during incapacity for work ; (iii) for life after attaining
age 65 ; (iv) during 18-24 months after cessation of insurable employment or after recovery from incapacity which commenced during
such employment ; (v) during one year after expiry of period mentioned
in (iv) if he proves inability to obtain employment.
Medical benefit consists of medical treatment by general practitioner
and supply of drugs, as long and as often as necessary.
(b) Sickness benefit.
In order to be entitled to sickness benefit, the beneficiary must be
insured as for medical benefit, and must have been continuously in
insurance for 26 weeks with actual payment of 26 contributions in
order to be entitled to benefit at reduced rate, and for 104 weeks with
actual payment of 104 contributions in order to be entitled to benefit
at full rate. Benefit is not payable during 4 weeks following
confinement.
Sickness benefit consists of a weekly payment from the fourth
day of incapacity for 26 weeks at following rates :
Reduced rate

Full rate

Men

s. d.
9 0

s.
15

Unmarried women

Married women ...

The rate of sickness benefit during the " benefit year" (JanuaryDecember) is reduced proportionately in respect of arrears of contributions accruing during the previous " contribution year " (JulyJune) ; but for every week of incapacity the corresponding contribution
is excused and for every fortnight in respect of which inability to
obtain employment is proved, one weekly contribution is excused.
At the end of the " contribution year " the insured person is given
an opportunity of paying off arrears in order to become entitled to the
full rate of benefit in the coming " benefit year ".
(c) Disablement benefit.
In order to be entitled to disablement benefit, the beneficiary
must fulfil the same conditions as for full rate of sickness benefit.
Disablement benefit consists of a weekly payment from the 27 th
week during continuance of incapacity at the rate of 7s. 6d. for men,
6s. Od. for unmarried women and 5s. Od. for married women.
Disablement benefit is reduced in respect of arrears of contributions
in the same way as sickness benefit.

GKEAT BRITAIN AND NORTHERN IRELAND

361

(d) Maternity benefit.
In order to be entitled to maternity benefit, the beneficiary or her
husband must be insured as for medical benefit, and must have been
continuously in insurance for 42 weeks with actual payment of 42
contributions.
Maternity benefit consists of a lump sum of £2 payable on confinement. In certain cases, for example where both husband and wife
are insured persons, the sum is increased to £4.
Maternity benefit is not subject to reduction in respect of arrears,
but is not payable in any " benefit year " if less than 26 contributions
have been credited for the previous " contribution year."
(e) Additional benefits.
Any approved society which on valuation is found to have a
disposable surplus may use such surplus for the provision of additional
sickness, disablement and maternity benefits, and the provision of
dental, ophthalmic, hospital, etc., treatment.
In order to be entitled to such additional benefits, the beneficiary
must have been a member of the approved society for five years in the
case of additional cash benefits, or for three years in the case of
additional benefits in kind.
6.—Statistics.
The statistics relate to Great Britain and Northern Ireland.
Number of insured at end of 1933 : 17,707,000.
INCOME AND E X P E N D I T U B E OF NATIONAL H E A L T H INSTJKAXCE SCHEME FOB
EXPENDITURE

INCOME

£000's

Contributions of employers and
insured
2G.46S
State subsidy ...
6.142
Revenue from investments ... 6,186

Total

1933

38,796

¡EOOO's

Cash benefits :
Sickness benefit
Disablement benefit
Maternity benefit ...
Medical benefit
Other benefits
Cost of administration
Total

.. 11,554
.. 6,306
..
1,621
.. 10,363
.. 2,652
.. 5,808
.. 38,304

Assets at 31 December 1933
The total accumulated funds amounted to £128,776,000, of which
approximately £126,590,000 was invested and the remainder was in
hand or at the bank.
III.—Widows', Orphans' and Old-Age Contributory Pensions
1.—Legal Basis.
Compulsory insurance for widows', orphans' and old-age pensions
was introduced by the Contributory Pensions Act, 1925, which was
amended in 1929 and again in 1932.

362

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

2.—Scope.
The scope of the contributory pension scheme is substantially
the same as that of the health insurance scheme.
Similar provision is made for excepting, in whole or in part, persons
the terms of whose employment secures to them and their dependants
pensions equivalent to all or certain of the pensions conferred under
the compulsory scheme. The approximate numbers of persons so
excepted on 31 December 1933 was 66,000 in respect of all pensions,
and 294,000 in respect of old-age pensions only. It is to be noted,
however, that a considerable proportion of these persons are voluntary
contributors to the contributory pensions scheme.
3.—Administration.
The scheme is administered by the Ministry of Health,
Department of Health for Scotland, and the Ministry of Labour
Northern Ireland, with the aid of the Post Office through which
pensions are paid, and of the approved mutual benefit societies
which insured persons belong), which collect contributions.

the
for
the
(to

4.—Financial Resources.
The scheme is financed by a joint contribution from the employer
and the insured person and by a State subsidy.
The joint contribution is payable weekly as follows :
—

Employer

Insured

Total

Man

Woman

In principle, the State pays the difference between expenditure
and contribution income; in particular, it pays the whole cost of
pensions granted in respect of risks which matured before the commencement of the scheme (4 January 1926). The whole cost of
pensions from the age of 70 upwards is charged to the funds voted
annually by Parliament under the non-contributory pension legislation.
5.—Benefits.
Widows' and orphans' pensions began to be paid on 4 January
1926, and old-age pensions on 2 January 1928. The normal provisions
of the scheme apply where the risks matured on or after the respective
dates, and the special provisions where they matured beforehand. A
person remains insured for pensions so long as he is insured for national
health benefits, i.e. (i) while he is insurably employed; (ii) during
incapacity for work; (iii) for life after attaining age 65; (iv) during
18-24 months after cessation of insurable employment, or after recovery from incapacity which commenced during such employment;
(v) during one year after expiry of period mentioned in (iv) if he proves

GREAT BRITAIN AND N O R T H E R N I R E L A N D

363

inability to obtain employment. Periods of insurance under the
health insurance scheme before the application of the contributory
pension scheme on 4 J a n u a r y 1926 count towards the fulfilment of
insurance conditions under the latter after t h a t date.
(a) Widows' and orphans' pensions.
Under the normal provisions, the risks covered are : death, on or
after 4 J a n u a r y 1926, of an insured m a n leaving a widow with or
without child, or an orphan, and death of an insured widow leaving an
orphan. I n order t h a t a pension m a y be payable, deceased must
have been insured for 104 weeks immediately before death, with
actual p a y m e n t of 104 contributions, and, if he or she had been insured
for 208 weeks, an average of 26 contributions a year (for which purpose
a weekly contribution is deemed to have been paid for each week of
incapacity or inability t o obtain employment) m u s t have been paid
during last three years. The rates of pensions are : to widow, 10s.
weekly until remarriage, plus 5s. for first child under 14 (or under 16,
if a t school) and 3s. for each other such child ; to orphans under 14
(or under 16, if at school), 7s. 6d. weekly each.
Under the special provisions, the risks covered are : death, before
4 Januar} 7 1926, of a m a n leaving widow or orphan, or of a widow
leaving orphan. I n order t h a t a pension m a y be payable, deceased
must have been a person whose normal occupation was such t h a t h e
or she would have been within the scope of the scheme at t h e time
of death (or, in the case of widows of 55, a t some time within the
three years prior to death) if it had then been in force. The rates of
pensions are the same as under the normal provisions. The widows'
pensions in these cases are only payable from age 55, unless on 4
J a n u a r y 1926 there was a child under the age of 14, in which case t h e
pension is payable from 4 J a n u a r y 1926 until t h e youngest child
attains t h e age of 16. I n this latter case, if the widow is then under
55, the title t o pension would revive when she reaches t h a t age.
If a widow is in receipt of a widow's pension on attaining age
70, her pension is replaced by an old-age pension of 10s. a week payable
for life, the whole cost being borne by the State.
(b) Old-age pensions.
Under t h e contributory pension scheme, old-age pensions are
payable from the age of 65. The cost of the pension payable after
age 70 is borne by the State.
Under the normal provisions, the risk covered is attainment of
age 65 after 2 J a n u a r y 1928 by insured person. I n order to be entitled to pension, t h e insured person must have been insured for five
years immediately before attaining age 65, 104 contributions must
have been actually paid, and an average of 39 contributions (for which
purpose a weekly contribution is deemed to have been paid for each
week of incapacity or inability to obtain employment) must have
been paid during last three years. In the case of insured persons
who were between the ages of 65 and 70 on 2 J a n u a r y 1928 pensions

364

INTERNATIONAL

SURVEY OF SOCIAL SERVICES,

1933

were granted from 2 January 1928, subject to the satisfaction of the
normal conditions. The rate of pension is 10s. weekly to insured
person, and the same amount becomes payable to the wife of an insured person when her husband becomes entitled to a pension, or, if
she is then under 65 years of age, when she attains that age.
Special provisions were made in the case of insured persons who
attained age 70 before 2 January 1928. Such persons were granted
old-age pensions from 4 July 1926, or, if they were then under 70, from
the 70th birthday, provided that they were continuously insured from
29 April 1925 to 4 July 1926 or to the 70th birthday, as the case might
be. The wives of these persons have also been granted old-age
pensions, provided that they are over 65 years of age. If they are
under 65, pension becomes payable when they attain that age.
6.—Statistics.
The statistics relate to Great Britain and Northern Ireland.
Number of insured at end of 1933 : 19,178,000.
The numbers of beneficiaries at 31 December 1933 were :
Widows
Children
65-70 pensioners

735,953
348,921
727,499

Total

1,812,373

To these should be added the insured persons, and the wives and
widows of such persons, who, being aged 70 and over, were, by virtue
of insurance, in receipt of old-age pensions at the cost of the State.
They numbered 861,624 on 31 March 1934.

INCOME

AND

EXPENDITURE

OF CONTRIBUTORY P E N S I O N
E N D E D 31 M A R C H
1934

FOK

YEAK

EXPENDITURE

INCOME

£0U0's
C o n t r i b u t i o n s of e m p l o y e r s a n d
insured
State subsidy1
R e v e n u e from investments ...
Total

SCHEUE

23,326
12.410
903
36,639

£000's
W i d o w s ' a n d o r p h a n s ' p e n s i o n s 23,139
O l d - a g e p e n s i o n s u p t o a g e 70 18,641
Cost of a d m i n i s t r a t i o n
...
1,273

Total

43,053

1
The cost of old-age pensions to insured persons from age 70 upwards, which is wholly
torne by the State, is included in the cost of non-contributory old-age pensions (see below).

Assets at 31 March 1933
The accumulated funds of the contributory pension scheme
amounted to £28,910,000, the whole of which was invested.

G R E A T B R I T A I N AND N O R T H E R N

365

IRELAND

IV.—Unemployment Insurance
A.—GREAT

BRITAIN

1.—Legal Basis.
During 1933 unemployment insurance was governed by the
Unemployment Insurance Acts, 1920-1933, and the Unemployment
Insurance (National Economy) Orders (No. 1 and No. 2), 1931. The
following paragraphs relate to the year under review.1
2.—Scope.
With certain exceptions insurance is compulsory for all persons
between the ages of 16 2 and 65 who are employed under a contract of
service or apprenticeship.
The principal exceptions are (1) persons employed in agriculture,
horticulture and forestry; (2) private domestic servants; (3) persons
in employment of a permanent character under a public or local
authority, a railway company or a public utility company, and (4)
non-manual workers whose rate of remuneration exceeds £250 a year.
3.—Administration.
The scheme is administered by the Ministry of Labour through its
local employment exchanges (in some areas the administration and
control of unemployment insurance in respect of persons under 18 is
undertaken by the local education authorities). Certain trade unions
assist in the administration of benefit to their members. Boards
representing the banking and insurance industries administer separate
schemes for these industries.
4.—Financial Resources.
An Unemployment Fund is established under the control and management of the Minister of Labour, into which are paid all contributions
and out of which are paid all benefits. Contributions are paid by
employers, employed persons and the State. Under the Unemployment Insurance (National Economy) (No. 1) Order, 1931, the weekly
rates of contributions were increased and were as follows :
W E E K L Y CONTKIBUTICWS nsr P E N C E

State
Men aged 21 and under 65
Young men aged 18 and under 21
Boys aged 16 and under 18
Women aged 21 and under 65
Young women aged 18 and under 21
Girls aged 16 and under 18

10
9
.5
9
8

Employer
10
9
5
9
8
4J

Insured
10
9
5
9
8

In 1931 it was decided that there should be no further borrowing
by the Unemployment Fund, beyond the limit of £115 millions fixed
1
2

The Unemployment Act, 1934, made important alterations in the scheme.
The Unemployment Act, 1934, lowered the age of entry into insurance.

366

INTEBKATIONAL SURVEY OF SOCIAL SEBVICES, 1 9 3 3

by legislation then in force, but that any money required to balance the
Insurance Account should be provided by means of deficiency grants
from the Exchequer.
5.—Benefits.
Before any benefit can be granted, certain statutory conditions
must be fulfilled, and the claimant must be free from certain statutory
disqualifications.
The chief statutory conditions are that (1) 30 contributions must
have been paid within the two years previous to the date of claim ;
(2) the claimant must be unemployed and capable of and available for
work. Special conditions apply in the case of claims by certain classes
of workers, notably married women and seasonal workers.
Disqualification for benefit arises in cases where employment was
lost through a trade dispute; and benefit is refused for a period not
exceeding six weeks in cases where employment was lost through
misconduct or was left voluntarily without just cause, or where an
offer of suitable employment was refused without good cause. Failure
to attend a training course as required may also result in disqualification.
Benefit is not payable in respect of the first six days of any
" continuous " period of unemployment, any three days' unemployment in any six counting as continuous and linking up with any
similar three days not separated by a gap of more than ten weeks.
The maximum period during which benefit is granted is 156 days in a
benefit year. Insured persons who have exhausted their rights to benefit
are not entitled to benefit in a subsequent year until they have paid at
least ten further contributions.
Under the Unemployment Insurance (National Economy) (No. 1)
Order, 1931, a reduction of about 10 per cent, was made in the rates of
weekly benefit (except for dependent children), and these rates were
as follows :l
Men aged 21 and under 65
Young men aged 18 and under 21
Boys aged 17 and under 18 ...
Boys under 1 7 . . .
Women aged 21 and under 65
Young women aged 18 and under 21
Girls aged 17 and under 18 ...
Girls under 1 7 . . .
Dependants' benefit :
For an adult dependant
For a dependent child

•eekh • rate
s. it.

15 3
12 6
8 0
5 6
13 6
10 9
6 9
4 6
8
2

0
0

Young men and women aged 18 and under 21 who receive additional
benefit for a dependant are entitled to receive the adult rates as well as
the dependant's allowance.
6.—Statistics.
Estimated number of insured, December 1933
ding 150,000 under special schemes).
1

12,653,000 (inclu-

These rates were changed by the Unemployment Act, 1934.

GREAT B R I T A I N A N D N O R T H E R N

INCOME

IRELAND

367

AND E X P E N D I T U R E OF T H E UNEMPLOYMENT F U N D FROM 1 JANUARY
1933 TO 31 DECEMBER 1933
Insurance
INCOME

Account
EXPENDITURE

£000's
Contributions from employers
and employed persons
39,271
19,583
Contributions from State
22
Other receipts . . .
Deficiency g r a n t from
Exchequer for period I J a n u a r v
2,584
1933 t o 31 March 1933
Total

61,460

£000's
U n e m p l o y m e n t benefit
43,182
C o s t of a d m i n i s t r a t i o n
3,780
Interest on Treasury advances
5,389
Other payments a n d refunds...
240
S u r p l u s f o r p e r i o d 1 A p r i l 1933
t o 31 D e c e m b e r 1933
8,869

Total

61,460

Note.—Treasury
advances amounting to £4,070,000 were repaid out of t h e
above-mentioned surplus, leaving t h e debt outstanding a t 31 December 1933
a t £110,930,000.
B.—NORTHERN

IRELAND

Changes in the unemployment insurance scheme corresponding to
those made in Great Britain under the National Economy Act, 1931,
were also made in Northern Ireland in the same year, and the systems
in the two countries remain substantially the same. The only difference of importance is that in Northern Ireland there is a residence test :
subject to certain exceptions a person must have been resident 1 for
three years in Great Britain or Northern Ireland before benefit is
payable.
Statistics.
INCOME AND E X P E N D I T U R E OF THE UNEMPLOYMENT F U N D FROM 1 A P R I L 1932
TO 31 MARCH 1933
Insurance
Account
EXPENDITURE

INCOME

£000's
C o n t r i b u t i o n s from e m p l o y e r s
and insured persons...
C o n t r i b u t i o n s from S t a t e
Deficiency g r a n t
Equalisation payment
R e c o v e r y o f benefit p a i d i n
error
B a l a n c e o n 31 M a r c h 1933 ...
Total

704
372
138
506
2
2,553
4,275

Deficit b a l a n c e o n 1 A p r i l 1 9 3 :
Benefit
Refunds
G r a n t s t o w a r d s courses of in
struction
Administrative expenses
I n t e r e s t on Treasury advances

Total

£000's
2,553
1,380
1
2
105
234

4,275

V.—Voluntary Social Insurance
1.—Legal Basis.
The encouragement of voluntary social insurance by the State was
initiated by the Friendly Societies Act of 1793, whose provisions have
been extended and modified in many subsequent enactments. The
existing legislation is contained in the Friendly Societies Acts, 1896 to
1

E x t e n d e d to five years by Unemployment Act (Northern Ireland) 1934.

368

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

1929. Other Acts under which institutions engaged in voluntary
social insurance are registered or regulated and required to render to
the State an account of their transactions are :
Superannuation and Other Trust Funds (Validation) Act, 1927, and the
Superannuation and Other Trust Funds (Validation) Act (Northern
Ireland) 1928.
Trade Unions Acts, 1871 to 1927. and the Trade Unions Acts (Northern
Ireland) 1871 to 1927.
Shop Clubs Act, 1902.
Industrial and Provident Societies Acts, 1893 to 1928. and the Industrial
and Provident Societies Acts (Northern Ireland) 1893 to 1929.

In addition to these Acts there are many private Acts conferring
powers on local and other authorities to undertake various public
utility services. Frequently these Acts also embody regulations for
the conduct of schemes of social insurance, notably superannuation
schemes, in which the authorities are associated with their employees.
In a few instances the schemes are also registered as Friendly Societies
and so fall within the scope of the statistics of voluntary insurance.
2.—Scope.
The groups of institutions here considered as within the scope of
social insurance are those which, in the main, serve the needs of the
wage-earning classes. Some institutions included draw their membership from a wider field and some are conducted solely for the benefit of
persons outside the wage-earning classes, e.g., members of a profession.
3.—Insurance Institutions.
(a) Friendly societies by voluntary subscriptions of their members
provide for a wide range of benefits. Registration is not compulsory
and there are many unregistered friendly societies and kindred
associations whose operations are not covered by any statistics.
For example, numerous schemes (not separately registered) are
carried on by registered societies such as co-operative trading societies
and building societies covering such objects as superannuation, death
benefits and sickness pay. In some cases the operations thus conducted
are very considerable although in the main confined to members of the
respective staffs.
No figures with regard to these unregistered societies are included
in the statistics given below.
Registered friendly societies for the most part conduct their
insurance on an accumulating system and are periodically valued on
an actuarial basis. They can, however, adopt other methods and there
is a very wide variety of practice among societies as a whole.
(b) Trade unions provide similar benefits to those of friendly
societies and also unemployment benefit. They accumulate funds,
though usually without regard to their actuarial sufficiency. The
legislation does not provide for any regulation of the administration of
benefits.
(c) Some societies registered under the Friendly Societies Acts, by
virtue of a special authority, are allowed to include unemployment
insurance among their benefits.

GREAT BRITATN AND NORTHERN IRELAND

369

(d) Shop Clubs. In these institutions the employers are associated
with their employees. Their essential feature is that membership of
the shop club is made a condition of employment. They are required
to be registered under the Friendly Societies Acts.
(e) Superannuation Trust Funds. Funds registered under the
Superannuation and Other Trust Funds (Validation) Act, 1927, may
provide superannuation allowance, on retirement from employment,
widows' pensions and orphans' relief, and sums on death in respect of
employees of an undertaking or combination of undertakings. The
employers must be contributories to a fund, and every fund must
submit to periodical actuarial valuation.
(f) Workmen's Compensation Schemes. Under the Workmen's
Compensation Act, 1925, employers by agreement with their workpeople may contract out of the provisions of the Act under Schemes
which are certified by the Registrar as being at least as favourable to
the workpeople as the provisions of the Act.
4.—Financial Resources.
Voluntary insurance is financed by the subscriptions of the members,
supplemented in some institutions by contributions from employers,
or donations and bequests from persons interested in the welfare of the
institutions. In the case of trade unions, friendly societies granting
unemployment benefit and medical aid societies subsidies are received
from the State.
It is impossible to give rates of contributions for voluntary insurance
owing to the varying methods of insurance adopted in different
institutions, and the wide variety in the amount and scope of the
benefits insured.
5.—Benefits.
The benefits which may be insured by friendly societies, as
enumerated in the Friendly Societies Act, are :
(a) The relief or maintenance of the members, their husbands,
wives, children, fathers, mothers, brothers or sisters, nephews or
nieces, or wards being orphans, during sickness or other infirmity,
whether bodily or mental, in old age (which shall mean any age
after fifty) or in widowhood, or for the relief or maintenance of
the orphan children of members during minority ; or
(6) insuring money to be paid on the birth of a member's child, or
on the death of a member, or for the funeral expenses of the
husband, wife, or child of a member,1 or of the widow of a
deceased member, or, as respects persons of the Jewish persuasion, for the payment of a sum of money during the period
of confined mourning ; or
(c) the relief or maintenance of the members when on travel in
search of employment, or when in distressed circumstances, or
in case of shipwreck or loss or damage of or to boats or nets ; or
1
Subsequently extended b y Industrial Assurance and Friendly
Act, 1929.

