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8 D O C U M E N T IS T H E P R O P E R T Y OF H I S B R I T A N N I C M A J E S T Y ' 8
Printed
SECRET.
for the War Cabinet.
May
GOVERNMENT
1945.
Copy N o .
'
W . P . (45) 305.
KUh May,
1945.
WAR
CABINET.
NATIONAL INSURANCE (INDUSTRIAL INJURIES)
M E M O R A N D U M BY T H E M I N I S T E R OF N A T I O N A L
BILL.
INSURANCE.
A T their meeting on the 31st January, 1945 (R (45) 7th Meeting), the
Reconstruction Committee agreed that the drafting of this Bill should proceed
with all speed and should be introduced at the earliest possible date. A t their
meeting on the 7th M a y (R (45) 18th Meeting) the Committee approved of certain
changes suggested by me in the proposals published in the W h i t e P a p e r , P a r t I I ,
in September 1944, and agreed that I should present a short W h i t e P a p e r to
Parliament at the same time as the Bill, e x p l a i n i n g its relation to the proposals
in P a r t I of the W h i t e P a p e r on Social Insurance.
2. I submitted a draft of the Bill to the Legislation Committee on the
15th M a y ( H . P . C . (45) 15th Meeting) and the Committee approved the B i l l in
the form, submitted and authorised its introduction in the House of Commons,
subject to one or t w o points which a r e being cleared u p .
3. A copy of a proof of the proposed W h i t e P a p e r which e x p l a i n s the B i l l
is attached.
W. A. J.
Ministry
(
of National
Insurance,
lQth May, 1945.
[29902]
S.W.I.
NATIONAL
INSURANCE
(INDUSTRIAL
INJURIES)
BILL
Explanatory M e m o r a n d u m by the M i n i s t e r of National I n s u r a n c e LONDON HIS
MAJESTY'S
STATIONERY
TWOPENCE NET OFFICE
NATIONAL INSURANCE (INDUSTRIAL INJURIES) BILL
A.—Introduction
1. T h e G o v e r n m e n t s proposals for a scheme of I n d u s t r i a l Injuries I n s u r a n c e
were set o u t in P a r t I I of t h e W h i t e P a p e r on Social I n s u r a n c e (Cmd. 6551)
published in S e p t e m b e r , 1944. These proposals were t h e subject of d e b a t e in
b o t h Houses of P a r l i a m e n t . T h e G o v e r n m e n t h a v e carefully considered t h e
observations m a d e d u r i n g t h e course of these d e b a t e s a n d also r e p r e s e n t a t i o n s
which h a v e been received from various interested bodies b y t h e Minister of
National I n s u r a n c e . As a result t h e y a r e satisfied t h a t t h e s t r u c t u r e of t h e
Scheme set o u t in t h e W h i t e P a p e r m e e t s w i t h general acceptance. At t h e s a m e
time it h a s seemed t o t h e G o v e r n m e n t t h a t t h e r e were certain criticisms of
their original proposals w h i c h could a n d should be m e t b y modifications of
detail. This P a p e r sets out first of all t h e principal changes which have been
m a d e in t h e original proposals a n d t h e n proceeds t o give an outline of t h e
Scheme as it is embodied in t h e Bill now p r e s e n t e d t o t h e H o u s e of C o m m o n s .
Tables a t t a c h e d show t h e effect of t h e c h a n g e s as applied t o a few typical cases
of t o t a l i n c a p a c i t y a n d 100 p e r cent, d i s a b l e m e n t .
B.—Changes now made in the original proposals
2. I n order t o get a complete picture of t h e provision t o be m a d e for t h e
injured w o r k m a n , it is necessary to t a k e a c c o u n t of t h e benefits proposed u n d e r
both t h e I n d u s t r i a l Injuries Scheme ( P a r t I I — C m d . 6551) a n d t h e General
Scheme ( P a r t I of t h e W h i t e P a p e r — C m d . 6550). Accordingly t h e following
s t a t e m e n t of t h e changes m a d e in t h e original proposals for I n d u s t r i a l Injuries
I n s u r a n c e includes certain proposals relating t o sickness a n d u n e m p l o y m e n t
benefit which a r e outside t h e scope of t h e present Bill b u t which it is proposed
t o include in t h e Bill giving effect to P a r t I of t h e W h i t e P a p e r .
3. Injury
allowance.—The
original proposal was tha t d u r i n g t h e period of
i n c a p a c i t v following an accident t h e r a t e of injury allowance should be 35s. a
week for t h e first 13 weeks a n d 40s. thereafter. T h e r e was t o be no fixed period
d u r i n g which t h i s allowance would be paid ; it w a s to be paid so long as t h e
w o r k m a n r e m a i n e d incapable of work until replaced b y a pension, t h e pension
t o be p u t in p a y m e n t when it seemed t h a t t h e d i s a b l e m e n t was likely t o be
p e r m a n e n t or prolonged. T h e proposal now is t h a t t h e r a t e of i n j u r y allowance
should be 40s. a week from t h e beginning of t h e i n c a p a c i t y a n d t h a t if t h e
i n c a p a c i t y lasts for t w e n t y - s i x weeks or m o r e t h e allowance should be replaced
b y a pension, either final or provisional, a t t h e end of t h e t w e n t y - s i x t h week.
(The basic r a t e of pension proposed is not c h a n g e d ; t h a t is, it will be 40s. a week
in t h e case of a w o r k m a n who is assessed as being 100 per cent, disabled a n d at
p r o p o r t i o n a t e rates for lower degrees of assessment.)
