INTERNATIONAL LABOUR OFFICE
THE SIXTH
INTERNATIONAL CONFERENCE
OF LABOUR STATISTICIANS
Montreal, 4 to 12 August 1947
GENEVA
1948
STUDIES AND REPORTS
New Series, No. 7
(Part 4)
PUBLÏSHED BY THE INTERNATIONAL LABOUR OFFICE
Geneva, Switzerland
Published in the United Kingdom for the INTERNATIONAL LABOUR OFFICE
by Staples Press Limited, London
Distributed in the United States by the INTERNATIONAL LABOUR OFFICE
Washington Branch, 1825 Jefferson Place, Washington 6, D.C.
FEINTED BIT
ATAR, GENEVA, SWITZEBIAND
CONTENTS
Page
PREFACE
v
INTRODUCTION
1
1
2
2
Convocation and Agenda
Preparation of Reports
Preliminary Meeting of Experts
4
4
8
OPENING OF THE CONFERENCE
Address of Welcome
Organisation of Conference Work.
COMMITTEE ON EMPLOYMENT AND UNEMPLOYMENT STATISTICS
.
Organisation
Summary of Work
Report
COMMITTEE ON COST-OF-LIVING STATISTICS
Organisation
Summary of Work
Report.'. . .
COMMITTEE ON INDUSTRIAL ACCIDENT STATISTICS
Organisation
Summary of Work
Report
CLOSING OF THE CONFERENCE
Adoption of Committee Reports and Resolutions
Closing Speeches
9
9
9
11
26
26
26
28
35
35
35
39
42
42
47
APPENDICES
APPENDIX
I. Text of Resolutions adopted by the Conference ...
I. Resolution concerning statistics of employment, unemployment and the labour force
II. Resolution concerning cost-of-living statistics ....
III. Resolution concerning industrial injury rates
IV. Resolution concerning inland transport statistics ...
V. Resolution concerning the further consideration of international standards for statistics of employment,
unemployment and the labour force
VI. Resolution concerning statistics of workers'earnings. .
52
52
60
63
64
65
66
INTRODUCTION
CONVOCATION AND AGENDA
At its 100th Session in October 1946 the Governing Body of
the International Labour Office authorised the Office to convene
the Sixth International Conference of Labour Statisticians to
meet in Montreal on 4 August 1947, and fixed the agenda as
follows :
I. Employment and Payroll Statistics. Methods of obtaining
an over-all picture of the volume of manpower and employment,
as well as its fluctuations, in the economy as a whole and in the
major branches of economic activity. The methods and uses
of payroll statistics which are obtained in conjunction with
employment data will also be considered.
II. Unemployment Statistics. Methods of obtaining statistics
of the numbers and proportions of workers unemployed, and
the fluctuations in these, in the economy as a whole and in the
different economic sectors.
III. Cost-of-Living Statistics. Wartime
developments in methods and techniques.
and
post-war
IV. Industrial Accident Statistics. Amendments to the
resolutions, adopted by the First International Conference of
Labour Statisticians in October 1923. Proposed restatement of
methods of measuring industrial accident rates.
At its 102nd Session m June 1947 the Governing Body
decided to communicate to the Sixth International Conference
of Labour Statisticians the resolutions concerning inland
transport statistics which had been adopted by the Inland
Transport Committee of the International Labour Organisation
with a request that the Conference, examine the problems dealt
with and the views expressed, and consider the means by which
it would be possible to implement the proposals of the Inland
Transport Committee.
á
SIXTH CONFERENCE OF LABOUR STATISTICIANS
PREPARATION OF REPORTS
Early in 1945, the International Labour Office, anticipating
the need for a new formulation of standards on employment
and unemployment statistics, sent out questionnaires and
requests for detailed monographs on methods of statistics in
these fields to certain countries in which new developments
had occurred or in which one or more types of statistics of
employment or unemployment were especially well developed.
A considerable amount of material was thus accumulated.
Further questionnaires in regard to specific points were also
sent out and, as a result, by the autumn of 1946 extensive data
on employment and unemployment statistics had been collected
to serve as the basis of reports dealing with new methods in these
fields. At the same time a report had been prepared dealing
with cost-of-living statistics, the materials for which had been
gathered during the war years. The report covered a series
of new questions, which had not previously received attention
from the International Conference of Labour Statisticians.
A further report discussed proposed amendments to the
resolution concerning industrial accident statistics, adopted
by the First international Conference of Labour Statisticians
in 1923. This report was specifically directed to the revision of
that part of the resolution which dealt with the measurement of
rates, in order to provide greater international comparability
on this aspect of the subject. The Office had devoted considerable attention to this matter since the Conference in 1923,
and the report was based on these earlier studies.
PRELIMINARY MEETING OF EXPERTS
On the authorisation of the Governing Body at its 100th
Session in October 1946, the Office convened a small preliminary
meeting of experts on 4 March 1947 to consider the draft reports
and in particular to define the scope of the agenda. *
1
Eight experts were invited to this meeting: Mr. R. B. Ainsworth,
Director of Statistics of the Ministry of Labour and National Service,
United Kingdom; Mr. Charles Bettelheim, Director of Research, Statistics and International Relations Centre, Ministry of Labour and Social
Security, France; Mr. Ewan Clague, Commissioner of Labor Statistics,
United States; Mr. FrantiSek Fajfr, President of the Central Statistics
Office, Czechoslovakia; Mr. D. K. Lieu, Commercial Counsellor, Chinese
Embassy, Washington; Mr. Herbert Marshall, Dominion Statistician,
Canada; Mr. Josué Sáenz, formerly Director-General of Statistics,
INTRODUCTION
3
The experts made a number of detailed suggestions and
recommendations on the draft reports. In accordance with
their recommendations the reports on employment and unemployment statistics were combined; the topic of payroll statistics was dismissed with a brief mention; and various suggestions
developed by the preliminary meeting were incorporated in
the reports. The report on cost-of-living statistics was redrafted
on the proposal of the United States representatives, and
included certain new topics. In regard to industrial accident
statistics additional possibilities of reaching international
agreement on specific phases of these statistics were incorporated
in the report as a result of the discussions.
Mexico; and Mr. Arne Skaug, Director of the Central Statistical Office,
Norway. The United Nations also was invited to send a representative
to the meeting.
Of the experts invited, Mr. Ainsworth, Mr. Clague, Mr. Fajfr,
Mr. Marshall and Mr. Skaug attended the meeting. In addition,
Mr. Bettelheim. who had arrived a few days in advance of the meeting,
was able to give his comments on the various draft reports. Representatives of the United Nations also attended, and technical advisers to the
experts from the United States and Canada were present at the discussions.
OPENING OF THE CONFERENCE
The Conference opened at 11 o'clock on 4 August in the
building of McGill University Medical School in Montreal, the
facilities of which had been generously placed at the disposal of
the Conference.
The meeting was attended by the delegates of twenty-four
countries, besides fifteen technical advisers and experts, representatives of the Governing Body and representatives of the
United Nations, the Food and Agriculture Organisation, the
International Civil Aviation Organisation, and the International
Monetary Fund. In addition, one country sent an observer.1
The representatives of the Governing Body who attended
were: Miss Frieda MILLER, United States (Government group);
Mr. H. W. MAGDONNELL (substitute for Mr. Harry TAYLOR),
Canada (Employers' group); and Mr. Percy BENGOUGH, Canada
(Workers' group).
ADDRESS OF WELCOME
Mr. Jef HENS, Assistant Director-General of the International Labour Office, in welcoming the delegates to the Conference, said that the first five International Conferences of Labour
Statisticians had been held during a period of 14 years but that
ten years had elapsed since the last one had taken place. This
long interruption was of course due to the war, which had affected
all forms of international co-operation. The International
Labour Office sincerely hoped that this new reunion would mark
the beginning of a long series and that in the future these
meetings could be held at regular intervals.
At the present Conference 24 countries were represented by
more • than 50 delegates. This was a gratifying response to
the Office's invitation. The Governing Body was represented
by a tripartite delegation composed of Miss Miller, Mr. Macdonnell, who was substitute for Mr. Taylor, and Mr. Bengough.
It was also gratifying to note the presence of representatives of
1
The complete list of members is given in Appendix II.
OPENING OF THE CONFERENCE
the United Nations Organisation, the Food and Agriculture
Organisation, the International Civil Aviation Organisation
and the International Monetary Fund, as well as of an unofficial representative from the Pan-American Union.
The first Conference in October 1923 included in its agenda
classification of industries and occupations; statistics of wages
and hours of work; and statistics of industrial accidents. The
second Conference in 1925 examined cost-of-living index
numbers; unemployment statistics; international comparisons
of real wages; and classification of industries. The third
in 1926 studied methods of family budget enquiries; statistics
of collective agreements; statistics of industrial disputes;
and classification of industries. The fourth in 1931 dealt
with international comparisons of real wages; and the fifth in
1937 prepared proposals for a Convention concerning statistics
of wages and hours of work, which was adopted at the 24th
Session of the International Labour Conference in 1938.
The decisions reached in these Conferences were published
by the Office in 1943. !.
Among the most important results achieved in the course of
this first cycle of international conferences were:
(1) the formation of a body of opinion amongst the experts
on those questions through the adoption of resolutions, thus
furnishing useful pointers to national administrations;
(2) the elaboration of a draft Convention on statistical
subjects as approved by experts; and
(3) the parts these conferences had played in making
administrations and trade unions conscious of the desirability
of securing increased comparability and international standardisation.
The present Conference was of considerable importance not
only because it marked a new revival of international collaboration in this field, but also because the need for adequate statistics had never been more keenly felt. This need concerned not
only the field of labour which fell within the competence of
this Conference: it was also felt in all fields of human endeavour
and more especially in those involving social and economic
policies of Governments and international institutions.
1
The International Standardisation of Labour Statistics, Studies and
Reports, Series N (Statistics), No. 25 (Montreal, 1943).
6
SIXTH CONFERENCE OF LABOUR STATISTICIANS
The war had caused tremendous ruin everywhere, and its
devastating effects were felt in every national economy. International trade was far from being back to normal. No country
had as yet succeeded in restoring equilibrium between prices
and wages or between production and needs. Governments
were faced everywhere with immense problems. In their
efforts to reconstruct their countries, they tried to prevent the
repetition of certain evils under which people generally, and
more particularly workers, had to labour. This was the reason
why almost every country aimed at furthering programmes
which would achieve full employment, the raising of standards
of living and the increase of welfare generally.
The preparation, elaboration and application of such plans
presupposed a thorough and up-to-date knowledge of a considerable number of social and economic factors. This was
where statistics came into play. Without them. Governments
would be unable to complete the work they had undertaken.
The demands which at present faced this useful science had
increased considerably and they compelled statisticians constantly to improve the tools which they used.
Statistics relating to employment and unemployment and
those relating to cost of hying were of particular importance
at the present time to the economic policy of nations. It was
only when Governments had at their disposal adequate statistics
in those fields that they could enforce a policy of full employment and raise the standard of living. It was no longer sufficient
to have statistics giving the number of unemployed : the occupations of those employed and the branches where a lack of manpower was felt had to be indicated as well as the industries in
which workers might be spared. Only when such detailed data
were available would it be possible to implement a policy tending
towards a better utilisation of all human resources.
In the same way, pre-war bases of cost-of-living statistics
no longer corresponded to the present situation. The same
products were not available or were not available in the same
quantities. Consumers' tastes had changed or were changing.
The problems which were about to be studied were therefore of
vital interest to the nations which tried to improve the standard
of life of their citizens. International co-operation towards
that end could be efficient only if national statistics were
internationally comparable. It was therefore the duty of
OPENING OF THE CONFERENCE
every country to ensure that its statistics were truly comparable.
It might perhaps be regretted by some that this Conference
had not been called upon by the Governing Body of the I.L.O.
to discuss other questions as, for instance, those relating to
payrolls. Most of the countries did not have such statistics,
although they were highly important, the data on incomes at
the disposal of the workers being most useful when measuring
the business cycle, and constituting an essential element in a
policy aimed at overcoming depressions and preventing inflation.
The agenda had to be restricted because of the time at the
disposal of the Conference, the limited resources of the Office,
and the limitations of available statistics. Out of the decisions
of this Conference, the Governing Body would obtain useful
indications as to the problems which ought to be dealt with by
the technical services of the Office.
The work of this Conference took its place in a broader
framework of activities tending to adjust economic and social
statistics. New needs felt in the field of labour statistics were
apparent also in the field of economic statistics. Nowadays,
for instance. Governments could no longer be content with production censuses at long intervals. They needed to know the
volume of production in each branch of industry and agriculture, and not only of each branch but for each main product,
and not only at long intervals but month by month. Without
these data, they could not check the state of the business cycle
or achieve a better utilisation of available resources.
The United Nations and the other specialised agencies dealt
with one sector of what would, he hoped, soon become a single
and well co-ordinated programme. It was with this end in view
that the agreement reached between the United Nations and
the International Labour Organisation less than a year ago dealt
in Article XII with statistical services. This Article provides
for as close a collaboration as possible between the technical
services in order to eliminate all undesirable duplication between
them and to ensure the most efficient use of their technical
personnel in their respective collection, analysis, publication
and dissemination of statistical information.
The Governing Body had authorised the Office to transmit
the results of this Conference to the World Statistical Congress
to be held in Washington in September 1947 under the sponsorship of the United Nations. In this way the results of the dis-
8
SIXTH CONFERENCE OF LABOUR STATISTICIANS
eussions would take their place amongst the other efforts being
made throughout the world at the present time to improve
science for the greater well-being of mankind.
ORGANISATION OF CONFERENCE WORK
On the proposal of Mr. LACROIX (France), seconded by
Mr. BUSTOS LAGOS (Chile), Mr. MARSHALL (Canada) was unanimously elected Chairman of the Conference. Mr. DELSINNE
(Belgium) was proposed for Vice-Chairman by Mr. AINSWORTH
(United Kingdom), supported by Mr. LACROIX (France), and
was also elected unanimously.
The Standing Orders approved by the Governing Body as
a model for conferences of technical experts were adopted.
On the proposal of Mr. BRUNET (Argentina) Spanish was
adopted as a third official language.
The Officers of the Conference consisting, in accordance with
the Standing Orders, of the Chairman and Vice-Chairmen and
the three representatives of the Governing Body, then met to
consider the organisation of the work of the Conference.
At the second plenary session it was decided that three Committees should be set up: the first to deal with Report I/II on
employment and unemployment statistics; the second to consider Report III, on cost-of-living statistics; and the third to
consider Report IV, on statistics of industrial accidents. It
was provided that the membership of each Committee should
consist of all those delegates who had indicated that they wished
to serve on the Committee, either by filling in their registration
forms or by informing the Secretary-General of the Conference
in writing.
A Drafting Committee of the Conference was set up to
consist of the Chairman and Vice-Chairmen of the Conference,
and one person to be nominated by each of the three Committees.
Finally, it was decided that the document dealing with
inland transport statistics be referred to the Committee on
Employment and Unemployment Statistics and to the Committee on Industrial Accident Statistics.
COMMUTEE ON EMPLOYMENT AND
UNEMPLOYMENT STATISTICS
ORGANISATION
The Committee consisted of 26 delegates and technical
advisers; in addition, representatives of the United Nations and
the Food and Agriculture Organisation attended the sitting.1
The Committee elected as its Chairman Mr. Ewan CLAGUE,
Commissioner of Labor Statistics (United States), and as its
Vice-Chairman Mr. Einar COHN, Under-Secretary of the Department of Statistics (Denmark). Mr. Henri Philippe LACROIX,
Chief of the Central Statistical Service of the Ministry of Labour
and Social Security (France), was elected Reporter. The
Committee held 14 sittings.
A Drafting Committee was appointed, consisting of Mr. 0.
CHAUVELL (Cuba), Mr. E. CLAGUE (United States), Mr. H. P.
LACROIX (France) and Mr. F. WYNN JONES (United Kingdom).
SUMMARY OF WORK
The Committee on Employment and Unemployment Statistics had for its objective the drafting of resolutions embodying
international standards for those statistics. It had before
it the resolutions proposed by the Office in Report I/II on
Employment and Unemployment Statistics.
The first task was the drafting of basic definitions taking
into account the requirements of census or benchmark data and
those of the current series on employment and unemployment.
The labour force was defined as the sum of the employed and
the unemployed.
A distinction was made between the civilian
labour force and the total labour force, the latter including the
armed forces. The precise definition of "armed forces" was left
to the different countries. Attention was concentrated particularly on the civilian labour force. The "employed ", including employers, workers for private or governmental employ1
For the names of members of the Committee, see Appendix II.
10
SIXTH CONFERENCE OF LABOUR STATISTICIANS
ment, those working on their own account but not employing
others, and unpaid family workers, were defined as those who
"had a Job and worked during all or part of a specified period ";
in addition, those who had a job but for reasons of illness,
temporary lay-off, etc., did not actually work, were also to be
included. This second element of the employed group, however, was left without precise specification inthe final definition,
and in effect the exact limits of this group are left to the different countries. The " unemployed " are those who on a given
day were without work but were seeking work, it being provided that a minimum duration of unemployment, not exceeding one week, might be included in the definition. In the
latter case, however, periodic studies were recommended to
determine the difference between the unemployed as so enumerated and the unemployed who would have been returned if the
minimum duration of unemployment was one day.
As to unpaid family workers, there was some discussion as to
the advisabiUty of restricting these to agriculture, and as to
the advisability of setting up a minimum number of hours of
work per week as a criterion for inclusion in the labour force,
but neither of these restrictions was adopted in the final definition.