Q 12973

Societies
Aa

370

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

{d) the endowment of members or nominees of members at anv
age; or
(e) the insurance against fire, to any amount not exceeding £15,
of the tools or implements of the trade or calling of the member ;
or
(/) guaranteeing the performance of their duties by officers and
servants of the society or any branch thereof.
No friendly society, however, which contracts with any person for
the assurance of an annuity exceeding £50 per annum, or of a gross sum
exceeding £200, may be registered under this Act.
In addition to the statutory benefits a special authority of the
Treasury permits of the insurance of unemployment benefit.
The benefits most commonly insured by friendly societies are
sickness and death benefits, but some of the other statutory benefits
are undertaken by a large number of societies and most of them are
undertaken by some societies.
Trade unions and shop clubs commonly include in their objects
provision for a similar range of benefits to those insured by friendly
societies. Some trade unions undertake no forms of social insurance.
The benefits undertaken by superannuation trust funds and
workmen's compensation schemes need no explanation.
For reasons already stated it is not possible to state the rates of the
various benefits.
6.—Statistics for 1933.
The summary below relating to voluntary social insurance covers
the operations of registered friendly societies (including societies
insuring unemployment benefit), superannuation trust funds, trade
unions, shop clubs, and workmen's compensation schemes.
The information in the main relates to the year 1933. In the case
of registered friendly societies, however, no recent figures are available
in respect of income and cost of administration, e.g., for contributions of
insured and employers it has been necessary to use figures for 1926.
" Public subsidies " represent amounts which are recoverable from
State schemes of insurance, but when expended are merged with
expenditure of the institutions from their voluntary funds. This
occurs in trade unions, societies registered under the Friendly Societies
Acts which insure unemployment benefit, and medical aid societies.
The contribution income includes an amount, small relatively to the
total figures, which represents a transference of State insurance funds
for provision of additional benefits, e.g., dental treatment in a centralised
institution formed by institutions administering State insurance
benefits.
The total number insured represents insurances and not persons,
as a result of multiple insurances in respect of a single individual in
one or more institutions. In the case of superannuation trust funds
(for which contributions of employees were £1,400,000 and accumulated
funds £55,400,000) no figures have been included as the number of
assurances is not known and there is no basis for estimating it.

371

GREAT BRITAIN AND NORTHERN IRELAND

Summary of Operations of Voluntary Social Insurance Institutions
Number of assurances : 11,300,000.
IKCOME AND E X P E N D I T U R E OF VOLUNTARY SOCIAL INSURANCE INSTITUTIONS
EXPENDITURE

REVENUE

Contributions of insured
Contributions of employers
Public subsidies
Revenue from investments

£000's
.. 17,666
..
2,959
.. 4,094
..
6,718

31,437

Total

£000's

Cash benefits :
Sickness
Death and funeral ...
Unemployment
Other benefits ...
Cost of administration

..
..
..
..
..

Total

Accumulated Funds :

6,219
1,809
5,062
7,477
4,119
24,686

£193,000,000.

VI.—Social Charges on behalf of Postal Workers
There were included in the British State Budget sums enabling the
following payments to be made between 1 April 1933 and 31 March
1934 by way of pensions, medical aid, sick leave with pay, and accident
pay to employees or pensioned ex-employees of the British General
Post Office :
£

Pensions
Medical aid
Siek leave with pay
Accident pay
Total

3,975,000
65,000
925,000
23,000
4,988,000

The number of employees and pensioned ex-employees of the
General Post Office at 31 March 1934 was approximately 230,000.

THIRD

PART

SOCIAL ASSISTANCE
I.—Non-Contributory Old-Age and Blind Pensions
A.—GENERAL

SCHEME

1.—Legal Basis.
Non-contributory pensions were instituted by the Old-Age Pensions
Act, 1908, which was amended in 1911, 1919, 1920 (blind pensions),
1924, 1925 and 1929, and in Northern Ireland in 1927.
2.—Beneficiaries.
In order to be eligible for a non-contributory pension, a person
must be a British subject, have resided in the United Kingdom for
12 out of the 20 years previous to the pensionable age, and must not
Aa 2

372

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

possess yearly means exceeding £49 17s. 6d. (excluding the first £39 of
unearned yearly means).
If a person has been in receipt of a pension up to the age of 70
under the Contributory Pensions Act, he is eligible for a pension from
the age of 70 at the full rate under the Old-Age Pensions Act, whether
he fulfils the above-mentioned conditions or not.
3.—Administration.
Responsibility for the administration of the scheme is shared
between the Central Departments (Treasury, Ministry of Health,
Department of Health for Scotland, Ministry of Labour for Northern
Ireland and the Post Office) and local pension committees (appointed
by local authorities). Local officers of the Treasury investigate the
means of claimants. Pension committees decide claims. The Minister
of Health in the case of claimants in England and Wales and the
Department of Health for Scotland in the case of claimants in Scotland,
hear appeals from the decisions of the pension committees. In
Northern Ireland the claims are investigated and decided by officers
of the Ministry of Labour, subject to right of appeal to local pension
courts, and further in certain cases to an umpire. The Post Office
effects payment of the pensions in all the countries.
4.—Financial Eesources.
The sums necessary to meet the cost of non-contributory pensions
are voted annually by Parliament.
5.—Benefits.
The scheme covers the risks of old age and blindness. The pensionable age is 70 for the aged and 50 for the blind.
The rate of pension varies according to the means of the claimant,
as follows :
Where the yearly means (excluding the first £39 of unearned
yearly means) do not exceed :
Weekly
pension
£26 5s.

...
£

Exceed 26
31
36
42
47
49

10
s. d.'

5
10
15
0
5
17

£ ¿'

0 but not 31 10 0
36 15 0
0
42 0 0
0
47 5 0
0
49 17 6
0
6

8
6
4
2
1
0

6.—Statistics.
The statistics relate to Great Britain and Northern Ireland.
Number of pensioners at 31 March 1934 : 1,636,519, of whom
861,624 were entitled, under the Contributory Pensions Act by reason
of insurance, to non-contributory old-age pensions unconditionally.
The total cost of pensions in the year ended 31 March 1934 was
£41,703,000, whereof £21,145,000 was for persons entitled under the
Contributory Pensions Act by reason of insurance.

GREAT BRITAIN AND NORTHERN IRELAND
B.—SEAMEN'S

373

SPECIAL SCHEME

1.—Legal Basis.
Under section 64 of the National Health Insurance Act, 1924,
as amended by the National Health Insurance Act, 1928, and section 39
of the Unemployment Insurance Act, 1920, provision is made whereby
the health and unemployment insurance contributions paid by
employers in respect of those seamen employed by them who are
neither domiciled nor have a place of residence in the United Kingdom,
are credited to the Seamen's Special Fund, to be used for the provision
of benefits for seamen, including pensions for seamen with long sea
service.
2.—Beneficiaries.
Seamen domiciled in Great Britain or Northern Ireland who are
natural born or naturalised British subjects and have long sea service
in the British Mercantile Marine or in the British Sea Fishing Service
are eligible for pensions under the scheme for the administration of the
benefits of the Fund.
3.—Administration.
The Fund is administered by a Governing Body composed of
representatives of shipowners and of insured seamen.
4.—Financial Resources.
As indicated above the income of the Fund is derived from the
health and unemployment insurance contributions compulsorily
payable (employers' portion only) in respect of seamen who are
domiciled outside Great Britain.
5.—Benefits.
The Fund provides pensions for men of the age of sixty-five or over
(fifty in the case of blind persons) with long sea service, at the rate of
Ös. a week (or 10s. if the pensioner is under seventy and is not entitled
to a pension under the Contributory Pensions Acts or the Blind Persons
Act).
The number of new pensions granted in any year is determined by
the Governing Body and depends on the number of applicants and the
position of the Fund.
An applicant is required to satisfy the Governing Body that his
income from all sources does not exceed £2 a week.
6.—Statistics.
The number of pensioners at 31 December 1933 was approximately
7,600.
INCOME AND EXPENDITTHIE OF SEAMEN'S SPECIAL F U N D F O E 1 9 3 3
INCOME

ExPENDITUBE
£

Contributions of employers :
Health insurance ...
... 9,000
Unemployment insurance... 66,100
Interest of investments, etc.... 50,000
Total revenue

... 125,100

Pensions
103,100
Grants to various institutions
for benefit of seamen
...
900
Administration
...
... 5,200
Total expenditure ... 109,200

374

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

Assets at 31 December 1933
The amount of the Fund at 31 December 1933 was £1,125,000, of
which £1,100,000 was invested and the remainder was in hand or at
the bank.

n.—Unemployment Assistance
A.—CHEAT

BEHAUST

1.—Legal Basis.
State assistance for the unemployed is provided under the
transitional payments scheme, which came into operation in pursuance
of the Unemployment Insurance (National Economy) (No. 2) Order,
1931.1
The needs of persons who are destitute and who are ineligible
to receive assistance under the unemployment insurance and transitional payments schemes, or in whose case such assistance is inadequate,
are relieved by local authorities out of the rates (Poor Law).
2.—Scope.
Transitional payments may be made to an unemployed insured
person who is not entitled to claim insurance benefit either because
he has exhausted his rights, or because he has not paid the
necessary contributions, provided (1) that 8 or more contributions
have been paid in respect of him in the preceding two years, or 30
contributions at any time, (2) that he is normally employed in, and
will normally seek to obtain his livelihood by means of, insurable
employment, (3) that he is eighteen years of age or over and (4) that his
circumstances are such that while unemployed he is in need of assistance by way of transitional payments. Disqualifications are the same
as in the unemployment insurance scheme. Applicants are required
to prove unemployment at the local employment exchanges.
3.—Administration.
The scheme is administered by the Ministry of Labour in co-operation with the local authorities.
4.—Financial Resources.
Payments are made out of the Unemployment Fund, which is
reimbursed, both in respect of the payments made and of administrative
expenses, out of moneys provided by Parliament.
5.—Benefits.
The amount of transitional payments granted an applicant is
fixed by the public assistance committee of the local authority, who
are required to make such enquiries and otherwise deal with the case
as if they were estimating the need of an unemployed able-bodied
person who had applied for public assistance (Poor Law), but as if
such assistance could only be given in money, but in no case may
they fix a rate in excess of the benefit rate appropriate to the applicant.
1
The scheme has since been replaced b y a new scheme under the Unemployment Act, 1934.

GREAT B R I T A I N A N D N O R T H E R N

375

IRELAND

When the scheme first came into operation all means available in his
household for the support of an applicant and his dependants might
be taken into consideration save for two minor exceptions provided
for under Poor Law, but under the Transitional Payments (Determination of Need) Act which became law in November 1932, further
statutory exceptions were made which, while permissive under Poor
Law, are obligatory under the transitional payments scheme.
6.—Statistics.
Estimated number of persons covered by the scheme, December
1933 : 12,653,000.
INCOME AND E X P E N D I T U R E OF THE UNEMPLOYMENT F U N D IKOM 1 JANUARY- 1933
TO 31 D E C E M B E R 1933

Transitional Payments

Account

INCOME

EXPENDITURE
£000's

Exchequer grant

...

... 54,399

Total

£000'a

Transitional payments
Administrative expenses

54,399

B.—NORTHERN

... 50,526
... 3,873

Total

54,399

IRELAND

The transitional payments scheme in Northern Ireland is substantially the same as in Great Britain.
Statistics.
INCOME AND E X P E N D I T U R E OP THE UNEMPLOYMENT F U N D FROM 1 A P R I L 1932
TO 31 MARCH 1933

Transitional Payments
INCOME

Account
EXPENDITURE

£000's

Exchequer grant
Total

...

899
899

£000's

Transitional payments
Administrative expenses
Total

...
...

827
72
899

III.—Poor Law Service
I t will be most convenient to set out the provisions for each country
separately, but the statistics of working have been combined.
A.—ENGLAND

AND WALES

1.—Legal Basis.
The Poor Law Statutes, beginning with an Act of 1601, were
consolidated by the Poor Law Act, 1927, now replaced by the Poor
Law Act, 1930, which incorporates the changes made by the Local
Government Act, 1929. The latter Act transferred, as from 1 April
1930, poor law functions from boards of guardians, who were bodies
elected ad hoc, to the councils of counties and county boroughs.

376

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

2.—Beneficiaries.
I t is the duty of the poor law authority to relieve the needs of
every person in their area, irrespective of nationality, who is destitute,
that is to say, without resources adequate to provide himself and his
dependants with food, clothing, shelter or medical treatment.
3.—Administration.
The Minister of Health, as the Central Authority, is charged by
statute with the direction and control of all matters relating to the
administration of rehef to the poor throughout England and Wales.
As indicated above, the service is now administered locally by the
councils of counties and county boroughs.
4.—Financial Resources.
The main source of the income from which the expenses of the
service are met is taxation levied locally. The Government grant
formerly paid in aid of poor law expenditure ceased to be payable in
respect of any period after 31 March 1930, and was then merged in
an annual block grant, amounting to about £45,000,000. This grant
is ' applicable towards local government expenses as a whole, and
cannot be apportioned to individual services. Accordingly the
expenditure on the poor law service which fell on central taxation and
the expenditure which fell on local taxation cannot be separately
stated.
Local authorities have powers of recovering the cost of relief from
liable relatives and in certain events from the person relieved, according
to ability to pay.
5.—Benefits.
The risk covered is destitution, as defined in paragraph 2 above.
The relief afforded may be in-door relief in an institution maintained
by the poor law authority, out-door relief in the applicant's home, or
in the case of certain classes of children rehef by boarding-out with
foster parents.
Out-door relief may be either in money or in kind, or partly in
one and partly in the other or may take the form of medical treatment.
As regards able-bodied men, arrangements must be made, as far as
practicable, for setting them to work or for training and instructing
them, as a condition of the grant of relief.
The discretion as to the form and amount of relief to be given in
any case rests with the poor law authority. In determining whether
destitution exists, and the extent and nature of rehef required, the
authority is bound to take into account income and means from every
source available to the household of the applicant, subject to certain
statutory exceptions, which include the first 5s. of friendly society
sickness benefit and the first 7s. 6d. of National Health Insurance
benefit. The authority has also the option of making certain further
exceptions relating to disability pensions, workmen's compensation,
and money and investments.
Alternative specialised forms of assistance, mainly institutional,
are also available to the local authority under the Public Health Acts

GREAT B R I T A I N AND NORTHERN

IRELAND

377

and. other Acts but, except in so far as an authority has by formal
declaration bound itself to provide a particular service under the alternative Act and not under the Poor Law Act, the Poor Law service
remains the final resort for all whose needs have not been met by other
means. The expenditure on these alternative forms of institutional
assistance is included in the statistics of working of the Institutional
Treatment of Disease or of Maternity and Child Welfare.
B.—SCOTLAND

1.—Legal Basis.
The permanent basis of the Scottish Poor Law is derived from a
Statute passed in 1579. The present system of poor law administration
is based mainly on the Poor Law (Scotland) Act, 1845. Poor law
authorities in Scotland had no power to relieve able-bodied persons
until 1921. In this respect the Scottish Poor Laws differed fundamentally from the English system. The temporary legislation which
legalised relief to the able-bodied was still in force in 1933.
2.—Beneficiaries.
The qualification for relief is destitution and, in the case of the
able-bodied, destitution must be accompanied by inabüity to obtain
employment. The destitute dependants of an able-bodied person who
is out of employment owing to his being directly involved in a trade
dispute are also entitled to relief. An applicant who is refused all
relief has a right to appeal to the Sheriff of the county.
3.—Administration.
The Central Department charged with the direction and control
of poor law administration is the Department of Health for Scotland.
The service is now administered locally by county councils and the
town councils of burghs whose population is 20,000 or more.
4.—Financial Resources.
The main source of income from which the expense of the service is
met is taxation levied locally. The Government grant formerly paid
in aid of poor law expenditure ceased to be payable in respect of any
period after 15 May 1930, and was then merged in an annual block
grant amounting to more than £6,000,000. This grant is applicable
towards local government expenses as a whole and cannot be apportioned to nidividual services. Accordingly the expenditure on the
poor law service which fell on central taxation and the expenditure
which fell on local taxation cannot be separately stated.
The poor law authorities recover from such relatives as are liable,
according to their means, the cost of relief given to any poor person.
In Scotland relief cannot be recovered from the beneficiary himself
if he subsequently becomes possessed of means.
5.—Benefits.
Relief is afforded to unemployed able-bodied adults and their
dependants, aged and infirm persons, widows and deserted wives and
their dependants, orphan and deserted children, children separated from

378

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

their parents, sick persons and their dependants—in all these cases in
so far as other resources are not available or are insufficient.
The relief comprises the provision of the means of subsistence,
usually by a money payment, and the medical treatment of general
sickness. Relief must be adequate and a dissatisfied applicant may
complain to the Central Department.
Institutional relief comprises the maintenance of adults in poorhouses and the treatment in poorhouse hospitals of poor persons
requiring hospital treatment for general sickness. This latter service
will ultimately be provided in public health institutions as part of a
general hospital service.
Orphan and deserted children and children separated from their
parents requiring poor relief are in Scotland as a rule boarded with
selected guardians, generally in country districts and not in institutions.
Domiciliary relief may be given in money or in kind, or both, or it
may take the form of medical aid only. Medical treatment is available
for those entitled to relief and for their dependants. An able-bodied
applicant for relief may be required to perform work as a condition
of receiving relief if the authority considers it expedient so to require
in the particular case ; but a general requirement that all applicants
should perform work would not be in order. The extent of the relief
given depends on the degree of destitution, and in determining the
amount of relief necessary, all means available for the support of an
applicant and his dependants must be taken into consideration,
subject to certain statutory exceptions which include the first 5s. of
sick pay from a friendly society or trade union, the first 7s. 6d. of
national health insurance benefit, and the first 20s. of a wounds or
disability pension. These sums must be disregarded. The authority
has also the option of making further exceptions relating to workmen's
compensation and money and investments.
C.—NORTHERN IRELAND

1.—Legal Basis.
The poor law service in Northern Ireland is based on the Poor Relief
(Ireland) Act, 1838, which, however, has been amended by several
later Acts, the principal of which are the Poor Relief (Ireland) Act,
1847, the Medical Charities (Ireland) Act, 1851, the Poor Relief (Ireland) Act, 1862, the Local Government (Ireland) Act, 1898, and the
Poor Relief (Exceptional Distress) Act (Northern Ireland), 1928.
2.—Beneficiaries.
All destitute persons are entitled to relief in the workhouse. Certain
classes of persons, e.g., the aged, those disabled for work by illness, and
widows with two or more dependent children, may be granted relief
in their own homes; but able-bodied persons can be relieved in the
workhouse only, provided there is room, unless a state of exceptional
distress' exists, when outdoor (or home) relief may be permitted for
limited periods.

379

OßEAT BMTAIN AND NORTHERN IRELAND

All poor persons (as distinguished from destitute persons) are
entitled to free medical treatment either at home or in a hospital
provided by the poor law authority.
3.—Administration.
The Central Department which has the duty of supervising the
entire administration of the poor law services is the Ministry of Home
Affairs. They are administered locally by boards of guardians specially
elected for the purpose.
4.—Financial Resources.
The cost is met in the first instance from rates levied locally ; but
substantial grants in aid are given by the Government.
The cost of any relief given can be recovered from the recipient or
from those legally liable to support him if they are in a position to
pay.
5.—Benefits.
The poor law authorities are responsible for the relief of all destitute
persons ; also for providing medical relief for persons who, although
not actually destitute, are poor.
In recent years other forms of assistance have been made available,
e.g., health and unemployment insurance, and special schemes for
tuberculosis and maternity and child welfare. These have reduced
very largely the number of persons seeking aid from the poor law
authorities, but the latter are still in the last resort responsible for
seeing that all destitute persons are relieved.
The assistance may be given either by maintenance in a workhouse
or other suitable institution or by relief in money or in kind. See
paragraph 2.
D.—ENGLAND

AND WALES, SCOTLAND, AND NOBTHERN IRELAND

Statistics.
Number of persons in receipt of poor relief in January 1934, excluding rate-aided patients in mental hospitals : 1,760,000.
INCOME AND E X P E N D I T U R E OF P O O B L A W SEEVICE SOU
INCOME

£000's
Central and local taxation
36,064
Receipts from boneficiaries and
relatives
1,593
Other income ...
776
Total

38,433

1933

EXPENDITURE
£000's

Total expenditure (including
central departmental administration) 1
38,433
Total

38,433

1
Including approximately £14,250,000 for institutional relief and £21,380,000 for domiciliary
relief. The expenditure of poor law authorities on the maintenance of rate-aided patients in
mental hospitals is excluded from this total, and included in the Statistics for the Lunacy Service.