(
4. Unemploy"ability supplement.—It w a s proposed in t h e W h i t e Paper t h a t
where a pensioner, n o t w i t h s t a n d i n g remedial measures, r e m a i n e d , b y reason of
his industrial injury, v i r t u a l l y u n e m p l o y a b l e , he should receive a s u p p l e m e n t
of 10s. a week to his pension. I t is now p r o p o s e d t h a t t h i s s u p p l e m e n t should
b e 20s. per week. This will a p p l y t o p a s t cases (see p a r a g r a p h 29) as well as t o
cases arising u n d e r t h e new s c h e m e .
5, Dependants'
allowances.—It
was proposed in t h e W h i t e P a p e r t h a t when
a w o r k m a n was in receipt of injury allowance a t t h e r a t e of 35.9. a week an
allowance for a wife Or o t h e r a d u l t d e p e n d a n t should be p a y a b l e a t t h e r a t e of
8s. 9d. a week, a n d t h a t w h e r e his injury allowance was a t t h e r a t e of 40s. a week
or w h e r e h e h a d a 100 per cent, pension this allowance s h o u l d be a t t h e r a t e of
10s. per week. F o r a pensioner w i t h a lower r a t e of pension the allowance for
a wife would be a c o r r e s p o n d i n g p r o p o r t i o n of 10s. F o r a first child of t h e
w o r k m a n t h e allowance w a s t o b e 5s. w h e n his own allowance was at t h e 35s.
r a t e , 7s. Gd. w h e n he was in receipt of 40s. a week, a n d a p r o p o r t i o n of 7s. 6d.
when h e was receiving a pension less t h a n 100 per cent.
' 6. After careful c o n s i d e r a t i o n of t h e issues involved, t h e G o v e r n m e n t h a v e
come t o t h e conclusion t h a t t h e i r proposals in respect of d e p e n d a n t s should
be d i r e c t e d t o i m p r o v i n g t h e provision in cases w h e r e t h e injured w o r k m a n
is for t h e t i m e being e i t h e r unfit for w o r k or u n a b l e t o get it. W h e n h e is
able t o go b a c k t o work, h e will, like o t h e r w o r k m e n , h a v e his earnings available
for t h e n o r m a l s u p p o r t of himself a n d his family a n d , if he h a s a n y s u b s t a n t i a l
disability r e m a i n i n g from his injury, a pension for t h e loss h e h a s suffered in
his own person. Accordingly, it is n o w proposed t h a t d u r i n g t h e period of
injury
allowance t h e r a t e for a wife or other a d u l t d e p e n d a n t should be 16s. a
w e e k a n d t h e allowance for a child 7s. 6d. As r e g a r d s t h e period when the
workman is in receipt of pension u n d e r t h e new scheme, it is p r o p o s e d t h a t : —
(a) w h e n he is earning, n o allowance for wife, child or o t h e r d e p e n d a n t
should be p a y a b l e ;
(b) w h e n he is sick or u n e m p l o y e d , allowances of 16s. for a wife (or o t h e r
a d u l t d e p e n d a n t ) a n d 7s. 6d. for a first child s h o u l d b e p a y a b l e as
p a r t of t h e sickness or u n e m p l o y m e n t benefit h e w o u l d g e t u n d e r
P a r t I (2s. 6d. of t h e chilcVs allowance would come out of t h e
I n d u s t r i a l Injuries F u n d ) .
(c) w h e n he is in receipt of an " u n c m p l o y a b i l i t y s u p p l e m e n t " (see p a r a ­
g r a p h 4 above) allowances of 16s. a n d 7s. Qd. should b e p a y a b l e out
of t h e I n d u s t r i a l Injuries F u n d .
Sickness or unemplo3'ment benefit u n d e r (b) above w o u l d be subject to fulfil­
m e n t of t h e r e l e v a n t s t a t u t o r y conditions for t h e receipt of such benefit.
The
allowance of 16s. for a wife or a d u l t d e p e n d a n t paid w i t h injury allowance or
u n e m p l o y a b i l i t y s u p p l e m e n t will be subject to t h e rule p r o p o s e d in P a r t I of
t h e W h i t e P a p e r for sickness a n d u n e m p l o y m e n t benefit, n a m e l y , the allowance
would not be p a y a b l e w h e r e t h e wife or o t h e r a d u l t d e p e n d a n t w a s earning
m o t e t h a n 20s. a week.
t h e original proposals i t w a s
7. Pensioner who is sick or unemployed.—In
c o n t e m p l a t e d t h a t while a w o r k m a n w a s receiving benefit u n d e r t h e I n d u s t r i a l
Injuries S c h e m e he could not receive a n y sickness benefit u n d e r t h e General
S c h e m e in respect of i n c a p a c i t y due t o i n d u s t r i a l i n j u r y .
I t is n o w p r o p o s e d
t h a t he should n o t get sickness benefit while in receipt of a n injury allowance,
b u t if while he is in receipt of a pension he is or becomes i n c a p a b l e of w o r k h e
should, if he satisfies t h e n o r m a l conditions for t h e receipt of sickness benefit,
b e entitled, in a d d i t i o n t o his pension, t o sickness benefit, w h e t h e r t h e i n c a p a c u y
is d u e to t h e i n j u r y or t o some o t h e r cause. An i n d u s t r i a l pensioner w h o is
u n e m p l o y e d a n d otherwise qualified would receive u n e m p l o y m e n t benefit u n d e r
t h e General S c h e m e . T h e a m o u n t of his benefit would in e i t h e r case be s u b j e c t
, t o some restriction, as. e x p l a i n e d in t h e following p a r a g r a p h w h i c h is based on
a n existing rule g o v e r n i n g p a y m e n t of sickness benefit to w a r pensioners. T h e
a m o u n t of a n y allowance for wife, d e p e n d a n t or child t o w h i c h he m i g h t be
entitled would n o t be affected b y t h i s rule.