There was also discussion of the minimum age which might
be specified for inclusion in the labour force, but this matter
was left to the individual countries.
The definitions were amplified in one or two cases, for
example, persons in institutions and persons in labour camps.
They were to be regarded as in the labour force only if they
were free to accept employment elsewhere. A definition of
"occupation" was also included. So far as the classification
of industries was concerned, reference was made to the classification adopted by the Committee of Statistical Experts of the
League of Nations, which was recommended to be followed
until superseded by a revised classification of industries to be
recommended by the Statistical Commission of the United
Nations.
The tabulations and classifications to be recommended for
the employed, the unemployed and the labour force are developed in considerable detail in the resolutions.
An important point was the relative emphasis upon the
different sources of materials. Particular stress was laid upon
the application of campling methods and techniques to the
COMMITTEE ON EMPLOYMENT AND UNEMPLOYMENT STATISTICS
11
materials for the three groups of statistics covered. In particular,
the labour force sample survey was specifically mentioned with
approval.
Employment statistics should be based, for benchmark
data, on censuses or on labour force sample surveys, and insurance statistics ; for current series, on establishment statistics,
labour force surveys or population censuses and social insurance
statistics.
Unemployment statistics should be based, for benchmark
data, on censuses or labour force sample surveys or on unemployment insurance materials, with trade union returns and employment exchange figures, where the exchanges are not operated
in conjunction with an insurance system, as possible though less
satisfactory sources.
Special attention was paid in the resolutions to the need for
current checks and adjustments of the figures, so that the series
should be consistent with one another and with benchmark
data.
A series of resolutions emphasised certain points in regard
to publication.
The Committee adopted the following report, prepared by
the Reporter, Mr. LACROIX.
REPORT
The Committee took as the basis for its discussions the proposed resolutions submitted by the International Labour Office
in Report I/II, Employment and Unemployment Statistics,
pp. 119-130. After a brief general discussion the Committee
examined these proposed texts paragraph by paragraph.
General Objectives
At an early stage in the discussion of the first six paragraphs
on general objectives a set of revised paragraphs, proposed by
Mr. WYNN JONES (United Kingdom), was placed before the
Committee and was taken as a basis for its discussions.
In the case of paragraph 2, which read "In general, employment, unemployment and labour force statistics... (b) should
cover (i) all branches of economic activity...", Mr. LORENZO
(Food and Agriculture Organisation) suggested the addition of
the words "including agriculture, forestry and fisheries ". It
12
SIXTH CONFERENCE OF LABOUR STATISTICIANS
was, however, the view of the Committee that these words were
unnecessary, since the term "all branches of economic activity "
included agriculture, forestry and fisheries along with all other
forms of economic activity.
It was agreed that the term "labour exchanges" used in
paragraph 4 (2) was intended to include private as well as public
labour exchanges.
Paragraph 5 was amended to indicate that statistics on the
labour force should be derived either from "population censuses
or sample surveys of an adequate cross-section of the population ", or "indirectly from the combination of employment and
unemployment statistics derived from the sources indicated
in paragraphs 3 and 4 ".
Definitions
At an early stage of its work, the Committee charged a
small subcommittee, consisting of Mr. MARSHALL (Canada),
Mr. DELSINNE (Belgium), Mr. DICH (Denmark), Mr. EGKLER
(United States) (substitute: Mr. MILLS (United States)) and
Mr. LACROIX (France) with the task of drafting a set of definitions covering the subject matter of paragraphs 7-11 and the
Schedule of the Office text. This Subcommittee submitted
the following draft:
7. To ensure comparability between countries of statistics on
employment, unemployment and the labour force, standard definitions
and'classifications relating to employment, unemployment and the
labour force should be adopted as set forth below.
8. Statistics of the " civilian labour force " should include all
civilian persons above a specified age who are either employed (at
work, or temporarily absent from a job) or unemployed (without a job
and seeking work).
9. Statistics of the " total labour force " should include the
civilian labour force and the armed services.
10. Statistics of the total number of employed persons in the
civilian labour force should include all those who, in a specified period,
perform some work or are temporarily absent from a job.
These statistics should include the following industrial status
groups, industrial status being the status of the individual in respect
of his employment:
(a) workers for private or Government employers;
(b) employers;
(c) persons who work for their own account without employees;
(d) unpaid family workers.
COMMITTEE ON EMPLOYMENT AND UNEMPLOYMENT STATISTICS
13
11. Persons in institutions, including labour camps but excluding
the armed services, shall be regarded as at work or having a job only
if they are free to seek alternative employment.
12. Statistics of the total number of unemployed persons should
include all those seeking work in a specified period, not exceeding a
week, who were not actually at work at any time during the period
but were able to take a job if offered one.
13. Where the specified period to which the statistics relate is
longer than one day special enquiries should be made from time to time
in order to ascertain the difference between the number of unemployed
so defined and the number which would be arrived at if the specified
period taken were a single day.
14. " Industry " is the kind of economic activity or kind of factory,
store or other place in which a person works or follows his occupation.
The classification of a person according to the industry in which he is
employed is determined on the basis of the nature of the activity of the
establishment, irrespective of his occupation.1
15. The " industrial classification " to be recommended is the
international standard classification. At present the only classification having international recognition is that recommended by the
Committee of Statistical Experts of the League of Nations in 1938.
In the event of a revised international standard classification being
recommended by the United Nations Statistical Commission, the use
of such revised standard classification is recommended.
16. " Occupation " is the trade, profession or type of work performed by the individual, irrespective of the industry in which he
exercises it.
The Subcommittee also prepared the following comments
on certain of the problems involved in the use of these definitions
and more particularly in the classification of certain marginal
groups of persons. In the Subcommittee's draft the term
"armed services" was used in the English text. The Committee
1
When the report was presented to the Conference, Mr. Chauvell
(Cuba) asked that a statement be added to take account of the long and
thorough discussions of the definition of industry in the Subcommittee
to which definitions had been referred. Among the points raised were:
(1) the differences in the meanings of "industry", "industrie", and
"industria" emphasised the desirability of terminology that should be
less subject to misinterpretation; (2) the established I.L.O. practice
of using the term " industry " to include agriculture is in line with the
decision of the Permanent Court of International Justice that the term
"industrial" in the Constitution of the International Labour Organisation was to be interpreted as including the problems of agricultural
labour within the competence of the Organisation; and (3) in drafting
the final texts of the resolution, the differences in terminology in the
different languages should be taken into account.
At Mr. Chauvell's suggestion, the definition of "industry" was
omitted from the resolutions, in order to avoid possible conflict with the
definition that might be adopted by the U.N. Statistical Commission and
in effect to leave the matter of the definition to the latter; and the other
definitions included in Schedule I of the resolutions were incorporated in
the text.
14
SIXTH CONFERENCE OF LABOUR STATISTICIANS
later decided to substitute the word "forces " as indicating
more clearly who was covered by the definition.
The resolutions proposing the adoption of standard definitions
and classifications relating to employment, unemployment and the
labour force indicate in general terms the concepts underlying the
definitions and classifications. However, in the application of these
concepts, countries will be faced with many problems in the classification of certain marginal groups. So far, experience with these
detailed classification problems has been limited and it is not yet
practical to attempt to establish international uniformity. Nevertheless, it may be useful to present briefly the practice which has been
adopted in certain of those countries where the problems of classification have received much attention.
Lower Age Limit of the Labour Force.
A difficulty arises in any attempt to specify the minimum age of
persons in the labour force. In many countries, there are laws
preventing the employment of children under a given age in industrial
employment, although legal prohibitions may have little effect on
unpaid employment in agriculture. In general, the practice is to
obtain labour force statistics for at least all persons 14 years of age
and over. In some countries, where there are many workers under
14 years of age, it may be desirable to extend enquiries to cover
persons below this age, but it would seem desirable in such countries
to present figures for the total of persons 14 years of age and
over.
Armed Services.
The wide differences in military ' establishments of different
countries mean that it is difficult to establish any general rule specifying what groups are to be included in the " armed services ". It
may be useful, nevertheless, to indicate that it is intended to include
those who, because of voluntary or involuntary military service, are
not free to accept full-time civilian employment. This will include
regular members of the army, navy, or air force of a country and in
some countries certain special groups as well such, as military nurses,
women's auxiliary services, etc. The term " armed services " is
understood to exclude Government employees whose main function
is public protection, typified by police or gendarmerie. It is strongly
suggested, however, that the detailed composition of the armed
services excluded from the " civilian labour force " be specified.
Persons Temporarily Absent from a Job.
There are relatively difficult classification problems involved in
dealing with persons who have jobs but who were not at work during
a specified period. It is customary to include in this group such
persons as absentees, and those not working because of temporary
illness, vacations or similar furloughs, bad weather, or labour disputes.
In the case of those who are temporarily laid-off, as well as those in the
categories above, consideration should be given to problems of
consistency between procedures used in enumerative surveys and
those used in connection with benefit payments to the unemployed.
COMMITTEE ON EMPLOYMENT AND UNEMPLOYMENT STATISTICS
•
151
1
Trainees, Apprentices, and Volunteer Workers.
Some indication of practice with regard to the industrial status
group " workers for private or Government employers " may be
helpful. The usual practice is to include persons who work in return
for compensation in the form of wages, salaries, tips, commissions or
for other remuneration or considerations. This group will usually
include trainees and apprentices even where they do not receive
monetary remuneration, since the training received is of definite value.
It is customary, on the other hand, to exclude volunteer workers from
the employed group, on the grounds both that they are not paid in any
way and that the types of such activities are so numerous in many
cases as to cause serious measurement difficulties.
Unpaid Family Workers.
There is no uniformity of practice in all countries in the case of
unpaid workers who contribute to the operation of a family enterprise.
In some European countries the agricultural labour force includes
most family members because they are presumed to be on a full-time
basis, but in some other countries attempts are made to exclude trivial
or incidental work by excluding unpaid family workers from the
civilian labour force unless they contribute at least a specified minimum
number of hours of work (such as approximately two full-time
equivalent days per week) to the family enterprise.
Persons in Institutions.
The suggested exclusion from the labour force of persons living
in institutions opens the way to different interpretations in view of
national differences in the inclusiveness of the term " institution ".
Generally, the institutional population is meant to include inmates
who are not free, for legal or other reasons, to leave the institutions.
The term is thus understood to include persons living in prisons, jails,
reformatories or similar penal institutions, mental hospitals, homes
for the aged, infirm or needy including the blind, the deaf, orphans,
the incurably ill or disabled, and similar groups of persons.
Persons Classified as "Seeking Work ".
In view of the institutional differences between countries, no
precise criteria of general applicability can be set down defining the
group to be classified as " seeking work ". In those countries where
unemployment statistics are based on records of social security systems
or employment exchanges, the criteria determining who shall be
classed as " seeking work " will be fixed by legal or administrative
regulations. It may be helpful, also, to consider the practice which
has been adopted in countries with the widest recent experience in
enumerative surveys. The following categories of persons have been
regarded as seeking work:
(a) those who have, within a specified period such as 60 days,
made active efforts to obtain work by registering at an employment
exchange, interviewing prospective employers, placing or answering
advertisements or performing related activities, including those who
would have engaged in such activities except for temporary illness;
(b) those who have been laid off for longer than a specified period,
but who are not actually attempting to obtain work because they
expect to return to their former job;
y
( 16
SIXTH CONFERENCE OF LABOUR STATISTICIANS
(c) those who, because of limited opportunities for employment
in a particular locality or in a particular occupation, have ceased active
efforts to obtain work but would accept employment when available
in the locality or occupation.
Labour Force.
The Committee decided to introduce the definition of the
"civilian labour force" and that of the "total labour force"
before the definitions of "the total number of employed persons " and "the total number of unemployed persons ". The
"total labour force ", it was agreed, should include the civilian
labour force and the armed forces. It was not practicable to
draw up any single definition of what was meant by the " armed
forces ", but the Committee considered that attention should
be drawn in the present report to the references (reproduced
above) by the Subcommittee to the practice of certain countries.
In reply to Mr. CHAUVELL (Cuba) who asked whether the
reference to a specified age related to the limitations set by
national legislation or by the Recommendations adopted by
the 29th Session of the International Labour Conference,
Mr. MARSHALL (Canada) explained that the conclusion of the
Subcommittee on Definitions had been that, at this point, it
was not possible to indicate any internationally acceptable
figure for statistical purposes, since any single figure chosen
might be below the legal age in certain countries. As a guide
to those countries which were initially establishing labour
force series, however, the Subcommittee considered that
attention should be drawn to the practice followed in certain
countries, as noted in the explanatory text (reproduced above)
prepared by the Subcommittee.
Employed.
The definition of the "total number of employed persons "
submitted to the Conference by its Subcommittee on Definitions was based essentially on the text submitted by the Office,
with several material changes. The provision was deleted
that unpaid family workers be included in the numbers of
employed, provided that they were "engaged in tasks directly
related to the operation of a family enterprise for a minimum
of fifteen hours a week not including hours spent in unpaid
domestic work ", Mr. COHN (Denmark) having emphasised
that no such hours limitation was made in his country or in a
COMMITTEE ON EMPLOYMENT AND UNEMPLOYMENT STATISTICS
17
number of other countries, since the most important group of
unpaid family workers —• namely women in agriculture — were
actually engaged in productive work on a full-time basis and
could not therefore be excluded from estimates of the total
number of employed persons.
In place of the terms "salaried employees" and "wage
earners" the final wording refers to "workers for public or
private employers ". The Subcommittee on Definitions recommended against the term "paid workers for public or private
employers " as there might be some misunderstanding concerning
apprentices, domestic servants and other employees whose pay
was not received in direct monetary form, but it was the intention of the Committee that such persons be included in statistics
of the total number of employed persons.
Unemployed.
The text of the resolution submitted by the Office recommended, as did the resolution adopted by the Second International Conference of Labour Statisticians, the inclusion in the
statistics of the "unemployed " of all persons "seeking work on
a given day ".
The Subcommittee on Definitions, however, recommended
the inclusion of " all those seeking work in a specified period ".
The SECRETARY-GENERAL pointed out that the adoption of
the proposed new definition would represent a radical departure
from the rule laid down by the Second International Conference
of Labour Statisticians and would have the effect of reducing
the unemployment totals. If, for example, the "specified
period " taken were one week, the effect would be that a considerable proportion of the unemployed would drop out of sight or,
to be more exact, would be counted as being employed. Moreover the definition would leave the way open to the adoption of
different " specified periods " in different countries, with consequent difficulties in international comparison. The majority
of the Committee were however in favour of a definition of the
type proposed by the Subcommittee, on the grounds that the
procedures currently in use, as well as the requirement of maximum accuracy in the count of the unemployed, necessitated
the use of a period longer than one day. A proposal by Mr.
WYNN JONES (United Kingdom) to add after "in a specified
period" the words ''(if possible on a given day)" was rejected by
4 votes to 10.
18
SIXTH CONFERENCE OF LABOUR STATISTICIANS
On the proposal of Mr. MARSHALL (Canada) it was decided,
by 11 votes to 3, to add after "in a specified period " the words
"not exceeding one week". After further consideration by
the Drafting Committee and by the Committee at its 13th
sitting it was decided to redraft the paragraph as follows :
Statistics of the " total number of unemployed persons " should
include all persons, able to take a job if offered one, who are out of a
job on a given day and have remained out of a job and seeking work
for a specified minimum period not exceeding one week.
In order, however, to ensure that information should be available from time to time on the total numbers of persons unemployed for periods of one day or more, the SECRETARY-GENERAL
suggested the addition of a new paragraph, which was accepted
by the Committee and formed paragraph 13 of the text submitted by the Drafting Committee and is reproduced above.
Types of Statistics
A. Benchmark Data
Paragraph 12 of the Office text was adopted with minor
modifications. On the proposal of Mr. WYNN JONES (United
Kingdom) a new paragraph was added, recommending the provision of information on employment, unemployment and the
labour force for a number of categories in order to provide basic
reference data to which current series might be related.
At the instance of Mr. CHAUVELL (Cuba) and Mr. HART
(Netherlands), who stressed the necessity for data on employment and unemployment by racial groups, a provision was
added recommending that basic reference data should also be
provided for "any important social groups, including ethnic
groups, where appropriate ".
B. Current Series
Employment.
Paragraph 13 of the Office text was submitted in amended
form to the Committee, the Office expert indicating that "series
showing total workers employed " should read " series showing
the total non-agricultural workers employed" since this was
all that could reasonably be called for at the present time.
Mr. LACROIX (France) suggested an amendment to recommend that countries not in an advanced stage of industrial
COMMITTEE ON EMPLOYMENT AND UNEMPLOYMENT STATISTICS
19
development should also furnish statistics on employment, and
the Committee agreed to recommend that in these countries
"annual estimates of non-agriculturai employees should be
prepared; quarterly series on the number of employees in manufacturing should also be prepared ".
At the instance of Mr. MILLS (United States) paragraph 14
of the Office text, which provided that "Employment series
should be prepared... for each industry for which such statistics
may be requested by an intergovernmental organisation ",
was amended by the addition of the words "where practicable ".
On the proposal of Mr. BAKER (New Zealand), who pointed
out the desirability of obtaining statistics of agricultural and
non-agricultural employment for the same dates, paragraph 16
was amended to include a statement that the collection of data
on agricultural employment should be made for dates "coinciding with those for which statistics of non-agricultural employment are collected ".
Mr. DELSINNE (Belgium) pointed out that while this would
provide materials for complete labour force statistics, it would
not necessarily provide information for agricultural employment at its seasonal maximum or minimum inasmuch as the
dates on which non-agricultural statistics were collected might
differ from the seasonal high or low in agricultural employment.
