METHODS BY WHICH CHANGES OF WAGES WERE EFFECTED IN THE VARIOUS AUSTRALIAN STATES DURING 1913-Concluded.

It is now more than 18 years since the wages-board system came into effect in Victoria, and it seems to be fully established and generally accepted by both employers and employees. In the early years of the system's operations, however, every step in the extension of the principle was obstinately fought, and many times the very

existence of the system was at stake. The first law when enacted, July 28, 1896, was a temporary measure, to be in force to January 1, 1900, unless Parliament was in session, in which case it was to lapse at the end of the session unless reenacted. It was reenacted February 20, 1900, to become effective May 1, 1900, but again as a temporary measure for two years or until the end of the session of Parliament, and a royal commission was created June 18, 1900, to study the subject. This law lapsed upon the end of the session of Parliament September 10, 1902. By the factories and shops continuation act of 1902 (December 5, 1902) the law was revived, to continue in force until October 1, 1903. In 1903 the law was again reenacted, to continue in force until December 31, 1905. On October 6, 1905, before the expiration of this act, the law was again reenacted and was this time made permanent. Since 1905 there have been no fundamental changes in the act, and in 1912 the existing legislation was consolidated, with some slight amendments, in the factories and shops act of 1912.1 Two amending acts have since been passed, dated December 31, 1912, and November 2, 1914, but not making any important changes.

When the first wages boards were authorized in Victoria under the act of 1896, the act was intended as a temporary measure to be applied to six specially sweated trades. These were:

Bootmaking.

Baking, employing mainly men.

Clothing.

Shirts.

Underclothing, employing mainly women.

Furniture, in which the employment of Chinese was extremely important.

When the law was reenacted in 1900, 21 additional special boards were provided for, as follows:

The successive additions of special boards by later acts of the Victorian Parliament are of interest as showing the gradual extension of the system of wage boards in practically all the industries of Victoria.

1 A full account of the parliamentary contest over wages-board legislation in Victoria is given by Prof. Hammond in an article on "Wages boards in Australia: I. Victoria" in the Quarterly Journal of Economics, November, 1914.

Under an authorization contained in the principal act, the governor in council in 1911 appointed 8 boards:

and in 1912, 1 board: Aerated-water carters.

There were on April 30, 1914, 137 special boards existing or authorized, affecting about 150,000 employees. Of these boards 131 were in existence and 129 determinations were in force.

MODE OF CONSTITUTING WAGES BOARDS AND MAKING MINIMUMWAGE DETERMINATIONS.1

Before a special board is constituted, it is necessary that a resolution in favor of such a course should be carried in both houses of the legislature. It is usual for the minister administering the factories act to move that such a resolution be passed. The minister may be induced to adopt such a course by representations made by either employers or employees, or both, or by the reports of the officers of the department.

The reasons alleged by employers for desiring a board are, usually, unfair competition; and those by employees, low wages, and often the employment of excessive juvenile labor. If the minister is satisfied that a case has been made out, he moves the necessary resolution in Parliament, and when such resolution has been carried, an order in council is passed constituting the board.

Once a resolution has been passed or a board appointed the minister through the governor in council has full power to group or divide trades, to adjust the powers of different boards by taking from one and adding to another, to define the parts of the State over which any determination shall operate, and generally to administer so as to secure the greatest measure of benefit.

The order constituting the board indicates the number of members. The number must not be less than four or more than ten.

The minister then invites, in the daily press, nominations for the requisite number of representatives of employers and employees. These representatives must be, or have been, employers or em

1 Victoria. Report of the Chief Inspector of Factories, Workrooms, and Shops for the year ended Dec. 21, 1911. Melbourne, 1912, pp. 4 and 5.

ployees, as the case may be, actually engaged in the trae to bed affected. The full names and addresses of persons willing to act should be sent in with particulars as to their connection with the trade during the three years last past. Where there are associations of employers or employees, more than the necessary number of nominations are often received. In such case, the minister selects from the persons whose names are sent in the necessary number to make up a full board.

The names of persons so nominated by the minister are published in the Government Gazette, and unless within 21 days one-fifth of the employers, or one-fifth of the employees, as the case may bẹ, forward a notice in writing to the minister that they object to such nominations, the persons so nominated are appointed members of the board by the governor in council.

If one-fifth of the employers or employees object to the persons nominated by the minister and they must object to all the nominations, and not to individuals-an election is held. The chief inspector conducts such elections, the voting is by post, the ballot papers being forwarded to each elector.

Within a few days of their appointment the members are invited to meet in a room at the office of the chief inspector of factories, and a person (always a Government officer and usually an officer of the chief inspector's department) is appointed to act as secretary.

The members must nominate a chairman within 14 days of the date of their appointment, but if they can not agree to a chairman, he is appointed by the governor in council.

The times of meeting, the mode of carrying on business, and all procedure is entirely in the hands of the board, whose powers are defined in the factory acts.

Vacancies in special boards are filled on the nomination of the minister without any possibility of either employer or employee objecting.

The result of the labors of a board is called a "determination," and each item of such determination must be carried by a majority of the board.

The chairman is a member of the board. His function is usually confined to conducting the proceedings. He does not exercise his vote except in cases where the board is equally divided, when his casting vote determines the question at issue.

When a determination has been finally made, it must be signed by the chairman and forwarded to the minister of labor. The board fixes a date on which the determination should come into force, but this date can not be within 30 days of the last fixing of a price or rate of pay. If the minister is satisfied the determination is in form, and can be enforced, it is duly gazetted.

In the event of the minister considering that any determination may cause injury to trade, or injustice in any way whatever, he may suspend same for any period, not exceeding six months, and the board is then required to reconsider the determination. If the board does not make any alteration, and is satisfied that the fears are groundless, the suspension may be removed by notice in the Government Gazette.

Provision is made by which either employers or employees may appeal to the court of industrial appeals against any determination of a board. This court consists of any one of the judges of the