( 7 1 2 1 3 )
A*
8. T h e restriction referred t o in t h e preceding p a r a g r a p h w o u l d be t h a t a
w o r k m a n with a 100 p e r cent, pension would, u n t i l he h a d further qualified
b y h a v i n g been i n s u r a b l y e m p l o y e d for t e n weeks a n d p a i d ten c o n t r i b u t i o n s
since t h e d a t e of his injury, be e n t i t l e d t o half t h e o r d i n a r y r a t e of sickness
benefit for himself. W h e n he h a d so further qualified he w o u l d be e n t i t l e d to
t h e full r a t e . T h e r a t e of sickness a n d u n e m p l o y m e n t benefit proposed in
P a r t I of t h e W h i t e P a p e r is 24s. a week. T h u s , on this basis, he would receive,
in addition t o his pension, u n t i l h e h a d p a i d 10 c o n t r i b u t i o n s , 12s. a week, a n d
after he h a d p a i d 10 c o n t r i b u t i o n s , 24s. a week. If a w o r k m a n w a s in receipt
of a pension a t a r a t e less t h a n 100 p e r cent, he would be e n t i t l e d t o receive
u p t o t h e full rate of benefit p r o v i d e d t h a t t h e a m o u n t he got b y w a y of pension
a n d benefit did n o t exceed w h a t he would h a v e got if he h a d h a d pension at
t h e 100 per cent. r a t e . T h i s restriction would also d i s a p p e a r when he h a d
further qualified b y being i n s u r a b l y e m p l o y e d for ten w e e k s a n d p a y i n g ten
c o n t r i b u t i o n s after t h e d a t e of bis injury.
9. T h e b r o a d effect of t h e changes described above m a y be seen from t h e
following figures in cases w h e r e the i n j u r y results in 1 0 0 p e r cent, pension ; further
illustrations are given in t h e Tables a t t a c h e d t o t h i s P a p e r .
Single man
without
dependant
Man with wife (or adult
dependant) and one child
Injury Allowance
(Payable for a m a x i m u m of
26 weeks.)
40s.
40s.-f-16s.4-7s.
6d.^63s. 6d.
Pension
(i) If working 40s. -j-earnings
(ii) If temporarily sick or u n ­
s
employed.
(a) Less t h a n l O c o n t r i 40s. 4- 12s.
b u t i o n s since
injury.
40s. -f earnings.
4 0 s . - f l 2 s . (self)
-j-16s. (wife)
-f7s. 6d. (child)
Total
(b) A t least 10 contrib u t i o n s since
injury.
40s. 4-24s.
4 0 S . + 2 4 S . (self)
-f-16s. (wife)
+ 7 S . 6d. (child)
Total
(hi) If
permanently
incapacit a t e d for work.
40s.-r-20s.
=75s. 6d.
;87s.
6d.
40s.-I-20s. (self) - f l 6 s . (wife) +7S. 6d. (child) Total
=83s.
6d.
Notes.—(i) F o r other r a t e s of pension, s u b s t i t u t e t h e a c t u a l pension figure
for 40s. a n d , for t h e figure of 12s. a t (ii) (a) substitute:—­
if pension is 90 per cent.
..
..
..
..
16s.
if pension is 80 per cent.
..
..
..
..
..
20s.
if pension is 70 per cent, or less
..
..
...
24s.
(ii) F o r r a t e of sickness a n d u n e m p l o y m e n t benefit, see p a r a g r a p h 8 a b o v e .
10. O t h e r changes which h a v e been m a d e in t h e original proposals are as
follows :—
(a) Children.—The W h i t e P a p e r p r o p o s e d t h a t t h e Scheme s h o u l d n o t
a p p l y to children u n d e r school leaving age. Subject t o c e r t a i n
conditions, however, children u n d e r school leaving age m a y be, a n d
are, in fact, e m p l o y e d , a n d on further c o n s i d e r a t i o n it does n o t s e e m
right to the G o v e r n m e n t t h a t t h e y s h o u l d be entirely e x c l u d e d from
benefit if t h e y are injured during t h e course of their e m p l o y m e n t . I t
is n o w proposed, therefore, t h a t c o n t r i b u t i o n s should n o t be r e q u i r e d
for t h e m ; t h a t injury allowance s h o u l d b e p a y a b l e only so far as
m i g h t be prescribed b y Regulations ; b u t t h a t t h e y s h o u l d be en­
titled to d i s a b l e m e n t pension, subject t o t h e u s u a l c o n d i t i o n s , a t t h e
juvenile r a t e (i.e. half t h e o r d i n a r y a d u l t r a t e ) . T h e allowance or
pension w o u l d b e p a i d to t h e child's p a r e n t or g u a r d i a n .
(b) "Arising out of and in the course of".—The proposal in t h e W h i t e
P a p e r was t h a t , as in the existing W o r k m e n ' s C o m p e n s a t i o n Acts,
benefit should be p a y a b l e in respect of a c c i d e n t s " arising o u t of
a n d in t h e course of e m p l o y m e n t . "
T h e G o v e r n m e n t are still of
t h e opinion t h a t , as a general description of t h e n a t u r e of accidents
for which benefit will b e paid, n o o t h e r form of w o r d s w o u l d be found
in practice t o be m o r e satisfactory t h a n these, b u t t h e y propose a
modification in favour of t h e w o r k m a n t o t h e e x t e n t t h a t accidents
arising in t h e course of e m p l o y m e n t shall be deemed, in t h e
absence of evidence t o t h e c o n t r a r y , also t o h a v e arisen o u t of t h a t
employment.
(c) Accident when travelling to or from work.—Under
the Workmen's
C o m p e n s a t i o n Acts a w o r k m a n m e e t i n g w i t h a n a c c i d e n t while using a
c o n v e y a n c e p r o v i d e d b y his e m p l o y e r is able t o recover c o m p e n s a t i o n
only w h e n h e can s h o w t h a t t h e r e w a s a c o n t r a c t u a l obligation t o use
the conveyance.