Mr. BAKER (New Zealand) and Mr. GEARY (Ireland)
suggested that provision be made for special studies of the
seasonal variation of employment in agriculture and for estimates, on the basis of these studies and other data, of the
maximum and minimum levels of employment.
At the suggestion of the SECRETARY-GENERAL the following
revised text, incorporating the various proposals which had been
put forward, was adopted :
16. Where seasonal changes in agricultural employment are
substantial, estimates of agricultural employment should be made
more frequently than once a year at dates coinciding with those for
which statistics of non-agricultural employment are collected:
(a) in the more industrially developed countries, such estimates
should be made quarterly;
(b) in other countries, at least semi-annual estimates are desirable
in order to measure agricultural employment when it is seasonally
high and low;
(c) special studies should be made of the seasonal variation of
employment in agriculture and estimates of the maximum and
20
SIXTH CONFERENCE OF LABOUR STATISTICIANS
minimum levels of employment should be made on the basis of these
studies and of the quarterly and semi-annual estimates referred to in
sub-paragraphs (a) and (b) above.
Paragraph 17 in the Office text was accepted with an amendment proposed by Mr. CRESPO (Panama) to the effect that the
series requested be made available by "any industrially developed country " rather than by "any given country ".
Mr. LACROIX (France) proposed a recombination and reallocation of the items listed in paragraphs 18 and 19 of the
Office text. He suggested two new paragraphs, the first of
which referred to the desirability of obtaining series for those
items the variations in which were substantial, and the second
of which requested estimates at intervals for items subject to
little variation in the short-run. This reallocation was accepted
as indicated in the final text of the resolution adopted by the
Committee and is reproduced in the appendix to the present
report.
It was agreed that there was no necessity for securing employment series by single years of age on a current basis and therefore Section (d) in paragraph 18 was changed to read simply
"age groups".
After a general discussion the Committee approved the text
in the form shown in paragraphs 24 and 25 of the resolution
reproduced in Appendix I.
Unemployment.
Paragraph 20 of the Office text was amended at the instance
of Mr. WYNN JONES (United Kingdom) to call for a classification of the numbers unemployed according to sex. The
SECRETARY-GENERAL having suggested the desirability of
providing from time to time a cross-classification of the unemployed by duration of unemployment, an amendment to this
effect was adopted by the Committee. A proposal to classify
the unemployed by industry of last employment and by major
occupation group, embodied in paragraph 21 of the Office text,
was amended on the basis of comments by Messrs. GEARY
(Ireland), DICH (Denmark) and WYNN JONES (United Kingdom)
to refer to the industry of last or usual employment, since the
industry of last employment might be one in which the worker
had been only temporarily employed and to which he had no
substantial attachment.
COMMITTEE ON EMPLOYMENT AND UNEMPLOYMENT STATISTICS
21
An amendment proposed by Mr. GEARY (Ireland), calling
for the preparation of statistics on the duration of unemployment experienced during the preceding year by all wageearners and salaried workers, was taken into consideration in a
discussion of the measurement of the duration of employment
and unemployment but no action on this point was recommended
by the Committee.
Paragraph 22 of the Office text was amended on the proposal
of Mr. CRESPO (Panama) to apply only to industrially developed
countries, and at the suggestion of Mr. WYNN JONES (United
Kingdom), the word "chief" was deleted from the phrase
"chief age groups ".
Paragraph 23 in the Office text was amended in sub-paragraph (d) to read "age groups ", thus deleting the requirement
of current series by single years for juveniles and by specified
10-year age groups for adults. The discussion emphasised
that this paragraph, like the various other paragraphs opening
with the proviso "As resources and facilities permit", was
intended to apply not merely to industrially developed countries
but to all countries.
Paragraph 24 of. the Office text was amended on the proposal
of Mr. WYNN JONES (United Kingdom) and Mr. LACROIX
(France) to call for the specified cross-classification of unemployment if possible for other regions as well as those in which unemployment is particularly severe.
Labour Force.
With respect to the types of series to be computed on labour
force (paragraphs 25 and 26 of the Office text) the Committee
decided, on the proposal of Mr. BRUNET (Argentina), to recommend that series be computed for the civilian labour force, since
certain countries might not feel able to issue estimates of total
labour force. It further recommended that data be obtained
either from labour force sample surveys of the total population,
as has been the practice in some countries, or by a combination
of employment and unemployment data obtained from other
sources.
At the instance of Mr. WYNN JONES (United Kingdom), it
was recommended that separate data be provided for males and
females since this classification is of great importance in the use
of labour force data.
22
SIXTH CONFERENCE OF LABOUR STATISTICIANS
Paragraph 26 was adopted with the deletion of point (c)
(transferred to paragraph 25) and the revision of (d) to read
"age groups ".
Methods and Techniques
Employment.
Paragraph 27 of the Office text was accepted without material
alteration, as was paragraph 29. On the proposal of Mr.
LACROIX (France) it was agreed to add to the latter paragraph
a new section calling for studies to determine the best methods
for setting up and revising from time to time a complete list
of the establishments to be used in determining a representative
sample.
On the recommendation of the Subcommittee on Definitions, and after extended discussion in the Committee as a
whole, it was agreed that paragraph 28 in the Office text should
be deleted. It was not thought desirable at the present time
to recommend the inclusion in employment estimates of all
persons attached to an establishment since at least some of
these would make no contribution to the output of the industry,
and it was not possible to draft an internationally acceptable
list of the precise groups of persons, employed but not at work
who should be included in the statistics of employment in
establishments. The Committee decided, however, to draw
attention in the present report to the reference by its Subcommittee on Definitions (in the passage quoted above) to the
practice of various countries with respect to the groups included
and excluded.
Paragraphs 30 and 31 of the Office text were adopted without
material alteration.
Paragraph 32 of the Office text was changed, at the instance
of Mr. ECKLER (United States), to replace the words "a unified
set of employment series " by "a consistent set of employment
series ", in order to emphasise that the series should not necesarily be combined into a single set, but only that they should be
consistent.
Paragraphs 33-35 in the Office text were adopted with minor
modifications.
Unemployment.
After an extended discussion of paragraphs 36-40 of the
Office text, paragraph 37 was deleted, because it duplicated
COMMITTEE ON EMPLOYMENT AND UNEMPLOYMENT STATISTICS
23
a new paragraph (number 13 in the definitions recommended
by the Subcommittee and quoted above) which had been
suggested to the Committee by the Secretary-General at an
earlier stage. Paragraph 38 was amended to place equal emphasis on percentages and absolute figures. Paragraph 39 (2) was
deleted on the ground that an over-all unemployment percentage,
based on the total civilian labour force, might be misleading,
since a considerable proportion of the labour force was not
exposed to the risk of unemployment.
Sub-paragraphs (c) and (e) of paragraph 40 were combined
and replaced by the following text: "others who, though
unemployed, do not apply or are not qualified for social security
benefits ".
On the proposal of Mr. WYNN JONES (United Kingdom), it
was decided to include a recommendation that percentages of
unemployment be computed for each industry for which such
information is of significant utility, for all industries taken
together, and for the principal regions, with separate figures
for males, for females, and for males and females taken together.
At the suggestion of Mr. DICH (Denmark) a paragraph was
added calling for studies of seasonal fluctuations in the principal
unemployment series, with a view to the possible preparation
of seasonally adjusted series.
Paragraphs 44 and 46 in the Office text were adopted without substantial change, while paragraph 45 was deleted as being
covered by a paragraph adopted earlier.
Labour Force.
Paragraph 47 in the Office text, dealing with the method of
labour force sample surveys of the population, was amended
by the deletion of the word "accurate" lest the use of this term
convey a false impression to readers unfamiliar with statistical
techniques.
Paragraphs 48 and 49 of the Office text were accepted with
additions and combined in a single paragraph indicating some
of the problems to which attention should be given in the use of
labour force sample surveys.
Publication
The paragraphs presented in the Office text dealing with the
subject of publication were accepted with three substantial
amendments and a number of lesser ones.
24
SIXTH CONFERENCE OF LABOUR STATISTICIANS
Paragraph 50 was accepted with minor changes. Paragraph
51 was amplified at the suggestion of Mr. DICH (Denmark) to
require that, in the publication of unemployment estimates, the
inclusion or exclusion of various specified classes of workers
should be noted; while the recommendation that available
historical estimates of employment, unemployment and labour
force data should be published was made subject to the proviso
"as resources and facilities permit ".
The full text of the resolution concerning statistics of
employment, unemployment and the labour force, as adopted
by the Committee, is reproduced in Appendix I (Resolution I).
This is designed to supersede the resolution on the same subject adopted by the Second International Conference of Labour
Statisticians in 1925.
Other Resolutions Proposed by the Committee
The Committee adopted Resolution 111 concerning statistics
of workers' earnings as proposed by the Office, and amended
Resolution III2 concerning an international standard classification of occupations, to recommend that the Office should
study, in co-operation with the United Nations and the appropriate specialised agencies, the problems involved in establishing
an international standard classification of occupations, with a
view to the possible placing of this subject on the agenda of a
future session of the International Conference of Labour Statisticians.
Resolution IV3, concerning the further consideration of international standards for statistics of employment, unemployment
and the labour force, was adopted with minor drafting changes.
At the suggestion of Mr. LORENZO (Food and Agriculture
Organisation) and on the motion of Mr. EGKLER (United States)
the Committee adopted a resolution requesting the Governing
Body of the International Labour Office to direct the Office to
undertake studies of methods for the measurement and international comparison of multiple employment, underemployment and inadequate employment, with special reference to
agriculture.4
1 Finally adopted as Resolution VI (see Appendix I).
2
Finally adopted as Resolution VII (see Appendix I).
3
4 Finally adopted as Resolution V (see Appendix I).
Appendix I, Resolution IX.
COMMITTEE ON EMPLOYMENT AND UNEMPLOYMENT STATISTICS
25
The Committee also adopted a resolution proposed by
Mr. LACROIX (France) requesting the Governing Body (a) to
instruct the International Labour Office to study such information as may be available concerning the experience of the various
countries in the classification of employed and unemployed
according to degrees of skill, and (b) to place the subject of
such a classification on the agenda of a future session of the International Conference of Labour Statisticians.1
(Signed)
Ewan CLAGUE,
Chairman.
Henri Philippe LACROIX,
Reporter.
Montreal, 11 August 1947.
Appendix I, Resolution VIII.
COMMITTEE ON COST-OF-LIVING STATISTICS
ORGANISATION
The Committee consisted of 17 delegates and technical
advisers; in addition, representatives of the United Nations,
the Food and Agriculture Organisation and the International
Monetary Fund attended its sittings. Miss Frieda MILLER,
representative of the Governing Body, also attended.1
The Committee elected Mr. A. SKAUG, Director of the Statistical Office, Norway, as its Chairman; Mr. L. F. ROMERO,
Deputy Director-General of Statistics (Argentina) as its ViceChairman; and Mr. R. B. AINSWORTH, Director of Statistics of
the Ministry of Labour and National Service (United Kingdom)
as Reporter. The Committee held nine sittings.
A Drafting Committee was appointed, consisting of
Mr. G. E. F. WOOD (New Zealand), Mr. R. B. AINSWORTH
(United Kingdom), Mr. A. .SKAUG' (Norway), Mr. R. C. GEARY
(Ireland), Mr. J. RAMOS M. (Cuba) and Mr. E. von HOFSTEN
(Sweden).
In the absence of the Chairman, who was delayed in arrival,
the opening sitting of the Committee was presided over by the
Vice-Chairman, Mr. L. F. ROMERO (Argentina).
SUMMARY OF WORK
The principal topics discussed are summarised in the report
of the Committee which follows. Four points are of particular
interest: the method of keeping the index up to date and on an
accurate and unexceptionable base, techniques for obtaining
better price data, the question of black market prices and the
application of sampling techniques.
With regard to the methods of keeping the index up to date,
three points should be noted. As to the choice of base, the
actual decision is, of course, left to each country in accordance
with its judgment of its requirements. There was general
agreement on the advantage of a fairly recent base year.' There
1
For the names of members of the Committee, see Appendix II.
COMMITTEE ON COST-OF-HVING STATISTICS
27
was general agreement also on the matter of having up-to-date
and current consumption patterns on which to base the weighting diagrams employed in constructing the index. The Committee recommended the use of small sample surveys to ascertain current changes in consumption patterns for use during
the periods between the larger consumption surveys, and particularly to help in the decision as to when a new major consumption survey is necessary. Obviously, the need for a new survey
depends in part on the rapidity and extent of changes in the
consumption pattern. New general surveys were recommended
to be made at least as often as once every ten years.
It was left to each country to decide whether the immediate
pre-war consumption pattern or the post-war pattern should be
used to determine the current weighting diagrams.
The Committee did not consider at length the question as
to whether a country should adopt a plan of currently revised
weighting diagrams, in which case the use of a link or chain
index would be necessary. No pronouncement was made on
the subject, either in approval or disapproval: each country
was left to decide whether the changes in consumption patterns
were so great as to render necessary annual or repeated changes
of weighting diagrams with corresponding adjustments in the
index number technique.
There was general agreement that price quotations should
reflect actual market prices.
Among the techniques for the better collection of price
data the committee recommended training and selection of
personnel and the use of price verification techniques, and made
recommendations on certain specific problems. An important
point was the selection of items to be priced and the extension
of the weights of items priced to include those of items not
priced, where the former were representative of the latter.
As to black market prices, there was outspoken objection
to the inclusion of such prices in the index for two reasons : first,
the black market prices could not be obtained accurately; and,
second, the quantities purchased on the black market could not
be ascertained. On the other hand, the committee approved
the idea of including prices, even though illegal, where they
were actually charged openly for the groups to which the index
relates.
The points discussed by the Committee in regard to the apphcation of sampling techniques to cost-of-iiving index numbers
28
SIXTH CONFERENCE OF LABOUR STATISTICIANS
were: the selection of the particular items to be priced; the
selection of the outlets where price quotations are obtained;
and the selection of cities for which indices are prepared. In
addition, the Committee recommended, as already noted, the
use of small sample surveys of consumption to determine changes
in consumption patterns with a view to making corresponding
changes in the weighting diagrams. As to the items to be
included, since not all items can usefully be priced, a selection
must be made so that each group of items subject to similar
conditions as to price trends is represented among those included
in the index calculations. The outlets selected for obtaining
price quotations should be a representative sample of the different types of outlets patronised by the groups to which the
index relates. The cities included in the series should include a
representative sample of the different types and sizes of cities
in the different geographical areas covered. The application of
sampling principles to these problems of selection should result
in a better index at a minimum cost.
The Committee adopted the following report submitted by
the Reporter, Mr. R. B. AINSWORTH (United Kingdom).
REPORT
The Committee had before it Report III : Cost-of-Living
Statistics : Methods and Techniques for the Post-War Period, and
the proposed resolutions were discussed paragraph by paragraph.
The following summary of the discussions is presented in the
order in which the various subjects appear in the resolutions.
Resolution I
A proposal was made to include a reference to retail price
indices in addition to cost-of-living indices in the preamble.
After discussion the proposal was withdrawn in view of the fact
that the term "cost-of-living indices " was used in the terms of
reference from the Governing Body and since the question of
nomenclature was to be dealt with in Resolution I.
Arising out of the discussion on the proposed amendment
to the preamble Mr. HART (Netherlands) stressed the desirability
for the construction of indices for the purpose of measuring
changes in the standard of living. It was pointed out by Mr.
MIRANDA NETTO (Brazil) and by Miss Frieda MILLER (Governing
COMMITTEE ON GOST-OF-LIVING STATISTICS
29
Body) that an index of this kind involved the consideration of
social factors and wages as well as prices. Finally, Mr. von
HOFSTKN (Sweden) proposed that the index numbers should
measure changes over time in retail prices for a given consumption pattern. This was adopted and was supplemented by
a further clause, proposed by Mr. WOOD (New Zealand), that
the standard of consumption should be clearly defined and
that the index numbers should reflect prices actually charged
to consumers.
Discussion was then opened on the clauses which set out the
purposes to be served by indices in the post-war period. These
purposes were the measuring of changes over time in retail
prices based on a pre-war consumption level, or on a post-war
consumption level, or on a consumption level of a given standard
taking account of price-induced and other substitutions. On
the third of these Mr. GEARY (Ireland) raised the question as
to whether the proposal involved reference to indifference
curves in an attempt to arrive at a "true " index number. The
REPRESENTATIVE OF THE SECRETARY-GENERAL said that in
introducing this subject the Office had in mind the fact that
goods and services may be substituted one for another without
violence to the concept of a given level of adequacy. Mrs. BRADY
(United States) thought that much complicated work would be
necessary to follow the theory of indifference curves in its
entirety but that an approximation only was necessary, and
for that the material existed. Discussion then centred around
the methods of making substitutions. Finally, the wording of the
clause was left to the Drafting Committee on the understanding
that they would take account of the points raised.
Consideration was next given to the clauses which stated
that index numbers based on a post-war consumption level
may measure variations in the cost of maintaining the pattern
of consumption in a specified period, or price changes using
the current pattern of consumption adjusted to conform to
changes in such pattern. Mr. BUSTOS LAGOS (Chile) pressed
for a clearly specified period to which the pattern of consumption should relate. Mr. LEAGEY (Canada) asked what length of
period should be taken. The CHAIRMAN suggested that the
important thing was to get the basis of the index revised from
time to time and that the period used for the collection of
consumption patterns did not matter so much. Mr. AINSWORTH
(United Kingdom) and Mr. WOOD (New Zealand) saw great
30
SIXTH CONFERENCE OF LABOUR STATISTICIANS
difficulties in regard to the proposal of Mr. BUSTOS LAGOS
since the specified period might be one in which conditions were
far from normal. The proposal that the period of the consumption pattern should be specified was not pressed.
