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THE RELATIONSHIP OF THE HOME OFFICE AND THE MINISTRY OF LABOUR WITH THE TREASURY ESTABLISHMENT DIVISION 1919-1946 AN EVALUATION OF CONTRASTING NEEDS NORMAN GEORGE PRICE Thesis submitted for the degree of PhD London School of Economics (University of London) 1 UMI Number: U042642 All rights reserved INFORMATION TO ALL USERS The quality of this reproduction is dependent upon the quality of the copy submitted. In the unlikely event that the author did not send a complete manuscript and there are missing pages, these will be noted. Also, if material had to be removed, a note will indicate the deletion. Dissertation Publishing UMI U042642 Published by ProQuest LLC 2014. Copyright in the Dissertation held by the Author. Microform Edition © ProQuest LLC. All rights reserved. This work is protected against unauthorized copying under Title 17, United States Code. ProQuest LLC 789 East Eisenhower Parkway P.O. Box 1346 Ann Arbor, Ml 48106-1346 t h e s e s F 68 nu-oaaiS ABSTRACT The thesis examines three Departments of the British Home Civil Service from 1919 to 1946: the Home Office, the Ministry of Labour and the Treasury Establishment Division. The study investigates the contrasting needs, in establishment terms, of an old "Secretary of State" department the Home Office, performing a largely regulatory role, with a new department the Ministry of Labour performing an administrative role, and the relationship of both over establishment matters with the Treasury. The study assesses the roles of individual Administrative Class civil servants in the three departments from the rank of Principal to Permanent Secretary: with particular reference to the relationships existing between the Permanent Secretaries of the two departments and the Permanent Secretaries of the Treasury and their Controllers of Establishments. This is followed by an assessment of the work of the Treasury Establishment Division during the first 14 years of its existence from 1919 to 1933, comparing the work of the Standing Committee of Establishment Officers with the Home Office and Ministry of Labour reorganisation of their administrative staff during the same period. This is followed by an assessment made from examining the years of growth in the two Departments from 1933 to 1939 and the relationship of the Home Office and the Ministry of Labour with a reorganised Treasury Establishment Division. The study finishes with the examination of the changing needs of the two Departments during the war years 2 from 1939 to 1945: with their extended roles when the Home Office took on administrative as well as regulatory roles in contrast to the Ministry of Labour (and National Service after September 1939) taking on regulatory as well as administrative roles. The role of the Treasury Establishment Division after the retirement of Warren Fisher in 1939 is measured against the impact that wartime staffing needs brought to the Division. The thesis concludes, first, that the restraints of the Treasury Establishment Division on establishment matters did not differ greatly over the claims made by the two Departments, despite their different historical backgrounds in the Home Civil Service, and their contrasting roles. Second, the effect of these restraints would have had a greater, and possibly harmful, impact in 1939 had the Home Office not quickly changed its incestuous establishment policy and adopted the Fisher concept (originally formulated in 1919) for the interchange of Administrative Class civil servants between departments: whilst, in contrast, the Ministry of Labour was able to adapt its pre-war administrative role to meet the requirements of its extended wartime role. Third, that the personality, style and political attitudes of the individual Permanent Secretaries had small effect on the success (or otherwise) of their dealing with the Treasury Establishment Division. This final conclusion is drawn from the effects of Ministerial intervention on establishment matters concerning individual Administrative Class civil servants. 3 To: Grace, Christine and Janice 4 CONTENTS INTRODUCTION CHAPTER 1 Introduction to the three Departments in 1919 1/1 Historical background to the Home Office and the Ministry of Labour. 1/2 The Permanent Secretaries in 1919. 1/3 The Treasury in 1919 and the creation l a of the Establishment Division. 1/4 Civil servants and Government in 1919. 1/5 Conclusions. CHAPTER 2 The Home Office, Ministry of Labour and Treasury Establishment Division 1921-33 2/1 The Permanent Secretaries: Anderson At the Home Office, Wilson and Floud at the Ministry of Labour. 2/2 The organisation of the three Departments and their broad relationships. 2/3 The years of crisis - 1926 and 1931. 