I t is n o w p r o p o s e d t h a t t h e w o r k m a n s h o u l d be
e n t i t l e d t o benefit in respect of a n a c c i d e n t occurring while h e is,
w i t h t h e express or implied p e r m i s s i o n of his employer, travelling
b y a n y vehicle to or from his place of work, n o t w i t h s t a n d i n g t h a t he
is u n d e r n o obligation t o his e m p l o y e r t o t r a v e l b y t h a t vehicle, if t h e
vehicle is being o p e r a t e d b y or on behalf of his emploj-er or some o t h e r
p e r s o n b y w h o m -it is p r o v i d e d in p u r s u a n c e of a r r a n g e m e n t s m a d e
w i t h his employer a n d is n o t being o p e r a t e d in t h e o r d i n a r y course
of a p u b l i c t r a n s p o r t service.
id) Accident during an emergency.—The W h i t e P a p e r p r o p o s e d t h a t
benefits should be p a y a b l e in respect of accidents occurring while a
w o r k m a n was engaged in rescue w o r k a n d o t h e r specified classes of
e m e r g e n c y w o r k in connection w i t h i n d u s t r i a l u n d e r t a k i n g s .
It
is n o w proposed, while m a i n t a i n i n g t h e cover in t h e existing W o r k ­
m e n ' s C o m p e n s a t i o n Acts for m i n e rescue brigades a n d e x t e n d i n g it
t o certain o t h e r similar organizations, t o frame t h e proposed general
provision so as to c o v e r accidents arising d u r i n g a n emergency a t t h e
e m p l o y e e s premises, w h e t h e r i n d u s t r i a l or n o t , when t h e w o r k m a n
t a k e s steps t o rescue or p r o t e c t p e r s o n s or p r o p e r t y .
(e) Dependency of parents or relatives in fatal cases.—The W h i t e P a p e r
p r o p o s e d t h a t in fatal cases pensions p a i d to p a r e n t s or t o o t h e r
relatives (except t h e widow in whose case residence with t h e deceased
a t t h e t i m e of his d e a t h would suffice) s h o u l d be subject t o t h e con­
dition t h a t t h e c l a i m a n t was wholly or m a i n l y d e p e n d e n t on t h e
w o r k m a n a t t h e t i m e of his i n j u r y a n d either c o n t i n u e d t o be
d e p e n d e n t u p t o t h e t i m e of d e a t h or would, b u t for t h e injury, h a v e
been so d e p e n d e n t . I t is now p r o p o s e d t h a t t h e c o n d i t i o n should be
t h a t t h e p a r e n t or relative w a s wholly or m a i n l y d e p e n d e n t a t t h e
t i m e of d e a t h or would h a v e been so d e p e n d e n t b u t for t h e accident.
11. Contributions.—In
order t o cover t h e cost of these proposals it h a s been
decided t o increase t h e t o t a l c o n t r i b u t i o n for a d u l t s b y Id. T h e original
proposal w a s t h a t a m a n should p a y 3d. a n d his employer 3d. ; a w o m a n 2d.,
a n d her e m p l o y e r 2d. I t is n o w proposed, in order t o avoid half-pennies in
t h e deduction which t h e employer m a k e s from t h e a d u l t w o r k e r ' s wages, t o
a d d t h e e x t r a Id. t o t h e e m p l o y e r ' s c o n t r i b u t i o n , on t h e u n d e r s t a n d i n g t h a t
a t t h e first suitable o p p o r t u n i t y e q u a l i t y of c o n t r i b u t i o n b e t w e e n employer
a n d worker will be restored.
C - O u t l i n e 01 t h e Scheme in t h e Bill
Part I
12. Scope of the Scheme.—Broadly
speaking t h e Scheme will cover all persons
working u n d e r a contract of service or a p p r e n t i c e s h i p a n d will c o r r e s p o n d
closely w i t h Class I of t h e classification u n d e r t h e General Scheme ( P a r t I of t h e
W h i t e P a p e r ) . T h e r e will be no income limit in t h e case of n o n - m a n u a l w o r k e r s
a n d no provision for " c o n t r a c t i n g o u t " schemes. As a l r e a d y n o t e d it will
include children u n d e r school leaving age w h o a r e e m p l o y e d b u t will not re­
quire c o n t r i b u t i o n s for t h e m . It will provide benefit for persons injured while
serving as m e m b e r s of rescue brigades in mines a n d elsewhere, a n d generally
for persons injured d u r i n g rescue w o r k d u e t o a n e m e r g e n c y arising a t t h e i r
e m p l o y e e s premises. I t will also contain special provision for c e r t a i n a c c i d e n t s
occurring while t h e w o r k m a n is travelling to a n d from w o r k .
13. Contributions.—Contributions
will be p a y a b l e by all insured w o r k m e n
a n d their e m p l o y e r s a n d t h e E x c h e q u e r will m a k e a c o n t r i b u t i o n e q u a l t o one­
fifth of t h e c o m b i n e d c o n t r i b u t i o n of workpeople a n d employers. T h e r a t e of
contribution for a n a d u l t m a l e worker will be Id. a week, Ad. being p a y a b l e
b y t h e e m p l o y e r a n d 3d. b y t h e w o r k m a n . T h e corresponding figures for a n
a d u l t w o m a n will be 5d. (employer 3d., w o m a n 2d.) ; for a b o y u n d e r 18, 3d.
(employer 1 Id., b o y lid.) ; a n d for a girl u n d e r 18, 2d. (employer Id., girl Id.).
T h e r e will be n o c o n t r i b u t i o n in respect of children u n d e r school leaving age.
14. C o n t r i b u t i o n s will be paid b y m e a n s of s t a m p s affixed t o cards, as t h e y
h a v e a l w a y s been u n d e r t h e H e a l t h a n d U n e m p l o y m e n t I n s u r a n c e Schemes.