Note.—The expenditure excludes capital expenditure, but includes the
annual charges in respect of loans.

380

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

IV.—Institutional Treatment of Disease
I t will be most convenient to set out the provisions for each country
separately, but the statistics of working have been combined.
A.—ENGLAND

AND WALES

1.—Legal Basis.
The institutional treatment of disease by local authorities is
afforded under the Public Health Act, 1875, as extended by the Local
Government Act, 1929, and under the Poor Law Act, 1930.
Under the Poor Law Act the provision of any necessary hospital
treatment for destitute persons is incumbent upon the poor law authorities. Prior to the Local Government Act, 1929, these duties were
discharged by ad hoc authorities, but by the Act of 1929 the duties
of these authorities were transferred to county councils and county
borough councils. The statistics relating to the institutional treatment of disease under the Poor Law Act are included in those given
above for Poor Relief.
The general provision of hospitals for infectious diseases by local
authorities other than poor law authorities commenced in 1866, of
special institutions for tuberculosis in 1912, and of special institutions
for venereal disease in 1916. Under the Public Health (Tuberculosis)
Act, 1921, a comprehensive tuberculosis service was established.
2.—Beneficiaries.
The services which provide institutional treatment under the Poor
Law are available for necessitous persons. The services provided
under the Public Health Act are available to all the sick inhabitants
of the district, whether necessitous or not.
3.—Administration.
The Central Department charged with the general supervision of
these services is the Ministry of Health.
The provision of institutional treatment for infectious diseases
and for general diseases may legally be made under the Public Health
Act, 1875, by the councils of county boroughs, municipal boroughs and
urban and rural districts, and, by the Local Government Act, 1929,
these powers were extended to county councils. Services for the institutional treatment of infectious diseases are usually administered by
the councils of county boroughs, non-county boroughs and urban and
rural districts or by joint committees of such authorities. The special
provision made for tuberculosis and venereal disease under the scheme
referred to in paragraph 1 is made by the councils of counties and
county boroughs. The provision for general disease, while it can
legally be made under the Public Health Act by councils of non-county
boroughs and urban and rural districts, as well as by councils of
counties and county boroughs, is in practice left to the councils of
counties and county boroughs.

GREAT BRITAIN AND N O R T H E R N

IRELAND

381

4.—Financial Resources.
Contributions towards the cost of their treatment (except for
venereal disease) are usually required from patients who are able to
pay, or from their relatives. The remainder of the cost of the institutional treatment of disease is met largely out of local taxation. The
Government grants formerly paid in aid of the treatment of tuberculosis and venereal disease ceased to be payable in respect of any period
after 31 March 1930, and were then merged in an annual block grant
amounting to about £45,000,000. This grant is applicable towards
local government expenses as a whole, and cannot be apportioned to
individual services. Accordingly the expenditure on this service
which fell on central taxation and the expenditure which fell on local
taxation cannot be separately stated.
5.—Benefits.
Treatment in an isolation hospital is provided for persons suffering
from infectious diseases, e.g., smallpox, diphtheria, scarlet fever,
enteric fever.
The treatment of venereal disease is undertaken mainly at special
dispensaries, which are commonly established at general hospitals ;
hospital treatment is also provided where necessary.
For tuberculosis, treatment is afforded at special dispensaries,
sanatoria, hospitals, and colonies, provided either directly by local
authorities or through voluntary associations.
The institutions now available for use as municipal general hospitals
consist mainly of the infirmaries of the former poor law authorities
which have been transferred to the councils of counties and county
boroughs, and as opportunities permit are being appropriated for use
as public general hospitals. They supplement the system of voluntary
hospitals.
B.—SCOTLAND

1.—Legal Basis.
The statutory hospital facilities in Scotland are provided under
the following Acts :
(1) Public Health (Scotland) Act, 1897—infectious diseases,
including tuberculosis and venereal diseases ;
(2) Poor Law (Scotland) Amendment Act, 1845—sick poor ;
(3) Local Government (Scotland) Act, 1929—general sick.
Note.—The powers under (3) are permissive. Hospital treatment
for the general sick is afforded mainly by voluntary agencies.
2.—Beneficiaries.
As in England and Wales.
3.—Administration.
The statutory hospital authorities are the county councils and the
town councils of large burghs, i.e., burghs with a population of
20,000 and over.

382

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

4.—Financial Resources.
Scottish local authorities arc empowered to recover the cost of
maintenance and treatment from patients or their relatives—excepting
those treated under the Public Health (Scotland) Act, 1897, i.e.,
those suffering from infectious diseases, including tuberculosis and
venereal diseases. The remaining cost is met largely out of local
taxation. The Government grants formerly paid in aid of the treatment of tuberculosis and venereal disease ceased to be payable in
respect of any period after 15 May 1930, and were then merged in an
annual block grant amounting to more than £6,000,000. This grant
is applicable towards local government expenses as a whole and
cannot be apportioned to individual services. Accordingly the
expenditure on this service which fell on central taxation and the
expenditure which fell on local taxation cannot be separately stated.
5.—Benefits.
In Scotland, many diseases other than those mentioned for England
and Wales are treated in infectious diseases hospitals, e.g., pneumonia,
erysipelas, measles, chickenpox and whooping-cough.
Local authorities are not converting all former poor law institutions
into general hospitals—some propose to use surplus infectious diseases
hospitals for this purpose.
C.—NOBTHBUN IRELAND

1.—Legal Basis.
The institutional treatment of disease (other than mental disorder)
is afforded under several sets of legal provisions.
County infirmaries for the treatment of all forms of disease were
established under the County Infirmaries (Ireland) Act, 1765, and
the administration of these infirmaries was modified by the Local
Government Acts, 1898-1923.
Union infirmaries and district hospitals, which also are concerned
with general diseases, and fever hospitals were set up under the Poor
Relief Acts, 1838-1928, and the Local Government (Ireland) Act,
1898.
The Medical Charities Act, 1851, established a system of dispensaries, whereby poor persons could receive free medical attention
without being admitted to the workhouse.
The Public Health (Ireland) Act, 1878, enabled sanitary authorities,
with the approval of the Local Government Board, to provide hospital
accommodation.
Treatment for tuberculosis is provided under the Tuberculosis
Prevention (Ireland) Act, 1908, whereby public sanatoria have been
established.
Schemes for the treatment of venereal diseases have been
inaugurated under the Public Health (Ireland) Act, 1878, as extended
by the Public Health (Prevention and Treatment of Diseases) (Ireland)
Act, 1917.

GEEAT BRITAIN AND NOBTHEEN IBELAND

383

2.—Beneficiaries.
The poor law union infirmaries provide institutional treatment
for poor sick persons; the other institutions are available for all
classes.
3.—Administration.
The services for the institutional treatment of disease are
administered by county councils, county committees, district councils,
and by boards of guardians, under the general supervision of the
Ministry of Home Affairs.
4.—Financial Resources.
The cost of the institutional treatment of disease is met largely
out of local taxation, supplemented by State subsidies. Contributions
towards the cost of their treatment (except for venereal disease) are
required from patients who are able to pay or from their relations.
5.—Benefits.
General medical and surgical treatment is provided in the union
infirmaries, district hospitals and county infirmaries.
Treatment in an isolation hospital is provided for persons suffering
from infectious diseases, e.g., smallpox, diphtheria, scarlet fever.
The treatment of venereal disease is undertaken mainly at special
dispensaries established at general hospitals ; hospital treatment is also
provided, where necessary.
For tuberculosis, treatment is provided at special dispensaries
and sanatoria.
D.—ENGLAND AND WALES, AND SCOTLAND

Statistics.
The following statistics relate only to England and Wales and
Scotland. Those for Northern Ireland are not compiled on a uniform
basis and cannot usefully be summarised.
(a) Tuberculosis.
(i) Dispensary Service (England and Wales—figures for Scotland
not being available).
Number of persons examined for the first time
during 1933
154,283
Number of persons on dispensary registers at end of
1933
217,287

(ii) Residential Treatment (England and Wales and Scotland)—
Number of patients in sanatoria and hospitals for tuberculosis :
At beginning of 1933
Admitted during 1933
Discharged or died during 1933
At end of 1933

28,924
65,867
66,098
28,693

384

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

(b) Venereal diseases.
Number of patients :
Under treatment or observation a t beginning of 1933
93,591
New patients during 1933 (including a large number
diagnosed as not suffering from venereal disease)
102,374
Total attendances a t out-patient departments
... 3,755,552
Aggregate number of in-patient days of treatment
235,987

(c) Municipal general hospitals (England and Wales and Scotland).
Number of patients admitted during 1933
Total number of attendances at out-patient department during 1933

332,107
694,906

(d) Hospitals for infectious diseases.
Figures as to numbers of patients are not available.
INCOME AND E X P E N D I T U R E F O R INSTITUTIONAL TREATMENT OP D I S E A S E FOR
INCOME

£000 's
Central and local taxation ... 12,298
Other income (including receipts from beneficiaries) ...
690
Total

1933

EXPENDITURE

12,988

£000's
Total expenditure (including
central departmental administration)
...
... 12,988
Total

12,988

Note.—The expenditure excludes capital expenditure but includes the annual
charges in respect of loans.

V.—Highlands and Islands Medical Service
1.—Legal Basis.
The Highlands and Islands (Medical Service) Grant Act, 1913,
instituted the Highlands and Islands (Medical Service) Fund, which
is applied under approved schemes " for the purpose of improving
medical service, including nursing, in the Highlands and Islands of
Scotland and otherwise providing and improving means for the
prevention, treatment and alleviation of illness and suffering therein."
2.—Beneficiaries.
The service is available in the sparsely populated parts of Northern
Scotland, which amount to one-half of the land area of the country
and contain about one seventeenth of the total population.
The Fund may be applied in aid of the following services : medical
service, nursing service ; hospitals and ambulances ; provision of
houses for doctors and nurses; specialised services (dental, bacteriological, etc.) ; provision for special emergencies ; and assistance in the
treatment of tuberculosis in certain areas.
3.—Administration.
The Act is administered by the Department of Health for Scotland.
Certain specified services may be committed to certain local authorities,
but the application of the Fund rests with the Department.

GREAT B R I T A I N AND NORTHERN

385

IRELAND

4.—Financial Resources.
There is paid into the Fund out of proceeds of central taxation an
annual grant-in-aid of £42,000 and, in addition, such other sum as
may be voted annually by Parliament. Any amount unexpended in
one year is available for subsequent years.
5.—Benefits.
(a) Medical service.
The aims of the Medical Service scheme are, broadly, to ensure
that, so far as is practicable in the special circumstances of the Highlands
and Islands, the residents shall be brought into approximately the
same position as regards medical service as those in more densely
populated areas.
The assistance takes the form of grants to the doctors concerned,
to supplement fees received by them from patients, so as to provide
them with adequate remuneration.
(b) Nursing service.
Grants are paid to nursing associations or other organisations to
assist in the maintenance of a District Nursing Service throughout
the Highlands and Islands.
(c) Other services.
Assistance is given from the Fund to hospital managers, local
authorities, and others, and fully qualified surgeons have been appointed
to serve as operative surgeons and as consultants for those parts of
the Highlands and Islands most remote from hospital facilities.
6.—Statistics.
The total expenditure on the service for the year ended 31 March
1934 was £79,000, of which £60,000 was provided as a grant from the
central government, £10,000 in respect of mileage (travelling allowances
to doctors) from the Scottish National Health Insurance Fund, and
£3,000 was balance carried forward from the previous year.

VI.—Lunacy and Mental Deficiency Services
1.—Legal Basis.
The insane in England and Wales are dealt with under the Lunacy
and Mental Treatment Acts, 1890-1930, in Scotland under the
Lunacy (Scotland) Acts, 1857-1913, and in Northern Ireland under
the Lunacy Acts, 1821 to 1931, and the Mental Treatment Act
(Northern Ireland), 1932. The Mental Treatment Act, 1930, provides
extended faculties in England and Wales for the preventive treatment
of incipient mental illness and for the temporary treatment of
certain cases without " certification." The Mental. Treatment Act
(Northern Ireland), 1932, provides similar facilities.
Mental defectives are dealt with in England and Wales under the
Mental Deficiency Acts, 1913-1927, and in Scotland under the Mental
Deficiency and Lunacy (Scotland) Act, 1913. There is no corresponding Act in Northern Ireland.
x

G 12973

B b

386

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

2.—Beneficiaries.
The lunacy and mental deficiency services are available to all
insane or mentally defective persons.
3.—Administration.
In England and Wales, both the lunacy and the mental deficiency
services are placed under the same central authority, which is the
Board of Control, itself under the general supervision of the Minister
of Health. There is a separate General Board of Control for Scotland
which reports to the Secretary of State for Scotland. In Northern
Ireland the lunacy service is under the general supervision of the
Ministry of Home Affairs. The duty of the central authority is to
supervise the treatment of patients and inspect the institutions in
which they are treated, and to supervise cases boarded out under
guardianship. In England and Wales, the central authority also
administers two institutions for mental defectives of dangerous or
violent propensities. In Scotland there is a small institution for
mental defectives of dangerous or violent propensities, the management of which is vested in a Joint Board consisting or representatives
of the Prisons Department and of the General Board of Control.
The local administration of the services in England and Wales is
in the hands of county councils, county borough councils and certain
town councils, which establish and manage mental hospitals and special
institutions for mental defectives. In Scotland the local authorities
are county councils and town councils of large burghs. In Northern
Ireland the local administration is in the hands of the county authorities.
4.—Financial Resources.
Contributions towards the cost of maintenance are recovered from
patients or relatives according to means. The remaining cost of the
lunacy and mental deficiency services is defrayed largely out of local
taxation, supplemented in Northern Ireland by a State grant. In
England and Wales and Scotland the Government grants formerly
paid in aid of these services ceased to be payable as from the beginning
of the financial year 1930, and were merged in an annual block grant
amounting to more than £51,000,000. This grant is applicable to
local government expenses as a whole and cannot be apportioned to
individual services. Accordingly the expenditure on the lunacy and
mental deficiency services which fell on central taxation and the
expenditure which fell on local taxation cannot be separately stated.
5.—Benefits.
The insane, i.e., persons suffering from mental disorder, are
maintained and treated in public mental hospitals specially equipped
for the purpose. In Scotland a number of suitable cases aré provided
for under guardianship.
Mental defectives, i.e., persons suffering from incomplete development of the mind, whether arising from inherent causes or induced by
disease or injury, are brought under supervision, or, if supervision
affords insufficient protection, are either sent to special institutions
or placed under guardianship.

GREAT BRITAIN A N D N O R T H E R N

387

IRELAND

6.—Statistics.
(a) Lunacy Service (England and Wales, Scotland and Northern
Ireland).
Number of registered insane (including 16,318
persons maintained in institutions administered under the Poor Law Acts), 1933
173,130
(b) Mental Deficiency Service (England and Wales, and Scotland).
Number of notified mentally defective persons,
1933
83,742
INCOME

AND

EXPENDITURE

LUNACY AND
F O R 1933

Total

DEFICIENCY

SERVICES

EXPENDITURE

INCOME

C e n t r a l a n d local t a x a t i o n
...
O t h e r income (including rec e i p t s f r o m beneficiaries a n d
relatives)

MENTAL

£000's
10,572

£000-s

Total expenditure (including
central
departmental
administration)
...
...

12,710

2,138
12,710

Total

12,710

Note.—The
expenditure excludes capital expenditure, b u t includes t h e a n n u a l
c h a r g e s in r e s p e c t of l o a n s .

VU.—Maternity and Child Welfare Service
1.—Legal Basis.
The statutory basis of the maternity and child welfare service in
England and Wales, Scotland, and Northern Ireland is contained in
the Notification of Births (Extension) Act, 1915. As regards England
and Wales and Northern Ireland, authority for services of a noninstitutional character is contained in the Maternity and Child Welfare
Act, 1918.
2.—Beneficiaries.
The service is available for all expectant mothers, nursing mothers
and children who have not attained the age of attendance at public
elementary schools, usually five years.
3.—Administration.
The central departments charged with the general supervision of
the service are in England and Wales the Ministry of Health, in
Scotland the Department of Health for Scotland, and in Northern
Ireland the Ministry of Home Affairs.
The local authorities are in England and Wales the councils of
counties and county boroughs and the councils of certain non-county
boroughs and districts, in Scotland (as from 15 May 1930) the county
councils and town councils of burghs of 20,000 population and over,
and in Northern Ireland the councils of counties, boroughs, urban and
rural districts. The councils may subsidise voluntary associations
engaged in maternity and child welfare work.
Bb 2

388

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

4.—Financial Resources.
Contributions towards the cost of their treatment are usually
required from beneficiaries who are able to pay or from their relatives.
The remaining cost of this service is defrayed from local taxation,
supplemented in Northern Ireland by a State grant. In England and
Wales and Scotland the Government grants formerly paid in aid of the
service ceased to be payable as from the beginning of the financial
year 1930, and were merged in an annual block grant amounting to
more than £51,000,000. This grant is applicable to local government
expenses as a whole and cannot be apportioned to individual services.
Accordingly the expenditure on this service which fell on central
taxation and the expenditure which fell on local taxation cannot be
separately stated.
5.—Benefits.
The service is not a compulsory one and the extent of the provision
made varies according to the scope of the scheme of the particular local
authority. Such schemes may, however, comprise :
(a) the provision of ante-natal clinics and infant welfare centres,
where medical and nursing advice and treatment for minor
ailments are given ;
(b) home visiting by nurses and the provision of midwives,
home-helps and maternity outfits, the provision pf medical
attendance during pregnancy and confinement and the provision
of nourishment in necessitous cases for expectant mothers and
nursing mothers and young children ;
(c) the provision of hospital and consultant service for cases of
puerperal fever and ophthalmia neonatorum, special maternity
homes or accommodation for confinement cases in general
hospitals, special homes for the children of widowed, deserted
and unmarried mothers and provision of convalescent homes
and day nurseries.
6.—Statistics.
ENGLAND AND W A L E S , AND SCOTLAND,

1933

Births registered
666,959
Visits paid by health, visitors :
(a) To expectant mothers ...
...
...
...
559,060
(b) To children under 5 years of age
...
... 8,659,051
Ante-natal clinics :
(a) Number of expectant mothers attending
...
267,292
(6) Number of attendances of expectant mothers
980,043
Attendances of children a t infant -welfare centres... 8,363,818
Number of in-patients treated by local authorities :
(a) Women, in maternity homes and hospitals, for
confinement
130,706
(b) Sick and ailing children in homes and hospitals
46,381
(c) Expectant and nursing mothers and children
in convalescent homes
...
...
...
9,660
NORTHERN IRELAND,

Visits paid by health visitors
Cases visited b y health visitors
Attendances a t centres
...

...
...
...

1933

...
...
...

214,359
31,452
183,984

GBEAT BRITAIN AND NORTHERN IRELAND

389

ENGLAND AND W A L E S , SCOTLAND AND NORTHERN I R E L A N D
INCOME AND E X P E N D I T O K E FOR MATERNITY AND CHILD W E L F A R E FOR
INCOME

Central and local taxation ...
Other income (including receipts from beneficiaries and
relatives)
...
...
...
Total

1933

EXPENDITURE

£000's
2,940

£000's
Total expenditure (including
central departmental administration)
...
...

3,400

460
3,400

Total

3,400

Note.—The expenditure excludes capital expenditure, but includes the annual
charges in respect of loans.

VIH.—Health oí School Children
A.—ENGLAND

AND WALES

1.—Legal Basis.
Under the Education Act, 1921, a duty is laid upon the education
authorities in England and Wales to provide for the medical inspection
and treatment of children in public elementary schools.
The Education Act, 1921, also requires education authorities for
higher education in England and Wales to arrange for medical
inspection of children in secondary schools provided by them and in
certain other institutions for higher education. They may provide
for the treatment of such children.
The education authorities in England and Wales are required to
ascertain and to make provision for the education of blind, deaf,
mentally defective, physically defective and epileptic children
(sections 51-69 of the Education Act, 1921). The schools for these
children are known as " special schools."
Statutory powers to provide meals for public elementary school
children were given to the education authorities in England and Wales
by the Education (Provision of Meals) Acts, 1906 and 1914 (see also
sections 82 to 85 of the Education Act, 1921).
Education authorities have power to supply or aid the supply of
nursery schools for children over two and under five years of age
and to make arrangements for attending to the health, nourishment
and physical welfare of children in attendance at these schools
(Education Act, 1921, section 21).
2.—Beneficiaries.
The beneficiaries are children in public elementary schools, special
schools, nursery schools and to a certain extent children in secondary
schools and other institutions of higher education. Meals and medical
treatment are only gratuitous where the parents or guardians of the
children are necessitous.
3.—Administration.
The central authority for school meals and medical services in
England and Wales is the Board of Education.
The local authorities responsible for these services, so far as they
concern children in elementary schools, are the county councils, the

390

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

county borough councils and the councils of municipal boroughs and
urban districts over a certain size ; for institutions of higher education,
the responsible local authorities are the county and county borough
councils. A certain proportion of the " special schools " for blind,
deaf, defective and epileptic children and of the nursery schools are
provided by voluntary bodies.
4.—Financial Resources.
The cost of the school meals and medical services is defrayed out
of local taxation supplemented by grants from the State. The grant
from the State amounts to 50 per cent, of the net expenditure incurred
by local authorities. Parents are required to repay, according to their
means, the cost of meals and medical treatment provided for their
children. The cost of special schools and nursery schools is met from
local taxation and State grants, which are supplemented by voluntary
funds in the case of schools not provided by the local authorities.
5.—Benefits.
All local education authorities in England and Wales have made
arrangements for the medical inspection and treatment of children
attending public elementary schools. The children are inspected at
the beginning, middle, and end of their school career. The extent
of the provision made varies in different areas, but most authorities
provide, either in school clinics or by arrangement with hospitals or
specialists, for treatment of defects of eyes, ears, nose, throat and
teeth, of crippling defects and of minor ailments.
In a number of areas faculties for treatment are available also for
children in secondary schools.
A large proportion of the local education authorities have arrangements of different kinds for feeding school children.
6.—Statistics.
(a) School medical service.
The following figures relate to the work done by this service in 1933:
Number of medical inspections of public element a r y school children (including routine inspections, special inspections and re-inspections) ...
Number of defects treated under arrangements
made by the local education authorities :
Minor ailments
Defects of vision
Tonsils and adenoids ...
...
...
...
Number of children inspected for dental defects ...
Number of children treated by school dentists ...
Number of medical officers employed (either wholetime or part-time) ...
...
...
...
...
Number of specialist officers, including dentists
(either whole-time or part-time) ...
...
...
Number of school nurses (either whole-time or
part-time) ...
...
...
...
...
...