There was some discussion on the use of the link method in
cases where the weighting diagram was adjusted to current
consumption. While no pronouncement was made on the
subject, a clause which had been proposed by the International
Labour Office was omitted from the resolution.
The importance of historical series of index numbers was
stressed by Mr. LEACEY (Canada), who urged that provision
should be made for the linking of new" series to old. After
discussion it was agreed that the resolution should provide that
consideration should be given to this matter.
It was proposed by Mrs. RILEY (United Nations) that the
details of the construction of the index numbers and the groups
of the population covered should be clearly defined. With
regard to this proposal Mr. AINSWORTH (United Kingdom) said
that he would submit an additional clause which would provide
for the publication of a complete description of the items used
for the index, the weighting system, the method of calculation,
the sources of information and the groups of the population
covered. This clause was subsequently adopted with an amendment that in describing the sources of information a description
should be included of the technique and sampling methods used
in making the selection.
The subject next discussed was that of providing separate
index numbers showing changes over time for different social
and economic groups and family types, and for different geographical areas. This proposal was adopted with the addition
of a provision that consideration should be given to the compilation of index numbers for social, economic and geographical
groups outside the scope of the existing index. There was some
discussion on the subject of the compilation of an index covering the whole population, but after opposition had been raised
by Mr. DELSINNE (Belgium), Mr. WOOD (New Zealand) and
Mrs. BRADY (United States) and support had been given by
Mr. GEARY (Ireland) and Mr. BINGEN (International Monetary
Fund), the proposal was not adopted.
Consideration was then given to the clause which provided
for the selection and training of price collection personnel and
for the methods to be adopted in checking price quotations.
COMMITTEE ON GOST-OF-LIVING STATISTICS
31
Mr. ROMERO (Argentina) asked that provision should be made
for consultation with trade union officials in this connection.
While it was not agreed to insert any specific reference to this
matter in the resolution, it was agreed that, so long as only consultation with trade union officials was involved and that there was
no obligation to use data provided by trade unions, there was no
objection to the proposal and that the point could be met by
the use of the term "other suitable methods " in the checking
procedure.
There was considerable discussion on the question as to
whether illegal and black market prices should be included in
the index. Mr. GEARY (Ireland) and MR. DELSINNE (Belgium)
suggested that all reference to the question should be omitted
from the resolution on the ground that prices and proportions
of sales in the black market could not be ascertained, that the
quotation of prices would imply recognition of illegal practices,
and that the inclusion of such prices would result in demands
for increased wages to cover black market purchases. The opposite view was taken by Mr. HART (Netherlands), Mr. WOOD
(New Zealand), Mr. BUSTOS LAGOS (Chile) and Mr. LORENZO
(F.A.O.). It was eventually agreed that illegal prices openly
charged should be taken into consideration as well as controlled
prices and that no reference should be made to "black market"
prices.
A clause proposed by Mr. AINSWORTH (United Kingdom)
relating to the treatment of damaged, shop-soiled or otherwise
imperfect goods, "sale" or reduced prices, "cut" prices and
discounts was adopted with slight amendment.
On the suggestion of Mr. GEARY (Ireland) certain amendments were made in paragraph 8 of the International Labour
Office draft. The agreed version provides that studies shall
be made of price changes in different geographical units in
order to determine the number and identity of such units necessary to provide a satisfactory average figure. By this process
some economy in the number of returns may be effected.
Paragraph 9 was adopted after some discussion during
which an amendment by Mr. LEACEY (Canada) was withdrawn.
During a discussion on the clause relating to the inclusion in
the index of fresh, canned, dried and frozen fruits and vegetables, descriptions of the methods adopted in their countries
were given by the CHAIRMAN, Mr. von HOFSTEN (Sweden),
32
SIXTH CONFERENCE OF LABOUR STATISTICIANS
Mr. ROMERO (Argentina) and Mr. MIRANDA NETTO (Brazil).
It was finally agreed not to make any specific recommendation on
the method to be adopted, but to refer to the fact that if items
cannot be priced in every month, or if price differences between
different seasons are substantial, it is not advisable to use
uncorfected price figures and/or constant weights. It was also
agreed that account should be taken of seasonal factors in purchases of clothing, fuel and other items subject to seasonal
variations.
On the suggestion of Mr. LEAGEY (Canada) a clause was
inserted providing that every effort should be made to include in
the index a suitable representation of durable consumer goods.
The clause providing for studies of consumer purchases in
order to discover changes in consumption patterns necessitating changes in weighting diagrams was adopted with little
discussion.
The discussions which arose at the outset of the Committee's
proceedings were resumed in relation to the clause relating to the
nomenclature of the indices. Mr. HART (Netherlands) pressed
for the retention of the term "cost-of-living index" on the
ground that it was the correct description of many of the existing indices. He hoped that it might be possible to move
forward to a standard-of-living index and he considered it would
be a retrograde step if all indices became only retail price indices.
After discussion it was agreed that the term "cost-of-living
index " should be replaced in appropriate circumstances by
"price-of-living index", "cost-of-living price index" or "consumer price index ".
A clause which had been proposed by the International
Labour Office, suggesting that studies should be made of current
consumption patterns in relation to accepted standards of
adequacy, was rejected on the ground that it involved matters
such as nutrition, which were outside the scope of statistics of
cost of living. The subject, however, is dealt with in Resolution
VI.
Resolutions II to VIII
The Committee put forward eight resolutions requesting the
Governing Body of the International Labour Office to direct
the Office to undertake various studies and to place the subjects
on the agenda of an early session of the International Conference
of Labour Statisticians.
COMMITTEE ON COST-OF-LIVING STATISTICS
33
Resolution II1 referred to the importance of developing
accurate methods for international, interregional and intercity comparisons of costs of living. This resolution aroused
some discussion as to whether the reference was to interspatiai
or intertemporal comparisons. It was decided to leave the
way open to studies of both conceptions.
Resolution III2 dealt with the study of a variety of measures
of consumption goods price movements with a view to determining the relative advantages of each for different purposes.
It referred, in particular, to the study of the problem of using
the indices for revaluing the national income in terms of prices
in a specified year.
Resolution IVs related to the study of quality specifications
in relation to the measurement of the cost of living.
Resolution V4 proposed studies of family living, including the
application of new sampling techniques to the selection of
families and suggested the advisability of referring the special
problems arising in less well-developed areas to a committee
of specially qualified experts.
Resolution VI8 suggested studies to determine the extent to
which consumption levels of different groups meet defined levels
of adequacy. This resolution was adopted in view of the
deletion from Resolution I of a clause on the same subject proposed by the International Labour Office.
Resolution VII6 was introduced on the motion of the representative of the F.A.O. and proposed studies of problems arising
with reference to the cost of living of agricultural workers on
account of the consumption by farm households of their own
produce, the cost of agricultural housing and the practice of
partial remuneration in kind.
Resolution VIII7 was introduced by Mr. GEARY (Ireland),
Mr. HART (Netherlands) and Mr. WOOD (New Zealand), It
provided for a study of the classification and nomenclature of
the various indices indicating the types best suited to specific
circumstances and the formula to be used. An examination
1
2
S
4
6
8
7
Finally adopted as Resolution X.
XI.
XII.
XVI.
XIV.
XV.
XIII.
34
SIXTH CONFERENCE OF LABOUR STATISTICIANS
should be made of the problem of statistics which give effect
to the economic theory relating to the construction of index
numbers.
Resolutions I-VIII, as proposed by the Drafting Committee, were considered by the Committee on 9 August and,
with minor amendments, were approved.
Finally, the Committee agreed to make two recommendations for the consideration of the Drafting Committee of the
Conference, relating to the desirability of increasing the staff of
the International Labour Office in order to expand its existing
activities as a clearing house and as an advisory agency to
national statistical authorities and to make the suggested
studies possible.1
The Committee considered and approved the report to be
presented to the Conference.
(Signed) Arne SKAUG,
Chairman.
R.B, AlNSWORTH,
Reporter.
Montreal, 9 August 1947.
1
Appendix I, Resolution XVIII.
COMMITTEE ON INDUSTRIAL ACCIDENT STATISTICS
ORGANISATION
The Committee consisted of 14 delegates and technical
advisers; in addition a representative of the International
Civil Aviation Organisation was present at some of the meetings.1
The Committee elected as its Chairman Mr. G. E. F. WOOD,
Government Statistician (New Zealand); Vice-Chairman Mr. M.
BUSTOS LAGOS, Consul-General of Chile in Canada (Chile);
and Reporter Mr. E. von HOFSTEN, Chief of the Statistical
Section of the Social Board (Sweden). The Committee held
three sittings.
A small Drafting Committee was appointed consisting of
Mr. G. E. F, WOOD (New Zealand), Mr. R. B. AINSWORTH (United
Kingdom), Mr. von HOFSTEN (Sweden) and Mr. BUSTOS LAGOS
(Chile).
SUMMARY OF WORK
The REPRESENTATIVE OF THE SECRETARY-GENERAL made a
brief statement on the task before the Committee and suggested
that the Committee consider the resolutions proposed by the
Office and included in the report on industrial accident statistics
submitted to the Conference.
Mr. AINSWORTH (United Kingdom) proposed the redrafting
of paragraph 1 of Resolution I to include time comparisons
in addition to industry and country comparisons. This proposal
was adopted and the text referred to the Drafting Committee.
In paragraph 2, Mr. KOSSORIS (United States) proposed the
substitution of "man hours" for "hours of working time",
which led to a discussion of the scope of the figures and whether
wage-earners, salaried employees, or both groups, or only
persons "exposed to the risk of accidents " were covered. It
was suggested that, in effect, each country for the present had
its own practice which it would follow. It was important,
however, that each country should indicate clearly in its staFor the names of members of the Committee, see Appendix II.
36
SIXTH CONFERENCE OF LABOUR STATISTICIANS
tistics the scope of "employees" who were covered. No vote
on the point was asked for since it was the opinion of the
CHAIRMAN that such a vote would merely reflect the position
taken by the countries whose representatives were present.
It was therefore left to the Dratfing Committeee to find a
suitable text to reflect the views of the Committee.
To paragraph 3 (1), Mr. AINSWORTH (United Kingdom)
proposed the addition of a sex grouping and provision for figures
by industries. Mr. KOSSORIS (United States) objected that the
United States did not have such data by sex and suggested the
addition of the words "if possible". The further suggestion
was made by Mr. ALOCEN (Argentina) to introduce an age
classification. These points were referred to the Drafting
Committee.
On paragraph 3 (2)-(4) Mr. AINSWORTH (United Kingdom)
proposed a redrafting and a rearrangement of these classes
including a definition of non-fatal injuries.
Mr. DIGH (Denmark) objected to the detail of the breakdown proposed for the accidents of short duration. The REPRESENTATIVE OF THE SECRETARY-GENERAL explained that the purpose of the proposed clause was not for a breakdown so much
as to provide figures in the case of countries where the full data
were available, which could be used to make valid comparisons
with countries where the detail of short time accidents was
not available.
Mr. KOSSORIS (United States) proposed to amend the paragraph to include accidents which were not compensable as well
as those which were compensable, accidents being defined in
terms of injuries received during the course of employment
rather than in terms of compensability. In some countries,
such figures could be obtained from the sickness fund statistics.
After discussion of these points, the question of a suitable
text was left to the Drafting Committee.
The REPRESENTATIVE OF THE SECRETARY-GENERAL corrected an error which appeared in paragraph 4, line 3, in the
printed text: "hours " should be substituted for "days ".
It was proposed by Messrs. ALEXANDER (Norway) and
KOSSORIS (United States) to amend these paragraphs to accord
with the changes proposed in paragraph 2.
As to the question whether the time charged should be in
calendar days or working days, the Committee had first to
consider what time charge should be adopted for death and per-
COMMITTEE ON INDUSTRIAL ACCIDENT STATISTICS
37
manent disability, since its conclusion on the first point would
depend on its action with regard to the second. The matter
was then referred to the Drafting Committee.
On paragraph 5, Mr. von HOFSTEN (Sweden) said that it
was difficult to supply separate severity rates for permanent
partial and permanent total disabilities since at first all permanent total disabilities were considered either temporary total
or permanent partial disabilities, and when decision on the final
classification was taken it would be too late to change the earlier
statistics.
On this, the CHAIRMAN suggested the insertion of the words
"if possible " and Mr. KOSSORIS (United States) proposed the
insertion of "preferably". The matter was then referred to
the Drafting Committee.
Mr. AINSWORTH (united Kingdom) suggested a redrafting
of paragraph 6 incorporating the proposal that the time charge
for death and permanent total disability should be 7,500 working
days, as in Sweden, and providing in detail for calculation of
severity rates in accordance with a standardised mode of computation. This was accepted and also referred to the Drafting
Committee.
With regard to paragraph 7, Mr. DIGH (Denmark) emphasised that the general question of the dependence of accident
statistics on compensation legislation had not been sufficiently
stressed and asked for the insertion of three clauses providing
for the statement in publishing rates of industrial accidents of:
(1) whether the statistics were based on accident compensation systems or on a system of compulsory reporting of accidents ;
(2) if the former, whether they were based on accidents
actually compensated or on compensable accidents; and
(3) if the latter, that is, based on a system of compulsory
reporting of accidents, an estimate of the proportion of accidents
actually reported.
The CHAIRMAN indicated that these points were covered
largely by the note to Part I of the text to the 1923 resolution
and suggested, in agreement with Mr. DICH (Denmark), that
the note should be made applicable to Part 2 as amended by the
Committee.
Mr. KOSSORIS (United States) insisted on the advantage of
adopting standardised time charges for permanent partial
38
SIXTH CONFERENCE OF LABOUR STATISTICIANS
disabilities, pointing out that in the United States each State
in its compensation procedure assigned different values, for
example, for the loss of an arm in relation to the time charge for
permanent total disability. Similar differences were doubtless
to be found among the different countries.
The REPRESENTATIVE OF THE SECRETARY-GENERAL pointed
out the different methods in use in different countries for measuring the time charges for permanent partial disabilities.
Mr. KOSSORIS (United States) thereupon proposed, seconded
by Mr. BUSTOS LAGOS (Chile), that the Office be requested to
study the problem of a uniform schedule of time charges for
permanent partial disabilities with a view to standardising
the procedure. It was proposed that this point be added to
and incorporated in Resolution II, which proposed that the
Office make a study of the classification of causes.
The Drafting Committee then redrafted the resolutions in
the light of this discussion and amendments and placed the
revised text before the Committee.
In the ensuing discussions the chief points of interest were:
(1) The adoption of a definition of non-fatal accidents in
paragraph 4 (1) approximating the definition of the American
Standards Association: "Non-fatal injuries should be defined as
those which result in permanent impairment or in disability
for at least one full day beyond the day on which the accident
occurred ".
(2) In reference to paragraph 4 (2) it was decided to suppress
the second part of the sub-paragraph which called for specification of various minor disabilities, as it was not intended to ask
the countries to furnish detailed statistics on accidents of
different durations which they do not normally collect.
(3) It was proposed to add a clause which would provide
for separate rates, where practicable, for disabilities now
excluded under the definitions adopted in the different countries,
but which would be included under the definition already
incorporated in paragraph 4 (1), as well as for injuries involving
no loss of working time except for first-aid attention.
At the suggestion of Mr.KossoRis (United States) footnotes
were added to give mathematical formulae for frequency and
severity rates. A standard factor of 300/365 was adopted for
converting days of disability to working days.
COMMITTEE ON INDUSTRIAL ACCIDENT STATISTICS
39
A resolution was also adopted proposing that the Office study
the subject of classification of causes and of time charges for
permanent partial disabilities for consideration at a subsequent
session of the International Conference of Labour Statisticians.
The resolution of the Inland Transport Committee which
had been referred to the Committee on Industrial Accident
Statistics was then discussed and the Committee adopted a
resolution proposing that statistics of accidents in inland transport be compiled for the different branches of the inland transport industry, in accordance with the general standards of
industrial injury statistics.
A communication with regard to exposure to risk, received
from the Joint Medical and Statistical Subcommittee of the
Inter-American Committee on Social Security, was read. The
Committee took note of this communication and asked the
Reporter to include the point in his report.
At its third and final meeting the Committee adopted the
report prepared by the Reporter, Mr. E. von HOFSTEN (Sweden)
including the text of the resolutions as adopted. These were
presented to and adopted by the plenary sitting of the Conference
on Friday, 8 August 1947
The Committee adopted the following report of its activities, prepared by Mr. von HOFSTEN (Sweden).1
REPORT
•
The Committee had before it Report IV : Amendments to
the Resolutions on Statistics of Industrial Accidents adopted by
the First International Conference of Labour Statisticians in
October 1923. The proposed resolutions were discussed in the
order they appear on pages 21 et seq. of the report.
Resolution I2
Besides the proposed technical changes in the method of
measurement of the frequency and severity rates, the principal •
questions for decision were :
1
The preliminary statement of the Officers of the Committee, etc.,
is omitted
here.
2
Finally adopted as Resolution III.
40
SIXTH CONFERENCE OF LABOUR STATISTICIANS
(1) the adoption of a standard definition of non-fatal industrial injuries;
(2) the inclusion of a clause recommending the compilation
of injury rates for industries, and for each sex and for age groups
where practicable;
(3) the recommendation of the method of publication of
frequency and severity rates in such form that they might be
more usefully comparable; and
(4) the recommendation of a standard figure for a time
charge for fatal injuries and permanent total disabilities.