I t is i n t e n d e d t h a t when this S c h e m e a n d t h e General Scheme come into
operation t h e c o n t r i b u t i o n s u n d e r b o t h Schemes should generally be collected
b y m e a n s of one s t a m p on one c a r d .
Part II
15. Benefds.—The principal benefits in non-fatal cases will be : —
(a) Injury
Allowance of 40s. a week p a y a b l e d u r i n g i n c a p a c i t y for work
for n o t m o r e t h a n t w e n t y - s i x weeks ;
(b) Disablement
Pension p a y a b l e where t h e w o r k m a n c o n t i n u e s . t o be
i n c a p a b l e of work after t h e 26 weeks period or w h e r e , after i n c a p a c i t y
ceases (either before or after t h e e n d of t h a t period), he c o n t i n u e s t o
suffer from some p e r m a n e n t or s u b s t a n t i a l disability d u e t o t h e
injury. - T h e pension will be 40.9, w h e r e t h e degree of d i s a b l e m e n t is
assessed a t 100 p e r cent., a n d p r o p o r t i o n a t e a m o u n t s w h e r e t h e
degree of disablement is assessed a t s o m e t h i n g less t h a n 100 p e r cent.
I t will b e increased b y 20s. a week w h e r e t h e pensioner, n o t w i t h ­
s t a n d i n g remedial measures, r e m a i n s v i r t u a l l y u n e m p l o y a b l e ; a n d
it m a y b e increased b y a m o u n t s u p t o 20s. a week w h e r e t h e pensioner
is in n e e d of c o n s t a n t a t t e n d a n c e .
(c) Dependants
Allowances.—An
allowance of 16s. a week p a y a b l e for a
wife or o t h e r a d u l t d e p e n d a n t a n d a n allowance of 7s. Qd. for a. first
child while t h e w o r k m a n is in receipt of-injury allowance or w h e n h e
is receiving an a d d i t i o n t o his pension of a s u p p l e m e n t of 20s.
because he is v i r t u a l l y u n e m p l o y a b l e . T h e allowance for a wife or
o t h e r a d u l t d e p e n d a n t will not b e p a y a b l e w h e r e t h e wife or d e p e n d a n t
is e a r n i n g m o r e t h a n 20s. a week, a n d not m o r e t h a n one such
allowance will be p a y a b l e . " C h i l d " h a s the s a m e m e a n i n g in t h i s
Bill as in t h e F a m i l y Allowances Bill.
16. T h e r a t e s of benefit will b e t h e s a m e for m e n a n d w o m e n . A m a r r i e d
w o m a n whose h u s b a n d is wholly or m a i n l y d e p e n d e n t on h e r earnings and
i n c a p a b l e of self-support will be entitled t o a n a l l o w a n c e of 16s. in respect of
him.
She will also be eligible for an allowance in respect of a d e p e n d a n t
or a first child s u b j e c t t o t h e s a m e conditions as a m a l e worker. R a t e s of
benefit for u n m a n icd w o r k m e n u n d e r eighteen y e a r s of age will be half t h e
r a t e for an a d u l t , t o b e raised t o t h e a d u l t r a t e on a t t a i n i n g eighteen y e a r s of
age, b u t a n y d e p e n d a n f s allowance will be p a y a b l e a t t h e full r a t e s .
(For
children u n d e r school leaving age, see p a r a g r a p h 10 (a) a b o v e ) .
17. W h e r e a n i n d u s t r i a l pensioner h a s to e n t e ^ hospital or a n i n s t i t u t i o n '
for a p p r o v e d t r e a t m e n t for disability d u e t o Iris injury his pension whilst
u n d e r g o i n g such t r e a t m e n t will b e a t t h e 100 p e r cent, r a t e w i t h d e p e n d a n f s
allowance w h e r e a p p r o p r i a t e , b u t if lie is b e i n g m a i n t a i n e d free of c h a r g e t h e
pension will be subject t o a deduction of 10s. a week in respect of h o m e s a v i n g
18. Minor injuries.—Where
an. i n j u r y results in only a m i n o r d i s a b l e m e n t
( a m o u n t i n g t o at least 1 per cent, b u t less t h a n 20 per cent.) a final s e t t l e m e n t
will b e m a d e by an award, of a g r a t u i t y , w h i c h m a y be p a y a b l e b y i n s t a l m e n t s ,
t h e a m o u n t n o t t o exceed £100.
19. Fatal cases.—The p r i n c i p a l benefits in fatal cases, w h i c h will b e subject
to t h e conditions m e n t i o n e d in t h e n e x t p a r a g r a p h , will be as follows :—
(a) A widow m a r r i e d t o t h e deceased before t h e d a t e of his i n j u r y
receive—
will
(i) if she is fifty y e a r s of a g e or over, or being u n d e r t h a t age,
h a s t h e care of a child of t h e w o r k m a n , or is p e r m a n e n t l y
i n c a p a b l e of self-support, a pension of 30s. a week ;
k
(ii) in o t h e r cases, a pension of 20s. a week.
If she w o u l d h a v e qualified u n d e r t h e General Scheme for a w i d o w ' s
benefit a t a higher r a t e d u r i n g a n initial period ( n o r m a l h ' 36s.
a week for 13 weeks following t h e death) t h e pension will be
raised t o t h a t higher r a t e for t h e a p p r o p r i a t e period.