5,087,809
883,228
261,169
58,241
3,303,983
1,382,819
1,340
1,770
5,585

In addition a large proportion of authorities make arrangements
for the prevention and cure of crippling conditions, for the treatment
of ringworm by X-rays, for artificial light treatment and for the
treatment of rheumatism (including rheumatic heart disease).

GREAT BRITAIN AND NORTHERN

391

IRELAND

Statistics of the number of children treated under these headings are
not available.
(b) Special schools.
The numbers of special schools and the accommodation provided,
as at 31 March 1933, were as follows :
Number of
schools

—
Blind
Deaf
Mentally defective
Physically defective
Epileptic
Total

Accommodation

77
49
169
323
6

4,796
4,593
16,839
31,114
609

624

57,951

245 were residential schools and 379 were day schools. The
residential accommodation was 21,866 and the day accommodation
36,085.
Provision is also made for the training in full-time vocational
courses of blind, deaf, physically defective and epileptic persons over
the age of 16 years. During the year ended 31 March 1933 the number
of persons receiving such instruction was 1,910, of whom 1,421 were
blind.
(c) Provision of meals.
Provision of meals during the year ended 31 March 1933 :
Number of individual children fed
...
399,377
Total number of meals provided
...
62,304,671
Expenditure for Health of School Children in year ended 31 March 1933
The following statement shows the expenditure from public funds
in the year ended 31 March 1933, on the medical inspection and
treatment of school children, on special schools for blind, deaf, defective
and epileptic children, on nursery schools and on the provision of
meals. Information as to the expenditure from voluntary funds is
not available.

Medical
inspection
treatment
Special schools2
N u r s e r y schools2 ...
P r o v i s i o n of m e a l s . . .

Net expenditure
of local
education
authorities 1

Grants from the
Board of
Education to
voluntary schools

Total
expenditure
from public
funds

2,007,603
1,860,330
58,093
512,580

39,648
5,174

—

2,007,603
1,899,978
63,267
512,580

and

—

1
This expenditure is met as to 50 per cent, from local rates, and as to 50 per cent, from grants
from the Board of Education.
* I t is impracticable in connection with these institutions to separate the cost of education
from the cost of maintenance and treatment.

392

INTERNATIONAL SUEVEY OF SOCIAL SERVICES,

1933

B.—SCOTLAND

1.—Legal Basis.
In terms of section 4 of the Education (Scotland) Act, 1908, as read
with section 4 of the Scottish Board of Health Act, 1919, education
authorities in Scotland may, and where required hy the Department of
Health for Scotland shall, provide for the medical examination and
supervision of the pupils attending schools within their district to such
extent and subject to such requirements as may from time to time be
prescribed by the Department of Health. They are also required by
the Education (Scotland) Act, 1913, to make provision for the medical
(including surgical and dental) treatment of children who are shown
to be in need of such treatment.
It is the duty of education authorities in Scotland, subject to certain
limitations, to make provision for the education, and, where necessary,
for the maintenance of blind, deaf-mute, and mentally defective children
resident in their areas, and they are also empowered to make special
provision for epileptic, crippled or physically defective children
(Education of Bund and Deaf-Mute Children) (Scotland) Act, 1890, as
amended by the Education (Scotland) Act, 1918 ; Education of Defective Children (Scotland) Act, 1906, as read with section 3 (4) of the
Education (Scotland) Act, 1908, and amended by the Education
(Scotland) Act, 1918; and the Mental Deficiency and Lunacy
(Scotland) Act, 1913. Provision may be made for the continued
education and training of such children (other than those who are
mentally defective) after the age of 16.
Statutory powers to provide meals and clothing to school children
are conferred by sections 3 (2) and 6 of the Education (Scotland) Act,
1908, and the Education (Scotland) (Provision of Meals) Act, 1914;
and the Education (Scotland) Act, 1930, confers a special power on
education authorities to supply milk to pupils attending schools within
their areas.
Education authorities have power to supply or aid the supply of
nursery schools for children over two and under five years of age and
to make arrangements for attending to the health, nourishment and
physical welfare of children in attendance at such schools (section 8 of
the Education (Scotland) Act, 1918).
2.—Beneficiaries.
The beneficiaries for medical inspection and treatment and meals
and clothing are children attending schools in the several education
areas.
3.—Administration.
The Scottish Education Department is the central authority for
school meals and clothing and the administration of special schools
for defective children, and the Department of Health for Scotland for
the medical inspection and treatment of school children.

GREAT BRITAIN AND NORTHERN IRELAND

393

The local authorities are, since 15 May 1930, the county councils and
the town councils of the four principal cities.
4.—Financial Eesources.
The cost of all services provided by education authorities in
Scotland is defrayed out of local taxation supplemented by grants
from the State. Parents are required to repay, according to their
means, the cost of meals and clothing, medical treatment, and, in
certain circumstances, the expense incurred in making special provision
for the education of defective children. The cost of special schools
under voluntary management is met partly from voluntary funds at
the disposal of the managers conducting the schools, and partly from
contributions by education authorities and grants from the Scottish
Education Department. The cost of nursery schools under voluntary
management is met from voluntary funds, assisted as a rule by contributions from education authorities.
5.—Benefits.
About one-half of the education authorities in Scotland have
arrangements of different kinds for feeding school children and SO per
cent, make some provision for clothing such children.
All education authorities in Scotland have made arrangements for
the medical inspection and treatment of children attending schools.
The children are inspected at the beginning, middle and end of their
school career. Almost all education authorities provide treatment for
school children, but the extent of the provision varies in different
areas. Treatment is provided in school clinics for defects of eyes, nose,
throat and teeth, and minor ailments.
6.—Statistics.
(a) School medical service.
Figures are for school year ended 31 July 1933 :
Number of children on school roll ...

...

827,311

Medical inspection :
Routine inspection of children by age groups
Re-examinations
Special examinations...
Total

243,345
89,670
148,975
481,990

Medical treatment i1
Minor ailments (skin, eye, ear, etc.)
Defective vision
Defective teeth
Tonsils and adenoids...
Total
i Excluding children treated privately by arrangement of parents.

102,709
26,862
146,389
4,393
280,353

394

INTERNATIONAL SURVEY OE SOCIAL SERVICES, 1933

(b) Special schools.
The number of centres for afflicted children and the average number
of children on the roll during the year ended 31 July 1933 were as
follows :
—

Number of
centres

Average
enrolment

Blind
Deaf
Physically defective
Mentally defective 1

10
14
50
67

259
688
5,879
4,184

Total

141

11,010

1
Exclusive of residential schools under the administration of the General Board of Control
for Scotland.

Twenty-three of the above centres were residential schools, and
118 were day schools.
At 31 July 1933 there were 19 nursery schools in Scotland, with a
total enrolment of 611, and five ordinary schools containing nursery
classes, with a roll of 123.
(c) Provision of meals.
The total number of individual children supplied with meals during
the year 1932-1933 was 35,382, and the number of meals supplied was
6,310,323; the number provided with clothing was 110,350.
Expenditure for Health of School Children in year 1932-1933
The total net expenditure of education authorities in Scotland for
the year 1932-1933 on the medical inspection and treatment and
feeding and clothing of school children was £314,571, made up as
follows :
£

Medical examination
...
...
...
...
Medical treatment {less received in respect of
children not wholly necessitous) ...
...
...

68,356
104,257
172,613

Meals and clothing :
Apparatus, etc., for meals
...
Provision of meals and clothing ...

...
...

39,752
134,321

Less sums received from parents and others

...

174,073
32,115

Net

141,958

Note.—The grant paid by t h e Scottish Education Department to Education
Authorities in Scotland is a general grant in aid of t h e total expenditure of
Education Authorities in respect of all the services provided by them, including
t h e medical inspection and treatment and t h e feeding and clothing of school
children, and the provision of education in special schools and nursery schools.
I t is not possible to state separately the expenditure of Education Authorities
on special schools and nursery schools. Over the whole of Scotland t h e grant
paid by the Scottish Education Department for t h e year 1932-1933 amounted
t o about 55 per cent, of the total expenditure of Education Authorities.

GEEAT BRITAIN AND NORTHERN IRELAND
C.—NORTHEBN

395

IRELAND

1.—Legal Basis.
Statutory powers to provide meals for school children were given
to the education authorities in Northern Ireland by sections 49, 51
and 53 of the Education Act (Northern Ireland), 1923.
Under section 47 of the Education Act (Northern Ireland), 1923, a
duty is laid upon education authorities in Northern Ireland to provide
for the medical inspection and treatment of school children.
2.—Beneficiaries.
The beneficiaries are children in public elementary schools. Meals
and medical treatment are only gratuitous where the children are
necessitous.
3.—Administration.
The central authority for the school meals is the Ministry of
Education for Northern Ireland, and for medical services the Ministries
of Home Affairs and Education for Northern Ireland.
The local authorities are the county borough and county councils.
4.—Financial Resources.
The expenditure on school meals and medical services is defrayed
by local education authorities and a grant in aid of this expenditure is
paid by the State. Parents are required to repay, according to their
means, the cost of meals and medical treatment provided for their
children.
5.—Benefits.
All the local education authorities have made arrangements for the
medical inspection of children attending elementary schools. The
children are inspected at the beginning, middle and end of their school
career. Almost all authorities provide treatment for school children,
but the extent of the provision varies in different areas. Treatment is
provided in school clinics for defects of eyes, nose, throat and teeth,
and minor ailments.

DC.—Shipowners' Liability towards Sick or Injured Seamen
1.—Legal Basis.
The legal provisions which impose on shipowners the duty of
assisting sick or injured seamen are contained in sections 34, 35 of the
Merchant Shipping Act, 1906, as amended by the Merchant Shipping
Acts Amendment Act, 1923. In case of incapacity persisting after
the expiry of the shipowner's liability, or in case of death, the seaman
or his dependants may claim compensation under the Workmen's
Compensation Acts if the incapacity or death was due to a cause
coming within the scope of those Acts.
2.—Scope.
The provisions apply to all registered British sea-going ships,
except those engaged in coastwise fishing.

396

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

The beneficiaries comprise every person employed or engaged in
any capacity on board a ship, except pilots.
3.—Benefits.
(a) Injury in the service of the ship and illness not due to the seaman's
fault. The shipowner is Hable for the wages of the seaman while on
board, for the expenses of his maintenance and medical treatment until
he is cured or is repatriated, i.e., returned to a proper return port as
denned in section 45 of the Act of 1906 and for the expenses of his
conveyance to such a port.
(b) Illness due to the seaman's fault. The shipowner is liable for
the maintenance and medical treatment of the seaman while on board.
Any other reasonable expenses incurred by the shipowner in respect of
the illness are to be deducted from his wages. If, however, the seaman
is left behind at any place outside the United Kingdom and is found
in distress there, whether ill, injured or not the shipowner is liable in
general, under section 42 of the Merchant Shipping Act, 1906, to
reimburse the Crown for expenses incurred by it on account of the
maintenance of the seaman after leaving the ship until he is repatriated,
i.e., departs for a proper return port, and for the expenses of his
conveyance thereto.
(c) Death. The shipowner is Hable for the burial expenses of a
seaman who dies from injury received in the service of the ship or from
an illness not due to the seaman's fault.

FOURTH PART

HOUSING
A.—ENGLAND

AND WALES

1.—Legal Basis.
The permanent law relating to the housing of the working classes
in England and Wales is contained in the Housing Acts, 1925 and 1930.
The former of these reproduced, in consohdated form, the provisions
in force in 1925 of a number of earHer Acts, one of which (the Housing
of the Working Classes Act, 1890) was itself a re-enactment of earlier
statutes dating back to 1851. Certain portions of the Act of 1925 have,
however, now been superseded by portions of the Act of 1930.
The temporary law in force in 1933 for encouraging the provision
in the immediate future of housing accommodation for the working
classes in England and Wales, was embodied in the Housing, etc.,
Act, 1923, the Housing (Financial Provisions) Act, 1924, the Housing
(Rural Workers) Acts, 1926 and 1931, the Housing (Revision of
Contributions) Act, 1929 and the Housing (Financial Provisions)
Act, 1933.
2.—Beneficiaries.
The dwellings constructed with the aid of public subsidies are
intended to be occupied by persons of the working classes. These

GREAT BBITATN AND NOBTHEEN IRELAND

397

classes are not denned for the purposes of the subsidy provisions, but
the term is one which is generally understood.
Under the Acts of 1923 and 1924 two-storied houses must, if they
are to qualify for Exchequer subsidies under those Acts, have a floor
space of not less than 620 and not more than 950 square feet, while
for single-storied dweUings the corresponding-limits are 550 and 880
square feet. The Minister of Health may in special circumstances
consent to slightly smaller dimensions.
3.—Authorities and Undertakings concerned in Building.

In 1933, all the principal local authorities had powers themselves
to build houses, or to promote the provision of dwellings by assisting
private enterprise or public utility societies. Exchequer subsidies
in respect of the provision of new housing accommodation, apart from
schemes under active consideration at 7 December 1932, were practically limited to dwellings provided for rehousing persons displaced
from slum areas and insanitary dwellings under the Act of 1930.
4.—Financing by Public Authorities.

The first Act to provide for the grant of subsidy from the National
Exchequer in aid of the erection of dwellings for the working classes
was the Housing, Town Planning, etc., Act, 1919 (which has since
been almost entirely repealed by the Housing, etc., Act, 1923, and the
Housing Act, 1925).
So much of the annual losses on building schemes approved under
that Act for the provision of dwellings by the local authorities as are
not covered by the produce of a local rate contribution of one penny
in the pound on the annual value of properties in the district concerned,
are being met out of Government funds for the duration of the loans
raised by the local authorities for the purposes of the schemes.
Exchequer subsidies are also being paid under that Act, for a
period not exceeding fifty years directly to certain public utility
societies whose schemes for the provision of houses for the working
classes were approved by the Minister of Health under the Act.
These subsidies apply only to houses erected prior to the passing
of the Housing, etc., Act, 1923.
The last-mentioned Act provided for Exchequer subsidies limited
to the payment of £6 a year for twenty years per house subsequently
erected. The Housing (Financial Provisions) Act, 1924, provided
for an increased subsidy of £9 a year (or £12 10s. for houses in agricultural parishes) per house for forty years, in respect of houses built
for letting and not for sale, after the passing of that Act.
The rates of subsidy provided for by the Acts of 1923 and 1924
were subsequently reduced, so far as houses not completed before
1 October 1927 were concerned, to £4 per house for houses coming
within the provisions of the Act of 1923 and to £7 10s. per house (or
£11 for houses in agricultural parishes) for houses coming within the
provisions of the Act of 1924.
Still later it was provided that subsidy under the Act of 1923
would no longer be available for houses not completed before 1 October
1929 and that subsidy under the 1924 Act would be available only in

398

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

respect of proposals submitted or substantially ready for submission
to the Minister of Health by 7 December 1932. Apart from a limited
number of exceptional cases, this subsidy is only available for houses
completed by 31 March 1934.
In the matter of building credits, the Act of 1923 provided that
loans, up to ninety per- cent, of the value of the property, might be
advanced by local authorities to any person or body of persons constructing a house or flat of which the estimated freehold value does
not exceed £1,500.
This provision was re-enacted in the Act of 1925, which also
re-enacted certain provisions contained in other and earlier Acts for
giving alternative facilities for public utility societies and certain other
societies or companies to borrow from the Public Works Loan Board
for the purpose of constructing houses.
Clearance of Unhealthy Areas
The Act of 1919 provided, in addition to the subsidy arrangements
already referred to, that so much of the annual losses of local authorities on approved schemes for clearing unhealthy areas and providing
rehousing accommodation which would be available for the persons
displaced as are not covered by the produce of a local rate contribution
of one penny in the pound on the annual value of properties in the
district concerned, are met from Government funds for the duration
of the loans raised by the local authorities for the purposes of the
schemes.
For the purposes of this provision, however, such a scheme,
together with any approved building schemes if carried out by the same
local authority, was treated as one scheme in calculating annual loss,
and the local rate contribution was limited to one penny in the pound
towards the whole of the annual loss so arrived at.
The Act of 1923 limited the Exchequer contributions toan amount
not exceeding one-half of the estimated annual loss, so far as schemes
approved after the passing of that Act are concerned, the remainder of
the loss being defrayed out of local taxation.
One of the purposes of the Act of 1930 was to facilitate slum
clearance operations on a much larger scale. That Act established a
new system of subsidies which may amount, per person displaced
and for whom new dwelling accommodation is made available,
to 45s. in urban areas (50s. in agricultural parishes) for forty years,
while if it is necessary to provide the rehousing accommodation in
buildings of more than three storeys, and to erect such buildings either
on a site in the cleared area or on an expensive site elsewhere, these
amounts may be increased. The rates of subsidy under this Act are
subject to review every three years.
Special Provisions as to Houses for Agricultural Workers
The Act of 1926 empowers county councils, or in certain circumstances other local authorities, to subsidise the reconditioning and the
enlargement of existing dwellings for agricultural workers or persons
of like economic condition, to the extent of two-thirds of the expenditure

GREAT BRITAIN AND N O R T H E R N I R E L A N D

involved or £100 per dwelling, whichever is the less, provided that
certain specified conditions are observed. This assistance may be
given by way of lump-sum grant or by yearly payments during a
maximum period of twenty years. One-half of the annual charges
which would be incurred by the local authorities, if these subsidies are
met by them from the proceeds of a twenty-year loan, is reimbursed
to the local authority from the Exchequer. The operation of this Act
was extended by the Act of 1931 to applications for assistance received
by the local authority before 1 October 1936.
B.—SCOTLAND

In the main the legislation and practice on this subject are the same
in Scotland as in England. The Housing, etc., Act, 1923, the Housing
(Financial Provisions) Act, 1924, the Housing (Rural Workers) Act,
1926, and the Housing (Rural Authorities) Act, 1931, are, subject
to the necessary modifications, made applicable in Scotland as in
England. Acts solely applicable to Scotland were passed in 1919,
1925, 1930 and 1933, but in substance these were similar to the
corresponding English Acts.
The main differences are in the provisions dealing with State
financial assistance, e.g., under the Scottish Act of 1919 the annual
contribution of local authorities to the loss on schemes is the produce
of a local rate of four-fifths of a penny in the pound on annual value ;
under the Act of 1923 the State contribution, instead of being done
away with as at 1 October 1929, as was the case in England, continued
at a lower rate than the original rate to be available in respect of
houses completed by 31 March 1934, by private enterprise, and by
30 June 1934, by local authorities, when the subsidy ceased in accordance with the terms of the Housing (Financial Provisions) (Scotland)
Act, 1933 ; the State contribution under the Act of 1924 remained as
originally fixed in respect of houses completed (1) by private enterprise
by 31 March 1934, and (2) by local authorities by 30 June 1934.
Houses completed by local authorities between the latter date and
31 March 1935, were eligible for a reduced subsidy of £3 per house per
annum for 40 years. Houses completed after the last-mentioned
date will not earn any subsidy; under the Act of 1930 the State
contribution is 5s. per head more than in England, and, finally, although
the payment of subsidies under the 1923 and 1924 Acts was discontinued as above explained, the Housing (Financial Provisions) (Scotland) Act, 1933, provided for a subsidy in respect of houses erected
expressly for the purpose of rehousing low-paid wage earners living in
overcrowded conditions. The subsidy was a sum of £3 per house per
annum for 40 years in respect of houses completed before 30 June
1935.
In addition, in Scotland, a special subsidy—over and above the
ordinary subsidy payable under the Act of 1924—was given to County
Councils under the Housing (Rural Authorities) Act, 1931, in respect
of a limited number of houses for the accommodation of agricultural
workers and for persons of similar economic conditions in areas where,
owing to the high cost of building and the low rents obtainable, houses
had not been provided under previous State-assisted schemes.