The various paragraphs of the proposed resolutions dealing
with these questions were discussed and proposals for amendments made. The Drafting Committee submitted a draft of
new proposed resolutions, which were again modified by the
Committee at its third meeting.
Resolution II1
The Committee also recommended that the Conference
request the Governing Body of the International Labour Office
to direct the Office to make a study of the classifications by
causes, with a view to placing the subjeet on the agenda of an
early session of the Conference.
In respect of time charges for permanent partial disabilities,
the Committee adopted a recommendation that the Conference
should request the Governing Body of the International Labour
Office to direct the Office to prepare a report and proposal for
a standard scale of assessing such disabilities for consideration
at a subsequent conference.
Resolution III3
At its third meeting the Committee studied the report on
inland transport statistics prepared by the Office, as well as
the resolutions of the Inland Transport Committee of the I.L.O.
A resolution was adopted on the subject.
* * *
1
2
Finally adopted as Resolution XVII.
Finally adopted as Resolution IV.
COMMITTEE ON INDUSTRIAL ACCIDENT STATISTICS
41
The Committee also took note of the communication on
exposure to risk from the Joint Medical and Statistical Subcommittee of the Inter-American Committee on Social Security.
At its third meeting, the Committee adopted the present
report, authorising the reporter to make drafting changes
thereto.
(Signed) G. E. F. WOOD,
Chairman.
Erland von HOFSTEN,
Reporter.
Montreal, 6 August 1947.
CLOSING OF THE CONFERENCE
ADOPTION OF COMMITTEE REPORTS AND RESOLUTIONS
Industrial Accident Statistics
The report of the Committee on Industrial Accident Statistics and the resolutions as adopted by the Committee and
revised by the Drafting Committee were placed before the third
plenary sitting on 8 August 1947 by the Reporter, Mr. E. von
HOFSTEN (Sweden), and adopted by the Conference.
The resolution dealing with statistical standards was voted
on paragraph by paragraph and finally adopted as a whole
unanimously. 1
The resolution relating to further work by the Office on the
classification of causes of accidents and on the assessment of
permanent partial disability was also adopted unanimously
by the Conference.2
A resolution on inland transport statistics as presented by
the Committee was referred to the Drafting Committee of the
Conference for inclusion in and for incorporation with a resolution on the same subject by the Committee on Employment
and Unemployment Statistics.
Cost-of-Living Statistics
The report of the Committee on Cost-of-Living Statistics
was presented at the fourth plenary sitting of the Conference
on 12 August 1947 by Mr. AINSWORTH (United Kingdom),
Reporter, who called attention to the fortunate position of the
Conference in having the combined experience of so many
international experts to draw up the report placed before the
Conference. This report had been considered most carefully
and it was a tribute to the Committee that its work had been
carried through without the necessity of one formal vote. All
the decisions had been adopted unanimously.
1
2
For final text, see Appendix I, Resolution III.
For final text, see Appendix I, Resolution XVII.
CLOSING OF THE CONFERENCE
43
The resolution embodying the statistical standards for costof-living was then voted on paragraph by paragraph. Paragraphs 1-11 were adopted without amendment.
In paragraph 12, Mr. LUNG (China) proposed the insertion
of the words "if possible " after "every effort should be made ",
in order to take account of the fact that fruits, processed fruits
and vegetables, were not staple articles of diet in China.
Mr. WOOD (New Zealand) pointed out that the whole clause
was of a permissive character and Mr. LACROIX (France) and
others remarked that China was not obliged to include these
commodities in any index, since if the consumption of these
articles was low or nil suitable representation of them in the
index would likewise be low or nil. Mr. CLAQUE (United
States) suggested that Mr. LUNG'S points should be inserted
in the minutes of the Conference. After further discussion the
matter was put to a vote, and Mr. LUNG'S amendment was not
adopted. Mr. CLAGUE'S motion was carried.
The remaining paragraphs of the resolution on cost-ofliving statistics (13-15) were adopted, as well as the resolution
as a whole.1
The other resolutions of the Committee on Cost-of-Living
Statistics were then put to the vote. The resolution concerning
the study of place-to-place comparisons in cost of living was
adopted without discussion.2
In regard to the resolution concerning the study of consumption goods price indices, Mr. CLAGUE (United States) asked
whether, if the cost-of-living index were to be used as a
"deflator" for purposes of revaluing national income figures in
terms of prices as of a given year, this use would tend to
result in a pressure to produce bias in the cost-of-living index.
Any such effect was denied, the purpose of the resolution being
to study the various alternative indices that might be developed
for different objectives with the result of clarifying the concept
of cost-of-living index numbers for its specific purpose. The
resolution was adopted without amendment.3
The five other resolutions dealing with various other aspects
of cost-of-living indices and family living studies were adopted. *
1
2
3
For final text, see Appendix I, Resolution II.
For final text, see Appendix I, Resolution X.
For final text, see Appendix I, Resolution XI.
* For final texts, see Appendix I, Resolutions XII, XIII, XIV, XV,
and XVI.
44
SIXTH CONFERENCE OF LABOUR STATISTICIANS
The resolution on inland transport statistics, proposed by
the Officers of the Conference, was adopted.1
In a general discussion on future work to be carried out by
the International Conference of Labour Statisticians, Mr. DELSINNE (Belgium) stressed the importance of statistics of wages
and salaries. This was one of the most difficult of all the subjects with which labour statisticians had to deal, but it was
important that it be considered at an early date. Mr. CLAGUE
(United States) supported this statement, pointing out the needs
for wage statistics in occupation and industry, corrected by
cost-of-living index numbers in many cases. He emphasised
the need for the Office to concern itself with statistics of housing
which, though it was more especially a national question, might
also be considered on the international level.
Employment and Unemployment Statistics
At the final plenary sitting on 12 August 1947, the report of
the Committee on Employment and Unemployment Statistics
was presented by the Reporter Mr. LACROIX (France). Mr.
NAYER-NOURI (Iran) suggested an amendment to the definition of "armed services" appearing in the report, indicating
that armed forces should properly include the members of the
regular army but not persons mobilised for temporary wartime service because they normally had a gainful civilian
occupation and thus were a part of the civilian labour force
before their mobilisation and after their demobilisation.
The CHAIRMAN (Mr. Marshall — Canada) pointed out that
the definition of armed forces in the report was not a definition
in the strict sense but merely an indication intended to explain
to the interested authorities the meaning of the terms employed
in the report and in the resolutions. In view of the last sentence in the paragraph under discussion he thought it not
necessary to amend the text as proposed, especially as many
countries would have difficulty in giving the subdivisions
suggested. After further discussion the CHAIRMAN stated
that the text proposed in the report left to each country the
freedom of giving its own definition of the armed services.
Besides, no country was compelled to publish figures showing
the importance of these armed forces. On the vote, the text
1
For final text, see Appendix I, Resolution IV.
CLOSING OF THE CONFERENCE
45
of the paragraph in the report entitled "Armed Services" was
adopted by 14 votes to 3.
Mr. CHAUVELL (Cuba) asked for certain changes in the text
of the report, first to take account of the long discussions in
the Subcommittee on the definition of industry, and second,
to rearrange the order of paragraphs 14, 15 and 16. The
CHAIRMAN pointed out that paragraph 14 of Resolution I was
drawn up in the sense proposed by Mr. Chauvell.
Mr. LACROIX (France) agreed to revise the text of the
report to include a definition of the subject of industry. 1
The report of the Committee was then adopted unanimously.
The resolution embodying international standards of statistics of employment, unemployment and the labour force,
was then put to a vote paragraph by paragraph or groups of
paragraphs and adopted except for one or two minor changes,
after which the resolution as a whole was adopted unanimously.2
Five other resolutions addressed to the Governing Body of
the Office, proposed by the Committee on Employment and
Unemployment Statistics, were then considered. One proposed
a further consideration of international standards for statistics
on employment, unemployment and the labour force, so that,
as experience with the techniques recommended by the present
resolution was accumulated and the techniques were further
developed, the subject might be brought before a future sessioii
of the International Conference of Labour Statisticians. The
second proposed a study of statistics of workers' earnings
with special reference to payrolls and aggregate wages and
salaries, a topic which was originally on the agenda for the
Sixth International Conference of Labour Statisticians but which
had been deferred on the recommendation of the Preliminary
Meeting of Statistical Experts. The third proposal was for the
study of an international standard classification of occupations,
and asked that the Governing Body "instruct the Office to
study in co-operation with the United Nations and appropriate
specialised agencies the problems involved in the establishment
of such a standard classification of occupations, with a view to
the placing of this subject on the agenda of a future session of
the International Conference of Labour Statisticians".
The fourth proposal concerned statistics of employment and
unemployment classified according to degrees of skill, and the
1
1
See footnote, p. 13.
For final text, see Appendix I, Resolution I.
4D
SIXTH CONFERENCE OF LABOUR STATISTICIANS
fifth proposed that studies of multiple employment, underemployment and inadequate employment, with a special reference to agriculture, should be made. In commenting on the
last resolution Mr. CHAUVELL (Cuba) called attention to an
error in the Spanish text of the resolution, and stressed the need
for a definition of the terms "multiple employment, underemployment and inadequate employment ". The Chairman
stated that the Spanish title would be brought into line with
the text of the resolution and that the Office would study the
problems involved in the definition of the terms referred to.
All five resolutions were adopted unanimously. 1
Finally, two resolutions were presented by the Officers of
the Conference. The first of these concerned the work of the
International Labour Office in the field of labour statistics and
requested the Governing Body to consider the advisability of
expanding the capacity of the Office for undertaking statistical
work, in order to make possible "the carrying out of the various
studies suggested, the development of the functions of the Office
as a clearing house for information in the field of labour statistics,
and the provision of expert assistance in this field to Governments on a greater scale than is possible with its present
resources ".
Mr. COHN (Denmark) declared that Denmark would vote
against the proposed resolution since its adoption would involve
an increase in the expenses of the Office and consequently in
the contributions of the States Members, which he considered
he was not authorised to approve.
The CHAIRMAN pointed out that the resolution was the
logical consequence of the action of the Conference in calling for
studies on various subjects for consideration at future sessions of
the Conference.
Mr. SKAUG (Norway), Chairman of the Committee on Costof-Living Statistics, which had proposed the resolution, explained
the reason behind this action. He said that the Committee,
being unanimously of the opinion that the International Labour
Office should be in a position to engage in work relating to international comparisons of cost of living, proposed a number of
research tasks for the Office, and considered it reasonable to
point out the necessity of increasing its staff. Secondly, many
members of the Committee felt the advisability of promoting
1
For final texts, see Appendix I, Resolutions V, VI, VII, VIII and IX.
CLOSING OF THE CONFERENCE
47
a closer liaison between the Office and the national statistical
offices and among these statistical authorities themselves; and
that the best way to foster this association was by increasing
the general work of the Office in this field. The third reason
for proposing the first resolution was the fact that many members
of the Committee, who were developing new statistics in the
field of labour, were in need of advice and assistance. They
believed that if the International Labour Office were in a position to render a greater service in this respect, considerable
savings would result in the long run for the countries concerned.
Norway was as anxious as any other country to avoid unnecessary expenses; but he thought that furthering the development
of an international organisation such as the I.L.O. was of
special importance, and the work of the I.L.O. should receive
priority in any attempt to decide what should be done in the
field of international statistical work.
Mr. LACROIX (France) expressed the view that the additional
expenditures resulting from the adoption of the resolution
might be negligible, but any such expenditures would be a
contribution to a very useful international undertaking.
After minor modifications proposed by Mr. DELSINNE
(Belgium) and Mr. AINSWORTH (United Kingdom), the resolution was adopted by 15 votes to one, the dissenting vote being
that of Mr. COHN (Denmark). 1
The second resolution proposed by the Officers of the Conference concerned the date for the next session of the International Conference of Labour Statisticians.
Mr. LACROIX (France) expressed his doubts as to whether
it was appropriate for the Conference to suggest a date for its
next session.
The vote on the resolution, which requested "the Governing
Body of the International Labour Office to convene the next
session of the International Conference of Labour Statisticians
before the end of 1949 " was adopted by 15 votes to nil, with
Mr. LACROIX (France) abstaining.2
CLOSING SPEECHES
The final proceedings for the Conference included a brief
address by Mr. LORENZO, representing the Food and Agricul1
2
For final text, see Appendix I, Resolution XVIII.
For final text, see Appendix I, Resolution XIX.
48
SIXTH CONFERENCE OF LABOUR STATISTICIANS
ture Organisation, in which he expressed his appreciation of
the adoption by the Conference of two important resolutions
on the study of agricultural employment and cost-of-living
problems, and the hope that more topics concerning statistics
of rural workers might be included in the agenda of an early
session of the International Conference of Labour Statisticians.
The CHAIRMAN expressed his appreciation of the work of
the Chairmen of the Committees, Mr. CLAGUE, Mr. SKAUG and
Mr. WOOD, for the heavy burden which they had carried and for
the excellence of their work; to the Secretariat for the organisation of the Conference and for their advice and assistance;
and to the delegates for the high endeavour and co-operation
with which they had worked to solve difficult problems.
He also thanked the authorities of McGill University for
the facilities which it had provided for the Conference, which
represented a valuable continuation of the services the University had rendered to the cause of international co-operation
in the economic and social field.
Mr, DELSINNE (Belgium) desired on behalf of the delegates
to offer to the Chairman congratulations and thanks for the
splendid work done by him.
The SECRETARY-GENERAL added his tribute to the work
of the Chairman and of the Vice-Chairman of the Conference,
and the Chairmen, Vice-Chairmen and Reporters of the three
committees. He said that the three main resolutions which
had been adopted set international standards for the measurement of phenomena of great public interest and importance — cost-of-living; employment, unemployment and the
labour force; and industrial injuries. Because of the care
with which they had been formulated, and because of the expert
and international character of the Conference, he was certain
that the standards would enjoy great authority and would be
found to be of great practical value. The Conference had also
made a number of valuable recommendations to the Governing
Body of the International Labour Office concerning the future
work of the Office and of the International Conference of Labour
Statisticians in the field of labour statistics. Altogether, the
achievement of the Conference was one of which the delegates
could feel justly proud, and to which the staff of the Office were
happy to have been able to contribute.
Finally, the CHAIRMAN, in summing up the work of the
Conference, said it was appropriate that he should review
CLOSING OF THE CONFERENCE
49
briefly the composition and the achievement of the Conference.
The Conference had brought together 39 delegates and
advisers from 24 States Members of the International Labour
Organisation, one observer, three representatives of the Governing Body, and six representatives of the United Nations, the
Food and Agriculture Organisation, the International Civil
Aviation Organisation, and the International Monetary Fund.
The membership of the Conference had consisted for the most
part of officials who in their own countries were responsible
either for the general statistical work of their Governments or
for the collection of the types of labour statistics with which
the Conference had been concerned.
Because of the long interval between the previous International Conference of Labour Statisticians and the present one,
this Conference had a special responsibility. It had to take
into account, in dealing with the items on its agenda, the great
volume of information and experience which had accumulated
over the intervening decade, and also to revive and demonstrate
again the utility of the series of International Conferences of
Labour Statisticians which the International Labour Organisation convened during the period between the wars. There
would be no doubt in the mind of any delegate who had taken
part in the discussions of the success with which the Conference
had discharged these responsibilities. In nine days of keen
and thorough analysis and drafting, the Conference had formulated international standards for index numbers of the
cost of living, for the calculation of frequency and severity
rates of industrial injuries, and for statistics of employment,
unemployment and the labour force.
In the case of each of these types of statistics, the Conference
had reviewed the work of earlier International Conferences of
Labour Statisticians, and had drawn up new and more comprehensive and detailed recommendations for the guidance of
statisticians throughout the world, thus emphasising the need
for a progressive revision of statistical methods and standards
from time to time as new techniques were developed, as the
resources and facilities available permitted, and as the needs of
the community for statistical information changed and developed. Similarly, the Conference, in recognising the continuing
character of its own responsibility in this field, had asked in
certain of the resolutions adopted to be given an opportunity
to review the recommendations as soon as experience in their
50
SIXTH CONFERENCE OF LABOUR STATISTICIANS
application or new developments in statistical technique might
make such reconsideration desirable.
At least two of the main subjects considered by the Conference were concerned with topics in which there was a keen
public interest and which were of great importance in the
formulation of national economic and social policies. Index
numbers of cost of living in particular were of very direct interest
to every member of the community. The recommendations
made by the Conference on the methods to be used in measuring
the movements of retail prices would prove an invaluable guide
to statisticians charged with this task of measurement; and
the care with which these recommendations had been formulated, together with the expert and international character of
the Conference which had drafted them, would lend to index
numbers constructed in accordance with these recommendations
a degree of authority which could be achieved in no other way.
With reference to statistics of industrial accidents the Conference had drawn up a standard definition of non-fatal injuries
and had recommended standard methods for calculating frequency rates. It had also agreed on standard weights for death
and permanent total disability to be used in the computation
of severity rates, and on a standard method for calculating the
weights for temporary total disability.
In the case of employment, unemployment and labour
force statistics, the Conference had adopted a resolution setting
out the general objectives of such statistics and containing
detailed recommendations concerning the sources of information from which they should be compiled, the standard definitions and classifications which should be followed in order to
ensure international comparability, the various types of statistics which should be compiled, the methods and techniques to
be used, and the way in which the results should be published.