Where
a widow u n d e r fifty is a w a r d e d a pension a t t h e 30s. r a t e because
she h a s t h e care of a child of t h e w o r k m a n , t h e pension will c o n t i n u e
a t t h i s r a t e w h e n t h e child ceases t o b e qualified for an allowance
if she h a s t h e n a t t a i n e d t h e a g e of 50 years. W h e r e t h e w i d o w w a s
s e p a r a t e d from her h u s b a n d a t t h e t i m e of his d e a t h p i o v i s i o n will
b e m a d e for t h e a w a r d of a pension in a c c o r d a n c e w i t h a n y p a y m e n t
s h e w a s receiving or entitled to receive from h i m subject t o a m a x i m u m
of t h e a p p r o p r i a t e r a t e a b o v e . O n r e m a r r i a g e t h e p e n s i o n will
cease b u t t h e r e will be a m a r r i a g e g r a t u i t y e q u a l t o o n e y e a r ' s
pension. W h e r e a w o r k m a n w a s in receipt a t t h e t i m e of his d e a t h
of a n " u n e m p l o y a b i l i t y s u p p l e m e n t " t h e w i d o w ' s pension will b e
p a y a b l e irrespective of t h e d a t e of m a r r i a g e .
(b) An allowance of 7s. 6d. weekhy will b e p a y a b l e in respect of one of
t h e w o r k m a n ' s children. (No specific provision is m a d e for o r p h a n s ,
tor w h o m allowances a t a special r a t e will be p r o v i d e d u n d e r t h e
General Scheme (Part I of the W h i t e P a p e r — C m d . 6550).)
(c) A widower whose wife, being an industrial worker, was married t o h i m
previous t o her injury will be eligible for a pension of 20s, a week if
he is p e r m a n e n t l y incapable of self-support.
(d) A pension will be p a y a b l e , w h e t h e r or n o t a widow's pension is p a y a b l e ,
t o a p a r e n t w h o is p e r m a n e n t l y incapable of self-support. T h e m a x i ­
m u m pension for one p a r e n t will be 20s. a week ; if b o t h p a r e n t s
qualify, t h e pension will be 15s. a week each.
(e) W h e r e n o pension is p a y a b l e to a widow or a p a r e n t one other a d u l t
relative of t h e deceased w o r k m a n (if within t h e prescribed degree)
w h o was resident with him a t t h e t i m e of t h e injury will b e eligible for
a pension if p e r m a n e n t l y incapable of self-support. T h e m a x i m u m
r a t e of pension will be 20s. a week.
(/) W h e r e n o pension is p a y a b l e u n d e r t h e foregoing provisions a w o m a n
w h o w a s resident w i t h t h e w o r k m a n a t t h e d a t e of the injury a n d
t h r o u g h o u t t h e period between t h a t d a t e a n d his d e a t h will be eligible
for a t e m p o r a r y v p e n s i o n if she has t h e care of his child or children.
T h e m a x i m u m rate will be 20s. a week and t h e pension will be p a y a b l e
so long as at least one child is within t h e qualifying age for a n allow­
a n c e u n d e r t h e Scheme.
(s) A (prescribed) relative of t h e deceased w o r k m a n w h o is n o t eligible
for a n y pension u n d e r t h i s Scheme will be eligible for a t e m p o r a r y
allowance of 36s. a week for t h i r t e e n weeks.
20. Pensions for widows will be subject t o the condition t h a t t h e y were
resident w i t h or wholly or m a i n l y m a i n t a i n e d b y t h e deceased a t t h e t i m e of
his d e a t h .
Pensions or allowances t o p a r e n t s or other relatives will b e subject
t o t h e condition t h a t t h e claimant was wholly or m a i n l y m a i n t a i n e d b y t h e
w o r k m a n a t the t i m e of his d e a t h or would b u t for the injury h a v e been so m a i n ­
tained. I n o t h e r cases t h e condition will be t h a t t h e c l a i m a n t w a s wholly or
mainly m a i n t a i n e d b y t h e insured person a t t h e t i m e of his injury a n d either
c o n t i n u e d t o be so m a i n t a i n e d u p t o t h e d a t e of d e a t h or would, b u t for t h e
injury, h a v e been so m a i n t a i n e d . T h e m a x i m u m r a t e in s u b - p a r a g r a p h s (d),
(e) a n d (/) above will be given where t h e d e p e n d e n t h a d been wholly m a i n t a i n e d
b y t h e w o r k m a n ; in other cases t h e a m o u n t will be p r o p o r t i o n a t e t o t h e degree
of m a i n t e n a n c e which h a d been given. I n t h e case of a female d e p e n d a n t t h e
pension will cease on s u b s e q u e n t m a r r i a g e .
21. Duplication of Benefit.—The r a t e of injury allowance or d i s a b l e m e n t
pension p a y a b l e t o a. w o r k m a n w h o receives a second or s u b s e q u e n t i n j u r y will
be subject to t h e rule t h a t , a p a r t from allowances for a wife or child, h e c a n n o t
receive m o r e in t o t a l t h a n t h e m a x i m u m of 40/- (20/- for a juvenile). R e g u l a t i o n s
m a y p r o v i d e for a d j u s t m e n t s in certain cases for d u p l i c a t i o n of benefits, in
p a r t i c u l a r as regards m o r e t h a n one set. of allowances in respect of d e p e n d a n t s ,
a n d also other cases \e.g. t h a t of a widow w h o herself suffers a n i n d u s t r i a l
injury) w h e r e p a y m e n t s would accrue p a r t l y in a person's own right a n d p a r t l y
owing t o his relationship to some one else.
Part III
22. Determination of claims.—All claims to benefit will in t h e first instance
b e dealt w i t h b y a n I n s u r a n c e Officer. A claim will n o r m a l l y be m e t on an
application b y or on behalf of t h e w o r k m a n , or in fatal cases, b y or on behalf of
t h e d e p e n d e n t . T h e claimant will be r e q u i r e d to give notice of t h e accident to
his e m p l o y e r a n d t o s u b m i t his claim t o t h e I n s u r a n c e Officer f o r t h w i t h w i t h a
covering certificate a n d other a p p r o p r i a t e particulars.