400

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

In Scotland the sum of £1,071,878 has been advanced to a Housing
Trust in respect of the erection on behalf of the Government of 2,552
steel houses. These particulars are not included in the statistics of
working given below.
C.—NORTHERN IRELAND

1.—Legal Basis.
The action and liabilities of the public authorities in connection
with the provision of cheap dwellings are governed by the following
statutes :—Housing of the Working Classes Act, 1890, Housing of the
Working Classes Act, 1908, Housing Act, 1919, Housing (Additional
Powers) Act, 1919, Housing Act, 1921, Housing Acts, 1923-1933,
Planning and Housing Act, 1931 and Labourers' Acts (Northern
Ireland), 1883-1930.
2.—Beneficiaries.
The cheap dwellings constructed by the aid of public subsidies are
intended to be occupied by the " working classes ", but these classes
are not defined.
3.—Authorities and Undertakings concerned in Building.
The bodies concerned in building are the local authorities (by
direct labour or contract with private builders), private enterprise,
and public utüity societies under the supervision of the Ministry of
Home Affairs.
4.—Financing by Public Authorities.
Local authorities may either build the houses themselves or make
grants to private builders.
The Government lends money to the local authorities at comparatively low rates of interest to enable them to carry out their duties,
and also makes grants or contributions to local authorities and private
builders.
Under the Act of 1933, the Government grant is £25 per house, on
condition that the local authority gives a similar grant, or, alternatively,
exemption from rates for a period of 10 years.
5.—Clearance oí Unhealthy Areas.
Under the provisions of the Housing of the Working Classes Act,
1890, and the Planning and Housing Act (Northern Ireland) 1931,
wide powers are conferred upon a local authority in regard to the
clearance and improvement of unhealthy areas and the demolition
or repair of insanitary dwelling-houses.
A local authority must see that accommodation is provided for
persons who are displaced from houses which are to be demolished.
The cost of clearance orders is borne by the owners affected.
6.—Housing of Agricultural Labourers.
The Labourers' Acts (Northern Ireland), 1883-1930, empower
rural district councils to formulate schemes for the provision of cottages
for agricultural labourers. The money required can be borrowed

GREAT B R I T A I N AND N O R T H E R N

401

IRELAND

from the Government, and the latter recoups 40 per cent, of the loan
charges.
D.—ENGLAND

AND WALES, SCOTLAND AND NORTHERN IRELAND

Statistics
The following statistics relate to England and Wales, Scotland
and Northern Ireland except where otherwise stated.
1 April 1933—
31 March 1934
Number of houses built with State assistance ...
81,942
Estimated number of persons accommodated ...
328,000
Amount of State subsidies paid ...
...
... £15,320,000
Capital expenditure of local authorities in connection with housing :
England and Wales (1932-1933)
£20,520,000
Scotland (1933-1934)
£6,240,000
INCOME AND E X P E N D I T U R E O F HOTTSING SERVICE I N

1933

(England and Wales and Scotland)
EXPENDITURE

INCOME
£000's

Central and local taxation ... 18,284
Rents, etc
26,011
Total

£000's

Total expenditure (including
central departmental administration)
...
... 44,295
Total

44,295

Note.—The expenditure excludes capital expenditure, b u t includes the annual
charges (£31,968,000 in 1933) in respect of loans. Advances by local authorities
to private persons or associations for the erection or acquisition of houses
(amounting to £4,000,000 in 1933) and repayments in connection therewith are
n o t included, as these advances normally involve no charge on public funds.

FIFTH PART

HOLIDAYS WITH PAY
A.—GREAT

BRITAIN

Holidays with pay are granted in certain industries in virtue of
national or district collective agreements or by custom.
1.—Holidays in virtue of Collective Agreements.

In virtue of national agreements, holidays with pay are granted
to workers in the chemical, explosives, paint and varnish, cement,
match, lead, boot and shoe, flour milling, confectionery, printing,
wallpaper and gas industries, and certain- categories of workers in
the transport industries.
In virtue of agreements applicable in certain industries, certain
categories of workers in the coal mining industry, and workers in certain
branches of metal, textile, and food and drink industries, and in
certain public utility services receive holidays with pay.
X 0 12973

402

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

The period of continuous service which entitles to a holiday varies
from six to twelve months.
The length of the holiday varies from three to twelve days a year.
Time workers generally receive their full weekly time rates of
wages. Piece workers are generally paid on the basis of their average
earnings during a certain period preceding the holiday.
2.—Holidays by Custom.
In accordance with custom, a large number of salaried clerks,
shop assistants and other salaried workers are regularly granted
holidays with pay.
In large and medium-sized shops the length of the holiday varies
from three days to two weeks. I t is usual to grant two weeks' holiday
to clerks and technicians. In the case of the supervisory staff, the
holiday may be as long as two or even four weeks. Bank and insurance
employees enjoy even longer holidays.
3.—Holidays required by Statute.
Under the provisions of the Shops Acts (Section 11 of the Shops
Act, 1912, and Section 6 of" the Shops (Hours of Closing) Act, 1928),
shops at holiday resorts and sea fishing centres may, during the
season, be kept open after the hour fixed for compulsory closing, but
if the shop assistants are employed for extra hours, they must be given
compensatory holidays with full pay.
4.—Statistics.
In 1933 about 1,500,000 manual workers received holidays with
pay in virtue of national or district collective agreements.
B.—NORTHERN IRELAND

The conditions under which holidays with pay are granted in certain
industries in Northern Ireland are similar to those in force in Great
Britain. In some cases collective agreements between employers
and employees govern the employment in both Great Britain and
Northern Ireland.
Statistics as to the number of persons receiving holidays with pay
and the amount of expenditure on holidays with pay are not collected
in Northern Ireland.

INDIA
SUMMARY
PAGE

FIRST PART :

Statistics of Population

SECOND PART : Social

404
404

Insurance

Workmen's Compensation
THIRD PART :

404

Social Assistance
I.—Famine Relief ...
II.—Medical Assistance
III.—Lunacy Service
IV.—Maternity Assistance
V.—Assistance for Blind and other Defective
Children
VI.—Shipowners' Liability towards Sick or
Injured Seamen

406
406
408
408
409
411
411
412

FOURTH PART : Holidays with Pay

Cc 2

404

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

FIRST

PART

STATISTICS OF POPULATION
CENSUS OF 1931.

GAINFULLY OCCUPIED CLASSIFIED BY OCCUPATIONAL GKOUPS

Occupational Groups
Exploitation of animals a n d vegetation (agriculture, forestry) ...
Exploitation of minerals ...
Industry
Transport and communications ...
Trade, banking, etc.
Public force
Public administration
Professions and liberal arts
Domestic service ...
Insufficiently described occupations
Earners whose occupations are n o t
returned ...
Total gainfully occupied
Total unoccupied
Total population

As principal
occupation

As working
dependants

Total

87,197,690
324,142
13,553,395
2,162,870
7,230,080
823,915
957,751
2,068,530
2,691,997

16,096,749
21,858
1,798,558
178,536
683,517
17,559
37,533
241,611
8,206,280

103,294,439
346,000
15,351,953
2,341,406
7,913,597
841,474
995,284
2,310,141
10,898,277

6,795,255

983,387

7,778,642

3,116

—

123,808,741

28,265,588

—
~

—
• —

3,116
152,074,329
200,763,449
352,837,778

1
Excluding persons living on their income, inmates of jails, asylums, almshouses, beggars
vagrants, prostitutes and other unclassified non-productive industries.

SECOND

PART

SOCIAL INSURANCE
Workmen's Compensation
1.—Legal Basis.
Employers in certain industries were made liable to pay
compensation for industrial accidents by the Workmen's Compensation
Act, 1923, which was amended in 1924, 1925, 1926, 1929 and 1933.
I t applies only to British India.
Besides the Workmen's Compensation Act, 1923, there is the
Mysore Government's Workmen's Compensation Regulation, No.
XIV of 1928, which is applicable within the State of Mysore. I t
provides for compensation on the same scale and on the same terms as
the Workmen's Compensation Act, 1923, in British India. Moreover,
a measure similar to the Workmen's Compensation Act, 1923, as
amended, is in force in Baroda.

INDIA

405

2.—Scope.
The principal industries within the scope of the Act are factory
industries, mining, plantations, railways, motor transport, navigation,
loading and unloading of ships, shipbuilding, and bunding, where the
scale of the operations attains a certain minimum.
All persons employed in these industries are protected by the
Act save those employed casually, otherwise than for the purposes of
their employer's trade or business. Workers whose remuneration
exceeds Rs. 300 a month are excluded.
3.—Administration.
Insurance is optional. The Act does not contain any provisions
as to the institutions with which the employer may insure his risk.
The Act is administered by special commissioners appointed by
the provincial governments.
4.—Financial Resources.
Compensation is payable entirely by the employers.
5.—Benefits.
Compensation is payable by the employer when personal injury
is caused to a workman by accident arising out of and in the course
of his employment, unless the accident is due to certain kinds of
misconduct. Certain enumerated occupational diseases (anthrax;
lead, phosphorus, mercury and benzene poisoning ; chrome ulceration ;
compressed-air illness), as well as those directly attributable to
accidents, are assimilated to injuries by accident.
The basic wage on which compensation is calculated is determined
by reference to wage classes, and is subject to a maximum limit of
Its. 200 a month and to a minimum limit of Rs. 10 a month.
(a) Benefits in case of incapacity.
No medical aid is provided for under the Act.
No compensation is payable in respect of the first seven days of
incapacity.
1. In the case of temporary incapacity compensation is payable
half-monthly at the following rates :
(1) to an adult at 50 per cent, of his monthly wages when these
are not more than Rs. 10, and at varying rates up to a maximum
of Rs. 30 in the other wage classes ;
(2) to a minor at 50 per cent, of his monthly wages, subject to
a maximum of Rs. 30.
If the temporary incapacity is partial, no half-monthly payment
may exceed the amount, if any, by which half the amount of the
monthly wages of the workman before the accident exceeds half the
amount of such wages which he is earning after the accident. Compensation for temporary incapacity is payable during such incapacity
subject to a maximum period of five years.

406

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

2. In case of permanent Incapacity, compensation is payable in the
form of a lump sum, from which payments during temporary incapacity are deducted. Where the incapacity is total, the lump sum
varies, in the case of an adult, from Rs. 700 to Rs. 5,600 according
as wages vary from Rs. 10 or less to more than Rs. 200 a month, and
is fixed in the case of a minor at Rs. 1,200. Where the incapacity is
partial, the lump sum is a smaller amount proportional to the loss of
earning capacity.
(b) Benefits in case of death.
In the case of death, compensation is payable in the form of a
lump sum and varies, for the death of an adult, from Rs. 500 to
Rs. 4,000 according as wages vary from Rs. 10 or less to more than
Rs. 200 a month, and is fixed, for the death of a minor, at Rs. 200.
6.—Statistics.
I t is estimated that the number of persons engaged in occupations
covered by the Act in 1933 was about 6,000,000.
In 1933 the number of compensable accidents occurring in those
branches of industry for which statistics were collected, viz. factories,
mines, railways, tramways and port trusts was 14,559 and the total
amount of compensation paid was Rs. 8,13,949.
No statistics for the working of the Mysore and Baroda legislation
are available.

THIRD PART

SOCIAL ASSISTANCE
I.—Famine Relief
1.—Legal Basis.
The system of relief is embodied in the various Provincial Famine
Codes.
2.—Beneficiaries and Benefits.
The conditions of labour on test works are quite strict, the purpose
of these works being not to relieve distress but to test its presence.
When as a result of observation and test, relief works are opened, no
restriction on admission to such works is placed in " famine " districts,
but in " scarcity " districts admission is limited to those who have
obtained an admission order from the village headman or some other
authority appointed for the purpose; this order, however, is granted
freely to all except those who have not reached the end of their resources.
Some relief is also granted to the dependants who on account of age
or for some other reason cannot be employed on relief works, by
providing them with fight duties, such as cleaning the camp, etc.
The workers are divided into batches of about 50 each according to
the work on which they are to be engaged and their capacity for

INDIA

407

work. In addition, gratuitous rehef may be distributed to the
following classes of persons :
(a) idiots and lunatics ;
(6) cripples;
(c) blind persons ;
(d) all persons who, from age or physical infirmity, are incapable
of earning their living;
(e) all persons whose attendance on the sick or on infant children
in their own homes is absolutely necessary;
(/) women of respectable birth who are debarred by national
custom from appearing in public and are unable to provide themselves
with sufficient food;
(g) men of respectable birth who are unable to earn a livelihood
and are in danger of starvation.
3.—Administration.
Standing preparations on a large scale are made in ordinary times.
Government is kept constantly informed of meteorological conditions
and of the fluctuations in the prospects of crops and in prices. Reserves
of tools and plant are kept in every district. Should a failure of rains
lead to general restlessness prompt preparations for action are made.
As the uneasiness intensifies, villages are inspected and if necessary
test works are opened in suitable centres. The conditions of those who
seek employment is strictly watched and if this indicates real distress,
the next stage is the declaration of " famine " or " scarcity " in the
district concerned—the latter term showing a milder form of distress.
At this stage rehef works are opened, the village inspecting staff is
increased, and the distribution of gratuitous rehef to those who cannot
come to the works is commenced.
Test works are usually earthworks or other similar works employing
unskilled labour. Ordinary works in progress under the district board
may be utilised as test works. Rehef works which are opened after
the test stage and for which irrigation works are preferred are usually
run by the Public Works Department.
Village kitchens are started for supplying children with cooked food.
" Poor houses " are also sometimes established for housing and feeding
destitute paupers who are unfit for work and stand in need of relief
owing to the contraction of private charity.
4.—Financial Resources.
The charges for relief operations are mainly borne by Government.
Private charity is also utihsed if available for supplementing Government rehef, by providing small comforts, by helping orphans, and by
relieving the respectable poor in such ways as may be acceptable to
them.
5.—Statistics.
During 1933 scarcity conditions prevailed in certain districts of the
Punjab, Burma and Bengal. Test works were closed on 23 August in
the Punjab, on 8 November in Burma and on 17 June in Bengal,
where gratuitous rehef continued up to 8 November. The largest

408

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

numbers employed on test works at any one time were 6,833 in the
Punjab, 7,356 in Burma, and 11,161 in Bengal.
Financial statements showing the expenditure on famine relief in
each province are not readily available.

n.—Medical Assistance
Free medical treatment is provided for poor people in Government
and other hospitals throughout India.
1. Taking British India as a whole, at the end of 1933, there were
6,548 hospitals and dispensaries at work serving a population of nearly
271 millions. These included 5,154 State-public, local fund and
private aided, 861 State-special and railway, and 533 private non-aided
institutions. Of these hospitals and dispensaries 4,235 were in rural
and 2,255 in urban areas excluding those in Delhi province and the
Agencies in the North-West Frontier Province, for which separate
figures for rural and urban areas are not available. The total expenditure on hospitals and dispensaries (State-public, local fund and private
aided) amounted to Rs. 3,60,19,647.
2. 69,293 beds were available in all classes of hospitals and dispensaries—44,790 for males and 24,503 for females, of which 6,048 were in
institutions meant exclusively for women. Female medical relief is
receiving increasing attention.
3. In addition various organisations such as the Red Cross Society,
the St. John Ambulance Association and the Indian Council of the
British Empire Leprosy Relief Association helped in providing medical
relief to those in need of it.

HI.—Lunacy Service
1.—Legal Basis.
The insane in British India (including Burma) are dealt with under
the Indian Lunacy Act of 1912.
2.—Beneficiaries.
The Act provides for the admission and retention in an asylum or
mental hospital
(a) of insane persons voluntarily on application made by their
relatives ;
(b) of insane persons whose condition is a danger to the public order
or safety ; and
(c) of persons who are desirous of submitting themselves to
treatment.
3.—Administration.
The provincial Governments administer the asylums and mental
hospitals located in their respective provinces. Orders for the reception
of persons, other than those desirous of submitting themselves to
treatment, are issued by magistrates. For each asylum the provincial
Government is required to appoint not less than three visitors, one of
whom at least must be a medical officer. The discharge of an insane

INDIA

409

person, other than an insane soldier or a criminal, from an asylum is
effected on the recommendation of three of the visitors, one of whom
must be a medical officer.
4.—Financial Resources.
The cost of maintenance of patients kept in an asylum or mental
hospital are recovered from their estates, if any, or from their relatives,
if these are in a position to meet such expenses. Patients are employed
on remunerative and occupational labour according to their capacity
and mental condition and the earnings so derived are utilised in
defraying the cost of their maintenance. The cost of maintenance of
persons who or whose relations are not in a position to meet the cost is
met by the Provincial Government.
5.—Benefits.
The insane are maintained and treated in asylums or mental
hospitals specially equipped and maintained for the purpose. The
number of such hospitals in British India is 19, including a wellequipped mental hospital for European patients at Ranchi which serves
the needs of several provinces.
6.—Statistics.
Number of persons who received relief during 1933 was ...
Approximate total expenditure for the maintenance of the
insane and the mental hospitals during 1933 was ...
...

13,323
Ks. 33,63,915

IV.—Maternity Assistance
A.—MATERNITY

BENEFIT PAID BY EMPLOYERS

1.—Legal Basis.
Employers are obliged to pay maternity benefits in virtue of the
Bombay Maternity Benefit Act, 1929, and the Central Provinces
Maternity Benefit Act, 1930.
2.—Beneficiaries.
The legislation is operative in the principal cities of the Bombay
Presidency and throughout the Central Provinces.
The beneficiaries are women who are employed in factories where
not less than 20 persons are employed and mechanical or electrical
power is used or where not less than 10 persons are employed and
which have been declared by the local Government to be factories.
The woman must have been employed in the factory of the employer
from whom she claims benefit for nine months before claiming maternity
benefit.
3.—Administration.
The Acts are administered by the factory inspection services of
the respective provinces.
4.—Financial Resources.
The whole cost of maternity benefits is borne by the employer.

410

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

5.—Benefits.
The Acts cover the risk of incapacity for work before, during
and after confinement.
Benefit is payable for a maximum period of 8 weeks, of which
4 weeks are after confinement and the remaining 4 weeks before
confinement.
The rate of benefit is 8 annas a day in the cities of Bombay,
Ahmedabad and Karachi. In other places in the Bombay Presidency
and in the Central Provinces the rate is the woman's average daily
earnings or 8 annas a day, whichever is less.
6.—Statistics.
SCOPE, B É N É F I C I Â M E S AND COST.

Under the Bombay Maternity Benefit Act, 1929...
Under the Central Provinces Maternity Benefit Act, 1930

Total
amount
of benefit
paid

For the
year
ending

dumber of
women who
received
benefits

Average
number of
women
covered by
the Act

30 J u n e 1933

5,790

49,672

Rs.
1,35,813

31 December
1933

430

4,717

9,333

B.—OTHER MATERNITY ASSISTANCE

Free maternity assistance is generally provided in the large
Government and other hospitals.
The Maternity and Child Welfare Bureau under the auspices of the
Indian Red Cross Society is the only central organisation concerned
with the subject. A certain amount of its income is devoted to
grants for Health Schools for the training of maternity staffs at Delhi,
Madras, Calcutta and Poona and for grants-in-aid to maternity and
child welfare centres numbering 42 ; and for publication of propaganda
material.
During 1933 notable extensions of child-welfare activities were
reported particularly in the Punjab and Madras Presidency.
The provincial Governments are also alive to the desirability of
establishing maternity and child-welfare centres. The Madras
Presidency has a woman Assistant Director of Public Health for maternity and child-welfare work ; 65 centres were at work in rural and 75
in urban areas in that Presidency. In the North-West Frontier
Province a scheme for the employment in selected villages of ten dais
has been sanctioned. In the Punjab a total of 87 centres functioned ;
of these 52 received grants-in-aid from the local Government, including 35 in rural areas. The Punjab Central Midwives Board
conducts examinations and grants certificates to those qualifying
for maternity and child-welfare work. Of the 22 centres in Delhi
Province, 16 were in urban and 6 in rural areas. In the United
Provinces 61 centres were at work in urban and 121 in rural areas,

411

INDIA

in Bihar and Orissa 18 and 4 ; in the Central Provinces and Berar 48
and 15 and in Burma 15 and 2 respectively. In the Bihar coal-fields
there are three centres. Health and baby-welfare celebrations were
organised by the Asansol Health and Baby Welfare Society.

V.—Assistance for Blind and Other Defective Children
1. The Government have opened eye-clinics in many large hospitals
for the treatment of eye diseases, and medical inspection of school
children is carried out as far as possible. There are also several
non-official associations for the blind which work for their relief.
Schools for the education of the blind exist in different parts of India,
largely provided by private enterprise. Various crafts such as basket
making, rush-mat weaving, etc., are taught in addition to general
education of an elementary character ; Government grants are usually
made towards the maintenance of these schools, provided they reach
a reasonable standard of efficiency. An association known as the
All-India Blind Belief Association was founded in Bombay in 1919,
its main objects being propaganda with a view to giving information
as to the nature of eye diseases and necessary precautions, the establishment of dispensaries and the training of workers. The field
workers of the Association are trained by medical officers and are sent
out into the villages, especially for detection of infantile ophthalmia
and treatment of simpler cases of conjunctivitis. The Association
depends for its success on the personnel of its field workers and on the
supervision exercised by the superior medical staff. A similar association has been formed in the Madras Presidency and maintains a
Central Institute known as the Victory Memorial Blind School which
is intended to provide elementary education, technical training and
workshops.
2. Schools are also maintained for deaf-mute and other defective
children.
3. The following table gives the number of schools in British
India for defectives, their enrolment and expenditure during the
year 1932-1933:
Schools
For the :
Blind
Deaf-mutes
Other defective children

Pupils

Expenditure
Es.