2/4 Contrasts in the structure of the three Departments. (0 / 2/5 The Controllers of Establishments and the Departmental Establishment Officers. 2/6 Conclusions 4*^ CHAPTER 3 The Treasury Establishment Division 1919-1933. 3/1 The extension of its role. 3/2 The relationship with Departmental '35 Establishment Officers. 3/3 Conclusions. CHAPTER 4 Two contrasts in the role of the Treasury Establishment Division 1919-1933. 4/1 The work of the Standing Committee of Establishment Officers. 5 4/2 The Home Office and Ministry of Labour reorganisation of administrative staff. 4/3 Conclusions. CHAPTER 5 The years of growth 1933-1939. 5/1 The Permanent Secretaries: Scott at the Home Office, Floud and Phillips at the Ministry of Labour. 2- 5/2 Departmental relationships with a restructured Treasury Establishment Division. 5/3 Conclusions. CHAPTER 6 The years of war 1939-1945. 6/1 The wider role of the Home Office. 6/2 The extended role of the Ministry of Labour and National Service. 6/3 The reforming Permanent Secretary at the Home Office Maxwell: the final years of Permanent Secretary Phillips at the Ministry of Labour and National Service. 6/4 The Treasury Establishment Division after Fisher. 6/5 War-time Committees on establishment matters. 6/6 The Treasury Establishment Division 1939-1946. A 6/7 Conclusions. CHAPTER 7_ Conclusions / T v w O \4 > 6 LIST OF TABLES Permanent Secretaries. Home Office, Ministry of Labour and Treasury. Controllers of Establishments. Organisation Chart. Treasury 1920. Organisation Chart. Treasury 1927. Organisation Chart. Treasury 1932. Organisation Chart. Home Office 1933. Organisation Chart. Ministry of Labour and National Service 1941. Administrative Class civil servants in Home Office and Ministry of Labour 1919. Administrative Class civil servants in Home Office and Ministry of Labour 1933. Administrative Class civil servants in Home Office and Ministry of Labour 1939. Administrative Class civil servants in Home Office, Ministry of Home Security and Ministry of Labour and National Service 1940. Administrative Class civil servants in Home Office and Ministry of Labour and National Service 1945. BIBLIOGRAPHY STRUCTURE OF BIBLIOGRAPHY A . Primary Sources 1. Parliamentary Papers and Government Publications. 2. Public Record Office documents. 3. Archive documents. B . Secondary Sources 4. Books 5. Articles and pamphlets 8 INTRODUCTION This thesis is a study of administrative history and its objective is to examine the contrasting personnel or "establishment" needs of two departments, the Home Office and the Ministry of Labour, and their relationships with the Division of the Treasury concerned with all establishment (now generally referred to as personnel) matters. The study follows these needs from the beginning of 1919 through to the changing requirements of the two departments during the 1939 to 1945 war and ending in March 1946. The study investigates the contrasting needs in establishment requirements of an old "Secretary of State" department, the Home Office, performing a largely regulatory role, and a new department, the Ministry of Labour, performing an administrative role, and the relationships of both over establishment matters with the Treasury Establishment Division. Winnifrith, writing in 1958, 12 years after the end of the period studied (when as Third Secretary at the Treasury he was responsible for establishment work) defined its main features under three heads(l). 1. Control of conditions of service, especially pay; 2. Control of numbers and grading; and 3. Control of personnel e.g. recruiting, cross-postings between departments. 9 These controls had existed since the creation of the Treasury Establishment Division as part of the 1919 Civil Service reforms, and allowing for the fact that his paper was originally addressed to the Society of Civil Servants (a trade union representing the executive grades in the Civil Service), he may have wished to give a favourable picture of the relaxation of the rigid control by the Treasury Establishment Division in the post-war years. Under these three heads Winnifrith considered that Treasury control was absolute for the first and second but not for the third. For the first, Treasury control was over the main conditions of service, with approval being required for any alterations in the pay, hours, or leave for the four "Treasury" classes of civil servants and for all departmental classes. For the second, Winnifrith considered that Treasury control, if need be, was absolute, and until 1939 it was. But, he conceded, what this study shows, that during the war this absolute control could not be maintained, and that the delegation of control to departments that followed the war (and which was in operation when he was writing twelve years later) was a result of war-time delegation. On the third, he conceded that
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