Careful account was taken of the varying needs and resources
of different countries, and a distinction was drawn in each
part of the resolution between those recommendations which
were directed to all countries for immediate application, those
qualified by the proviso "as resources and facilities permit",
and those which were directed specifically to the more industrially developed countries or to the less industrially developed
countries.
In addition to these major resolutions setting international
standards for particular types of statistics, the Conference had
CLOSING OF THE CONFERENCE
51
adopted a resolution concerning the views on inland transport
statistics which had been expressed by the Inland Transport
Committee and a number of resolutions calling for studies of
particular topics, in most cases with a view to the placing of
these topics on the agenda of future sessions of the Conference.
In the case of some of these topics, the Conference, while not
suggesting any order of priority, had by specifying "an early
session of the Conference " indicated that it attached particular
importance to the formulation of international standards as
soon as possible. Finally, the Conference had expressed the
desire that the Governing Body of the International Labour
Office should convene the next session of the Conference before
the end of 1949.
The Conference adjourned at 6.45 p.m.
APPENDICES
APPENDIX I
TEXT OF RESOLUTIONS ADOPTED BY THE CONFERENCE
RESOLUTIONS SETTING INTERNATIONAL STANDARDS FOR
CERTAIN TYPES OF LABOUR STATISTICS
Resolution concerning Statistics of Employment, Unemployment and
the Labour Force
The Sixth International Conference of Labour Statisticians,
Having been convened by the Governing Body of the International
Labour Office, and having met at Montreal from 4 to 12 August 1947,
and
Realising the importance of an adequate statistical basis for the
analysis of economic and social problems of employment and unemployment and the labour force, and in particular for the provision
of the information necessary to the formulation and application of
policies designed to maintain full employment and to promote economic
development, and
Having considered the problems raised by the lack of international
comparability of statistics of employment, unemployment and the
labour force, and
Considering that, in order to promote the improvement of statistics in each country as well as their international comparability,
international standards for the statistics of employment, unemployment and the labour force, based on the best methods available as
tested in the experience of the different countries, should be set by
international agreement as a general objective for the development
of statistics on these topics.
Adopts, this twelfth day of August 1947, the following Resolution:
GENERAL OBJECTIVES
1. Statistics of employment, unemployment and the labour force
should be as comprehensive as possible and in order to achieve that
objective the fullest possible use should be made of all available
resources and statistical methods.
2. These statistics
(a) should be based on international standard definitions;
APPENDICES
53
(b) shouid cover
(i) all branches of economic activity;
(ii) all persons, employed and unemployed, who have jobs or
who are seeking work; and
(iii) all industrial status groups; and
(c) should provide
(i) comprehensive information in the fullest possible detail
at convenient intervals (hereafter referred to as "benchmark data"); and
(ii) series, not necessarily in the same detail, to show current
changes.
A. Sources of Information
Employment.
3. (1) The benchmark data should be obtained from one or more
of the following or similar sources : population censuses, information
about persons employed in different industries derived from censuses
of industrial production, social security (including unemployment
insurance) registrations and records, general population registrations,
and labour force sample surveys based on an adequate cross-section
of the population.
(2) For series to indicate current changes, use should be made of
, one or more of the following or similar sources : establishment
sample statistics, labour force sample surveys based on an adequate
cross-section of the population, population censuses and statistics
based on social insurance registration and records.
Unemployment.
4. (1) Provision for comprehensive data as to unemployment
should, if possible, be made in connection with the population census.
In addition the principal sources may include unemployment and
other social insurance records covering the population subject to
insurance, and labour force sample surveys based on an adequate
cross-section of the population.
(2) Where these are not available, use should be made of kss
comprehensive sources, such as trade union unemployment records
and labour exchange figures of unplaced applicants for employment.
Labour Force.
5. Statistics of the civilian labour force should be obtained directly
from population censuses or sample surveys of an adequate crosssection of the population, or indirectly from a combination of employment and unemployment statistics derived from sources indicated in
paragraphs 3 and 4.
B. Statistical Methods
6. The methods of compilation should include methods of sampling
as well as methods of appraising sources of error and calculating the
adjustments necessary on account of departures from the standards
and definitions prescribed for the statistics.
54
SIXTH CONFERENCE OF LABOUR STATISTICIANS
PRINCIPAL DEFINITIONS
7. To ensure comparability between countries of statistics on
employment, unemployment and the labour force, standard definitions and classifications relating to employment, unemployment and
the labour force should be adopted as set forth below.
8. Statistics of the "civilian labour force" should include all
civilian persons above a specified age who are either employed (at
work, or temporarily absent from a job) or unemployed (without a
job and seeking work).
9. Statistics of the "total labour force " should include the civilian
labour force and the armed forces.
10. (1) Statistics of the "total number of employed persons " in
the civilian labour force should include all those who, in a specified
period, perform some work, together with those who have a job but are
temporarily absent from work.
(2) These statistics should include the following industrial status
groups ("industrial status " being the status of the individual in respect
of his employment):
(a) workers for public or private employers;
(b) employers;
(c) persons who work for their own account without employees';
(d) unpaid family workers.
11. Persons in institutions, including labour camps but excluding
the armed forces, shall be regarded as at work or having a job only
if¿they are free to seek alternative employment.
12. Statistics of the "total number of unemployed persons "
should include all persons, able to take a job if offered one, who are
out of a job ou a given day and have remained out of a job and seeking
work for a specified|minimum period not exceeding one week.
13. Where the specifiedfminimum period to which the statistics
relate is longer than one day, special enquiries should be made from
time to time in order to ascertain the difference between the number
of unemployed so defined and the number which would be arrived at
if the specified minimum period taken were a single day.
14. "Occupation " is the trade, profession, or type of work performed by the individual, irrespective of the branch of economic
activity to which he is attached.
15. The classification of a person according to industry is determined according to the activity of the establishment in which he is
employed, irrespective of his occupation.
16. The "industrial classification "to be recommended is the international standard classification. At present the only classification
having international recognition is that recommended by the Committee
of Statistical Experts of the League of Nations in 1938. In the event
of a revised international standard classification being recommended
by the United Nations Statistical Commission, the use of such revised
standard classification is recommended.
APPENDICES
TYPES
OF
55
STATISTICS
A. Benchmark Data
17. (1) A population census should be taken at least every ten
years and a census covering the major branches of economic activity
at least every five years in order to provide, among other things,
adequate basic statistics of employment, unemployment and the labour
force.
(2) Information should be made available on employment, unemployment and the labour force—
(a) for the principal regions and chief centres of population;
(b) for each sex according to marital status;
(c) for age groups;
(d) for occupational groups;
(e) by industrial status;
(f) for the branches of economic activity specified in the international standard classification of industries;
(g) for any important social groups, including ethnic groups,
where appropriate.
B. Current Series
Employment.
18. In the more industrially developed countries statistics of total
non-agricultural employees (wage earners and salaried workers)
should be prepared at least quarterly.
19. In the less industrially developed countries annual estimates of
non-agricultural employees should be prepared; quarterly series on the
number of employees in manufacturing snould also be prepared,
20. Employment series should be prepared for each of the branches
of economic activity specified in the international standard classification of industries in which as much as 5 per cent, of a country's
total employment is found. Wherever practicable, series should also
be prepared for each industry concerning which such statistics may be
requested by an intergovernmental organisation.
21. From one or another of the current series issued in any industrially developed country, information should be made available on
employment for the principal regions, for each sex and for age groups.
22. From time to time each country should provide such estimates
of employment in particular industries or branches of economic
activity as may be needed to make possible a recombination of its
employment data into the international standard classification of
industries.
23. Where seasonal changes in agricultural employment are substantial, estimates of agricultural employment should be made more
frequently than once a year at dates coinciding with those for which
statistics of non-agricultural employment are collected—
(a) in the more industrially developed countries, such estimates
should be made quarterly;
(b) in other countries, at least semi-annual estimates are desirable
in order to measure agricultural employment when it is seasonally high and low;
56
SIXTH CONFERENCE OF LABOUR STATISTICIANS
(c) special studies should be made of the seasonal variation of
employment in agriculture and estimates of the maximum
and minimum levels of employment should be made on the
basis of these studies and of the quarterly and semi-annual
estimates referred to in sub-paragraphs (a) and (b).
24. As resources and facilities permit, separate series on employment should be made available for—
(a) all important geographical or administrative regions;
(b) the chief centres of population;
(c) each sex;
(d) the principal occupational groups;
(e) the number of employed persons classified according to the
number of hours worked per week.
25. As resources and facilities permit, estimates of employment
should be made available at intervals for—
(a) age groups;
(b) each sex by marital status;
(c) the principal industrial status groups.
Unemployment.
26. In the more industrially developed countries—
(a) series showing the total numbers unemployed, classified by
sex, should be prepared at least quarterly;
(b) from time to time analyses of the numbers unemployed,
cross-classified by duration of unemployment and sex, should
be made available.
27. Where such information is of significant utility, the unemployed
should be classified by industry in the fullest possible detail (as far as
possible according to the industry in which they were last employed
or usually employed) and by major occupational groups.
28. From one or another of the current series issued in any industrially developed country, information should be available on unemployment for the principal regions and for age groups.
29. As resources and facilities permit, separate series on unemployment should be made available for—
(a) all important geographical or administrative regions;
(b) the chief centres of population;
(c) each sex;
(d) age groups.
30. As resources and facilities permit, estimates of unemployment
cross-classified by age, sex and duration of unemployment should be
provided for those regions in which unemployment is particularly
severe, and if possible for other regions as well.
Labour Force.
31. Series showing the civilian labour force, with separate figures
for males and females, should be prepared at least quarterly in the
more industrially developed countries, using for that purpose data
obtained from labour force sample surveys based upon an adequate
cross-section of the population or by a combination of employment
and unemployment data obtained from other sources.
APPENDICES
57
32. As resources and facilities permit, separate series on the civihan
labour force should be made available for:
(a) the major geographical or administrative regions;
(b) the chief centres of population;
(c) age groups.
METHODS AND TECHNIQUES
Employment.
33. Employment series should be adjusted to comprehensive
benchmark data as such data become available.
34. (1) In determining a sample of establishments from which
employment returns are to be obtained, particular attention should
be given to securing proper representation of various branches of
economic activity, of regions and of establishments of various sizes.
(2) Special efforts should be made to correct errors which result
from the failure of establishments to make returns; to obtain returns
by establishment rather than by firm; and to compare returns from
identical establishments on successive dates.
(3) Studies should be undertaken to determine the best methods
for setting up and revising from time to time a complete list of the
establishments to be used in determining a representative sample.
35. (1) As resources and facilities permit, periodic studies should
be made of the nature and extent of the trend bias which develops,
between the dates of adjustment to benchmark data, in employment
series based on returns from identical establishments.
(2) On the basis of such studies methods should be developed to
include in the sample a due proportion of persons employed in new
establishments.
36. As resources and facilities permit, in countries where employment series are available from different sources, periodic studies
should be made of data obtained from each source in order to measure
the extent of double counting or inconsistency and thus lay the foundation for a consistent set of employment series.
37. As resources and facilities permit, surveys should be made
of the extent to which returns by establishments supply data which
are more inclusive or less inclusive than those requested.
38. Studies of seasonal fluctuations in the principal labour force
and employment series should be undertaken with a view to the
possible preparation of seasonally adjusted series.
39. As resources and facilities permit, periodic studies should be
made of employment as reported by establishments, in order to determine the number of persons who were at work and the number not at
work on the date to which the studies relate, including any information
which can be obtained with respect to the numbers absent for various
causes.
Unemployment.
40. Current estimates of the total numbers unemployed in any
country should wherever possible be based on figures derived either
from the operation of an unemployment insurance or other social
security system, or from sample surveys of the population or from
both sources.
58
SIXTH CONFERENCE OF LABOUR STATISTICIANS
41. In the presentation of national estimates of unemployment
both percentages and absolute figures should be given.
42. (1) The percentage of unemployment in any group should be
computed by dividing the number of unemployed in the group by the
sum of employed plus unemployed in the same group, e.g., the number
of unemployed wage earners and salaried employees by the sum of
employed plus unemployed wage earners and salaried employees.
(2) Whenever practicable, percentages of unemployment should
be computed—
(a) for each industry for which such information is of significant
utility;
(b) for all industries taken together; and
(c) for the principal regions;
with separate figures for males, for females, and for males and females
combined.
43. (1) In every country which relies on unemployment insurance
or other social security statistics for its chief measure of unemployment, periodic studies should be made of the relation between the
total number unemployed on the one hand and the number unemployed
as reported by the insurance system on the other.
(2) Particular attention should be given to including in the estimates of total unemployment such groups as the following, which may
be excluded from or inadequately covered by the social security
statistics :
(a) older workers;
(b) those who have exhausted social security benefits;
(c) new workers who have not yet found their first jobs;
(d) workers in industries or occupations which are specifically
excluded;
(e) others who, though unemployed, do not apply or are not
qualified for social security benefits.
44. (1) In any country (other than those referred to in paragraph 43) which uses statistics derived from the operation of employment exchanges as its chief measure or one of its chief measures on
unemployment, studies should be made of the extent to which those
statistics include persons who are in fact employed, either because of
failure to exclude them at the time of registration or because of difficulties in keeping the records of the exchanges up to date.
(2) Studies should also be made at intervals to determine the
relationship between the total number unemployed and the number
of unemployed registered at the employment exchanges.
45. In any country in which, through lack of adequate data derived
from social security systems or labour force surveys, national unemployment estimates may have to be based on trade union returns, such
returns should wherever possible be weighted in accordance with the
numbers employed in the industries to which they relate.
46. Studies of seasonal fluctuations in the principal unemployment
series should be undertaken with a view to the possible preparation
of seasonally adjusted series.
47. As resources and facilities permit, in countries where statistics
of the numbers of insured unemployed constitute the main measure
APPENDICES
59
of unemployment and where substantial differences may exist between
the total number of unemployed and the insured unemployed, studies
of these differences should be made as a basis for constructing an
adjusted current series of total unemployment.
48. (1) Periodic studies should be made of underemployment, as
distinguished from unemployment.
(2) In particular, consideration should be given to the possibility
of obtaining, in the case of industries other than agriculture, information as to the number of persons on short time.
Labour Force.
49. Since the method of labour force sample surveys has been
found by those countries which have adopted it to be an effective and
reliable technique for obtaining data on employment, unemployment
and the labour force, as well as on other topics when desired, its use
is recommended for serious consideration.
50. In the use of labour force sample surveys it is necessary to give
close attention to the following:
(a) the methods of using population records for the purpose of
selecting the sample;
(b) the determination of the size and stratification of the sample
required to yield reliable information;
(c) the need for pre-testing questions on the schedule in order
to ascertain public reaction and the patterns of answers to
be expected from respondents;
(d) the periodic re-enumeration of sample areas in order to check
on the interviewing techniques actually used by enumerators;
(e) other checks on the operation of these surveys which experience
in the use of this method has indicated to be desirable.
PUBLICATION
51. The key totals in current employment, unemployment and
labour force series should be published as rapidly as possible and if
practicable within one month of the date to which they refer. Where
it is not possible to publish final figures within one month, provisional
figures should be published.
52. (1) Every publication of statistical data relating to employment, unemployment or labour force, whether recurring or singletime, should clearly indicate the nature of the data and make reference
to any detailed technical descriptions available.
(2) In particular, information should be given as to whether the
following groups are included in the unemployment figures or not:
(a) persons not at work on account of industrial disputes ;
(b) persons not at work on account of bad weather;
(c) persons who have been laid off temporarily with definite
instructions to return to work within a specified period.
If possible, estimates of the number of persons in each of these
groups should be given.
53. Where the chief unemployment series in any country relates
to the insured unemployed, current statistics in that series should be
accompanied by a brief statement indicating the percentage of the
60
SIXTH CONFERENCE OF LABOUR STATISTICIANS
unemployed who were not covered by the series at the date of the most
recent comparison between the number of the insured unemployed
and the total number unemployed.
54. In cases where a country publishes more than one series which
can be used as indicators of the level or trend of the numbers employed,
or of the numbers unemployed, each series should be accompanied by
a statement clearly indicating its chief differences from the others and,
where feasible, the most appropriate uses for each.
55. Each country should provide a brief guide to the major benchmarks and current series on employment, unemployment and labour
force for the use of the general public.
56. Each country should issue at least annually a publication
containing the major series on employment, unemployment and the
labour force for current months and for selected benchmark dates,
together with a discussion of the major changes which have taken
place since the previous issue, and references to the original sources in
which more detailed information may be found.
57. (1) As resources and facilities permit, each country should
present in a basic technical publication all available historical estimates
of employment, unemployment and the labour force, together with
full particulars of the sources for the different series, of the methods
used in compiling them, and of their uses and limitations.
(2) Comparable historical estimates should be prepared for the
chief employment, unemployment and labour force senes, extending
back, if possible, to 1919.
II
Resolution concerning Cost-of-Living Statistics
The Sixth International Conference of Labour Statisticians,
Having been convened by the Governing Body of the International
Labour Office, and having met at Montreal from 4 to 12 August
1947, and
Recognising the importance of an adequate statistical basis for
the proper weighting of cost-of-living index numbers, and the need for
refining methods and techniques so as to ensure that the indices
reflect correctly the movements of actual market prices.
Adopts, this twelfth day of August 1947, the following Resolution :
1. (1) The object of cost-of-living index numbers should be to
measure the changes over time in retail prices of a given standard of
living.
(2) This in practice means that the index should measure the
changes in retail prices of a given consumption pattern.
2. (1) The pattern of consumption to which any particular index
relates should be clearly defined.