T h e e m p l o y e r will be
r e q u i r e d to r e p o r t the accident t o t h e I n s u r a n c e Officer. T h e Officer will
n o r m a l l y decide t h e claim a n d if he decides it against t h e claimant t h e c l a i m a n t
will h a v e a right of appeal t o t h e local A p p e a l T r i b u n a l .
This T r i b u n a l will
consist of one or more m e m b e r s chosen t o represent employers with an e q u a l
n u m b e r of m e m b e r s chosen to represent insured persons a n d a C h a i r m a n
a p p o i n t e d b y t h e Minister. Appeals will lie from t h e decision of t h e local
T r i b u n a l t o a n I n d u s t r i a l Injuries Commissioner whose decision will be final.
T h e proposals for t h e a p p o i n t m e n t of t h e Commissioner a n d t h e constitution of
t h e local T r i b u n a l s and t h e rules g o v e r n i n g procedure t h r o u g h o u t are closely
modelled on t h e existing provisions of the U n e m p l o y m e n t I n s u r a n c e Acts.
23. Assessment for pension.—When a w o r k m a n ceases to be incapable of
w o r k or h a s been incapable for t w e n t y - s i x weeks b u t is e n t i t l e d to b e assessed
for pension b y reason of continuing disability, his disablement (if any) will h a v e
t o be assessed in order to d e t e r m i n e w h e t h e r a pension s h o u l d be p u t in p a y m e n t .
F o r this p u r p o s e he will normally be e x a m i n e d b y a Medical B o a r d a n d t h e
I n s u r a n c e Officer will d e t e r m i n e t h e pension t o b e p a i d in accordance w i t h the
Medical Boarcks r e p o r t . T h e w o r k m a n will h a v e certain rights of a p p e a l against
t h e decision of t h e Medical B o a r d t o a Medical Appeal T r i b u n a l a n d t h e decision
of t h a t T r i b u n a l will be final. A Medical B o a r d will consist of n o t less t h a n
t w o medical p r a c t i t i o n e r s a p p o i n t e d b y t h e Minister of w h o m one will b e
a p p o i n t e d C h a i r m a n , a n d a Medical A p p e a l T r i b u n a l will consist of a C h a i r m a n
selected b y t h e Minister a n d t w o m e d i c a l p r a c t i t i o n e r s . T h e Minister i n s t e a d
of himself a p p o i n t i n g Medical B o a r d s m a y a r r a n g e w i t h a n y o t h e r G o v e r n m e n t
D e p a r t m e n t t h a t a n y Medical B o a r d consisting of not less t h a n t w o medical
p r a c t i t i o n e r s a p p o i n t e d or recognised b y t h a t D e p a r t m e n t shall b e a Medical
B o a r d for t h e p u r p o s e s of t h e I n d u s t r i a l Injuries Scheme.
24. Review of decisions.—There are provisions for enabling decisions given
b y a n I n s u r a n c e Officer, a Local A p p e a l T r i b u n a l , t h e Commissioner, a Medical
B o a r d or a Medical Appeal T r i b u n a l t o b e reviewed in certain c i r c u m s t a n c e s
defined in t h e Bill.
Part IV
25. Extension of the Scheme to Diseases, etc.—It is p r o p o s e d t o a d h e r e
generally t o t h e principles a t present recognised in e x t e n d i n g t h e W o r k m e n ' s
C o m p e n s a t i o n A c t s t o diseases scheduled or otherwise specified which are d u e
t o t h e n a t u r e of t h e e m p l o y m e n t . A c c o r d i n g h ' , t h e Bill gives t h e Minister
p o w e r t o prescribe such diseases (either generally in relation to all i n s u r e d
persons, or in relation to insured persons employed in prescribed occupations)
a n d i n c a p a c i t y for work or other disabilities resulting from such prescribed
disease in t h e case of a person who fulfils t h e necessary conditions will be
t r e a t e d on t h e s a m e footing as an " i n j u r y " due to a n accident, subject t o
a n y necessary modifications which rany be m a d e b y R e g u l a t i o n s .
There
a r e provisions regarding certain r e s p i r a t o r y diseases which will enable t h e
special m e d i c a l a n d other a r r a n g e m e n t s in r e g a r d t o pneumoconiosis t o be con­
tinued.
Part V
" 26. Finance.—An I n d u s t r i a l Injuries F u n d will b e set u p out of w h i c h
all benefits a n d a d m i n i s t r a t i v e charges will b e paid. T h e F u n d will b e m a i n ­
t a i n e d b y weekly c o n t r i b u t i o n s from employers a n d w o r k m e n , w i t h a
contribution from t h e E x c h e q u e r . F u r t h e r information regarding the financial
provisions of the Scheme is given in t h e Financial M e m o r a n d u m a t t a c h e d t o
t h e Bill.
27. Administration.—The
Minister of N a t i o n a l I n s u r a n c e will be responsible
t h r o u g h his officers for the d a y - t o - d a y a d m i n i s t r a t i o n of t h e SchcTne. An
I n d u s t r i a l Injuries Advisory Council will be set u p which will include a n equal
n u m b e r of persons representing e m p l o y e r s a n d insured persons respectively.
It will be t h e d u t y of this Council to consider a n d advise t h e Minister on such
questions relating t o the Act as he refers to t h e m . T h e Bill also empowers
t h e Minister to p r o m o t e or assist research i n t o t h e cause a n d incidence
of a n d m e t h o d s of p r e v e n t i o n of accidents, injuries a n d diseases a n d
t o m a k e a r r a n g e m e n t s w i t h t h e Ministry of L a b o u r a n d N a t i o n a l Service
l o r securing t h a t persons entitled t o benelit u n d e r t h e Scheme t a k e full
a d v a n t a g e of vocational t r a i n i n g courses a n d industrial rehabilitation courses.