16
17
3

660
788
81

1,529

2,71,678
2,71,678

VI.—Shipowners' Liability towards Sick or Injured Seamen
1.—Legal Basis.
Apart from his responsibility under the Workmen's Compensation
Act, 1923, a shipowner has certain habüities towards sick or injured
seamen under the Indian Merchant Shipping Act, 1923.

412

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

2.—Scope.
The provisions relating to shipowners' liability operate for the
protection of masters, seamen and apprentices, irrespective of nationality, serving on board British seagoing ships registered in British
India, while such ships are in British Indian waters ; the corresponding
provisions of the Merchant Shipping Acts of Great Britain apply while
such ships are outside British India.
3.—Benefits.
The liability of the shipowner arises if a seaman (including master
and apprentice) receives any hurt or injury (including illness) in the
service of the ship, even where the hurt or injury is due to the seaman's
fault.
(a) If the seaman remains on board or is disembarked in British
India at the port at which he was shipped or some other port agreed
upon, the shipowner is liable to defray the expenses of the seaman's
wages, maintenance and medical aid while on board.
(Ô) If the seaman is disembarked in British India at a port other
than that at which he was shipped or at some other port not agreed
upon, the shipowner is liable to defray the expenses of the seaman's
wages, maintenance and medical aid while on board, the expenses of
his maintenance and medical aid from the time when he leaves the
ship until he is brought back to the port at which he was shipped or some
other port agreed upon, and the expenses of his conveyance back to
such port.
(c) If death supervenes as the result of hurt or injury (including
illness) received in the service of the ship, the shipowner is hable for
the expenses of burial.
4.—Statistics.
Number of seamen received benefits in connection with sickness or
injury at the expense of shipowners in 1933 : 437.
Total cost to shipowners of such benefits granted to seamen in
1933 : Es. 90,811.

FOURTH PART
HOLIDAYS W I T H

PAY

1.—Regulations obtaining on Railways and in Government Factories.
(a) Railways.
Leave with pay on liberal terms is granted to all grades of
employees. Subordinate employees are ordinarily permitted to take
leave with pay up to a limit of one-fifteenth of the service completed

INDIA

413

by them, that is between 3 and 4 weeks per year. Inferior employees
(i.e. those whose maximum pay does not exceed Rs. 30 a month)
with 3 years' service to their credit are ordinarily allowed 10 days' leave
with pay in a calendar year ; with more than 10 and less than 20 years'
service, 15 days ; and over 20 years' service, 20 days. The daily-rated
staff are given leave on the same scale as the inferior employees. In
addition to these scales of leave, employees in workshops also get the
benefit of gazetted holidays which vary in different parts of India from
15 to 20 days in a calendar year.
(b) Telegraph, workshop.
Daily workmen and piece-workers may be granted average pay for
16 non-working days (gazetted holidays) in each year, provided that
on the day immediately preceding each day for which concession is
claimed they were employed continuously for 12 calendar months
(i.e. employed for not less than 90 per cent, of the normal working
hours during the 12 calendar months, regard being had to absence from
sickness).
Piece-workers make their own arrangements for giving holiday pay
to such assistants, if any, as they may employ.
(c) Printing presses.
In the presses controlled by the Government of India the employees
are allowed Sundays and other public holidays as far as possible and
are in addition allowed leave with pay the extent of which varies from
16 days to 1 month in a year. They are also granted leave with pay in
case of sickness.
Information regarding presses controlled by the provincial Governments is not available.
(d) Mints.
Casual leave with pay to the extent of 15 days in a year is granted
to the daily paid men employed at the mints who have put in over
2 years' approved service. Leave with allowance is also granted for
a period not exceeding 6 weeks to workmen absent owing to injury
received on duty. The pay drawn during such leave is, however,
set off against any compensation that may be awarded under the
Workmen's Compensation Act. Leave with pay for a period not
exceeding 30 days is also granted in cases of enforced absence due to
the presence of infectious disease in the family or household.
No remuneration is allowed on Sundays or other authorised
holidays except on the King Emperor's birthday.
(e) Security printing (including the Currency Note Press and the Central
Stamp Store).
Workmen employed on daily rates of pay are granted full pay only
on two Government holidays, viz. King's birthday and the Proclamation
Day, provided that they were present on the days preceding and
following the holiday. No other holidays with pay are granted.

414

INTERNATIONAL

SURVEY OF SOCIAL SERVICES,

1933

2.—Statistics.
SCOPE, B É N É F I C I Â M E S AND COST I N 1933

Railways ...
Telegraph workshop, Calcutta ...
G o v e r n m e n t of I n d i a p r e s s e s
Mints
Security printing

(a) Information not available

Number of
persons
employed in
undertakings
granting
holidays
with pay

Number ol
workers
who
received
holidays
with pay

Amount of
expenditure
for
holidays
with pay

710,512
273
2,183
1,208
564

(a)
273
2,175
684
553

Es.
(a)
2,443
349,147
(a)
1,100

IRISH

FREE

STATE

SUBIMARY
PAGE

F I R S T PART :

Statistics oj Population

SECOND P A B T :

Social Insurance

...

416
...

...

I.—Workmen's Compensation ...

...

... 416

II.—National Health Insurance ...

...

... 418

...

... 421

...

I.—Unemployment Assistance ...

...

... 422

III.—Unemployment Insurance
THIBD P A B T :

Social Assistance

...

II.—Non-Contributory
Pensions ...

...

416

422

Old-Age and Blind
...
...
...
... 423

III.—Poor Relief

42£

IV.—Medical Assistance
V.—Lunacy Service

426
...

...

... 429

VI.—Maternity and Child Welfare Service

... 430

VII.—Health of School Children
VIII.—Shipowners' Liability
Injured Seamen ...
FOURTH P A B T :

Housing

...

FIFTH P A B T :

Family Allowances

SIXTH PART :

Holidays with Pay

432

towards Sick or
...
...
... 433

...

434

...

436
437

416

Di TEENATIONAL S U R V E Y O F SOCIAL S E R V I C E S , 1 9 3 3

FIRST PART
STATISTICS OF POPULATION
C E N S U S O F 18 A P K I X , 1926.
G A I N F U L L Y O C C U P I E D P O P U L A T I O N (12 Y E A E S O F
A G E OK OVER) CLASSIFIED B Y B B A N C H OF ECONOMIC A C T I V I T Y AND I N D U S T R I A L
STATUS

Branch of economic activity

Agriculture
Fishing ...
Mining a n d quarrying ...
Other producing, making a n d
repairing industries ...
Transport a n d communication
C o m m e r c e a n d finance
Public
administration
and
defence
Professions
Personal
service
(including
hotels
a n d catering,
but
excluding
Government
or
local a u t h o r i t y )
E n t e r t a i n m e n t s a n d sports
Other industries or industries
not stated
T o t a l gainfully occupied p o p u lation1

Employers

Working
on own
account
and
assisting
relatives

Employed

51,958
271
43

482,128
3,996
36

7,414
634
11,191

Total
at
work 1

All
persons
out of2
work

Total

114,489
1,266
1,625

648,575
5,533
1,704

13,570
190
338

1,310,7:
11,2;
3,7.

32,988
4,431
24,500

116,735
33,825
78,546

157,137
38,890
114,237

28,942
4,689
9,978

343,2
82,41
238.4Í

5,340

76,146
32,554

76,146

1,029

6,290
862

158,5!
78,7(

6,212
199

10,822
356

110,922

127,956

7,411

4,231

4,786

474

263,3i
10,04

183

328

8,616

9,127

5,327

23.5Í

79,134

564,925

578,955

1,223,014

78,071

2,524,0E

38,923

T o t a l p o p u l a t i o n : a g e d 12 y e a r s a n d o v e r , 2 , 2 8 3 , 8 5 7 ; a l l a g e s , 2,971,992.
Excluding persons confined to hospitals and other institutions, those engaged on home
duties; children attending school, persons retired from previous gainful occupations and others
not following gainful occupations who did not describe themselves as " out of work," students
(not2 professional students, or articled clerks).
Excluding those confined to hospitals, etc. ; of these, 9,789 were returned as occupied in the
occupational census.
1

SECOND PART
SOCIAL INSURANCE
I.—Workmen's Compensation
1.—Legal Basis.
Employers are individually liable to pay compensation ; insurance
is optional.
The first Act was passed in 1897, and important amendments were
made in 1900 and 1906. In 1917 temporary legislation, amended
in 1919, was passed in order to adapt compensation rates to the
increased cost of living : this legislation is still kept in force from
year to year.1
1
A n A c t of 1934 c o n s o l i d a t e d t h e e x i s t i n g l a w a n d m a d e i m p o r t a n t a m e n d m e n t s in t h e scheme of benefits.

417

I E I S H F R E E STATE

2.—Scope.
The right to compensation is conferred on all persons working under
a contract of service or apprenticeship (except non-manual workers
whose annual remuneration exceeds £250, casual workers employed
otherwise than for the purposes of the employer's trade or business,
outworkers, and members of the employer's family living with him).
3.—Administration.
Insurance is optional. Employers may insure with insurance
companies or with employers' mutual indemnity associations.
The compensation claims are settled by agreement between the
parties or by judges of the Circuit Courts, acting as arbitrators. The
Department of Industry and Commerce supervises the application of
the Acts.
4.—Financial Resources.
Compensation is payable entirely by the employers.
5.—Benefits.
Compensation is payable for personal injury by accident arising
out of and in the course of employment, and also for disablement
from certain scheduled occupational diseases, viz., anthrax, poisoning
by lead, mercury, phosphorus, arsenic, benzene and its homologues
and their nitro- and amido-derivatives, dinitrophenol, nitrous fumes,
dope, tetrachlorethane, carbon bisulphide, nickel carbonyl, and
African boxwood; ankylostomiasis, miner's nystagmus, miner's beat
hand, elbow and knee, inflammation of the synovial lining of the wrist
joint and tendon sheaths ; cataract due to exposure to molten glass ;
glanders ; telegraphist's and writer's cramp ; ulceration due to chrome,
dust or liquids, tar, pitch, bitumen, mineral oil or paraffin; chimney
sweep's cancer ; compressed air illness.
(a) Benefits in case of incapacity.
Compensation consists of cash benefits only. No distinction in the
amount of compensation is made between temporary and permanent
incapacity.
Compensation is payable from the eighth day of incapacity or,
when the incapacity lasts two weeks, from the first day.
1. In case of total incapacity, compensation under the Act of 1906
is a weekly payment not exceeding half of the average weekly earnings
before the accident, the maximum payment being 20s. a week. By the
1917 and 1919 Acts the amount so calculated is increased by 75 per cent.
with a maximum of 35s. a week.
2. In case of partial incapacity, compensation is a weekly payment
not exceeding half the difference between the average weekly earnings
before the accident and the weekly amount which the worker is earning
or capable of earning after the accident, the maximum payment
being 20s. a week.
*

G 12973

418

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

3. Weekly payments may, by agreement between the parties or,
in the case of permanent incapacity, at the instance of the employer,
be commuted for a lump sum.
(b) Benefits in case of death.
1. The compensation payable in case of death is a lump sum
equal to three years' earnings, subject to a maximum of £300 and a
minimum of £150.

2. If only persons partially dependent on the deceased are left, the
compensation is a lump sum which, subject to the foregoing maximum,
is fixed by agreement or arbitration.
3. If no dependants are left, compensation consists of the reasonable
expenses of medical attendance and burial subject to a maximum of £10.
6.—Statistics.
The total amount of compensation paid in 1933 by insurance
companies on behalf of employers in the principal branches of economic
activity, including agriculture, and by large insured employers,
including railways, was £141,624, of which £44,375 was paid on behalf
of agricultural employers. The following are the six branches of
non-agricultural employment in respect of which returns are received :
(1) factories to which the Factory and Workshops Acts, 1901 to 1920,
apply ; (2) quarries and mines ; (3) constructional work and building ;
(4) harbours, docks, etc. ; (5) railways and tramways ; (6) shipping.
I t is estimated that about half of the total number of cases of compensation come within these six specified branches of non-agricultural
industry, and that in 1932 the number of persons employed in them
was 129,225.
The following statistics relate to the whole of employers' liability
business, not merely to the branches of industry enumerated above,
in 1931, the latest year for which these statistics are available :
Amount

Income

Reserves a t beginning of
year
Premiums
(less
re-insurances)
Interest and dividends
(less tax)
Miscellaneous
(mainly
transfers from profit and
loss account)
Total

341,381
329,996
11,833

Expenditure
Claims (including medical
and legal expenses)
Commission and expenses
of management
Miscellaneous
(mainly
transfers to profit and
loss account) ...
Reserves a t end of year...

50,314
733,524

Total

Amount
£

225,118
121,055
8,531
378,820
733,524

H.—National Health Insurance
1.—Legal Basis.
Compulsory health insurance was instituted by an Act of 1911.
The most important of the amending Acts are those of 1913, 1918,
1920, 1929>nd 1933.

419

IRISH FREE STATE

2.—Scope.
Insurance is compulsory for all employed persons aged 16 and
upwards, with the exception of non-manual workers whose annual
remuneration exceeds £250^ casual workers employed otherwise than
for the purposes of their employer's trade or business, unpaid apprentices and unpaid children of the employer, and public servants and
others entitled to equivalent benefits.
3.—Administration.
The scheme is administered by a single mutual benefit society of
which all insured persons are members. The society, which was
established in 1933, is taking over the assets and liabilities of all the
existing approved societies and will be managed by a committee
consisting of nine persons elected by the insured, three employers'
representatives appointed by the Minister for Local Government and
Public Health, and three trustees similarly appointed.
4.—Financial Resources.
The scheme is financed by a joint contribution from the employer
and the insured person and by a State subsidy.
The joint contribution is payable weekly as follows :
—
Man
Woman

Employer

Insured

Total

d.
4
4

d.
4
3

d.
8
7

The State pays two-ninths of the cost of benefits and of local
administration and the whole cost of central administration.
5.—Benefits.
The scheme covers the risks of sickness (first 26 weeks of incapacity)
and disablement (incapacity after first 26 weeks) of the insured person,
and the confinement of an insured woman or the wife of an insured man.
The benefits consist of sickness, disablement, maternity, marriage
and additional benefits.
The qualifying periods of insurance are different for the several
benefits. Once the qualifying period is completed, a person remains
continuously insured and entitled to benefits (i) as long as he is
employed, (ii) during incapacity for work, (Hi) during 12 months
after cessation of insurable employment. Sickness and disablement
benefits cease at age 70.
(a) Sickness benefit.
In order to be entitled to sickness benefit, the beneficiary must have
been continuously insured for a period of 26 weeks with actual payment
of 26 contributions : he is then entitled to benefit at the reduced rate.
After 104 weeks of insurance and payment of 104 contributions he is
entitled to benefit at the full rate. Benefit is not payable during the
four weeks following confinement.
Dd2

420

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

Sickness benefit consists of a weekly payment from the fourth day
of incapacity for 26 weeks at the following rate :
—

Reduced rate

Full rate

». d.
9 0
7 6

Men ...
Women

15
12

0
0

(b) Disablement benefit.
In order to be entitled to disablement benefit, the beneficiary must
fulfil the same conditions as those for full rate of sickness benefit.
Disablement benefit consists of a weekly payment from 27th week of
incapacity during continuance of incapacity at the rate of 7s. 6d. for
men and women.
(c) Maternity benefit.
In order to be entitled to maternity benefit, the beneficiary or her
husband must have been continuously insured for 42 weeks with
actual payment of 42 contributions.
Maternity benefit consists of a lump sum payable on confinement
at the following rates : insured woman, £4 ; wife of insured man, £2.
(d) Marriage benefit.
An insured woman who marries loses all her acquired rights to
benefits, and, if she remains in insurable employment, must complete
afresh the qualifying periods for the several benefits. In compensation
for the loss of her acquired rights she is granted a lump-sum marriage
benefit, the amount of which varies with the duration of her insurance
and the number of contributions paid in respect of her.
(e) Additional benefits.
If the society, after the quinquennial actuarial valuation of its
assets and liabilities, is found to possess a surplus, it may use that
surplus for the provision of additional sickness, disablement and
maternity benefits and for paying part of the cost of dental, ophthalmic,
hospital, etc., treatment. These benefits are only available to persons
who were members of the society at the date of the valuation.
6.—Statistics.
Number of insured persons, 1933 : 473,766.
INCOME AND E X P E N D I T U R E OF NATIONAL H E A L T H INSURANCE F U N D
FOR
INCOME

Contributions of insured ...
Contributions of employers
Public subsidies
Revenue from investments...
Other revenue
Total

1933
EXPENDITURE

£
288,155
316,637
268,674
139,082
153
1,012,701

Cash benefits
Benefits in kind
Cost of administration
Other expenditure ...
Total

...

..
..

£
730,778
71,859
163,596
463
966,696

421

IRISH FREE STATE
ASSETS AT 31 D E C E M B E B

1933

Invested with Minister for Finance
...
...
...
Investments made by or on behalf of Approved Societies
Cash in hand

...
...

Total

...
...

£
2,271,383
1,167,450
22,671
3,461,504

m.—Unemployment Insurance
1.—Legal Basis.
Compulsory unemployment insurance was instituted by an
Act of 1911. Its scope was extended by an Act of 1920, which has
since been amended several times (the Act of 1933 did not come into
force until 1934).
2.—Scope.
Insurance is compulsory for all persons of the age of 16 and upwards
who are employed under a contract of service (or apprenticeship with
a money payment), with certain exceptions.
The principal exceptions are (i) persons employed in agriculture,
horticulture and forestry, (ii) private domestic servants, (iii) persons
employed in an established capacity in the permanent service of the
State, (iv) public servants and other persons who are in stable employment, (v) non-manual workers whose annual remuneration exceeds
£250 and (vi) old-age pensioners.
3.—Administration.
The scheme is administered by the Department of Industry and
Commerce through the local employment exchanges.
4.—Financial Resources.
The finances of the scheme are derived from three contributory
sources, contributions being compulsorily payable by employers, by
insured persons and by the State. An Unemployment Fund is established under the control and management of the Minister for Industry
and Commerce, into which are paid all contributions, and out of which
are paid all benefits. The rates of contributions were as follows :
W E E K L Y CONTRIBUTIONS EST P E N C E

Men
Women
...
...
Boys (16-18 years)
Girls (16-18 years)

...

Employer
7
6
3*
3

Insured
6
5
3
2¿

State
5*
4$
Z\\
2-fc

5.—Benefits.
Insured persons are entitled to unemployment benefit as a right,
subject to certain statutory conditions, and the claimant must be free
from certain statutory disqualifications.
The chief statutory conditions are that (i) twelve contributions
have been paid, and (ii) the claimant must be capable of and available
for work, but unable to obtain suitable employment.

422

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

Disqualification for benefit may arise in cases where employment
was lost through a trade dispute or misconduct or wa3 left voluntarily
without just cause.
Benefit is payable only in respect of continuous unemployment;
for this purpose two periods of unemployment of not less than two days
each, separated by a period of not more than two days, or two periods
of unemployment of not less than one week each separated by an
interval of not more than six weeks, are treated as constituting continuous unemployment.
Benefit is payable for one week in respect of every six contributions,
subject to a maximum of 26 weeks in the year, at the following rates :
Weekly
s.
15
12
7
6

Men
Women
Boys (16-18 years)
Girls (16-18 years)

rate
d.
0
0
6
0

These rates are increased in respect of workers liable for maintenance of a family by 5s. weekly for wife or husband and Is. for each child.
6.—Statistics.
Number of insured, 1 October 1933 : 359,516.
INCOME

AND

EXPENDITUKE

OF UNEMPLOYMENT
31 MARCH 1934

INCOME

FUND

FOP. Y E A P .

ENDED

EXPENDITTJBE

£
Contributions of employers
and insured
...
...
State contributions
...

553,360
236,678

Total

790,038

Benefit
...
...
...
Administration expenses ...

£
601,835
157,592

Total

759,427

Balance a t 31 March 1934 (deficit) : £409,482.