(2) All such index numbers should reflect prices actually charged
to consumers.
APPENDICES
61
3. (1) The purposes which may be served by such indices in the
post-war period are the measuring of changes over time in retail prices
currently charged consumers for —
(a) the pre-war consumption level of a given economic group in
specified types of communities;
(b) a post-war consumption level of a given economic group in
specified types of communities; or
(c) a consumption level of a given standard taking account of
price induced substitutions and any other substitutions imposed by
circumstances, with as close regard to the maintenance of the same
standard of adequacy as practicable.
(2) In cases where a post-war consumption level is adopted, the
index may—'
(a) measure the variations in the cost of maintaining unchanged
the pattern of consumption in a specific year or period; or
(b) measure price changes using the current pattern of consumption as a weighting diagram adjusted as necessary to conform to
changes in the consumption pattern.
(3) Where a decision is taken to measure the variations in the 'cost
of maintaining unchanged the pattern of consumption in a specific
year, the pattern of consumption should be examined, and the weighting diagram adjusted, if necessary, at intervals of not more than ten
years to correspond with the changes in the consumption pattern.
4. In countries where it is decided to introduce a new weighting
diagram, consideration should be given to splicing the new indices to
the old series dating back as far as possible.
5. (1) If possible, separate index numbers should be compiled for
different economic and social groups, geographical areas and different
family types.
(2) Consideration should be given also to establishing index numbers for economic and social, family and geographical groups other
than those: covered by the existing indices.
6. (1) In order that the basis of the index may be commonly
understood and that there should be general confidence in its accuracy,
a statement should be published in respect of any index describing
the items included, the weighting system used, the method of calculation, and the methods and sources used in the collection of prices,
including a brief review of the different types of sources covered, the
pricing techniques, the weights assigned to each type, and the sampling
methods employed in their selection.
(2) A description should also be given of the group or groups of the
population to which the index relates.
7. (1) The effective administration of the price collecting programme requires the careful selection and training of price collection
personnel.
(2) The use of appropriate methods of price verification such as
"check pricing" in which price quotations are verified by means of
duplicate prices obtained by different agents or "purchase checking"
in which actual purchases of the goods priced are made, is recommended.
8. In a period of price control or rationing, where illegal prices are
charged openly to the groups to which the index applies, such prices
should be taken into consideration, as well as controlled prices.
62
SIXTH CONFERENCE OF LABOUR STATISTICIANS
9. (1) Prices charged for stale, damaged, shop-soiled or otherwise imperfect goods should be ignored, but otherwise the index should
be based on prices actually charged for cash sales.
(2) "Sale " or reduced prices should be taken where they are
applied to the bulk of a shop's trade in the specified article and
"cut" prices should be taken rather than "list" prices where they are
in fact charged.
(3) Discounts should be taken into account if they are automatically
given to all customers.
10. (1) Studies of price changes in different geographical units
should be made to determine the number and identity of the geographical units required to be covered for a satisfactory average index for
a given group.
(2) In particular, it may be possible from such studies to effect
economies in the number of returns for a given standard of sampling
accuracy.
11. (1) In establishing the weighting diagram for a cost-of-living
index for a particular group, individual items priced should be assigned
weights corresponding to the consumption expenditures not only on
the individual items themselves but also on other articles not priced,
in accordance with the principle that the weights for items not priced
may be added to the weights for those priced, when the price movements of the latter are representative of the price movements of the
former.
(2) In this manner, all items purchased by the group covered can
be represented in the index, although not all are priced.
12. (1) Every effort should be made to include a suitable representation of fresh, canned, dried, and frozen fruits and vegetables in the
list of goods priced.
(2) If items cannot be priced in every month of the year, or if price
differences between different seasons are substantial, it is not advisable
to use uncorrected price figures and /or constant weights all through
the year.
(3) Whenever necessary and feasible, account should therefore be
taken in the methods adopted of the seasonal factors in consumption
and prices.
(4) Provision should also be made for taking account of seasonal
factors in purchases of clothing, fuel and other items showing seasonal
variations.
13. Every effort should be made to include a suitable representation of semi-durable and durable consumer goods in the list of goods
priced.
14. The use of small sample studies of consumer purchases in the
intervals between the more comprehensive surveys envisaged in paragraph 3 (3) is recommended in order to provide the basis for discovering
significant changes in consumption patterns to indicate the need for
revisions in the weighting diagrams.
15. In order to promote understanding of the nature and uses of
indices of retail prices charged a particular group, the term "cost-ofliving index " should be replaced, in appropriate circumstances, by
the term "price-of-living index ", "cost-of-living price index ", or
"consumer price index ".
APPENDICES
63
m
Resolution concerning Industrial Injury Bates
The Sixth International Conference of Labour Statisticians,
Having been convened by the Governing Body of the International
Labour Office, and having met at Montreal from 4 to 12 August 1947,
Having considered the problem raised by the lack of comparability
of industrial injury frequency and severity rates, and
Recognising the importance of an adequate statistical basis for the
analysis of industrial hazards and the appraisal of progress made in
accident prevention.
Adopts, this eighth day of August 1947 the following Resolution:
1. For comparison between countries, periods and industries, it
is essential that statistics of industrial injuries should be expressed in
both frequency and severity rates.
2. The frequency rate should, if possible, be calculated by dividing
the number of injuries (multiplied by 1,000,000) by the number of
hours of working time of all persons covered. 1
3. (1) Frequency rates should be calculated separately for fatal
injuries and non-fatal injuries.
(2) For both categories, separate figures should, where practicable,
be calculated by sex, by principal industries and by age groups.
4. (1) Non-fatal injuries should be defined as those which result
in permanent impairment or in disability for at least one full day
beyond the day on which the accident occurred.
(2) Since the minimum duration of disability which determines
the non-fatal injuries included in the statistics varies in different
countries, this duration should always be indicated.
5. Wherever practicable, separate rates should be compiled in
respect of non-fatal injuries for permanent total disability, permanent
partial disability and temporary total disability.
6. Wherever practicable, separate rates should be compiled in
respect of—
(a) all disabilities which are now excluded under the definitions
adopted in different countries, but which would be included under
paragraph 4 (1) above;
(b) injuries involving no loss of working time other than that
required for first-aid attention.
7. The severity rate should be calculated by dividing the number
of working days lost (multiplied by 1,000) by the number of hours of
working time of all persons covered, and where practicable, rates
should be calculated for principal industries, for each séx and for age
groups. 2
1 FR (Frequency Rate)
Total number of injuries (multiplied by 1,000,000)
Total number of man-hours worked.
* SR (Severitv Rate) = To-days lost (multiplied by 1,000)
*•
J
>
Total number of man-hours worked.
64
SIXTH CONFERENCE OF LABOUR STATISTICIANS
8. (1) For the purpose of computing severity rates, the loss from
fatal injuries and those resulting in permanent total disability should
be taken as equal to the loss of 7,500 1 working days.
(2) Severity rates for injuries resulting in permanent partial
disability should be computed in terms of the scales of disability in
use in the various countries.
(3) Severity rates for other injuries should be computed from the
number of days of disability converted to working days by multiplying by the fraction 300 /365.1
9. In publishing severity rates, classifications should preferably
be given according to the major groups of disability—death, permanent
total, permanent partial and temporary total—in order to permit
re-calculation of the rates on an internationally comparable basis.
10. Where the number of hours worked is not known, the rates
should be computed by assuming 2,400 man-hours or a standard
working year of 300 days for the average full-time worker.
11. This Resolution replaces Section 2 (Accident Rates) of the
Resolution concerning statistics of industrial accidents adopted by the
First International Conference of Labour Statisticians and the note
appended to Section 1 of that Resolution should also apply to the
present Resolution.
OTHER RESOLUTIONS
IV
Resolution concerning Inland Transport Statistics
The Sixth International Conference of Labour Statisticians,
Having met at Montreal from 4 to 12 August 1947,
Having considered the resolutions of the Inland Transport Committee regarding the establishment and the detailed arrangement of
internationally comparable statistics of inland transport which were
referred to the Conference by the Governing Body of the International
Labour Office,
Recognising the desirability of developing and improving the labour
statistics relating to the inland transport industry.
Noting that certain of the classifications and other details of
arrangement and collection of such statistics proposed by the Inland
Transport Committee are not at present practicable.
Considering that the question of the standardisation of the statistics of the inland transport industry includes the definition of the
scope of the industry and therefore to that extent should be considered
in any plan for the uniform classification of industries, and
Noting that the subject of the unification of inland transport
statistics is on the agenda of the United Nations Statistical Commission,
Adopts this twelfth day of August, the following Resolution :
1. Where possible, statistics of industrial accidents in inland transport should be compiled for the different branches of the inland trans1
This should be regarded as a standardised procedure and it should
not be interpreted as implying the actual number of days lost.
APPENDICES
65
port industry in accordance with the general standards for statistics
of industrial injuries set out in section 1 of the resolution on statistics
of industrial accidents adopted by the First International Conference
of Labour Statisticians and in the resolution concerning industrial
injury rates adopted by the Sixth International Conference of Labour
Statisticians.
2. Statistics of employment and unemployment in the inland
transport industry should be compiled in accordance with the general
standards for statistics of employment and unemployment set out in
the resolution concerning statistics of employment, unemployment
and the labour force adopted by the Sixth International Conference of Labour Statisticians.
3. The statistics concerning wage rates, earnings, hours of work,
strikes and lockouts in the inland transport industry requested by the
Inland Transport Committee should be compiled in accordance with
the resolutions on these subjects adopted by previous sessions of the
International Conference of Labour Statisticians, with the Convention
(No. 63) concerning statistics of wages and hours of work adopted by
the International Labour Conference at its 24th Session in 1938, and
with such further resolutions on these subjects as may be made by
future sessions of the International Conference of Labour Statisticians.
4. It is recommended that those sections of the resolutions of the
Inland Transport Committee which deal with wage rates and earnings
be brought to the notice of the International Conference of Labour
Statisticians at an early session in connection with the consideration
of the subject of statistics of workers' earnings with special reference
to payrolls and aggregate wages and salaries.
5. It is recommended that the Governing Body of the International Labour Office transmit to the United Nations, for the information of its Statistical Commission, those resolutions of the Inland
Transport Committee which deal with the definition and classification
of the branches of industry included in inland transport and with
economic statistics in the field of inland transport.
Resolution concerning the further Consideration oí International
Standards lor Statistics of Employment, Unemployment and the
Labour Force
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
While satisfied that the Resolution which it has adopted on statistics of employment, unemployment and labour force will provide
sound basic guidance for the improvement and standardisation of
such statistics for some years to come, being confident that further
advances will be made from time to time in the methods and techniques
of these statistics.
Requests the Governing Body of the International Labour Office,
(a) To direct the International Labour Office to continue its
studies of these statistics and to publish the results of such
studies from time to time, and
66
SIXTH CONFERENCE OF LABOUR STATISTICIANS
(b) To place on the agenda of a future session of the International Conference of Labour Statisticians the further consideration of international standards for these statistics as
soon as such advances, or the experience gained in applying
the standards formulated at the present session, would appear
to make such further consideration desirable.
VI
Resolution concerning Statistics of Workers' Earnings
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
Recognising that the methods and practices which it has recommended in its Resolution concerning statistics of employment, unemployment and the labour force will, when applied, facilitate the compilation
of accurate statistics of payrolls, but being strongly of the opinion that
fuller and more comprehensive consideration should be given at the
earliest possible moment to the formulation of international standards
for statistics of workers' earnings.
Requests the Governing Body of the International Labour Office
to place on the agenda of an early session of the International Conference of Labour Statisticians the subject of statistics of workers'
earnings with special reference to payrolls and aggregate wages and
salaries.
VII
Resolution concerning an International Standard Classification of
Occupations
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
Noting the desirability of establishing an international standard
classification of occupations which would permit comparisons between
the numbers engaged, the rates of remuneration, the hours of work and
other conditions in the same or similar occupations in different countries, and noting in particular the need for such a standard classification for use in connection with the national censuses recommended
by United Nations Statistical and Population Commissions,
Requests the Governing Body of the International Labour Office
to instruct the Office to study, in co-operation with the United Nations
and appropriate specialised agencies, the problems involved in the
establishment of such a standard classification of occupations with a
view to the possible placing of this subject on the agenda of a future
session of the International Conference of Labour Statisticians.
VIII
Resolution concerning Statistics of Employed and Unemployed
Classified according to Degrees of Skill
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
Believing that statistics of employed and unemployed classified
according to degrees of skill would be of considerable value particularly
APPENDICES
67
in connection with the analysis of problems of unemployment,
and
Realising that extensive studies of the terminology of occupations
and of the corresponding job specifications in the different countries
will be necessary before any international standard classification of
workers according to degrees of skill can be drawn up as a basis for
such statistics.
Requests the Governing Body of the International Labour Office,
(a) to instruct the Office to study such information as may be
available concerning the experience of the various countries in this field, and
(b) to place the subject of the classification of the employed and
unemployed, according to degrees of skill, on the agenda
of a future session of the International Conference of Labour
Statisticians, if possible at the same time as the subject of
an international standard classification of occupations.
IX
Resolution concerning Statistics of Multiple Employment, Underemployment and Inadequate Employment, with Special Reference
to Agriculture
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
Recognising the importance of developing accurate methods for
the measurement and international comparison of multiple employment, underemployment and inadequate employment, with special
reference to agriculture.
Requests the Governing Body of the International Labour Office
to direct the Office to undertake studies of this subject, and to publish
the results.
Resolution concerning the Further Study of Place-to-Place
Comparisons of Cost of Living
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
Noting the importance of developing accurate methods for international, interregional, and intercity comparisons of costs of living
and recognising the theoretical and practical difficulties in the way of
obtaining satisfactory results.
Requests the Governing Body of the International Labour Office
to direct the Office to continue its studies of these problems, and to
place the subject on the agenda of an early session of the International
Conference of Labour Statisticians, when appropriate methods and
techniques have been further developed and tested.
68
SIXTH CONFERENCE OF LABOUR STATISTICIANS
XI
Resolution concerning the Study of Consumption Goods Price Indices
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
Recognising the importance of developing and appraising different
measures of consumption goods price movements for different purposes.
Requests the Governing Rody of the International Labour Office
to direct the Office to undertake a study of a variety of measures of
consumption-goods price movements with a view to determining the
relative advantages of each for different purposes, having regard both
to the choice of weights and to the prices employed in each type; and,
in particular, to make a study of the problems of using such indices,
amongst others, for the purpose of revaluing the national income in
terms of prices in a specified year; and to place the subject on the
agenda of an early session of the International Conference of Labour
Statisticians.
XII
Resolution concerning the Further Study of Technical Methods oí Quality
Control and Substitutions in Cost-of-Living Indices
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
Recognising that the measurement of price changes over time or
of place-to-place differences in prices involves the establishment of
equivalence in the quality of goods priced at different times or in
different places at the same time, and
Recognising that cost-of-living indices may require the introduction
of substitutions in the calculation of the index, or the adoption of
such other methods as may improve the results, and
Recognising that methods should be devised for use when through
the exigencies of fashion, new inventions, or for other reasons, the
nature of the goods priced, designed for a more or less given purpose,
has changed.
Requests the Governing Rody of the International Labour Office
to direct the Office to make a study of these problems, and to place the
subject on the agenda of an early International Conference of Labour
Statisticians.
xm
Resolution concerning the Classification and Nomenclature
of Cost-of-Living Index Numbers
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
Recognising the need for classification and nomenclature (especially
in periods when the price trends for individual commodities are markedly disparate) of various kinds of index numbers.
APPENDICES
69
Requests the Governing Body of the International Labour Office
to direct the Office to make a study of the classification and nomenclature of the various index numbers, indicating the particular types of
index numbers best suited to a specified set of circumstances and the
formula to be used, having regard, in particular, to the possibility of
giving statistical effect to the economic theory relating to the construction of these indices.
XIV
Resolution concerning the Further Study of Standards of Adequacy
of Consumption
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
Recognising that as a by-product of cost-of-living and budgetary
studies, valuable data may emerge which will be useful in determining
the extent to which consumption levels of different groups meet
defined standards of adequacy.
Requests the Governing Body of the International Labour Office
to direct the Office to pursue its studies on this matter and to place this
subject on the agenda of an early session of the International Conference of Labour Statisticians.
XV
Resolution concerning Cost-of-Living Indices for Farm Families
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
Recognising the importance of developing accurate methods for
international comparison of price index numbers appropriate to farm
families with particular regard to the problems created by foodstuffs
produced and consumed in farm households, the cost of agricultural
housing, food consumed and services given to farm labourers' families
as payment in kind.
Requests the Governing Body of the International Labour Office
to direct the Office to undertake studies of these problems, and to
place the subject on the agenda of an early session of the International
Conference of Labour Statisticians when appropriate methods and
techniques have been further developed and tested.
XVI
Resolution concerning the Need for Further Discussion of Methods of
Family Living Studies
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
Recognising the need for new studies of family consumption in
order to furnish up-to-date weights for cost-of-living index numbers as
70
SIXTH CONFERENCE OF LABOUR STATISTICIANS
well as for other reasons, and above all in order to provide for comparisons of consumption levels with given standards of adequacy, and
Recognising the special need for studies of family living in less
well-developed areas where such studies .have not been made hitherto.
Requests the Governing Body of the International Labour Office
to place on the agenda of an early session of the International Conference of Labour Statisticians the subject of the making of family living
studies, including the application of new sampling techniques to the
selection of families,
Requests the Governing Body of the International Labour Office to
consider the advisability of referring the special problems of making
such studies in less well-developed areas to a technical committee of
specially qualified experts.