Provisions for t h e issue of i n s u r a n c e s t a m p s , books a n d cards a n d for t h e
issue of copies of birth, m a r r i a g e or d e a t h certificates a t special r a t e s are on
t h e lines familiar in the I n s u r a n c e Schemes, as are also t h e provisions relating
t o legal proceedings in connection w i t h t h e Act.
Part VI
2S. Miscellaneous
and General.—Power
is given to t h e Minister to m a k e
regulations modifying the provisions of t h e Scheme in t h e case of seamen a n d
a i r m e n (that is, persons e m p l o y e d on civil aircraft) t o t a k e a c c o u n t of t h e
special c i r c u m s t a n c e s arising from t h e i r e m p l o y m e n t outside Great B r i t a i n .
T h e Minister will also h a v e power to m a k e regulations d e t e r m i n i n g w h a t
p e r s o n s are to be t r e a t e d as e m p l o y e r s in c e r t a i n cases. Provision is m a d e
for reciprocal a r r a n g e m e n t s with o t h e r countries.
29. Application
of the New Scheme to Past Cases.—The Vvorkmcn's Com­
p e n s a t i o n Acts, including t h e W o r k m e n ' s Compensation ( T e m p o r a r y Increases)
Act, 1943, will continue t o a p p l y (subject t o c e r t a i n a m e n d m e n t s proposed in
t h e F a m i l y Allowances Bill) to cases arising before t h e n e w scheme comes i n t o
force, w i t h suitable a d a p t a t i o n t o cases due t o i n d u s t r i a l disease. I t is p r o ­
vided in t h e Bill, however, t h a t a w o r k m a n receiving weekly p a y m e n t s of
c o m p e n s a t i o n u n d e r the Acts w h o , if he c a m e u n d e r t h e new Scheme, would
be d e e m e d to be v i r t u a l l y u n e m p l o y a b l e as a result of his injury m a y a p p l y
for a n d b e g r a n t e d an a d d i t i o n a l allowance of 20s. a week (see p a r a g r a p h 4
a b o v e ) . T h e cost of this allowance will be b o r n e b y t h e I n d u s t r i a l Injuries
Fund.
Proposals now made compared with White Paper proposals and benefits under the Workmen's Compensation Acts
Table A
Initial period of total incapacity
After 13 weeks
First 13 weeks
Typ
Typee of cas
casee
W.C. Acts
White Paper
proposals
Proposals
now made
W.C. Acts
White Paper
Proposals
now made
(2)
(3)
(4)
(5)
(6)
(7)
Single man or woman
35s. max.
35s.
40s.
40s. max.
40s.
40s.
Singl
Singlee ma
man
n or woma
woman
n wit
with
h adul
adultt dependan
dependantt
35s.
35s. max.
35s.
8s. 9d. (dept.)
(1)
Total : 43s. 9d.
Marrie
Married
d ma
man
n
40s.
40s. max.
35s.
8s. 9d. (wife)
Total : 43s. 9d,
Marrie
Married
d ma
man
n wit
with
h chil
child
d
45s. max. 35s.
8s. 9d. (wife)
5s.
(child)
Total : 48s. 9c?.
40s
40s..
40s
40s..
16s
16s.. (dept.
(dept.))
10s
10s.. (dept.
(dept.))
16s
16s.. (dept.
(dept.))
Tota
Totall : 56s
56s..
Total:: 50s
Total
50s..
Total:: 56s
Total
56s..
40s.
10s. (wife)
40s.
40s.
40s
40s..
40s.
40s.
16s
16s.. (wife
(wife))
Tota
Totall : 56s
56s..
40s.
16s.
(wife)
7s. Gd. (child)
Total: 63s. 6d.
40s
40s.. max.
50s
50s.. max.
Total : 50s.
55s. max. 40s.
10s.
(wife)
7s. 6d. (child)
16s.
16s. (wife
(wife))
Tota
Totall : 56s
56s..
40s.
16s.
(wife)
7s. Gd. (child)
Total : 57s. Gd. Total : 63s. Gd.
No maximum period
Maximum of 13
weeks, i.e. 26
weeks in all
Note.—If the wife or dependant is earning more than 20s. a week, the allowance of 16s. shown in columns (4) and (7) will be withheld.
Table B
Workman permanently incapable of work as a result of injury and with 100 per cent.
Pension under New Scheme
Workmen's
Compensation
Acts
(1)
(2)
Single man or woman. .
(3) '
Married man
(4)
405.
40s.
maximum 10s. (unemployability
supplement)
Total
Single man or woman
with adult dependant.
Present Proposal
White Paper
..
..
50s.
405.
40s.
maximum 10s. (dependant)
50s.
Total
..
. . 60s.
10s. (unemployability
supplement)
40s.
16s. (dependant)
20s. (unemployability
supplement)
Total
Total
..
..
60s.
..
. . 76s.
10s. (unemployability
supplement)
40s.
16s. (wife)
20s. (unemployability
supplement)
Total
Total
40s.
maximum 10s. (wife)
Married man with child
40s.
20s. (unemployability
supplement)
..
. ..
60s.
55s.
40s.
maximum 10s. (wife)
7s. 6d. (child)
10s. (unemployability
supplement)
Total
..
67s. 6d.
..
. . 76s.
40s.
16s. (wife)
7s. Gd. (child)
20s. (unemployability
supplement)
Total
..
83s. 6d.
Note.—If the wife or dependant is earning more than 20s. a week the allowance of 16s.
shown in column (4) will be withheld.
LONDON PRINTED AND PUBLISHED BY HIS MAJESTVS STATIONERY OFFICE To be purchased directly from H.M. STATIONERY OFFICE at the following addresses: York House, Kingsway, London. W.C.2 ; 13a Castle Street, Edinburgh 2 ;
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or through any bookseller
19+5
Price 2d. net
371218)
W t . ^.w-/652
5/45
Hw.
G.344