THIRD

PART

SOCIAL ASSISTANCE
I.—Unemployment Assistance
1.—Legal Basis.
An Act, the Unemployment Assistance Act, 1933, to provide for
the relief of unemployed persons and to make such financial and other
provisions as may be required for that purpose became law on 16 November 1933. That part of the Act which authorised persons coming
within the scope of the Act to apply for unemployment assistance did
not come into operation until 18 April 1934.
2.—Beneficiaries.
The assistance, which is given in the form of a money payment each
week, is free to unemployed persons and they are not required to make
any contribution in respect of it. All citizens who have attained their
18th year but who have not attained their 70th year come within the
scope of the Act, provided that their means, calculated in accordance
with the Act, do not exceed in case they are resident in a county

IRISH FBEE STATE

423

borough or in the Borough of Dun Laogbaire, £52 per annum, and in
case they are resident elsewhere in the Irish Free State, £39 per annum.
Women applicants are required to comply with other special conditions
before they can come within the scope of the Act.
3.—Administration.
The scheme is administered by the Minister for Industry and Commerce through the local employment exchanges.
4.—Financial Resources.
The finances of the scheme are derived from moneys provided by
the State. These moneys are raised from general taxation and from
levies made on certain local authorities and on the Unemployment
Fund.
5.—Benefits.
The rates of unemployment assistance payable to applicants vary
according to their place of residence, the number of their dependants
and their means. Different scales are provided for persons resident in
county boroughs and the Borough of Dun Laoghaire, for persons
resident in an urban area and for persons resident elsewhere.
The main conditions to be fulfilled by an applicant for the receipt
of unemployment assistance under the Act are that he must be
involuntarily unemployed, capable of work, available for work, and
genuinely seeking work. The term " unemployed " as used in this
Act has a special meaning, which is not the generally accepted meaning
of the term. Persons who, though occupied on small farms or engaged
in small businesses from which they derive means within the limits
indicated, are regarded as unemployed for the purposes of the Act and
they may receive payment of unemployment assistance proportioned
to the amount of their under-employment, even while they are occupied
on their farms or engaged in their businesses.
An applicant is disqualified for the receipt of unemployment
assistance while he is resident outside the Irish Free State, while he is
undergoing imprisonment or detention, while he is an inmate in an
institution maintained by public moneys, while he is in receipt of a
pension or benefit under other Acts providing benefits or pensions,
and while he is unemployed by reason of a stoppage of work due to a
trade dispute at the premises at which he was employed.

H.—Non-Contributory Old-Age and Blind Pensions
1.—Legal Basis.
Non-contributory pensions were instituted by the Old-Age Pensions
Act, 1908, which was amended in 1911, 1919, 1920 (blind pensions),
1924, 1928 and 1932.
2.—Beneficiaries.
In order to be eligible for a non-contributory pension, a person
(a) must have resided in Saorstát Eireann for at least thirty
years ;

424

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

(6) must, if a citizen of Saorstát Eireann, have resided for a t
least six years, and, if n o t a citizen, for a t least sixteen years,
in Saorstát Eireann since attaining the age of fifty, and
(c) m u s t not possess means exceeding £39 5s. a year.
3.—Administration.
Responsibility for the administration of the scheme is shared
between the Central Departments (Finance, Local Government and
Public Health, Post Office) and local pension committees (appointed
b y the local authorities). Local officers of the Department of Finance
investigate t h e means of claimants. Pension committees decide
claims. The Minister for Local Government and Public Health
hears a n d determines appeals from their decisions. The P o s t Office
effects p a y m e n t of pensions.
4.—Financial Resources.
The sums necessary to meet t h e cost of non-contributory pensions
are voted annually b y Parliament.
5.—Benefits.
The scheme covers the risks of old age and blindness. The
pensionable age is 70 for the aged and 30 for the blind.
The rate of pension varies according to the means of the claimant,
as follows :
Weekly pension
Where the yearly means do not exceed
£
15
15
18
20
23
26
28
31
34
36
39

s. d.
£ s.
12 6
12 6 but not 18 5
5 0
20 17
17 6
23 10
10 0
26 2
2 6
28 15
15 0
31 7
7 6
34 0
0 0
36 12
12 6
39 5
5 0

10
9
8
7
6
5
4
3
2
1
No pension

0
6
0
6
0
6
0
6
0

6.—Statistics.
N u m b e r of pensioners a t the end of 1933 : 129,619 (including
5,375 blind persons under 70 years of age).
EXPENDITUBE FOB YEAB ENDED 31 MABCH 1934
Cost of pensions ...
Cost of administration :
Expenses of pension committees ...
Revenue department
Stationery and printing
Local Government and Public Health
Department of Posts and Telegraphs

3,309,433
...
...
...
...

£
7,305
70,570
185
8,050
22,580
108,690

Total expenditure

3,418,123

425

IRISH FREE STATE

1.—Legal Basis.

m.—Poor Relief

The Poor Relief Act as modified by the Local Government (Temporary Provisions) Act, 1923, and the schemes for the relief of the
poor prepared by each County Council in pursuance of the provisions
of the Act of 1923.
2.—Beneficiaries.
Poor persons who are unable by their own industry or other
lawful means to provide for themselves or their dependants the
necessaries of life or necessary medical or surgical treatment are
eligible for assistance.
3.—Administration.
The central department charged with the direction and control of
poor relief is the Department of Local Government and Public Health.
The service is administered locally by boards of health and public
assistance.
4.—Financial Resources.
The expenses of the service are met out of the poor rate, a tax
levied by local authorities on the net annual value of lands, buildings
and other hereditaments rateable. The State makes two direct subventions : (1) a grant out of the licence duties in respect of the salaries
of medical officers and nurses and the cost of medicines, and (2) a grant
out of estate duty in respect of poor law expenditure generally.
There is also an indirect subsidy—the grant in relief of the rates on
agricultural land. These grants are not paid to poor law authorities
but direct to the county councils who supply poor law authorities with
the money they require.
5.—Benefits.
Persons eligible for relief are normally relieved in their own homes
by an allowance in cash or in kind known as home assistance. Those
who cannot be effectively relieved in this way (aged and infirm persons,
chronic invalids, harmless lunatics, idiots, etc.) are received and
maintained in institutions. Orphan and deserted children are boarded
out in private families. Deaf and dumb and blind persons are sent to
special extern institutions (i.e., institutions not administered by the
local authority) where they are maintained at the public expense.
Extern institutions for other classes (mental defectives, unmarried
mothers) can be and are also availed of.
6.—Statistics.
The total number of persons receiving assistance (including persons
in county and district hospitals) from poor law authorities on 31 March
1933, was as follows :
(1) In institutions :
(i) I n institutions provided and administered by
public assistance authorities
...
...
...
(ii) In extern institutions ...
...
...
...
Total in institutions

Men

Women

Children

7,708
276

6,688
573

2,943
856

7,984

7,261

3,799

426

INTERNATIONAL SUEVEY OF SOCIAL SEBVICES, 1 9 3 3

Men
(2) On Jiome assistance :
(i) Adult males and their dependent wives and
children :
(a) Permanently disabled by old age or infirmity .. .
9,135
(6) Temporarily disabled by sickness or
accident
2,412
14,470
(c) Able-bodied ...
—
(d) Wives of men in classes (i) (a), (6) and (c)...
(e) Children under 15 (of persons in classes (i)
—
(o), (6), (c) and (rf)
(ii) Adult females a n d their children :
(a) Permanently disabled by old age or infirmity
(6) Temporarily disabled by sickness or accident
(c) Able-bodied
(d) Children under 15 of women in classes (ii)
(a), (6), (c) :
legitimate
illegitimate
(iii) Orphans and children without either parent...
(iv) Persons suffering from mental infirmity or
deficiency...
427

Women

—

Children

—

—
—
17,238
—

—
—
—
46,800

10,479
1,631
6,110
15,621
662
623
377

(3) Children boarded-out :
Number of children boarded-out

41
2,094

Total on home assistance and boarded-out

26,453

35,835

65,841

Total number of persons in receipt of assistance
a t home, or boarded-out or in institutions, or
receiving treatment in institutions on 31
March 1933
34,437

43,096

69,640

The proportion per 1,000 of the population of the total number of
persons as shown above (147,173) to the estimated population (2,974,000)
was 49 • 5.
INCOME

AND E X P E N D I T U R E

OP P O O R L A W AUTHORITIES P O R Y E A R
31 MARCH 1933

INCOME

EXPENDITURE

£
Money supplied by county
councils
... 1,799,654
Repayment of assistance ...
81,360
Other receipts
...
...
56,882

Total

ENDED

1,937,896

Salaries of officers ...
Home assistance
Maintenance in homes, hospitals, etc.
Other expenditure (including
expenditure under Medical
Charities Act detailed elsewhere under Medical Assistance) ...
Total

£
267,549
761,183
296,764

720,368

... 2,045,864

IV.—Medical Assistance
1.—Legal Basis.
A domiciliary and dispensary medical service for poor persons is
organised under the Medical Charities Act, 1851. County and district
hospitals are provided and maintained in accordance with schemes

IRISH FREE STATE

427

for the relief of the poor prepared under the Local Government
(Temporary Provisions) Act, 1923. A special tuberculosis service is
provided under the Tuberculosis (Prevention) (Ireland) Act, 1908.
County Councils may make special arrangements for the treatment of
venereal disease under the Public Health (Ireland) Act, 1878, and the
Public Health (Prevention and Treatment of Disease) (Ireland) Act,
1917.
2.—Beneficiaries.
The domiciliary and dispensary medical service is available to all
poor persons and is not confined to the destitute. The county and
district hospitals, and tuberculosis and venereal disease services are
available to all sick persons, whether necessitous or not.
3.—Administration.
The dispensary medical services are administered by the boards of
health and public assistance appointed by the county council. The
tuberculosis and venereal disease services are also administered by
the boards of health and public assistance except in a county borough,
where they are under the council of the county borough. General
supervision is exercised by the Department of Local Government and
Public Health.
4/—Financial Resources. .
The cost of the domiciliary and dispensary medical services and
of the hospitals is defrayed out of taxation raised by local authorities,
who receive subventions from the State. The principal subvention is
in respect of the salaries of medical officers and nurses and the cost
of medicines.
The cost of the tuberculosis service is shared equally between the
local authority» and the State, while that of the venereal disease
service is shared between the local authority and the State in the
proportions of 25 per cent, and 75 per cent, respectively. Contributions towards the cost of hospital treatment and (save in the case of
persons hable to National Health Insurance) sanatorium treatment
for tuberculosis are required from patients who are able to pay or
from their relatives if they are hable for the patient's maintenance.
In rural areas a portion of the charge, for medical assistance and
other local services which would otherwise be leviable off land is met
out of a special government grant called the agricultural grant.
5.—Benefits.
The domiciliary and dispensary medical service provides free
medical attendance, medicines and medical and surgical appliances,
including artificial teeth and limbs. Treatment by specialists is
provided in difficult or dangerous cases. Patients must be visited in
their homes if they cannot attend the dispensary. The service includes
the free attendance by midwives on women in their confinement in
their own homes.
Each county has a public hospital system for the treatment of

428

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

medical, surgical and maternity cases and cases of infectious diseases.
In most counties there is a central hospital supplemented by small
district hospitals for the treatment of urgent cases.
The tuberculosis service consists in the provision of dispensaries
and sanatoria. Each county has a central tuberculosis dispensary
with several branches, staffed by a special medical officer and several
nurses : treatment is given at the dispensary or in the patient's home.
Some of the larger county authorities maintain their own sanatoria,
and the smaller contract for the accommodation of their patients with
certain large national sanatoria.
In three cities and thirteen counties facilities are provided for the
diagnosis and treatment of venereal disease, free of cost for all classes
of the community. Treatment is given at dispensaries attached to
hospitals, and private doctors who treat these diseases are supplied
with the necessary special medicines ; a free laboratory service is also
provided.
6.—Statistics.
(a) Dispensary medical service.
The number of new cases attended by dispensary medical officers
during the year ended 31 March 1933 was 732,025, of which 588,131
were attended at dispensaries and 143,894 at patients' residences. The
number of cases attended by dispensary midwives was 13,176. There
are 581 dispensary districts, 965 dispensaries and dispensary depots,
631 dispensary medical officers, 41 compounders of medicines and 665
midwives and nurses.
The expenditure under the Medical Charities, Dispensary Houses
and Vaccination Acts in the year ended 31 March 1933 was as follows :
Salaries of officers
Medicines and appliances
Other expenditure
...

...
...

...

Total

£
231,476
27,395
51,717
310,588

(b) Hospital service.
At the end of March 1933, there were 5,293 cases in the County
and District Hospitals and 379 in Fever Hospitals.
(c) Tuberculosis service.
The number of cases treated during the year 1933 was as follows :
Children under 15 years
...
Adults :
Pulmonary tuberculosis
Non-pulmonary
...
Observation cases
...
Total
Expenditure £213,433.

...

4,911

...
...
...

...
...

10,496
2,280
3,271
20,958

Government grant £86,999.

(d) Venereal disease service (1932-33).
Number of patients
...
...
Out-patient attendances
...
In-patient days ...
...
Approved expenditure £11,300.

...
...

...
...
2,394
...
... 37,052
...
...
10,499
Government grant £7,725.

IRISH FREE STATE

429

V.—Lunacy Service
1.—Legal Basis.
The Local Government (Ireland) Act, 1898, places on every county
council an obligation to provide and maintain mental hospitals for the
insane poor in accordance with the Lunacy Acts. Should the county
council fail to provide sufficient accommodation, the Minister for Local
Government and Public Health may order them to remedy the failure.
2.—Beneficiaries.
Any person who is medically certified to be of unsound mind and
a proper person to be confined can be admitted to the district mental
hospital provided by the county council. Patients who have no means
are maintained free. The whole or part of the cost of maintenance
can be recovered from patients who have an income or who have
relatives that are legally liable for their maintenance and in a position
to pay. No contribution whatever was received during the year on
behalf of 89 per cent, of the patients in residence at the end of the
year 1933.
3.—Administration.
The county council, acting through a committee of management,
is the local authority for the administration of the service. The
committee of management regulates the expenditure and can, subject
to the approval of the Minister for Local Government and Public
Health, make rules for the admission and discharge of patients and
the government of the mental hospital. The Minister's approval is
required by the committee before they can purchase land, erect
buildings, raise loans, or appoint or remove the higher officers.
The Minister must appoint an officer called the Inspector of Mental
Hospitals to visit all public and private establishments for the insane
regularly and report on their condition and the state of the patients.
State subsidies are conditional on a reasonable standard of care and
treatment being maintained.
4.—Financial Resources.
The cost of maintaining district mental hospitals is defrayed out of
a local tax, the poor rate, which is levied upon the. net annual value
of lands, buildings and other hereditaments rateable. The State
provides a grant in respect of each patient for whom the net charge
upon the council (after deducting any amount received by them for
his maintenance from any source other than the poor rate) is equal
to or exceeds four shillings a week. The amount of this grant was
equal to 3s. 6d. per week approximately for each free patient in 1933.
Besides this subvention there is for rural areas a grant called the
agricultural grant which reduces the poor rate that would otherwise
be leviable off land. This amounts to about 55 per cent, of the rate
on land for all general services.
5.—Benefits.
Insane and mentally defective persons are maintained and treated
in public mental hospitals, which are staffed and equipped for the

430

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1933

purpose. Each hospitaL has a resident medical superintendent and at
least one assistant medical officer. On 31 December 1933 there were
in all 50 medical officers, 9 visiting surgeon dentists, and 2,123 mental
nurses engaged in the care and treatment of patients, besides other
officers (clerks, tradesmen, etc.) to the number of 680. There are
3,080 acres of land connected with the mental hospitals on which
many of the patients find occupation.
6.—Statistics.
ADMISSIONS, DISCHARGES, D E A T H S AND N U M B E R B E S I D E N T I N 1933
PROPORTION TO THE POPULATION

AND THE

(District Mental Hospitals)
Admissions
Discharges
For first time

Re-admissions

2,151

552

Deaths

Resident on
31 December
1933

1,295

1,001

Daily average
number
resident in
1933

18,235

18,164

Proportion per 100,000 of the estimated population
18-4

71-9

43-3

33-5

609

607

INCOME AND E X P E N D I T U R E OF MENTAL HOSPITAL COMMITTEES POR 1932-1933
EXPENDITURE

INCOME

From county councils
From State capitation grant
From paying patients
Other receipts (sales of farm
produce, etc.)

Total

£
576,476
150,155
67,062
29,035

Salaries, wages and superannuation
Provisions, groceries, spirits
and tobacco
Clothing
Medicines
Bedding and furniture
Fuel and light
F a r m and garden expenses
Other expenses (repairs, etc.)

356,735
180,346
32,756
4,335
16,794
57,170
41,866
59,204

Total for maintenance
Payment of interest and redemption of loans

749,206

Total

806,346

822,728

Average cost of maintenance per patient :

57,140

£40 16«. Od. per annum.

VI.—Maternity and Child Welfare Service
I t is not intended that the Maternity and Child Welfare Service
should supersede or interfere with the provision of medical attendance
or midwifery services which are available under the Medical Charities
Acts. The practice suggested to health visitors is to recommend any
poor woman eligible for medical relief to secure the attendance of the
district midwife in her confinement or, if the case is in any way
abnormal, the dispensary medical officer.

IRISH FBEE STATE

431

In a few areas where district midwives have not been appointed
or where the mother may not be qualified for assistance under the
Medical Charities Act, the scope of the Child Welfare scheme can be
extended to arrangement for professional services before and at
confinement.
1.—Legal Basis.
The statutory basis of the maternity and child welfare service in
the Irish Free State is the Notification of Births (Extension) Act, 1915.
2;—Beneficiaries.
The service is available to all expectant and nursing mothers and
children under five years of age. Under the schemes a midwife or
doctor may be provided for the aid in their confinements of necessitous
women not being entitled to benefit under the National Insurance
Acts or in receipt of assistance from the Poor Law Authority and also
such drugs and other requisites as may be approved.
3.—Administration.
The central department charged with the general supervision of the
service is the Department of Local Government and Public Health.
The local authorities are the councils of counties acting through the
boards of health and the councils of boroughs and urban districts. The
council may subsidise voluntary associations engaged in maternity and
child welfare work.
4.—Financial Resources.
The cost of the service is shared equally between the local authority
and the State. Local authorities are required to recover from beneficiaries or their relatives, according to means, the cost of their
maintenance and treatment in an institution.
5.—Benefits.
The service comprises home visiting by nurses, the provision of
welfare centres, where medical advice and treatment are given, the
provision of medical attendance during pregnancy and confinement,
the provision of nourishment in necessitous cases for expectant and
nursing mothers and infants, the provision of hospital treatment for
complicated cases of confinement and for infants, and the provision
of day nurseries and of homes for the children of widowed, deserted
and unmarried mothers.
6.—Statistics.
The number of maternity and child welfare schemes in operation
at the close of the year 1933 consisted of 103 administered by voluntary
associations and 25 by local authorities.
Approved expenditure £52,038. Government grants amounting
to £12,783 were issued to local authorities, and £12,438 was the amount
of the grants to voluntary associations.

432

INTERNATIONAL STJBVEY OF SOCIAL SERVICES, 1 9 3 3

VU.—Health of School Children
1.—Legal Basis.
Statutory powers to provide meals for school children were given
to certain local authorities under the Education (Provision of Meals)
(Ireland) Acts, 1914 to 1917, and the School Meals (Gaeltacht) Act,
1930.
Statutory powers to provide for the medical inspection and
treatment of school children were given to local authorities under
the Public Health (Medical Treatment of School Children) (Ireland)
Act, 1919.
2.—Beneficiaries.
The beneficiaries are children in public elementary schools. Meals
and medical treatment are only gratuitous where the children are
necessitous.
3.—Administration.
The central department for the school meals and medical inspection
service is the Department of Local Government and Public Health.
The local authorities are the county councils, acting through the
county boards of health.
4.—Financial Resources.
The cost of the school meals and medical inspection services is
shared equally between the local authority and the State. Parents
are required to repay, according to their means, the cost of meals and
medical treatment provided for their children.
5.—Benefits.
Meals may be provided for children who are unable by reason of
lack of food to take full advantage of the education offered to them.
The medical inspection service comprises the inspection of children
at the beginning, middle and end of their school career, and the
provision of treatment for defects of the eyes, nose, throat and teeth
and minor ailments. Hospitals and other organisations are availed of
as far as possible. The specialised hospital and extern departments
attached to the general hospitals in Dublin afford convenient centres
for the treatment of minor conditions, and cases requiring operation
are admitted to the wards of the hospital. Various expedients have
been adopted for dealing with visual defects to avoid unnecessary
inconvenience to the parents and to obviate the loss of school time.
In some counties the assistant county medical officers of health, who
have undergone a course of special training, prescribe glasses for
simple refractions, and fit the spectacles. Ophthalmic surgeons are,
however, generally employed to hold sessions at hospitals and other
stations. The more serious visual defects receive treatment at the
county hospital or are sent to special extern hospitals.
The dental hospitals are used in Dublin and Cork for treatment
of dental defects. Dental clinics are also held at the Carnegie Institute

rBISS FREE STATE

433

in Dublin. Surgeon-dentists have so far been employed on a part-time
basis in the counties.
Cases of enlarged tonsils and adenoids in the cities requiring
operative treatment are referred to the eye, ear and throat hospitals
in Dublin, Cork and Limerick. In the counties, cases receive treatment at the county or district hospitals to which specialists are
attached.
Minor ailments are treated at the school clinics or referred to the
dispensary medical officer or other medical attendant.
6.—Statistics.
(a) School meals.
Year
ended
31
March

1933

Districts
in which
in
operation

Schools
participating

199

Average
number
fed
daily

21,117

Total
number
of
meals

3,897,366

Total
cost

Average
cost of
food per
meal

19,469

1-06

Government Grant.
School meals in the Gaeltacht (Irish-speaking districts in the
counties of Cork, Donegal, Galway, Kerry and Mayo).
Meals are provided in 333 schools, having a daily average attendance
of 17,974 children.
(b) School medical service.
The total number of children examined by school medical officers
in the year 1933 was 107,954.
The Government grant (not exceeding one-half the sums spent on
approved schemes) was £22,148.