XVII
Resolution concerning the Classification of Causes of Industrial Injuries
and the Assessment of Permanent Partial Disability
(Adopted on 8 August 1947)
The Sixth International Conference of Labour Statisticians,
Recognising the need for a revised classification of accident causes
for purposes of accident prevention, and
Recognising the need for a standard scale for assessing permanent
partial disability.
Requests the Governing Body of the International Labour Office
to place the subject of the classification of causes of industrial injuries
and the subject of uniform scales of time charges for permanent partial
disability on the agenda of an early session of the International
Conference of Labour Statisticians.
XVIII
Resolution concerning the Work of the International Labour Office
in the Field of Labour Statistics
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
Recognising the need for further studies in the field of labour
statistics, as shown by the various Resolutions adopted by the Conference, and
Noting in particular the desirability of making available to the
various national statistical offices the results of the experience of
other countries in this field.
Requests the Governing Body of the International Labour Office
to consider the advisability of expanding the capacity of the Office for
undertaking statistical work in order to make possible the carrying
out of the various studies suggested, the development of the functions
of the Office as a clearing house for information in the field of labour
statisticSj and the provision of expert assistance in this field to Governments on a greater scale than is possible with its present resources.
APPENDICES
71
XIX
«
Resolution concerning the Date of the next Session of the International
Conference of Labour Statisticians
(Adopted on 12 August 1947)
The Sixth International Conference of Labour Statisticians,
Having considered the items referred to it by the Governing Body
of the International Labour Office,
Having requested the Governing Body to instruct the Office to
undertake further studies on a number of problems related to those
which engaged the attention of the Sixth International Conference of
Labour Statisticians,
Considering that these problems are urgent, as the work of improving and developing labour statistics is being actively carried forward
in many countries,
Requests the Governing Body of the International Labour Office
to convene the next session of the International Conference of Labour
Statisticians before the end of 1949.
APPENDIX II
MEMBERS OF DELEGATIONS AND COMMITTEES
MEMBERS OF DELEGATIONS
^ Argentina
Mr. L. F. ROMERO, Assistant Director-General of Statistics.
s Mr. José ALOCEN, Director of Co-ordination of the Census.
> Mr. Wilfredo BRUNET, First Secretary, Argentine Embassy in Ottawa.
9. Australia
v
Mr. K. M.
ARCHER,
Commonwealth Bureau of Census and Statistics.
_f
Belgium
s ' Mr. Léon DELSINNE, Scientific Director of the Revue de Travail at the
Ministry of Labour and Social Welfare, former Minister.
Y
Brazil
(•*• Mr. A. G. MIRANDA NETTO, Statistician at the Ministry of Labour;
Professor of Statistics at the University, at present attached to the
Brazilian Embassy at Ottawa.
J^~ Canada
7
Mr. Herbert
MARSHALL,
O.B.E., Dominion Statistician.
Advisers :
Mr. F. H. LEACEY, Acting Chief, Prices Branch, Dominion Bureau
of Statistics.
Mr. N. A. MCKELLAR, Chief, Unemployment Insurance Section, Dominion Bureau of Statistics.
Mr. R. W. JAMES, Chief, Sampling Unit, Central Research and
Development Services, Dominion Bureau of Statistics.
Mr. R. N. CRAM, Statistician, Department of Labour.
£
',',•
Mr. Mariano
|Montreal.
BUSTOS LAGOS,
9
Chile
Consul-General of Chile in Canada,
China
Mr. Wang LUNG, Chief Statistician, Department of Statistics, Ministry
of Social Affairs.
APPENDICES
Ô
i^
Mr. Oscar
CHAUVELL
Mr. Jorge
RAMOS
Adviser:
Muñoz, National Commission of Social Co-operation.
Czechoslovakia
Mr. Vladimir HEIMRICH, Ministerial Secretary of the National Statistical Office.
¿*
' '•>.•
Cuba
y Barillas, Technical Adviser.
y
''
73
Mr. Einar
COHN,
Denmark
Director, Danish Statistical Department.
Substitute and Adviser:
Mr. J. S. DICH, Secretary-General, Danish Government Employment
Commission.
, '
( {
Mr. Camilo
ANDRADE
Eeuadoî
Pino V Consul of Ecuador in Montreal.
-'""'
/ 1, ,
/ 2L France
J
Mr. H.P. LACROIX, Chief of Central Statistical Service of the Ministry
of Labour and Social Security.
s^
iran
Mr. H. NAYER-NOURI, Representative of the Iranian Ministry of
Labour and Information in the United States of America.
/ *( Ireland
, ,-'' Mr. R. C. GEARY, Superintending Officer, Department of Industry and
Commerce (Statistics Branch).
c.^
Italy
1
Mr. Edraondo Cossu , Ministry of Labour.
Mr. Mario IMPERATORI 1, Central Statistical Institute.
/ 4 Mr. Piedro GUADAGNINI, Italian Consul, Montreal.
/¿T
f •-?
o
/>
Mr. Luis L.
DUPLAN,
Mexico
Consul-General of Mexico in Montreal.
( ^f Netherlands
Mr. 0. ten HAVE, Chief of the Economic and Social Statistics Section
of the Central Bureau of Statistics.
Technical Adviser:
Mr. H. M. J. HART, Director, Central Bureau of Statistics, Batavia.
1
Not present at the Conference.
/,0^;*'&
/ ¿. ^ sjyk* \
'
^J
74
SIXTH CONFERENCE OF LABOUR STATISTICIANS
&
New Zealand
••7
l-'J
Mr. G. E. F.
"WOOD,
Government Statistician.
Adviser :
Mr. J. V. T. BAKER, Senior Research Officer, Department of Labour
and Employment.
.*
^.f
i^}
Mr. Arne SKAUG, Director of the Central Bureau of Statistics.
Mr. Finn ALEXANDER, Actuary, Technical Adviser to the Ministry
of Social Welfare.
./,-,
7
>. 2..
Panama
^^
Poland
Mr. Stefan A. SZULC, Professor at the University of Warsaw, Central
Statistical Office of Poland.
¿¿
Sweden
^7
Mr. Erland von
Welfare.
^j
Mr. Ilhan SAVUT, First Secretary and Head of Chancery, Turkish
delegation to the United Nations.
HOFSTEN,
Chief of Section, Department of Social
J^J,
Turkey
«'V United Kingdom
£C
, ^j
•J "f
Mr. R. B. AINSWORTH, Director of Statistics, Ministry of Labour and
National Service.
Mr. F. WYNN JONES, Statistics Department, Ministry of Labour and
National Service.
/5> j
,., P
"• S
^ /V.^-
Mr. Eligió CRESPO, Chief of the Inspection and Statistics Section, \
Department of Labour.
J? t
2 '/
Norway
United States of America
Mr. Ewan CLAGUE, Commissioner of Labor Statistics, U.S. Department
of Labor.
Advisers :
Mr. A. Ross ECKLER, Assistant Director, Bureau of the Census,
U.S. Department of Commerce.
Mrs. Dorothy S. BRADY, Chief, Cost-of-Living Division, Prices and
Cost-of-Living Branch, Bureau of Labor Statistics, U.S. Department of Labor.
Mr. Max KOSSORIS, Chief of the Industrial Hazards Division, Bureau
of Labor Statistics, U.S. Department of Labor.
Mr. Thomas J. MILLS, Assistant Chief, Division of Statistical Standards,
U.S. Bureau of the Budget.
'Off
\j
APPENDICES
¿ **
-
75
Uruguay
Mr. Zoel Gonzal^k-Ruiz.^
^"
^7L
Mr. T. Gonzalez
BOGEN.
Venezuela
1
Substitute:
Mr. Anibal
MESTRE FUENMAYOR.
1
Observer
Dominiean Republie
^ Mr. Eduardo
ESTRELLA,
Cónsul-General of the Dominican Republic.
REPRESENTATIVES OF THE UNITED NATIONS
AND SPECIALISED AGENCIES
United Nations
Mr. William R. LEONARD, Acting Director of Statistical Office.
Mrs. Melita H. RILEY, Statistical Office.
Mr. Per KIRSTEIN, Statistical Office.
Food and Agriculture Organisation
Mr. Cesar
LORENZO.
Mr. A. M.
LESTER,
International Civil Aviation Organisation
Chief of the Economics and Statistics Section.
International Monetary Fund
Mr. Haakon
BINGEN.
GOVERNING BODY DELEGATION
Government group : Miss Frieda MILLER.
Employers' group : Mr. Harry TAYLOR ; substitute : Mr. H. W.
DONNELL.
Workers' group :
Chairman :
Mr. Herbert
Mr. Percy BENGOUGH.
OFFICERS OF THE CONFERENCE
MARSHALL
(Canada).
Vice-Chairman :
Mr. Léon DELSINNE (Belgium).
Not present at the Conference.
MAC-
76
SIXTH CONFERENCE OF LABOUR STATISTICIANS
DRAFTING COMMITTEE
Mr. MARSHALL, Chairman of the Conference.
Mr. DELSINNE, Vice-Chairman of the Conference.
Mr. AINSWORTH.
Mr. von HOFSTEN.
Mr. LACROIX.
Secretary-General of the Conference
Mr. E. J.
RICHES.
Assistant Secretary- General
Mr. R. M.
WOODBURY.
MEMBERS OF COMMITTEES
COMMITTEE ON EMPLOYMENT AND UNEMPLOYMENT STATISTICS
Argentina : Mr. W. BRUNET
Australia: Mr. K. M. ARCHER
Belgium: Mr. L. DELSINNE
Canada: Mr. H. MARSHALL; Mr. N. A. MCKELLAR; Mr. R.W.
Chile: Mr. M. BUSTOS LAGOS
China : Mr. Wang LUNG
Czechoslovakia: Mr. V. HEIMRICH
Cuba: Mr. 0. CHAUVELL
Denmark: Mr. E. COHN; substitute: Mr. J. S. DICH
France: Mr. H. P. LACROIX
Iran: Mr. H. NAYER-NOURI
Ireland: Mr. R. C. GEARY
Mexico: Mr. L. L. DUPLAN
Netherlands: Mr. 0. ten HAVE
New Zealand: Mr. J. V. T. BAKER
Norway: Mr. A. SKAUG; substitute: Mr. F. ALEXANDER
Panama: Mr. E. CRESPO
Poland: Mr. S. A. SZULC
Turkey: Mr. Ilhan SAVUT
United Kingdom: Mr. F. WYNN JONES
United States : Mr. Ewan CLAGUE ; substitutes : Mr. T. J.
Mr. A. R. ECKLER
Observer
Dominican Republic: Mr. E. ESTRELLA
JAMES
MILLS,
Representatives of the United Nations and Specialised Agencies
United Nations : Mr. Per KIRSTEIN
Food and Agriculture Organisation: Mr. Cesar LORENZO
Officers of the Committee
Chairman :
Mr. E. CLAGUE (United States)
Vice-Chauman :
Mr. E. COHN (Denmark)
76
SIXTH CONFERENCE OF LABOUR STATISTICIANS
DRAFTING COMMITTEE
Mr. MARSHALL, Chairman of the Conference.
Mr. DELSINNE, Vice-Chairman of the Conference.
Mr. AINSWORTH.
Mr. von HOFSTEN.
Mr. LACROIX.
Secretary-General of the Conference
Mr. E. J.
RICHES.
Assistant Secretary- General
Mr. R. M.
WOODBURY.
MEMBERS OF COMMITTEES
COMMITTEE ON EMPLOYMENT AND UNEMPLOYMENT STATISTICS
Argentina : Mr. W. BRUNET
Australia: Mr. K. M. ARCHER
Belgium: Mr. L. DELSINNE
Canada: Mr. H. MARSHALL; Mr. N. A. MCKELLAR; Mr. R.W.
Chile: Mr. M. BUSTOS LAGOS
China : Mr. Wang LUNG
Czechoslovakia : Mr. V. HEIMRICH
Cuba: Mr. 0. CHAUVELL
Denmark: Mr. E. COHN; substitute: Mr. J. S. DICH
France: Mr. H. P. LACROIX
Iran: Mr. H. NAYER-NOURI
Ireland: Mr. R. C GEARY
Mexico: Mr. L. L. DUPLAN
Netherlands: Mr. 0. ten HAVE
New Zealand: Mr. J. V. T. BAKER
Norway: Mr. A. SKAUG; substitute: Mr. F. ALEXANDER
Panama: Mr. E. CRESPO
Poland: Mr. S. A. SZULC
Turkey: Mr. Ilhan SAVUT
United Kingdom: Mr. F. WYNN JONES
United States: Mr. Ewan CLAGUE; substitutes: Mr. T. J.
Mr. A. R. ECKLER
Observer
Dominican Republic: Mr. E. ESTRELLA
JAMES
MILLS,
Representatives of the United Nations and Specialised Agencies
United Nations: Mr. Per KIRSTEIN
Food and Agriculture Organisation : Mr. Cesar LORENZO
Officers of the Committee
Chairman :
Mr. E. CLAGUE (United States)
Vice-Chairman :
Mr. E. COHN (Denmark)
APPENDICES
77
Reporter and Representative of the Committee on the Conference Drafting
Committee :
Mr. H. P. LACROIX (France)
Mr.
Mr.
Mr.
Mr.
Drafting Committee
E. CLAGUE (United States), Chairman
0. CHAUVELL (Cuba)
H. P. LACROIX (France)
F. WYNN JONES (United Kingdom)
Secretary-General
Mr. E. J.
RICHES
Expert
Mr. S.
LEBERGOTT
COMMITTEE ON COST-OF-LIVING STATISTICS
Argentina: Mr. L. F. ROMERO; substitute: Mr. J.
Brazil: Mr. A. G. MIRANDA NETTO
Canada: Mr. F. H. LEAGEY
Cuba: Mr. J. RAMOS Muñoz
Chile: Mr. M. BUSTOS LAGOS
Czechoslovakia: Mr. V. HEIMRIGH
Denmark: Mr. E. COHN
Dominican Republic: Mr. E. ESTRELLA
France: Mr. H. P. LACROIX
Ireland : Mr. K. C GEARY
Mexico: Mr. L. L. DUPLAN
Netherlands: Mr. H. M. J. HART
New Zealand: Mr, G. E. F. WOOD
Norway: Mr. F. ALEXANDER
Sweden : Mr. E. von HOFSTEN
United Kingdom: Mr. R. B. AINSWORTH
United States: Mrs. Dorothy S. BRADY, Mr. M.
ALOGéN
KOSSORIS
Representatives of the United Nations and Specialised Agencies
United Nations: Mrs. M. H. RILEY
International Civil Aviation Organisation: Mr. A.M. LESTER,
Food and Agriculture Organisation: Mr. C. LORENZO
International Monetary Fund: Mr. H. BINGEN
Representative of the Governing Body
Miss Frieda
MILLER
Officers of the Committee
Chairman :
Mr. A. SKAUG (Norway)
Vice-Chairman :
Mr. L. F. ROMERO (Argentina)
Reporter and Representative of the Committee on the Conference Drafting
Committee :
Mr. R. B. AINSWORTH (United Kingdom)
78
Mr.
Mr.
Mr.
Mr.
Mr.
Mr.
SIXTH CONFERENCE OF LABOUR STATISTICIANS
Drafting Committee
A. SKAUG (Norway), Chairman
J. RAMOS Muñoz (Cuba)
R. B. AINSWORTH (United Kingdom)
R. C. GEARY (Ireland)
E. von HOFSTEN (Sweden)
G. E. F. WOOD (New Zealand)
Representative of the Secretary-General
Mr. R. M. WOODBURY
Expert
Mr. R. LIVCHEN
COMMITTEE ON INDUSTRIAL ACCIDENT STATISTICS
Argentina: Mr. J. ALOCEN
Canada: Mr. R. M. CRAM
Chile: Mr. M. BUSTOS LAGOS
Czechoslovakia: Mr. V. HEIMRICH
Denmark: Mr. J. S. DICH
Dominican Republic: Mr. E. ESTRELLA
Mexico: Mr. Luis L. DUPLAN
Netherlands : Mr. H. M. J. HART
New Zealand: Mr. G.E.F. WOOD
Norway: Mr. F. ALEXANDER
Sweden : Mr. E. von HOFSTEN
United Kingdom: Mr. R. B. AINSWORTH
United States: Mr. Max KOSSORIS
Representative of Specialised Agency
International Civil Aviation Organisation: Mr. A. M. LESTER
Officers of the Committee
Chairman :
Mr. G. E. F. WOOD (New Zealand)
Vice-Chairman :
Mr. M. BUSTOS LAGOS (Chile)
Reporter and Representative of the Committee on the Conference Drafting
Committee :
Mr. E. von HOFSTEN (Sweden)
Mr.
Mr.
Mr.
Mr.
Drafting Committee
G. E. F. WOOD (New Zealand), Chairman
R. B. AINSWORTH (United Kingdom)
E. von HOFSTEN (Sweden)
M. BUSTOS LAGOS (Chile)
Representative of the Secretary-General
Mr. R. M. WOODBURY
Expert
Mr. R. LIVCHEN
CORRIGENDUM
Employment, Unemployment and Labour Force Statistics
(Part 1 of the series of Reports prepared for the
Sixth International Conference of
Labour Statisticians)
Page 92, Table V. The figures in the column headed
" Estimated Total Employees (June 1939) " should be
deleted. Though these figures may be regarded as sufficiently approximate for purposes of calculating a frequency
distribution such as appears in the last column of the table,
they should obviously not be compared in detail with the
figures in the preceding column, and should therefore be
disregarded.