Vm.—Shipowners' Liability towards Sick or Injured Seamen
1.—Legal Basis.
The legal provisions which impose on shipowners the duty of
assisting sick or injured seamen are contained in the Merchant Shipping
Act, 1906. In case of incapacity persisting after the expiry of
the shipowner's liability, or in case of death, the seamen or his
dependants may claim compensation under the Workmen's Compensation Acts.
2.—£cope.
The provisions apply to all sea-going ships registered in the Irish
Free State except those engaged in coastwise fishing.
The beneficiaries comprise every person employed or engaged in
any capacity on board a ship (except pilots).
«. G 12973

E e

434

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

3.—Benefits.
(a) Injury in the service of the ship and illness not due to the seaman's
fault. The shipowner is hable for the wages of the seaman while on
board, and, if he is left behind abroad, for the expenses of his maintenance and medical treatment until he is cured or is repatriated, and
for the expenses of his repatriation.
(b) Illness due to the seaman's fault. The shipowner is hable for
the maintenance and medical treatment of the seaman while on
board. Any other reasonable expenses incurred by the shipowner in
respect of the illness of the seaman are to be deducted from his wages.
In cases, however, where the seaman, having been left ashore, is
found in distress and has to be repatriated, the shipowner is hable to
reimburse the Government for expenses incurred by it on account of
the maintenance of the seaman after leaving the ship until he is
repatriated and for the expenses of his repatriation.
(c) Death. The shipowner is hable for the burial expenses of a
seaman who dies from injury received in the service of the ship or
from an illness not due to the seaman's fault.
4.—Statistics.
In 1933, 27 seamen employed on Irish Free State ships received
benefits, at a cost to shipowners of £511.

FOURTH PART
HOUSING
1.—Legal Basis.
The public authorities assist in the provision of cheap dwellings
under the Housing of the Working Classes (Ireland) Acts, 1890 to
1921, the Housing Acts, 1924 to 1932, the Small Dwellings Acquisition
(Ireland) Act, 1899 and 1919, and the Labourers (Ireland) Acts, 1883
to 1919.
2.—Beneficiaries.
Houses erected under the Housing of the Working Classes (Ireland)
Acts are intended for the working classes, but these classes are not
defined.
A system of grants from public moneys to assist private enterprise
in housing was initiated under the Housing (Building Facilities) Acts,
1924, and continued with modifications by Acts passed in the period
1924-1932.
Under the Small Dwellings Acquisition (Ireland) Acts, 1899 and
1919, as amended by the Housing (Miscellaneous Provisions) Act,
1931, local authorities are empowered to advance loans to private
persons towards the erection or purchase of small houses in which they
reside or intend to reside.
The purpose of the Labourers (Ireland) Acts, 1883 to 1932, is to
improve the condition of agricultural labourers by providing them

IRISH FREE STATE

435

with cottages and gardens. The Acts now apply not only to labourers
on the land but also to artisans and other workers in rural districts.
Advances of loans are made from the Local Loans Fund to local
authorities building houses under the Housing of the Working Classes
Acts.
3.—Authorities and Undertakings Concerned in Building.
The public authorities, bodies and persons concerned in building
are the local authorities (county, borough or urban district council,
county board of public health, etc.), public utility societies (nonprofit-making) and private builders, under the supervision of the
Minister for Local Government and Public Health.
4.—Financing by Public Authorities.
Under the Housing (Financial and Miscellaneous Provisions) Act,
1932, which applies to houses completed since 1 April 1932, State
subsidies are as follows :
(a) to local authorities providing houses in towns to 66$ per cent, of the
replace unhealthy houses.
annual loan charges.
(6) to local authorities providing houses in towns 33J per cent, of the
for persons other t h a n those displaced from unannual loan charges.
healthy houses.
(c) to local authorities providing houses in rural 60 per cent, of the annual
areas.
loan charges.
(d) to public utility societies providing houses in A grant of £100 per
towns for letting at rents approved of by the State
house provided the
Authorities.
local authority concerned agree to give a
supplemental grant of
£50.
(e) to private persons and public utility societies
providing houses in urban areas without restriction as to sale or letting :—
(1) F o r houses begun on or after 1 April 1929, A grant of £45 per house.
and completed before 31 December 1932.
(2) For houses begun after 12 May 1932 a n d A grant of £70 per house.
completed before 1 J u n e 1933.
(3) For houses begun after 12 May 1932 a n d A grant of £60 per house.
completed before 1 April 1934.
(4) For houses begun after 12 May 1932 and A grant of £50 per house.
completed before 1 April 1935.
(/) to small farmers providing houses in rural areas
for their own occupation :—
(1) The rateable value of whose farm does not A grant of £70 per house.
exceed £15.
(2) The rateable value of whose farm exceeds A grant of £60 per house.
£15 but does n o t exceed £25.
(¡¡r) to rural workers providing houses for their own A grant of £70 per house.
occupation.
(h) to public utility societies providing houses in
rural areas for small farmers :—
(1) The rateable value of whose farm does not A grant of £80 per house.
exceed £15.
(2) The rateable value of whose farm exceeds A grant of £70 per house.
£15 but does n o t exceed £25.
(i) to public utility societies providing houses in A grant of £80 per house.
rural areas for rural workers.
Eo 2

436

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

(/) to private persons in rural areas other than srnall A grant of £45 per house.
farmers or agricultural labourers.
(fc) to small farmers and rural workers for the re- A grant of £40 per house.
construction of their own houses.
I n addition two-thirds of the local rates are remitted for a period of seven
years on the houses referred to a t (e) and (j) above.

5.—Statistics.
(1) Number of houses built under State-aided schemes in the financial year ended
31 March 1933.
A. By private persons and public utility societies :
3-roomed houses ...
...
...
...
...
86
4„
189
5„
,
729
1,004
B. By local authorities :
2-roomed houses ...
...
...
...
...
56
371
4„
„
;
1,047
5„
„
...
...
...
...
...
3
1,177
Total

2,181

(2) Housing Loans sanctioned during the year ended 31 March 1933.
£
Housing of t h e Working Classes Acts
...
...
875,042
Housing Acts, 1924-30. Local Assistance
...
—
Small Dwellings Acquisition Acts ...
...
...
401,580
Labourers Acts
429,000
Total
1,705,622
(3) Receipts and expenditure of local authorities under the Housing of the Working
Classes Acts, 1890-1921.
£
Receipts (including rent a n d rates)
...
...
378,262
Expenditure from revenue of local authorities ...
461,303
(4) State grants in the year ended 31 March 1933.
£
A. To private persons and public utility societies...
73,031
B . (1) To rural sanitary authorities t h a t erected
labourers' cottages
...
...
...
...
300
(2) To other local authorities t h a t erected
houses under t h e Housing Acts
...
...
15,568
Total
88,899
After March 1932 no further assistance was granted by local authorities.

FIFTH PART

FAMILY ALLOWANCES
Legal provision for the payment of family allowances exists only
on behalf of civil servants, and is made by regulations issued by the
Minister for Finance in virtue of the statutory power vested in him.

IEISH FBEE STATE

437

The regulations apply only to persons entering the civil service since
1924.
Family allowances take the form of higher rates of salary for
married men (women are required to resign on marriage) together
with allowances in respect of each child. In grades in which the
maximum salary exceeds £700 a year (excluding cost of living bonus),
no distinction is made between married and unmarried men, and
children's allowances are paid only in grades in which the maximum
salary for an unmarried man does not exceed £500 a year (excluding
cost of living bonus).
The maximum salary for married men exceeds that for unmarried
men by £100, save in the lowest grade, when the excess is £50; the
annual increments are proportionately higher for married men.
Allowances are payable in respect of children up to the age of 16
or, in the case of children continuing their education and invalid
children, up to the age of 21. The total of the allowances payable to
an official is subject to a maximum of £60 or £75 a year, according to
grade.
On 1 January 1934, higher rates of salary were being paid to 75
officials, of whom 8 also received children's allowances amounting to
£204 a year.
SIXTH PART

HOLIDAYS W I T H PAY
Annual holidays with full pay are granted in certain occupations
(1) under provisions of collective agreements, (2) under staff regulations, (3) under provisions of an arbitration award, and (4) under
hours of work legislation (Shop Act). For a number of years past the
practice of giving holidays with pay has been growing more and more
extensive, and the particulars set out below are of course not exhaustive.
(1) Holidays granted under provisions of collective agreements.
(a) Bank officials :
Under 15 years'service ...
...
...
...
... 15 days.
15 and under 20 years'service ...
...
...
... 18 „
20 years'service and upwards ...
...
...
... 21 ,,
Agents, managers and officials at head offices occupying
equivalent positions ...
...
...
...
... 1 calendar month.
Officials are allowed all Bank Holidays with full pay.
(b) Local authorities :
The following public holidays with pay are granted to salaried and
wage-earning classes :
New Year's Day
Easter Saturday
Good Friday
Easter Monday
Whit Monday
First Monday in August
Christmas Day
St. Stephen's Day
St. Patrick's Day.
Salaried classes.—The holiday allowances of officials vary from 18 days
to 36 days according to status.
Wage-earning classes.—The holiday allowances of tradesmen, labourers
and various other employees who are paid on a weekly basis vary from
6 days to 16 days. I n certain cases workmen are required to serve a
qualifying period before being allowed holidays with pay.

438

INTERNATIONAL SURVEY OP SOCIAL SERVICES, 1 9 3 3

(c) Railway employees :
Clerical staffs, supervising grades and station masters are granted
12 to 21 days and all Bank Holidays with full pay.
Road passenger services.—Inspoctors (after 1 year's service) are granted
2 weeks ; drivers, conductors a n d garage staffs are granted :
After 1 year's service...
...
1 week with half-pay.
After 2 years'service...
...
1 week with full pay.
Road goods services.—Motor drivers, v a n guards a n d garage staffs
(after 6 months' service) are granted 6 days with full pay.
(d) Miscellaneous :
Besides all Bank Holidays, the following classes of workers are granted
holidays with full pay as indicated :
Shop assistants and clerks ...
...
...
... 12 days
Fitters and mechanics
...
...
...
...
1 week
Dyers, bleachers and kindred trades
...
...
1 „
Butchers
...
...
1 „
Printers and bookbinders ...
...
...
...
1 „
Electrotypers and stereotypere :
News printing houses
...
...
...
...
2 weeks
Job
„
,,
...
...
...
...
1 week
Bakers (including general labourers in bakehouses)
1 „
R o a d transport workers (other t h a n railway employees) :
Passenger vehicle workers
...
...
...
2 weeks
Goods vehicle workers ...
...
...
...
1 week
Laundresses ...
Tobacco workers
Bottling workers
Rosary bead makers ...
Jewellery and metal workers
Sugar confectionery workers
(2) Holidays granted under staff regulations.
Government employees ... 6 to 36 days according to status of post
Insurance officials :
First 10 years of service
...
... 2 weeks
10 years' service and upwards ...
...
... 3 ,,
Executive officials
...
... 1 m o n t h
(3) Holidays granted under provisions of arbitration award.
Railways :
Engine drivers, firemen and porters
... 6 days (in addition to
Christmas Day and Good Friday)
(4) Holidays granted under hours of work legislation.
Persons employed in shops engaged in the retail
sale of intoxicating liquor (Shops Act, 1912) 14 consecutive days
Persons employed in shops carrying on the
business of supplying refreshments for consumption on the premises (Shops Act, 1913) 6 days

ITALY
SUMMARY
FIRST P A K T :

Statistics of Population

SECOND P A R T : Social Insurance

...

I.—Workmen's Compensation ...
...
II.—Sickness Insurance ...
...
...
III.—Maternity Insurance
...
...
IV.—Tuberculosis Insurance
...
...
V.—Invalidity and Old-Age Insurance ...
VI.—Subsidised Benefit Schemes for Staffs
Public Undertakings
...
...
VII.—Other Social Insurance Schemes ...
VIII.—Unemployment Insurance ...
...
THIRD PART :

Social Assistance

...

I.—Medical Assistance and Assistance for
Aged, Infirm and Incurable
...
II.—Maternity and Child Welfare Service
III.—Assistance for Young Persons
...
IV.—Assistance for Workers
...
...
V.—National Institute for Workers'Leisure
FOURTH PART : Housing

...

440

...

440

...
...
...
...
...
of
...
...
...

440
447
458
459
461
467
473
475

...

477

the
...
...
...
...
...

477
478
479
481
491

...

493

F I F T H PART :

Family Allowances

...

495

SIXTH PART :

Holidays with Pay

...

496

440

INTERNATIONAL SURVEY OF SOCIAL SERVICES, 1 9 3 3

FIRST PART

STATISTICS OF POPULATION
CENSUS OP 21 APBIL 1931.
GAINFULLY OCCUPIED POPULATION (AGED 10 YEAHS
AND OVER) CLASSIFIED BY OCCUPATIONAL GROUPS AND INDUSTRIAL STATUS

Occupational groups

I n d u s t r y ...
Transport,
communications ...
Commerce

Owners,
managers,
directors

Salaried
employees

Handicraftsmen'

336,448

191,334

770,666

163,220
869,191

164,020
280,946

1,368,859

636,300

770,666

W n ,i. n K ,

Workers

Total

4,011,226

5,309,674

467,425
169,030

794,665
1,319,167

4,647,681

7,423,506

Agriculture
Banking and insurance
Public and private
administrative
services,national
defence
Liberal professions,
arts, religion ...
Domestic service
Unspecified
Gainfully occupied
population 2
Total population
Total population
(aged 1Ò years
and over)

8,033,332
103,609

542,098
570,023
539,953
179,878

—

17,442,399
41,651,617 3
32,120,508 3

1
Including handicraftsmen who employ workers or apprentices against remuneration (514,154)
and independent craftsmen who perform the work alone or with the help of members of their
family
(256,512).
1
Excluding pensioners of all kinds, students, housewives, the disabled, prisoners, beggars,
prostitutes, etc.
* i.e., " R e s i d e n t " population.

SECOND P A R T

SOCIAL INSURANCE
I.—Workmen's Compensation
A.—WORKMEN'S

COMPENSATION I N I N D U S T R Y AND COMMERCE

1.—Legal Basis.
The Act of 31 January 1904, as amended by the Acts of
17 November 1918, 120 March 1921, 5 December 1926, 13 May 1929
and 23 March 1933.
1
By Boyal Decree of 17 August 1935, which will come into force on 1 July
1936, the scheme was amended, more particularly b y an extension of the scope,
the introduction of benefits in kind, compensation in the form of pensions, etc.

ITALY

441

2.—Scope.
The scheme covers the following persons :
(a) Workers employed in mining, construction, industries manufacturing or using explosives, arsenals and shipyards, gas and electric
power works, undertakings for the construction and repair of electrical
apparatus, and telephone undertakings.
(6) Workers in the following industries or undertakings, provided
that more than five workers are employed in them : Construction and
working of railways and tramways driven by mechanical means,
transport undertakings, maritime, river or lake navigation, fishing,
loading and unloading, hydraulic works, cutting of standing timber,
road construction, nawying, etc.
(c) Workers employed in undertakings making use of mechanical
motive power.
A worker is deemed to be any person employed outside his own
home at a fixed wage or at piece rates. The scheme also covers
apprentices, whether paid or unpaid, and overseers whose daily
remuneration does not exceed 20 lire.
3.—Administration.
The scheme was administered up to 30 June 1933 by the National
Industrial Accident Insurance Institute, by voluntary accident
associations grouped in a federation, and by four compulsory mutual
insurance associations. The scheme was unified and its management
entrusted exclusively to the Fascist National Industrial Accident
Insurance Institute (formerly the National Industrial Accident
Insurance Institute). Only the accident insurance scheme for maritime
transport workers continues to be managed by three compulsory
territorial associations (for the composition and working of these
associations, see section on compulsory sickness insurance scheme for
seamen and airmen). The former compulsory association for Workers
employed in the sulphur mines of Sicily was transformed into a special
section of the Institute on 1 January 1934.
The Institute is managed by a governing body consisting of five
employers' representatives, five workers' representatives, two accident
insurance experts, one representative of the Fascist National Party,
the chairman of the Fascist National Social Welfare Institute, two
representatives of the Ministry of Corporations, and one representative
each of the Ministry of Finance and the Ministry of the Colonies.
4.—Financial Resources.
The cost of workmen's compensation is borne entirely by the
employer, who must take out a policy for the insurance of his workers,
stating the nature of his undertaking, the date and duration of the policy,
the number of workers insured, and the wages they receive.
5.—Benefits.
(a) Definitimi of the risks covered.
(i) Industrial accidents.—An industrial accident is deemed to be
an accident due to a violent cause connected with work and entailing
death or injuries, the effects of which last more than five days.

442

INTERNATIONAL SURVEY O F SOCIAL S E R V I C E S ,

1933

(ii) Occupational diseases.—A schedule appended to the Decree of
1929 gives a list of the diseases deemed to be occupational diseases if
they are contracted during employment on and as a result of the
processes mentioned in the schedule for each disease, provided that
compulsory accident insurance has been extended to these processes.
The list is as follows :
Diseases

Processes

Maximum period within
which compensation is
payable after cessation
of employment

(1) Poisoning by lead or
its alloys or compounds, anil sequete.

(a) Handling of minerals containing lead,
including residues containing lead
in zinc factories.
(b) Casting of old zinc and lead in ingots.
(c) Manufacture of articles made of lead
or of lead alloys.
(d) Processes in the polygraphic industries
in which lead or lead alloys are used.
One year.
(e) Manufacture of lead compounds.
(/) Manufacture and repair of electric
accumulators.
to) Preparation and use of enamels and
varnishes containing lead.
(A) Polishing by means of lead filings or
paste with a lead content.
(¿) Painting operations involving the
preparation and manipulation of
coating substances, cements or
(2) Poisoning by mercury
colouring substances containing
or its amalgams or
lead pigments.
compounds, and se(a) Handling of mercury ore, down to the
quela;.
bottling of the metal.
(Ô) Manufacture of mercury compounds.
(c) Manufacture of measuring and laboraOne year.
tory apparatus containing mercury.
((i) Preparation of raw materials for the
hat-making industry (carroting of
fur for hats).
(c) Fire gilding involving the use of
mercury.
(/) Use of mercury pumps.
(3) Poisoning by white or (ff) Manufacture of fulminate of mercury
Two years.
yellow phosphorus,
primers.
and sequete.
(A) Silvering of mirrors with mercury.
(4) Poisoning by carbon (a) Manufacture of fireworks and miners'
tinders with white phosphorus.
bisulphide, and sequete.
(a) Manufacture of carbon bisulphide.
(b) Extraction of oils, fats, essences or
One year.
resins by means of carbon bisulphide.
(c) Manufacture of cellulose and subsequent processes preceding spinning
in artificial silk factories.
(5) Poisoning by benzene
or its homologues (d) Vulcanisation by the cold process and
the preparation of rubber solution
or nitro or chloro
with carbon bisulphide.
derivatives of ben(a)
Manufacture
of benzene and its homozene and its homoOne year.
logues and of nitro and chloro derilogues and sequete.
vatives of benzene and their
homologues.
(6) Processes in which rubber solution
with benzene is employed.
(6) Ankylostomiasis
(c) Manufacture of perfumes and soaps Six months.
in which benzene derivatives are
used.
The Decree of 5 October
1933
the
(a) Work in
mines,subsequently
tunnels and brick sanctioned
kilns.

principle
of the extension of the regulations in force for accident insurance to
insurance against occupational diseases, in the absence of provisions to
the contrary. It fixes the rules to be followed for the supervision of
occupational diseases and the payment of compensation, regulates the

ITALY

443

procedure in the case of recurrence of the disease, and provides that
medical and technical factors shall be taken into account in any
future extension or improvement of the Act. It also gives the following
list of the clinical forms of diseases giving a right to compensation :
Diseases

Clinical forms
' Lead ansemia.
Arterio-sclerosis, heart disease, due to lead.
Poisoning by lead or its alloys or compounds, and Lead colic.
Lead encephalopathy, ocular lesions, due to lead.
sequela!.
Myalgia, arthralgia, arthritis, gout, due to lead.
Lead nephritis.
Lead paralysis.
P

° ™ Ä Í L T n ' S 0r
pomma, aim sequud..

itS a m a l g a m s o r com

- ( i t o r a Ä ? I g ? s t r o - c n t e r i t i s , of mercurial origin.
[ Tremors, paralysis, psychosis, of mercurial origin.
f Chronic phosphorus poisoning with disturbances
of the digestive apparatus, with ansemia,
Poisoning by white or yellow phosphorus, and«
caused by general poisoning by phosphorus.
sequela?.
Phosphorus necrosis of the maxillary bones,
I other phosphorus diseases of the bones.
f Anaemia caused by carbon bisulphide.
Poisoning by carbon bisulphide, and sequelae
< Psychosis, neuritis, paralysis, caused by carbon
I bisulphide.
I Anaemia caused by benzene or its homologues.
Anaemia caused by nitro or halogen derivatives
Poisoning by benzene or its homologues or nitro
of benzene and its homologues.
or halogen derivatives of benzene and its homo- Cutaneous haemorrhage, hemorrhage of the
mucous membrane or parenchyma (metrorlogues, and sequelaj.
rhagia in women), caused by benzene and its
homologues.
Neuritis due to benzene or nitro or halogen
derivatives of benzene and its homologues.
Anaemia caused by ankylostomiasis.
Ankylostomiasis
Gastro-intestinal disturbances caused by ankylostomiasis.

(b) Benefits in hind.
No provision is made for benefits in kind in the case of industrial
accidents.
In the case of occupational disease, the cost of treatment is met
by t